The Foreign Service Journal, October 2005

KATRINA’S TOLL I OP-ED WRITING 101 I STATE’S GLASS CEILING

$3.50 / OCTOBER 2005 OREIGN ERVICE FJ O U R N A L S THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS

NO EASY ANSWERS How Should the U.S. Deal with “Rogue” States?

CONTENTS October 2005 Volume 82, No. 10

F OCUS ON “ROGUE” ST ATES F EATURE:

25 / THE BUSH DOCTRINE FOR THE RECORD: BREAKING THROUGH AND “ROGUE” STATES DIPLOMACY’S GLASS CEILING / 53 Bush administration policy Secretary of State Rice can give well-qualified aims to tame “rogue” states Foreign Service women more opportunities to serve or, failing that, destroy them. in key countries and in senior positions not previously Will it be judged a success? offered them. By Christopher Preble By Ann Wright

31 / WAR WITH IRAN, OR WITH THE FACTS? C OLUMNS D EPARTMENTS Efforts by the British, French and Germans offer PRESIDENT’S VIEWS / 5 LETTERS / 7 hope that the day Tehran Liberia in Louisiana CYBERNOTES / 14 acquires nuclear weapons By J. Anthony Holmes MARKETPLACE / 16 can be put off indefinitely. BOOKS / 63 By Henry Precht SPEAKING OUT / 17 INDEX TO ADVERTISERS / 70 Let’s Use International 37 / A ROGUE BY ANY OTHER NAME AFSA NEWS / Organizations to Ruled by a brutal dictator who threatens the whole CENTER INSERT Fight Terrorism world, North Korea looks like the perfect foe. By Leon Weintraub But that isn’t the whole story. By Leon V. Sigal FS KNOW-HOW / 21 Tips for Getting Op-Eds 45 / LIBYA: AN ALTERNATIVE PARADIGM Published The U.S.-Libya détente promises great mutual benefit, By Dennis Jett provided the forward momentum is maintained. By David L. Mack REFLECTIONS / 72 By Steven Mendel 49 / INEXTRICABLY LINKED: THE U.S. AND SYRIA The Bush administration could advance its objectives not only in Syria but throughout the Middle East by offering carrots instead of wielding sticks. By Murhaf Jouejati

THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS OREIGN ERVICE Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published FJ O U R N A L S monthly with a combined July/August issue by the American Foreign Service Association, a private, non-profit Editor Editorial Board organization. Material appearing herein represents the opinions of the writers and does not necessarily represent STEVEN ALAN HONLEY Senior Editor HOLLIS SUMMERS, the views of the Journal, the Editorial Board or AFSA. Writer queries and submissions are invited, preferably by SUSAN B. MAITRA CHAIRMAN e-mail. Journal subscription: AFSA Members - $13 included in annual dues; others - $40. For foreign surface mail, Associate Editor add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Washington, D.C., and at additional mail- SHAWN DORMAN KENT C. BROKENSHIRE ing offices. Postmaster: Send address changes to Foreign Service Journal, 2101 E Street N.W., Washington, D.C. Ad & Circulation Manager STEPHEN W. B UCK 20037-2990. Indexed by Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited ED MILTENBERGER PATI CHAPLIN manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of advertisements herein Business Manager CAROL A. GIACOMO MIKKELA V. THOMPSON does not imply the endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. WILLIAM W. J ORDAN Art Director E-MAIL: [email protected]. WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service CARYN SUKO SMITH LAURIE KASSMAN Association, 2005. Printed in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., KAY WEBB MAYFIELD Editorial Intern Washington, D.C. 20037-2990. Printed on 50-percent recycled paper, of which 10 percent is post-consumer waste. BROOKE DEAL VIRGINIA F. SMITH Advertising Intern CHRISTOPHER L. TEAL WILLEM HOFSTEDE TED WILKINSON Cover and inside illustrations by PJ Loughran

OCTOBER 2005/FOREIGN SERVICE JOURNAL 3

PRESIDENT’S VIEWS Liberia in Louisiana

BY J. ANTHONY HOLMES

After a three- for a long time. The direct effects on In moral terms, our power is year posting in a global energy and commodity markets, based on the degree to which the dynamic but im- the physical flow of trade, and U.S. eco- United States itself embodies the val- poverished African nomic growth are already apparent. ues that it preaches and can demon- country, I spent Longer lasting will be the impact of the strate the justice, empathy and demo- August on home images of Katrina’s aftermath on our cratic nature of our society and its leave reconnecting ability to use our power to influence institutions. Europeans are well with American so- other countries’ decisions and behavior. aware of the racial and socio-econom- ciety to be able to better represent our I can think of no other purely domestic ic divides in American society, but country abroad. Home leave this year event during my 26 years in the these issues were much less familiar reaffirmed a core truth in our business: Foreign Service with such a significant to the rest of the world. Virtually there is a huge, fundamental link image-altering effect on how foreign everyone abroad was shocked and between U.S. domestic events and peoples and governments view the appalled by the live news footage of issues and our national security and for- United States, easily surpassing the Katrina’s aftermath, images we have eign policy. Florida vote count fiasco during the grown callously inured to when they No one in the U.S. foreign affairs 2000 presidential elections. arrive from such places as Liberia or community needs to be told about the Based on my service overseas it is eastern Congo. power of images. We spend billions obvious to me that most Americans, in It is no less misguided, of course, annually to hone and project the government and outside, misunder- to draw broad conclusions about the images of the United States we want to stand the true sources of U.S. power. U.S. based on the Katrina images than convey abroad. We constantly battle The oversimplified post-Cold War it is to overlook Africa’s many success- negative stereotypes and hostile propa- view of our sole-superpower status as es and focus only on its trouble spots. ganda. The fight is difficult enough largely based on military power is no The difference is that we seek to lead when right is on our side. Distortions, longer valid, if it ever was. More the world and effect profound change half-truths and missing context are important are our economic might through moral suasion. We jumped at even tougher to counter. If there is a and, particularly, our moral stature. In the chance to show our generosity and disconnect between the images we pro- economic terms, in addition to the global relief capabilities in responding ject and the underlying reality, the real- sheer size of our economy, this to the Southeast Asian tsunami, earn- ity inevitably wins out and our credibil- depends on two things: our willingness ing real credit. But our planning and ity and ability to alter perceptions to practice what we preach and live by relief failures at home, in a situation abroad suffer. In this context, the the rules that we have so effectively where the victims were seen to be footage I’ve been watching of events had put in place to govern internation- poor and black, are far more visible. unfolding in New Orleans, and of offi- al economic relations; and our willing- Nothing better serves our power and cials’ reactions to them, is haunting. ness to forgo the temptation to sacri- influence abroad than an image of Hurricane Katrina is already having fice our long-term competitiveness for strength at home. But that strength a significant foreign policy impact, both short-term exigencies by, for example, must be real. If it takes a natural dis- direct and indirect, that will continue investing in our infrastructure, main- aster to remind us of this, our nation- taining R&D spending, and bearing al security interests demand that we J. Anthony Holmes is the president of some domestic political heat as we learn this lesson and make major, the American Foreign Service Associa- teach our citizens that future prosper- long-term investments to address our tion. ity often requires near-term sacrifices. weaknesses. I

OCTOBER 2005/FOREIGN SERVICE JOURNAL 5

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LETTERS

Immersion Study Works for an Africa course here), because oral examination, which I took suc- Thanks so much for Steve such a study provides essential back- cessfully in late June 1962. Honley’s excellent overview of the ground for officers undertaking their The optional language examina- Foreign Service Institute (“FSI first assignments to a region. It tion was dropped during the late Settles into Arlington Hall,” July- could, however, be further enhanced 1960s; I’m not sure why. Over the August FSJ). Having recently transi- by incorporating single-country years I noticed what I saw as an inor- tioned from the Foreign Service into computer learning modules for indi- dinate number of officers overseas university administration, I read viduals or small groups to supple- in language classes. Had the lan- with interest his analysis of FSI’s lan- ment the more generalized regional guage section of the test been con- guage instruction quandaries. information provided to the entire tinued, we might have been able to We at Texas Tech University class. select more candidates who required recently instituted an approach to Tibor P. Nagy Jr. little or no additional language train- learning Spanish which combines FSO, retired ing, freeing them, as it were, to academic training with full-immer- Associate Vice-Provost for devote more time to post duties. sion study in Seville. This enables International Affairs, I believe the optional language students to progress in one semes- Texas Tech University examination should be reintroduced; ter from zero knowledge to fully Lubbock, Texas many more tongues could be added. functional (probably a 3+/3+ rat- In my day, the Area Studies pro- ing). Student costs (aside from trav- The More Things Change gram didn’t have enough time to eling there and back) are compara- I was very pleased to read the cover in depth all the various coun- ble to studying on campus. We’re extensive coverage of FSI in the July- tries. I remember the complaints of starting a similar program with August edition. I had occasion to visit a number of officers about this. German this year in Quedlinburg, Arlington Hall a few years ago and Instead of expecting the limited pro- and hope to eventually expand it to was impressed greatly by the progress gram to do everything, I felt they French and Arabic. Having myself made since my days with the 54th A- could benefit by consulting its well- struggled with FSI French when 100 class in early 1963. chosen bibliography and spending preparing for my first West African Regarding the question of lan- some time at the Library of posting, and being disappointed at guage training, the same problems Congress. the deficiency of my level when raised in the Journal were present Of course, there was no Metro compared with missionaries we met when I went through over 42 years then, no Xerox and, needless to say, there who learned their language in ago. no Internet. Even so, there was a Francophone environment, I I was fortunate to take the plenty of information available to the became a true believer in immersion Foreign Service Examination in motivated and curious. study. early December 1961 when it Louis V. Riggio Honley’s comments on the “area included an optional language sec- FSO, retired studies” program were also illumi- tion. One could choose among Hollywood, Fla. nating. Based on my 20-plus years Spanish, Russian, Chinese, French experience in Africa, I am a strong and German. My score on the first- Treating All supporter of the two-week concen- named was sufficiently high to earn House Guests the Same trated regional overview (and have me an extra five points, perhaps I am concerned about a section even replicated its core components enough to ensure my passage to the of the Foreign Affairs Manual —

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L ETTERS u

3 FAM 4100, Appendix B — with the potential to explode in the face of all FS employees. It requires that employees report within one month any cohabitation with a foreign national, regardless of the nature of the relationship. The FS employee is expected to require house guests to sign sworn statements using the same form we all use for a security clearance, including permission to release criminal and medical records. From my experience, it is common for Foreign Service officers and specialists to have foreign visitors stay in their homes, both domestically and abroad. But the 3 FAM language covers anyone living in your home in exactly the same manner as it covers romantic relationships. There is a yearlong process going on now to review and change all FAM policy — called the FAM-X Working Group — and this is exactly the kind of thing that needs to be reviewed for more than just plain language. Expecting temporary house guests to submit to sworn statements and release of criminal and medical records is extreme and unnecessary. Policy regarding non- sexual, non-romantic temporary house guests should be broken out into a separate section from that which deals with those romantic and/or sexual and (presumed to be) long-term relationships that 3 FAM 4100 is meant to address. Appendix B should be changed. John Kane FSO Reston, Va.

Career and Marriage Elizabeth Cobb (“FSI: Com- ments from the Field,” July-August FSJ) states that until 1972, female FSOs were not allowed to remain in

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the Foreign Service after marriage. That was generally true, but I know of at least one exception. In 1969, on my second tour, in Madagascar, I fell in love with a Whether you are with young Frenchman. About the same the Local, State or time, one of my colleagues became Federal Government engaged to a young Frenchwoman. agency or the military, He ignored all the regulations then Crimson offers superior in place about getting permission solutions to fit your from Washington before marrying a budget and per diem. foreign citizen, and married her Crimson Government within a few weeks (to my knowledge Housing Solutions never receiving so much as a stern Include: word of reprimand). I, too, wanted Assignment Changes both marriage and a career, and I did Evacuations not want to give Washington any Intern Programs excuse to deny them to me. International Visitors So I followed the regulations to Project teams the letter, submitting all the paper- Relocations work about my fiancé well in Short / Long Details advance. I also submitted my res- TDY ignation letter, but basically threw Training myself on Washington’s mercy. As I recall, it said something along the Crimson offers an lines that although I was turning in exceptional value in my resignation as required, I didn’t temporary housing for mean it: I love the Foreign Service, government personnel. and I’m still available for worldwide Our furnished assignments. Please don’t make me apartments and single- leave, I pleaded. To everyone’s family homes are a amazement but mine (in my inno- spacious and more cence, I could not conceive that the luxurious alternative to answer might be negative), months the cramped quarters later a cable arrived granting me of a hotel room. permission to marry. We were wed on Aug. 7, 1969, in the city hall of Antananarivo, followed by a cere- 202.986.0433 mony at the public affairs officer’s 888.233.7759 residence, presided over by then- [email protected] Ambassador David King, an elder www.crimsonworldwide.com in the Mormon church (a long story in itself, since neither my husband Fully furnished apartments and single family homes, with large nor I was Mormon). I continued spacious rooms, full sized kitchens, and housewares. Separate living, my career until my retirement in dining and sleeping areas. Hotel style amenities, including swimming 2000 at the rank of minister-coun- pools, hot tubs, fitness centers, optional maid service and more. selor. Rates within the TDY per diem. Alas, I no longer have either the resignation letter or the cable from

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Washington — or the Frenchman, for that matter, although I’ve been married for more than 21 years to a fellow Foreign Service professional. But I can still remember the con- sternation in the embassy about just how to treat this strange creature, a Foreign Service husband. One particularly embarrassing conversation — thanks to his leering and sugges- tive remarks, which today would likely be the basis for a harassment complaint — was with the administrative officer about my request to have my twin single beds replaced with a double, to befit my newly married status. Fortunately, others were incredibly supportive. I have never come across any other female FSOs who married before 1972 and remained in the Foreign Service. My case shows it was possible, however, and I would love to hear of any other examples. Today I teach public diplomacy classes at FSI. I’m very pleased that so many of those in my classes are women, and so many of those have established solid family lives while maintaining bright careers. Susan Ann Clyde FSO, retired Arlington, Va.

American Diplomacy Thank you very much for the kind words (AFSA News Briefs, July-August) about then-AFSA President John Limbert’s visit to North Carolina to speak to a lun- cheon meeting of the Carolina Friends of the Foreign Service. The meeting was well attended, and his talk was received enthusiastically, judging by the Q&A session. The CFFS is not a large group, but we are continually trying to recruit new members, and would like for more of the AFSA members living in North Carolina to join us. (Contact

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me at [email protected].) We have four meetings a year — three speak- er-luncheons and a summer social gathering. You also mentioned the online journal American Diplomacy (http:// americandiplomacy.org). This is a separate organization from the CFFS, though our memberships overlap. American Diplomacy Publishers Inc. is a nonprofit 501(c)(3). We encourage AFSA members to get acquaint- ed with us. J. Edgar Williams FSO, retired Carrboro, N.C.

Reaching Out I am from Berlin, Germany. Some time ago I received some older issues of the Foreign Service Journal from a friend when he left Berlin for his next post. Only recently did I have the chance to read the first of these magazines. Having been born and raised in West Berlin, reading the May 2002 issue (focusing on FS families) brought back many sweet memories of all the American servicemen and FSOs and their families that my family and I have become friends with throughout the past decades. It also made me more aware of some of the difficulties and hard- ships they have to go through, foreign to those of us who stay in our own country. Most of these Americans I met at church. Through their exemplary lives and friendships, they left a remarkable impression and many fond memories here with me and others as a legacy. In their own special way, these people have become ambassadors for their country. Getting to know them and spending time with them not only helped me to learn about and appreciate the USA and its culture and consti-

OCTOBER 2005/FOREIGN SERVICE JOURNAL 11

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Send your letters to: [email protected].

Note that all letters are subject to editing for style, format and length.

OCTOBER 2005/FOREIGN SERVICE JOURNAL 13

CYBERNOTES

Hughes Revs Up Public experienced horrible tragedies,” said interagency public diplomacy operat- Diplomacy Push Ms. Hughes. ing group is another element of the Under Secretary of State for Public Her decision to appear Sept. 1 in plan, as is placing more emphasis on Diplomacy and Public Affairs Karen Chicago at the convention of the public relations skills in Foreign Hughes has finally hit the ground, Islamic Society of North America Service promotions. and, by all accounts, she has hit it run- caused a stir in some conservative cir- The public diplomacy challenge ning. Named in mid-March for the cles. Hughes has told reporters she Under Secretary Hughes faces is critical post, Ms. Hughes’ confirma- has initiated discussions with Muslim daunting. Her immediate predeces- tion hearing was delayed to afford her leaders — clerics, students and schol- sor, Margaret Tutwiler, quit last sum- time to prepare her son for college. ars — to hear their concerns and mer after less than a year on the job; Confirmed by the Senate on July 29, ideas, and plans to travel to Europe her predecessor, advertising executive the presidential confidante whose job and the Middle East. Charlotte Beers, had thrown in the it is to transform America’s image in The other three planks in Ms. towel after 18 months as U.S. prestige the world, and particularly in the Hughes’ public diplomacy program tumbled, particularly in the Middle Muslim world, moved into her office are exchanges, education and empow- East. at the State Department in the third erment. The administration has in- Panels and commissions have stud- week of August and jumped right into creased its request for funds for edu- ied the problem, and there is no short- the fray. cational exchanges by 20 percent this age of thoughtful reports (http:// By Labor Day, the first plank of her year, to $430 million, and will try to www.publicdiplomacy.org/archiv four-point policy program — engage- make it easier to get visas for these e.htm). A recent addition to the pol- ment — was clear. On Aug. 30, she programs. icy literature is from the Heritage sent a cable to all U.S. embassies urg- Hughes also plans to promote Foundation, “Strengthening U.S. ing them to think of ways to com- “advocacy platforms,” or debates Public Diplomacy Requires Organi- memorate the fourth anniversary of about democracy and its values in zation, Coordination and Strategy” the Sept. 11, 2001, attacks, such as ways that are relevant to countries (http://www.heritage.org/Research attending interfaith services, that will experiencing authoritarian rule, as /NationalSecurity/bg1875.cfm). demonstrate that terrorism is a chal- well as “rapid-response” teams to Significantly, while Ms. Hughes pre- lenge faced not just by the United counter bad news and disinformation pared for her confirmation hearings, States. “I think it’s a very humble way, in a timely manner. “We are behind the State Department issued a new on the day of our national tragedy, to the curve in being able to put down contract to establish what went wrong remember that other people have rumors and myths,” she says. An and identify the remedy. The department offered $250,000 for “a thor- ough and scientific study of how to 50 Years Ago... address negative perceptions of the Effective representation abroad in the hydrogen age of United States, particularly in Muslim the global time of troubles demands the services of countries,” to be completed by Sept. individuals with the paradoxical combination of the widest 30. backgrounds and most intensive technical training available. You can follow this important issue Diplomacy has ceased to be a select art and become a total technique. online at the “What’s New in Public — Robert C. Bone Jr., from “From the Past into the Future: Diplomacy” Web page of the Univer- sity of Southern California’s Center on Suggestions for the Service,” (Prize Winning Essay in Category Public Diplomacy (http://www.usc ‘C’), FSJ, October 1955. publicdiplomacy.org/index.php), at the Web site of George Washington

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CYBERNOTES

University’s Public Diplomacy Insti- tries — and fully 40 percent “worry a tary officers and U.S. Defense and tute (http://pdi.gwu.edu/) and at lot.” State Department officials to find USIAAA’s Public Diplomacy Web The Index also reveals that the ways to work together to help turn Site (www.publicdiplomacy.org). public cares deeply and more unani- around failed or failing states — in mously about the problems of illegal this case, the fictional country of Aliya, New Index Tracks Rise of immigration and protecting American which has suffered an invasion and Foreign Policy As a Popular jobs in a global economy than leader- domestic revolt followed by years of Concern ship attention to these issues suggests. warlordism and civil war. In January 2000, only a minority of Full survey results can be found at “The world has changed,” declared Americans wanted the U.S. govern- www.publicagenda.org or www. Carlos Pascual, head of the State ment to place more attention on inter- confidenceinforeignpolicy.org. Department’s newly established Office national issues. Today, even with of the Coordinator for Reconstruction greater public attention paid to global A Focus on Fixing Failed and Stabilization, addressing the concerns in the wake of the 9/11 States opening ceremonies of the unusual attacks, more than half of the In August, the barely-year-old game. “We need to secure our nation American public wants the govern- Center for Stabilization and Recon- and provide for global security. This is ment to place still more emphasis on struction Studies at the Naval Post- what the game is all about.” international issues. graduate School in Monterey, Calif., The Office of Coordinator for Re- This is among the findings of the launched its first “prevent new construction and Stabilization was Confidence in U.S. Foreign Policy Afghanistans” exercise. Members of opened in August 2004. The coordina- Index, a joint venture of Foreign humanitarian-aid groups joined mili- tor reports directly to the Secretary of Affairs magazine and Public Agenda, with support from the Ford Founda- tion, released Aug. 3. Public Agenda, Site of the Month founded in 1975 by former U.S. http://www.lib.utexas.edu/maps/ Secretary of State Cyrus Vance and social scientist Daniel Yankelovich, is The Perry-Castañeda Library Map Collection, an outstanding resource for dedicated to nonpartisan policy researchers, is unusually user-friendly. The University of Texas at Austin’s main research. library has a general collection of more than 250,000 maps from all over the To be issued regularly, the Index is world. Most are listed in the library’s online catalogue, UTNetCAT, and some designed to explore the public’s long- 5,000 are available directly online. term judgments and beliefs about The site’s up-to-the minute “online maps of current interest” include such America’s role in the world. It covers things as neighborhoods, levees and landmarks in New Orleans and highways more than 25 issues through some 80 in Mississippi; changes in Gaza; the current distribution of bird flu; wildfires in different survey questions. Portugal, and more. And its Cartographic Reference Resources is a goldmine Americans see relations with the of useful material, including explanations of all of the different map projections. Islamic world as the fundamental for- The site not only guides visitors to the library’s own maps, but goes a long eign policy problem facing the nation, way to making the map resources of the entire Web accessible. One can find the current Index shows — but there all different types of maps — country, city, state, historical and outline — is no consensus concerning what to do depicting the different regions of the world; links are provided to the library’s about it. Three-quarters of Americans collections as well as to other sites for particular maps. At the same time, the worry about losing trust and friend- site’s helpful FAQ includes “Where can I find a map of … on the Internet?” and ship abroad and about a growing a comprehensive answer with links. hatred of the U.S. in Muslim coun-

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most at-risk countries — Cote d’Ivoire, Democratic Republic of the here are still places that Congo, Sudan, Iraq, Somalia, Sierra race and poverty are a huge Leone, Chad, Yemen, Liberia and Tproblem in the U.S., and Haiti — have already shown clear signs of state failure. we’ve got to deal with that. Though the index points to no easy — Secretary of State fix for failed states, it does give some Condoleezza Rice, clues to the most reliable early warn- Sept 14, cnn.com. ing signs of a problem. Among the 12 indicators used to identify weak and failing states, two consistently rank near the top: uneven development within states (as opposed to poverty), State and is charged with enhancing and criminalization or delegitimiza- our nation’s institutional capacity to tion of the state. For a complete dis- respond to crises involving failing, cussion of the indicators and method- failed and post-conflict states and com- ology used go to www.foreignpoli plex emergencies (http://www.state. cy.com or www.fundforpeace.org. gov/s/crs). A month later the new center at the Naval Postgraduate School Cultivating a Career in Foreign was established (http://www.csrs-nps. Affairs org/public/home.cfm). Young Professionals at State, or Both stem from the work of the YPro, is an innovative grass-roots net- bipartisan Commission on Post- working organization for entry and Conflict Reconstruction, whose 2003 mid-level employees at the Depart- report, based largely on the lessons of ment of State and the U.S. Agency for Iraq and Afghanistan, outlines how International Development. Accord- and why failed and failing states mat- ing to the group’s 2004-2005 annual ter (http://www.csis.org/isp/pcr/ report, YPro “aims to create a sense of playtowin.pdf). “We need to put as continuity in a dynamic workforce by much effort into stabilization as war linking tomorrow’s foreign affairs efforts, and we need everyone at the leaders through professional and same table using the same playbook,” social networking activities.” Rep. Sam Farr, D-Calif., one of the Established in 2003, the organiza- seven members of Congress who tion currently has more than 500 served on the panel, says. members. YPro sponsors volunteer Meanwhile, in July, Foreign Policy work, a monthly professional reading magazine released the first Failed group, lunchtime seminars and a men- State Index, a joint project with the toring link, among other activities. Fund for Peace to conduct a global Since its formation, the group has ranking of weak and failing states hosted more than 130 professional (http://www.foreignpolicy.com/st development and networking events. ory/cms.php?story_id=3098&pri YPro receives no government nt=1). The problem is more serious funding, and membership is free and than generally thought. Some 2 bil- open to all direct-hire employees of lion people live in insecure states, State and USAID, regardless of age, with varying degrees of vulnerability occupation or career track. You can to widespread civil conflict. The 10 find it at www.ypro.us. I

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SPEAKING OUT Let’s Use International Organizations to Fight Terrorism

BY LEON WEINTRAUB

he Bush administration made 160,000 coalition forces, or almost 25 it clear from its first day in “Going it alone” is percent of the total force, according to T office that it does not care good domestic a CNN Web-based fact sheet. That much for working with international earlier coalition — which included organizations except on its own terms. politics but bad Egypt, Syria, France and Germany in Indeed, its attitude has often been lit- policy, especially the 34-nation fighting force — was a tle more than contemptuous. It has tremendous accomplishment for fought climate control measures, when it comes to which both former President George worked to dissuade countries from fighting terrorism. H.W. Bush and Secretary of State recognizing the authority of the Inter- James Baker deserve great credit. national Criminal Court (e.g., by cut- And we should not forget that the ting assistance to countries that w other countries in the “Desert Storm” refused to sign agreements that would coalition also picked up the lion’s immunize American citizens from share of the first Gulf War’s cost. ICC jurisdiction), and shown little great deal of major import. It remains interest in nonproliferation issues. to be seen if this combination of char- Good Politics, Bad Policy The administration’s recent deci- acteristics will be an effective mix for This “go it alone” approach is good sion to cultivate closer ties with India promoting U.S. interests in the world domestic politics. It certainly rever- in the field of civilian nuclear activities body. There should be no doubt, berated quite well in the 2004 elec- at the expense of the Nuclear Non- however, that appointing a figure like tion campaign, when former Senator Proliferation Treaty is emblematic of Bolton, especially during a Senate Zell Miller, D-Ga., told the Republ- this mindset. Following the July 2005 recess, sends a message about the ican National Convention that “Sena- visit to Washington of Prime Minister president’s desire to deal with the tor [John] Kerry has made it clear that Manmohan Singh, his office issued U.N. on his own terms. he would use military force only if a press release which sums up the Iraq represents the most blatant approved by the United Nations. U.S. decision: “The [India-U.S.] Joint instance of this preference for unilat- Kerry would let Paris decide when Statement reflects the preparedness, eral action — except, of course, when America needs defending.” This obvi- on the part of the U.S. government, to Washington finds it convenient for ous misrepresentation clearly won begin a process of dismantling the others to share the burden, such as over the Republican delegates, but it is restrictive technology denial regime when it “invited” the United Nations downright unhelpful when it comes to that restricted India’s access to nuc- back into Iraq to help conduct the fighting terrorism — an area where lear technology and materials for [its] Jan. 30, 2005, elections. Compare the collective action holds great promise. not having joined the Nuclear Non- use of the “Coalition of the Willing” of Yet apart from some post-9/11 mea- Proliferation Treaty.” 2003 with President George H.W. sures against money-laundering pro- Enough has already been said Bush’s use of such a coalition in 1991 moted through the United Nations about President Bush’s appointment in Operation “Desert Storm” to end and the U.S.-backed Financial Action of John Bolton as ambassador to the Iraq’s occupation of Kuwait. While Task Force, there have been few sus- United Nations in New York. Mr. the current campaign is overwhelm- tained efforts to promote an organized Bolton has shown himself to be artic- ingly conducted by U.S. troops international approach to counterter- ulate, aggressive, intelligent, fiercely (although with a sizable British contri- rorism that would build upon the mul- protective of his positions, and more bution), the 1991 military campaign, tilateral strengths of international than a little skeptical about the ability by contrast, made use of more than organizations. of the United Nations to accomplish a 500,000 U.S. troops supplemented by The idea is not to replace U.S. and

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S PEAKING O UT u other national initiatives, but to supple- head a human rights body or in ment and thereby strengthen them. dithering away on fruitless debate Regrettably, the interest in such an International while 800,000 Rwandans were massa- approach shown by the 9/11 cred or acts of genocide continue Commission in its well-known report, organizations might not relentlessly in Darfur. issued last year, is scarcely better. In What international organizations its chapter on recommendations be a panacea, but they can do, however, is forge a global con- (“What to Do: A Global Strategy”), it sensus on an issue and then incre- lists a “firm tripod of policies” that offer hope for global mentally push their members to take include attacking terrorists and their steps to address problems that have organizations, preventing the contin- inclusiveness that ad hoc been identified. Consider the issue of ued growth of Islamist terrorism, and international trafficking in drugs, per- protecting against and preparing for arrangements with key sons or materials. The State Depart- terrorist attacks. True, the text of the ment’s Bureau for International Nar- chapter includes some peripheral allies cannot match. cotics and Law Enforcement Affairs, mention of the value of international the European Union, the U.N. Office organizations, such as how Western on Drugs and Crime and the Inter- states meet with each other in NATO national Organization for Migra- or the G-8, or how the international tion (to name just a few) all adminis- community works through the ter programs dealing with this. International Civil Aviation Organi- much better and more reliable infor- Some of these efforts are mutually zation to arrive at agreed standards for mation if countries around the world reinforcing, while others are devel- passport design. But there is not one believe we are working together with oped separately for distinct rationales recommendation in this otherwise them in a mutually agreed framework and are likely duplicative. Wouldn’t it comprehensive report calling for a to protect each other from the make better sense for one lead agency concerted effort to place greater scourge of terrorism — rather than to have a clear mandate, with the sup- responsibility on international organi- looking out only for ourselves. port of the international community, zations. International organizations might not to develop a strategy, gather the When President Bush spoke to be a panacea, but they offer hope for appropriate intelligence, and then FBI and DEA agents at the FBI global inclusiveness that ad hoc design and implement the operational Academy this past July, he recited the arrangements with key allies cannot activities to carry out that strategy? litany of international locations of ter- match. After all, most of the prob- There would always, of course, be a rorist incidents, with “9/11” and lems don’t originate with our key need for specific components of these London being followed by the men- allies, but within countries where our programs to be “outsourced” to spe- tion of Bali, Casablanca, Riyadh, relations are often strained, if not cific national agencies (especially in Jakarta, Istanbul and Madrid. The quarrelsome. the intelligence field). But a mutually president then cited a “comprehen- reinforcing and layered series of activ- sive strategy in place” for protecting The Case for Collective Action ities pursuing a coordinated strategy the homeland, improving our intelli- Don’t get me wrong. We should would surely be better than the sepa- gence, staying on the offensive and have no illusions that an international rately designed, funded and imple- “fighting the enemy in Iraq and organization made up of sovereign mented programs that we have now Afghanistan and across the world so nation-states, each with its own agen- (some of which actually compete with we do not have to face them here at da and with varied approaches toward each other). home.” working with us and other nations and There is a precedent for this In his call to work with our allies, collective entities, is going to solve the approach. When we were confronted he appropriately praised the FBI, problem of terrorism. The often- with the first OPEC oil embargo in which has “deployed its personnel Byzantine nature of the politics of 1973, the insightful leadership and across the world,” for questioning international organizations and deci- diplomacy of Secretary of State Henry captured terrorists and uncovering sion-making within them frequently Kissinger and others eventually led to valuable information. But our FBI fails to show positive results — either the creation of the International assets, wherever they may be, will get by selecting a country like Libya to Energy Agency. The IEA was no

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S PEAKING O UT u cure-all, to be sure, but it enabled lancers, have an agenda that goes far Admittedly, we don’t know yet those countries targeted by the beyond the United States. Indeed, if the world or the major victims embargo (the U.S. being a primary such attacks, in addition to those that of terrorism are ready for anything like one) to deal with the difficulties by have affected Israel for decades, are an “International Counterterrorism working together. More than three taking place on a global basis, from Agency.” Or, perhaps, rather than cre- decades later, the IEA remains active Egypt and Indonesia, to Spain and the ating a new specialized agency, we and relevant by focusing on broader United Kingdom. An international could do a better job by strengthen- energy issues, such as “climate change structure to deal with this phenome- ing the anti-terrorism components of policies, market reform, energy tech- non that goes beyond ad hoc bilateral existing agencies, like the U.N.’s nology collaboration and outreach to or even multilateral alliances could Counter-Terrorism Committee, the the rest of the world,” according to provide for a sustained focus in the so- ICAO, the International Maritime the agency’s Web site. Born out of a called “war on terror.” Organization, the World Customs crisis, the IEA now looks at a broader Without that focus, we risk jump- Organization or the U.N. Office on range of energy-related issues, taking ing from crisis to crisis without a pro- Drugs and Crime. The last organiza- what had earlier been one component longed and comprehensive approach tion is particularly useful in identify- of world trade and making it the cen- to the problem. It remains to be seen ing and taking steps to counter the tral focus of a specialized agency. what specific mandate, operating links with drug trafficking and other Similarly, although the U.S may be responsibilities, funding mechanisms criminal enterprises that appear to be a primary target of most terrorist and decision-making powers such an involved in funding terrorism. And, actions, it is clear that terrorist groups, organization might have, but it is a of course, there is always the whether they are formally linked to al- subject that merits serious explo- International Criminal Police Organi- Qaida or its spin-offs or are free- ration. zation, already known to most of us as

2000 N. 14th Street • Suite 500 Arlington, VA 22201 Telephone (703) 797-3259 Fax (703) 524-7559 Tollfree (800) 424-9500

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INTERPOL. All of these agencies, terrorism, we could be — if we wish along with those mentioned earlier, to make the journey — on the path such as NATO and the Financial Iraq represents the most to developing a working strategy. Action Task Force, have a role to play And on that basis, perhaps we can — diplomatically, militarily, control- blatant instance of the design an organizational framework ling smuggling or money laundering, that can be used once and for all to sharing intelligence, carrying out Bush administration’s link together the interests of most of investigations, or even facilitating the world’s nation states in fighting extradition. preference for the scourge of international terror- Even if the time has not yet come ism. I for one international agency to be unilateralism. given the mandate to fight terrorism Leon Weintraub retired from the in all its manifestations, let us launch Foreign Service in 2004 after an a serious international dialogue on almost 30-year career. Among many the issue. The fact that U.N. Secre- other assignments, he worked on U.N. tary General Kofi Annan, in his Security Council affairs during a March 2005 report, “In Larger Level Panel on Threats, Challenges Washington tour and spent four years Freedom: Towards Development, and Change,” leads me to believe at the U.S. Mission to the United Security and Human Rights for All,” that we are approaching a critical Nations in Geneva. He is currently an endorsed the working definition of point. For if the world community adjunct professor of political science at terrorism as proposed by his “High- can agree on a working definition of The George Washington University.

20 FOREIGN SERVICE JOURNAL/OCTOBER 2005

FS KNOW-HOW Tips for Getting Op-Eds Published

BY DENNIS JETT

an an op-ed piece by an FS an op-ed on international affairs retiree in a newspaper or Retired diplomats needs to be drawn into reading the Cmagazine change history? should share their article, and will almost certainly pos- Probably not — but that does not sess very little knowledge of the sub- mean you should not consider writing expertise and ject being discussed. So, even more one. (Note: Because active-duty experience with the than with a State Department audi- Foreign Service employees are almost general public, even ence, the first few lines of the piece always barred from expressing their have to set out what it is about and personal views on policy matters, this if they are ignored by convince readers to take time out of article is not aimed at them.) the politicians. their busy day to read it all the way In this age of specialization, it is through. more important than ever for those With that in mind, here are some who know about international affairs w tips: to share their expertise and opinions Know who your audience is. with those who do not. Are you writing for a periodical with Let me offer an example. In But even if it is less than an oppor- a predominantly local, small-town January 2003, Greg Thielmann sub- tunity to alter the course of history, readership, or one with a more cos- mitted op-ed articles to the Washing- retired diplomats should nonetheless mopolitan audience? Shape your ton Post and the Des Moines Register, speak out via opinion pieces. Their submission accordingly. but both were rejected for publication. expertise and experience can be of Keep the piece short (700-800 Thielmann had recently retired from a great value to the general public, even words maximum), clear and sim- 25-year career in the Foreign Service if they are ignored by the politicians. ple. Try to grab the reader’s atten- and in his last tour was acting director But they will fail to get the audience tion from the first paragraph, often of the Office of Analysis for Strategic, they deserve if they forget who their known as the “nut” graph — the one Proliferation and Military Issues in readers are. that tells the reader why he or she INR. The articles pointed out some of would want to continue reading. the exaggerations and scare tactics the Remember Your Audience While you can usefully draw on per- Bush administration was using in its Opinion pieces (known familiarly as sonal experience to underscore your depictions of Saddam Hussein’s op-eds) may cover the same subject thesis, do so only if it is relevant. alleged weapons of mass destruction matter as the cables and the action or Take a position and suggest a programs. briefing memos that are the staple of a solution. Don’t just lay out all the Now we all know that Iraq had no career in the Foreign Service. But the alternatives or simply rehash facts WMD, ties to al-Qaida or involve- approach needs to be much different. available elsewhere. ment in 9/11. Had more people been If one is writing for a sixth- or seventh- Make your submission timely aware of the administration’s hype in floor principal, that individual has prob- and relevant. You’ll have a hard early 2003, there might have been less ably requested input from your bureau time placing an op-ed about Nepal of a rush to war. And who knows? or post. Equally important, he or she or Lesotho, however worthy and Perhaps a few well-placed op-eds already has the factual background (or insightful, while Iraq, the Israel- might even have encouraged people can get up to speed quickly), and just Palestine conflict and Afghanistan in positions of power to find the back- needs to know what the options are dominate the news. So be clear bone to speak the truth, and the war before deciding whether to act. about what your piece brings to the might have been averted altogether. By contrast, the average reader of debate, and pitch it accordingly.

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Lower your sights from the New York Times, the Washington Take a position and Post, etc. There are plenty of good local and regional papers around the suggest a solution. country, particularly outside major metropolitan areas, who will be will- Don’t just lay out all the ing to consider what you have written. While the prestige factor is lower, you alternatives or simply may well have a greater impact there. In addition, consider the foreign rehash facts available press, particularly outlets in Canada and the many English-language Asian elsewhere. newspapers. But don’t forget about newspapers in other languages; if they want your piece, they’ll translate it. Be aware that most newspapers want exclusive rights. This The Publishing Process means you can’t pitch the same op-ed Besides keeping in mind your to competing publications in the same audience, you should also understand market. That is especially true if your what it takes to get published. contribution is accepted by a newspa- Newspaper editors don’t just sit in per that is part of a larger chain. their offices waiting for brilliantly However, some newspapers will written pieces to float over the tran- agree to let it be placed in other news- som and then carefully read each one papers if they are not in the same or and select the best. With limited neighboring markets (check with the space to fill, they usually already have individual editors). a good idea of what they want and In addition, it may be possible where to get it. to reuse the central idea of an The more important the newspa- article in a second piece if you are per, the less room it will have for first- skillful at putting a substantially new time contributors once it has slotted lead on it, and at presenting the con- in the columns by regular writers, cept in a different way. Or you can try whether local or syndicated. The lit- the op-ed editors of the various news- tle space left will often be filled with paper chains and syndicates, which pieces the editorial staff has commis- opens up the possibility of multiple sioned from writers they have identi- placements. fied. I once asked a friend at a promi- Establish a personal relation- nent newspaper what proportion of ship with the people who put the the opinion pieces published in his editorial and opinion sections newspaper came in unsolicited. He together. That is not as difficult as it admitted that it was only about half. may sound, for you probably already Obviously, each publication has its have a network of contacts that can be own bias and is more likely to publish used. If you have been interviewed articles that reflect its editorial line. by a journalist, you can ask that per- When they do make a nod in the son to make the introductions to the direction of balance, it is usually in appropriate staffer. Or if you know the letters to the editor. someone who has been published by With all that in mind, how can the paper in question, you can ask you improve the odds of getting that person to do the same. your article into print? Selling the op-ed means pitch-

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FS KNOW-HOW u ing it in the covering note. Re- cians inflict as they promote them- member that it’s a waste of time to selves while maintaining they are serv- send a pitch and then wait for an okay Remember the many ing the national interest. So do it for to write the piece. Unless you’re real- your country, just as you did in dedi- ly well-known already, they won’t good local and regional cating your career to government ser- respond. So go ahead and write the vice — even if in the end it means op-ed and submit it as a ready-to-go papers around the nothing more than having the chance item. to say you told them so. I Include a few sentences in the country, particularly cover note explaining why that Dennis Jett, an FSO from 1972 to particular newspaper should want outside major 2000, was ambassador to Mozam- to publish your contribution. And bique and Peru and DCM in Malawi in addition to attaching the column in a metropolitan areas. and Liberia. He also served in separate Word file, take the extra time Argentina and Israel, at the NSC and to copy the entire text (with title, byline in the State Department. Following and, at the end, a line or two of bio- his retirement, he assumed his current graphical material) into the body of the as op-eds pay somewhere between position as dean of the International e-mail. nothing and several hundred bucks Center at the University of Florida in Armed with these tips, do take the each. Gainesville. He is the author of Why time to take a stand and share your And no, your commentary proba- Peacekeeping Fails (Palgrave, 2001), opinion in 700 words or less with the bly won’t save the world. But it could and has published over 60 opinion masses. Admittedly, you won’t get rich, limit the damage to it that the politi- pieces in major newspapers.

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F OCUS ON “ROGUE” STATES

THE BUSH DOCTRINE AND “ROGUE” STATES PJ Loughran

BUSH ADMINISTRATION POLICY AIMS TO TAME “ROGUE” STATES OR, FAILING THAT, DESTROY THEM. WILL IT BE JUDGED A SUCCESS?

BY CHRISTOPHER PREBLE

he lovable rogue is one of the most enduring archetypes of literature. From Robin Hood to Rhett Butler, some renegades who operate outside the bounds of acceptable behavior are nevertheless embraced asT heroes because their intentions are good. In other words, they break the rules for good reasons and, in the process, win both admiration and affection. Nation-states saddled with the “rogue” moniker, however, are neither admired nor loved. And, since the 9/11 attacks, President Bush has communicated a clear message that rogue regimes are marked for destruction — one way

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or another. It is still too soon to The traditional definition of a of political organization around say for sure whether the Bush the world does not ensure secu- Doctrine will ultimately be rogue state pertains to rity, even in places where the judged a success or failure. state is very strong: the United Indeed, the interpretation of his- violations of state sovereignty. Kingdom, Germany, Spain and tory being what it is, there are even the United States, just to sure to be differences of opinion. … In recent years, however, name a few. But while the president main- Meanwhile, even as more and tains, on the basis of largely cir- the definition has become more states have come together cumstantial evidence, that the in the interest of stopping inter- war waged to remove Saddam increasingly muddled. national terrorism, there remain Hussein from power was instru- rogue states that flout estab- mental in convincing Libya’s lished rules and norms. The tra- Muammar Qadhafi to abandon his nuclear schemes, he ditional definition of a rogue state pertains to violations cannot account for why the leaders in two other rogue of state sovereignty. Article 2 of the United Nations states — Iran and North Korea — have failed to respond charter stipulates that all member nations shall “refrain as the Bush Doctrine suggests that they would: by capit- in their international relations from the threat or use of ulating. And that raises questions about the efficacy of force against the territorial integrity or political inde- the Bush Doctrine toward all rogue states. pendence of any state.” Iraq clearly acted as a rogue state when it invaded Kuwait in 1990, and the interna- Knowing the Rules tional community responded with near-unanimity; The problem of rogues in the international system is Saddam was expelled from Kuwait by a group of not new, even if the terms “rogue state,” “pariah state” nations acting with the official sanction of the United and “outlaw state” might be. Nations. From the assassins and bandits that patrolled the In recent years, however, the definition has become outer reaches of the Roman Empire, to the Barbary increasingly muddled. It now takes account not simply pirates of the early 19th century, there have always been of how states interact with other states, but also of how outlaws. They thrived through much of human history particular regimes treat their own people. As a result, not so much because they were strong, but rather the number of potential rogue states has expanded dra- because the institutions which existed to enforce certain matically. Article 2 has been largely superceded by a norms were relatively weak. particular interpretation of international relations Even today, however, when states are strong relative based on a nebulous “responsibility to protect.” to their predecessors, and acceptable norms of behavior Indeed, U.N. Secretary General Kofi Annan recently are generally embraced around the world, the non-state reaffirmed the world body’s right to circumvent state outlaw is still with us. When these men and women com- sovereignty in certain circumstances. “Governments bine their efforts they can be very dangerous. must assume their responsibility to protect their citi- International criminal enterprises exist, and not just in zens,” Annan explained at a meeting of the Council on movies. The sky-high profits created by the criminaliza- Foreign Relations in December 2004. “Where they fail tion of certain narcotics feed internal corruption from to do so, the Security Council must assume its responsi- Colombia and Mexico to Afghanistan and Russia. Al- bility to protect.” Qaida and other terrorist organizations demonstrate that The Secretary General’s High-Level Panel on Threats, the emergence of the nation-state as the dominant form Challenges and Change expanded on this theme in its 2004 report, A More Secure World: Our Shared Christopher Preble is director of foreign policy studies Responsibility. The Security Council, the panelists at the Cato Institute (www.cato.org) and a founding explained, could authorize “military intervention as a last member of the Coalition for a Realistic Foreign Policy resort, in the event of genocide and other large-scale (www.realisticforeignpolicy.org). killing, ethnic cleansing or serious violations of humani-

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tarian law which sovereign Governments have proved tional law between the inviolability of sovereignty and the powerless or unwilling to prevent.” conditionality of that same sovereignty. And there is also President Bush has elevated a broader definition of deep disagreement as to who gets to decide when and respect for human rights; from his perspective, a state how the responsibility to protect trumps the established can be classified as a rogue if it denies freedom to some rules of the game. of its citizens. But he has arrived at this determination President Bush views the rogue state as the chief not out of fealty to the United Nations, nor to the threat to global order, and his foreign policies aim either niceties of international law. Rather, the president’s to alter the behavior of rogue states, or, failing that, to reasoning hearkens back to the words of another pres- eliminate those regimes that refuse to play by the rules. ident locked in a brutal struggle for justice, and who, As Robert W. Merry explains in his recent book, Sands of like George Bush, perceived a divine mission in much Empire: Missionary Zeal, American Foreign Policy, and that he did. “The rulers of outlaw regimes can know,” the Hazards of Global Ambition (Simon & Schuster, the president declared during his second inaugural 2005), the Bush Doctrine advances three core proposi- address, “that we still believe as Abraham Lincoln did: tions — pre-emption, democratization and dominance. ‘Those who deny freedom to others deserve it not for Pre-emption typically means attacking an enemy themselves; and, under the rule of a just God, cannot before he attacks you. But pre-emption as practiced by long retain it.’” the Bush administration is more accurately understood as “preventive war.” Although pre-emption of an imminent The Bush Doctrine attack has long been accepted under international law, There is a fundamental contradiction within interna- preventive war — whereby a government chooses to take

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action before a threat materializes — has typically been Americans feel profoundly insecure. And in one respect, shunned. at least, such feelings are justified. Al-Qaida obviously The president remains unapologetic for challenging disdains international law, but is equally undeterred by this understanding. “If we wait for threats to fully mate- our retaliatory power. Meanwhile, recent events in Iraq rialize, we will have waited too long,” he told West Point and Afghanistan are demonstrating each day that cadets in June 2002. “We must take the battle to the America, while powerful, is hardly omnipotent. enemy, disrupt his plans and confront the worst threats Frustrated by the fact that they would feel so insecure before they emerge. In the world we have entered, the after having spent hundreds and hundreds of billions of only path to safety is the path of action. And this nation dollars per year on defense, Americans cry out for a will act.” national security strategy that does what it is advertised to Preventive war as advocated by the Bush administra- do: advance national security. tion is intertwined with the second premise of the Bush Knowing that power is limited, and that resources doctrine: namely, that of spreading democratic values. must be deployed in a careful and judicious manner, The decision to remove Saddam Hussein from power scholars schooled in the realist tradition look to other went beyond simply eliminating a nuisance or a potential major powers to do some of the heavy lifting in the inter- threat. It was intended to dislodge a tyrant and establish national system. Driven largely by self-interest, these a democratic government in Iraq. regional powers may take action against rogue states that As such, the Bush Doctrine goes beyond the narrow threaten them. They might also intervene in the internal focus of discouraging rogue states from attacking the affairs of neighboring states if humanitarian crises give United States. Equally important is the demonstration rise to dangerous disorder. effect that is expected to carry over to other rogue Some people, reluctant to sign on to the “old” realist regimes: “Do you want this to happen to you?” With its theory of balance of power, yet convinced of our nation’s coercive posture, U.S. policy aims to convince despotic limited means, favor burden-sharing through the United regimes to forgo their autocratic ways, or else suffer the Nations, or a similar institution empowered to enforce fate of Saddam Hussein. This ostensibly applies both to international norms of behavior. states that do directly threaten the United States, and The shortcomings of this approach were first revealed those that don’t. during the late 1990s. While professing great sympathy But there’s a problem: it doesn’t work. The Bush for the goals of the United Nations as an institution, the Doctrine fails chiefly because the third element — the Clinton administration showed its impatience with the assumption of unchallenged American dominance — United Nations when it circumvented the world body cannot be sustained indefinitely. And our adversaries twice in a matter of six months, first to launch air strikes know that. against Iraq (Desert Fox) in late 1998 and then to launch a war against Serbia in the spring of 1999. Dominant, Not Omnipotent The most committed multilateralists must concede The U.S. has sufficient power to engage in a war to that, in the end, national power is what prevails. Gen. change a regime such as Saddam Hussein’s, and can do so Brent Scowcroft, George H. W. Bush’s national security in the face of opposition from other powerful states, adviser, admits as much. During remarks delivered to including China, Russia, France and Germany. the Council on Foreign Relations late last year Scowcroft, As for our power to deter other nation-states from a member of a high-level panel appointed by the secre- attacking us, our nuclear arsenal alone, irrespective of our tary general to study U.N. reform, explained: “In the end political and economic power, is sufficient to devastate … if one of the permanent members of the Security entire nations if not the globe. This power has been Council or a major state considers something to be in its instrumental in safeguarding U.S. security, particularly vital interest, the U.N. is not going to be able to do any- since the advent of long-range weapons. A number of thing about it.” That, he went on to say, “is [the] imper- countries have the capability to attack the United States, fect nature of the body that we have.” but all have been deterred from doing so. Imperfect and uncertain. It is hardly surprising that The odd thing is that, despite all this power, North Korea and Iran, both rogue states by the Bush

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administration’s definition, are not With its coercive posture the Taliban from power. content to stake their security on The particular policy options the good word but limited power U.S. policy aims to that we employ should be contin- of the United Nations. As Ted gent upon states’ actual behavior. Galen Carpenter and Charles V. convince despotic regimes The United States may cooperate Peña explain in the summer 2005 with rogue states on some issues, issue of The National Interest, to forgo their autocratic even as we oppose them on other North Korea and Iran’s apparent fronts. After all, a China that nuclear ambitions can be seen as ways, or else suffer the fate behaved like a rogue state by “a logical, perhaps even inevitable, threatening to use “non-peaceful response to the foreign policy the of Saddam Hussein. means” to prevent Taiwan from United States has pursued since formally declaring its indepen- the end of the Cold War.” These dence has proved to be a helpful rogue states have responded to the threat of preventive state with respect to pressuring North Korea to return war by developing the one instrument which enables to the six-party talks on their nuclear program. The even the smallest and most impoverished of countries to willingness of policy-makers within the Bush adminis- face down the strongest and richest — a nuclear weapon. tration to work with Beijing on that issue does not For while most Americans believe that U.S. actions are imply that they condone the Chinese regime’s behavior guided by the best of intentions, Carpenter and Peña on any other issue. And, lest we forget, at least two of point out, “other nations may not concede that the the states that assisted the United States in its war to motives of an activist power are benign.” remove the rogue regime of the Taliban — Turkmenistan and Uzbekistan — are governed by petty Knowing Our Limits despots who do not derive their authority from any- Recognizing that America’s limited capacity for shap- thing approaching the Jeffersonian standard (i.e., the ing the world in our own image may give rise to a host consent of the governed). of unintended consequences, policy-makers must pri- If it were true that “America’s vital interests and oritize based on our vital interests, carefully defined. our deepest beliefs are now one,” as President Bush In this context, some rogue states prove useful allies; declared in his second inaugural address, then there others are troublesome nuisances that do not threaten would be no hard choices in foreign policy. But the the United States. Still others might offend modern world doesn’t work that way. Policy-making entails sensibilities in terms of how they treat their own citi- making choices, virtually all of them difficult. zens, but may at the same time be powerful or impor- National interests and abstract “values” must be kept tant enough that their precipitous regime change is largely separate; otherwise, it becomes harder and either not in America’s interest or beyond our capacity harder to differentiate those actions that are neces- (China, for example). sary and warranted from those that are unnecessary Ultimately, therefore, U.S. policy toward rogue and unwise. states should resemble our policies toward … well, A half-century ago, President Dwight Eisenhower states in general. Most of the time, we will maintain had a vision of national security that was shaped by his peaceful relations with most countries around the perception of national interests — interests that were, world; occasionally containment and isolation might be in turn, shaped by his sense that American power was necessary; and in a few very rare cases, confrontation limited. These limitations necessarily forced policy- might be required. The rogue state of Afghanistan makers to pick and choose where and when to inter- under the Taliban was actively and knowingly harbor- vene, and in what fashion. This was crucially important ing individuals who had already committed, and were during the Cold War, when miscalculation risked pro- prepared to commit again, horrible crimes against voking a global thermonuclear war. American citizens. The United States, acting with Neoconservatives enamored of America’s unipolar allies both inside and outside of Afghanistan, removed moment in the aftermath of the Cold War believe that

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the constraints are essentially While our troops are relevance to fighting radical gone. The end of the Cold War Islamists. meant that the United States eminently capable of Beyond the military, however, could aspire to global dominance policy-makers must focus on — something it never sought to defeating any force foolish applying all of the means at our do during the Cold War — disposal — diplomatic, cultural, because no one could challenge enough to engage them on economic — that enhance U.S. her. Indeed, as William Kristol security. Fighting terrorists will and Lawrence F. Kaplan argued the battlefield, they cannot only rarely require the deploy- in making the case for war with ment of massive numbers of Iraq, to revert to a foreign policy be everywhere, and they troops, but it will require other guided by “the narrowest self- strategies and tactics that are not interest” — in other words, to cannot do everything. appropriate for fighting state- adhere to any realistic conception based threats. of our country’s limitations — Deterrence still works against would spell disaster because “the states, even rogue ones. It did United States remains the hinge of the international against Saddam Hussein. He never attacked the system. And when it sits idly by in the face of threats United States directly because he knew that such to that system, international order erodes.” By this for- actions would be suicidal. The burden of proof should mulation, the United States is responsible for dealing be very high for those who argue that the leaders of with all rogues, anywhere in the world, because global Iran or North Korea cannot be deterred in the same security is completely dependent upon U.S. action. way as Saddam Hussein. This is why the war in Iraq, the first manifestation of Domestic Constraints the broader strategy of confronting rogue states, is so But American power is not unlimited. There are tragic and unnecessary. The Bush administration opted constraints on how and when this power is deployed, to take action against an evil and despicable person and the most important of these are domestic, not for- who had been, and could have continued to be, eign. While some might scorn the American public’s deterred from taking action against us. Now, the U.S. reluctance to play the world’s policeman, these atti- military presence in Iraq plays into the feelings of tudes reflect an accurate assessment of the high costs resentment, humiliation and anger that Osama bin and dubious benefits of military operations that are not Laden, Abu Musab al-Zarqawi and other terrorists use directly tied to the protection of U.S. vital interests. to recruit new fighters for their global jihad. The Few politicians will be willing to buck the trend if sup- broader strategy concurrently encourages and enables port for a particular overseas mission wanes. our diplomatic adversaries to arm against us so as to An even more tangible limitation is the U.S. military secure themselves against preventive American action. itself. While our troops are eminently capable of As Carpenter and Peña observe: “Those who defeating any force foolish enough to engage them on cheered U.S. military interventions, conservatives and the battlefield, they cannot be everywhere, and they liberals alike, need to ask themselves whether increas- cannot do everything. We should be extremely careful ing the incentives for nuclear proliferation was a price about deploying our forces abroad, and we should be worth paying — because greater proliferation is the particularly wary of attempting to sustain a long-term price we are now paying.” military presence in foreign lands. In the meantime, in There is time to change course. U.S. policy-makers the interest of freeing up crucial resources in the war should avoid an open-ended strategy of confronting all on al-Qaida and other threatening extremist groups, rogue states, not because they are lovable, but rather policy-makers should revisit Cold War–era military because the most immediate threats to our security — deployments that were dedicated to fighting a foe that those posed by non-state rogues — demand their full has long since disappeared, and that have little, if any, attention. I

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WAR WITH IRAN, OR WAR WITH THE FACTS? PJ Loughran

EFFORTS BY THE BRITISH, FRENCH AND GERMANS OFFER HOPE THAT THE DAY TEHRAN ACQUIRES NUCLEAR WEAPONS CAN BE PUT OFF INDEFINITELY.

BY HENRY PRECHT

re those war drums tuning up again, this time for Iran? An exiled opposition group spreads “intelligence” about nukes, while respected Secretaries of State front for neocon hawks. As the president and viceA president hint of an attack to come, other officials lash Iran, and pundits voice their support for strong measures. Meanwhile, as Washington blusters, Europeans take a softer line. And on and on to a repeat of the Iraq invasion? Yes, it all sounds familiar, but I don’t think so. The Bush administration may be ideologically motivated, but it

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isn’t stupid. For if the Iraq War While an invasion would be bilizing Afghanistan and Iraq. has proved costly, hostilities But in the event of a U.S. inva- against Iran would make it seem madness, precision attacks sion, that stance would likely like a church supper. Here are morph into subversion and even some reasons why. on suspected Iranian active support for insurgents in • Iran is about four times the Iraq and elsewhere. Those who size of Iraq and its cities are iso- nuclear facilities would be are concerned about Iranian- lated across vast deserts. (Recall backed terrorism could see their the lost helicopters of Desert almost as damaging to worst conjectures come to life. One.) • Its population, almost three American interests at home Other Means of Pressure? times that of Iraq, has the same While an invasion would be three large factions: Sunni, Shia and abroad. madness, precision attacks on sus- and Kurds. But unlike its west- pected Iranian nuclear facilities ern neighbor, Iran is 90 percent would be almost as damaging to Shia, and its people have historically remained united American interests at home and abroad. If, as Vice in times of great stress. President Cheney foreshadowed earlier this year, Israel • Although a majority of the country certainly wants decided to repeat in Iran its 1981 attack on the Iraqi reform of the ruling clerical regime, Iranians are nuclear reactor at Osirak, the U.S. would be totally intensely proud nationalists. Decades of British, identified with its ally even if Jerusalem acted com- Russian and American domination have left them fear- pletely on its own. ful that outsiders seek their oil and want to weaken Furthermore, some observers think the Israeli their sovereignty. bombing actually spurred Saddam Hussein to acceler- • The country has tens of thousands of experienced ate and hide his program to develop nuclear weapons. and fanatical fighters organized into small cells com- Certainly that would be a predictable reaction in mitted to defend their homeland. An American inva- Tehran as well, driving it to seek a deterrent against sion would drive many more citizens to join that pre-emptive action by Washington and Jerusalem. defense. As for other pressure tactics, we already know that a For all these reasons, fighting Iran would be bloody quarter-century of American sanctions only produced and never-ending. Oil prices (already at record highs) Iranian resentment without changing Tehran’s behav- would skyrocket, U.S. debt would soar and the dollar ior. As CEO of Halliburton, Vice President Cheney would plunge. Washington (and Israel) would stand understood that history, and opposed unilateral sanc- alone in the world without the dubious “coalition of the tions. willing” President Bush boasts of in Iraq. But maybe the administration is just talking tough, Nor would the fighting be limited to Iranian territo- playing bad cop to the Europeans’ good cop. Or perry. Heretofore, Iran (which, unlike some of its neigh- haps the White House has learned that heightening bors, has not invaded another country in over 200 tensions and fear at home bolsters perceptions of pres- years) has been largely passive in response to American idential leadership. Whatever the explanation, the tac- initiatives in the region. It has even been helpful in sta- tic is badly chosen. Threatening Tehran could have unforeseen consequences. Henry Precht, a retired Foreign Service officer who was Let’s step back in this argument. Having discussed country director for Iran during the Iranian Revolution problems inherent in responding violently to a feared and subsequent hostage crisis, has followed Iranian Iranian nuclear weapon, we should examine what lies affairs for over 30 years. He is the author of A Diplomat’s behind those fears. But first, the context: Nukes are Progress: Ten Tales of Diplomatic Adventure in and one of the litany of four charges Washington has lev- around the Middle East (Williams & Company, 2005). eled at Tehran for decades. The other three — abuse of human rights, support for terrorism and opposition

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to an Arab-Israel peace — receive prominence seri- might and coercion. Foreign military intervention in atim. Although there is truth in each, none stand up to Iran is the surest way to keep the goal [of getting Iran the regional hypocrisy test. to adhere to international human rights laws] out of Human-rights abusers populate the Middle East. reach.” Continuing to bad-mouth and threaten will Iranians who oppose a fair and lasting peace settlement only drive all Iranians together, weakening opposition resemble Israeli and Arab extremists. Other regimes to the clerical regime. Talk about unintended conse- assassinate opponents as Tehran did, give women few quences! Shades of Iraq! of the rights granted in Iran, and permit only staged elections, if that. You will never hear that comparison Countdown to Nukes? out of Washington, however. Instead, for our friends, But back to nukes. So far, no aluminum tubes, the U.S. reaction to offenses ranges from an occasional Niger yellow cake or mobile labs have been produced. rebuke through silence to generous aid. At the core of There is, however, the assumption that Iran has long the American position is a strong antipathy toward Iran intended to develop nuclear weapons and could do so that shuts out other considerations. easily once its civilian program was established. Certainly, the mullahs’ record on human rights is Perhaps the best statement of the “evidence” was abysmal, and constitutes the major reason for wide- given by Christopher de Bellaigue in the New York spread popular discontent. Yet, as Iranian Nobel Peace Review of Books of Feb. 24, 2005. He wrote that begin- Prize Winner Shirin Edbadi has written: “Respect for ning in the summer of 2002, the International Atomic human rights can never be imposed by foreign military Energy Agency “brought the Iranian program under

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close scrutiny. It has since estab- Washington’s continuing negotiations by agreeing to remove lished that Iran has egregiously the block to Iranian membership breached the safeguards agree- pressure bolsters the in the WTO and to consider provi- ment which was designed to keep sion of spare parts for civil aircraft. its nuclear activities transparent clerical regime and sours The initial Iranian reaction was and limited to peaceful purposes. dismissive as insufficient, but talks These breaches include Iran’s fail- ordinary Iranians continued. In August the Euro- ure to report the purchase of peans made their final offer to nuclear materials and to declare on the U.S. Iran: economic incentives, includ- the existence of several of its ing a “guaranteed” supply of en- nuclear sites.” riched uranium for its power Confirming this information, IAEA chief Mohammad plants, if Iran permanently gave up the NPT-authorized ElBaradei said in a Washington Post interview last spring, right to enrich its own uranium. Iran, having repeatedly “Iran has clearly cheated in the past. Corrective action made plain that it insisted on controlling all stages of was taken. Now they say they are embarking on a new nuclear power production from mining uranium to path of cooperation, and since then they are cooperating. power generation, dismissed the European proposal and If they are still cheating, we haven’t seen any evidence of has taken steps towards resuming enrichment. that.” ElBaradei has also stated that the hidden activities At this writing, there are two possible scenarios: were not related to a weapons program, that any nuclear either Iran and the Europeans will resume talks in a fur- program could be used to make bombs, but the develop- ther search for a compromise, or the IAEA will condemn ment of nuclear energy makes economic sense and is Iran and refer it to the U.N. Security Council for a vote perhaps inevitable in Iran and elsewhere (and, I might on sanctions. There is now little likelihood that the U.S. add, to the West’s benefit by freeing up oil for export). and Europeans can muster the necessary votes in the Incidentally, the Bush administration tried to prevent IAEA, and less chance that the Security Council will Mr. ElBaradei from being elected to a third term as head impose sanctions without drawing a Chinese or Russian of the agency, but abandoned the campaign when no veto. Should sanctions be imposed, the result could well other candidates came forward. be that Iran would renounce the Non-Proliferation Iran admits it acquired nuclear equipment on the Treaty and end all inspections. For these reasons, the black market from the Pakistan-based A.Q. Khan net- prospect is for continued talk, despite Washington’s pref- work, but says it declined offered guidance for assem- erence for toughness. bling a bomb. Tehran insists it is only seeking nuclear Washington’s continuing pressure bolsters the clerical power for peaceful purposes as guaranteed under the regime and sours ordinary Iranians on the U.S. — a great Non-Proliferation Treaty. Although hiding purchases on loss, as they are among the few Middle Easterners with the black market and nuclear sites from the IAEA is friendly feelings for America. Virtually all Iranians, bitter plainly a violation worthy of suspicion, does it merit the opponents and loyal supporters of the regime alike, threats coming from Washington? One could argue that believe their country must have nuclear power if it is to sanctions, threats and reports of U.S. spying — and have a growing economy like India and China. On this, memory of the Israeli bombing of Osirak — are under- the mullahs are no different from Shah Pahlavi; recall that standable reasons for trying to keep nuclear activity hid- he successfully wooed American companies and the State den from Pentagon eyes. Department during the 1970s to work toward that goal. In late February, to the great displeasure of Washington, Iran and Russia signed an agreement for the The Jury Is Still Out provision of nuclear fuel for the power plant at Bushire The case against Iran at this stage does not merit a beginning next year and continuing for 10 years. The guilty verdict, but rather deferred judgment. Still, let us agreement stipulates that spent fuel would be returned to not allow benefit of the doubt to obscure realism. At Moscow so that it could not be used for weapons. some point in the future, Iranian insecurity may well Later, Secretary Rice offered support to the European mean Tehran will move from its declared peaceful

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nuclear program and seek covertly to make bombs. After But in the meantime, tough inspections would be all, Iran has an array of potential enemies: Iraq used poi- required and meaningful incentives (trade, investment, son gas and missiles against it; Pakistan, which has the technical assistance and precise security guarantees) bomb, supported the Taliban who murdered Iranian offered to coax Tehran down a peaceful path. The diplomats; Israel, with an estimated 200 nuclear war- Supreme Leader Ali Khameni (who calls the shots) and heads, regularly threatens Tehran; and American forces new President Mahmud Ahmadinejad are adamant surround Iran on all sides. Iran is unlikely to initiate an that is where they want to go. Washington should end attack against any of these powers, for example, by killing its hostility and not place obstacles in the way of that fellow Muslims, destroying the shrines of Jerusalem and goal. After all, Iran and the U.S. share perspectives on inviting certain and vast retaliation. But, to fearful lead- global oil supply and some Middle East issues (though ers under threat in Tehran, nuclear weapons could not the Arab-Israel conflict). appear a deterrent against potential enemies, following In time, given a bit of quiet and passive cooperation the North Korean model. from Washington, the Europeans might defuse the An imaginative but unexplored course might be to nuclear issue and refocus Iranian energies on much- offer Iran precise security guarantees; for example, a non- needed economic development. If they can be relieved aggression pact with neighbors and outside powers. But of outside threats, Iranians will in time find their own that would require a dramatic change in the U.S. attitude. way to ease the control of their religious masters. That Continuing talks with the British, French and would be the outcome the world needs, though it might Germans offer some prospect that the day Tehran not harmonize with the loud ideological drumming of acquires nuclear weapons can be put off indefinitely. the Bush administration. I

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A ROGUE BY ANY OTHER NAME PJ Loughran

RULED BY A DICTATOR WHO THREATENS THE REST OF THE WORLD, NORTH KOREA LOOKS LIKE THE PERFECT FOE. BUT THAT ISN’T THE WHOLE STORY.

BY LEON V. S IGAL

hat’s in a name? Plenty, if that name is “rogue state” or “pariah state.” Rogue states, or pariahs with aggressive intent, are said to be the main proliferation menace in the world. Yet the United States does Wnot brand Pakistan with either of those labels, even though it may have done more than any other country to enable other states to obtain nuclear arms. North Korea has not been as fortunate as Pakistan. To many Americans, the Democratic People’s Republic of Korea is the archetypal rogue state: implacable and inimical, with a master plan to deceive the world and acquire

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nuclear weapons. Its one-man Pyongyang’s harsh own nuclear arsenals. By contrast, rule, its internal regimentation and American reassurances and induce- its dogmatism would alienate any diatribes against ments have a long record of accom- freedom-loving American. Pyong- plishment. They helped convince yang’s harsh diatribes against Washington and penchant South Korea, Taiwan, Sweden, Washington, its penchant for brink- Brazil, Argentina, South Africa, manship and its nasty habit of float- for brinkmanship have Ukraine, Belarus and Kazakhstan to ing concessions on a sea of threats abandon their nuclear ambitions. all continue to antagonize even the antagonized even the most Only with Iraq and Pakistan did most level-headed observers. So such efforts fail. did its past acts of terrorism, like level-headed observers. the 1983 bombing in Rangoon that The Good Cop Approach barely missed South Korea’s Branding potential prolifera- President Chun Doo-hwan and killed 17 members of tors as rogue states actually gets in the way of disarming his entourage. them. Washington would be better off referring to Yes, in many respects, North Korea makes a perfect them by a more appropriate name — perhaps “insecure foe. Yet ever since 1988, it has been trying to end its states” — and treating them accordingly. That means historic enmity against the United States. Beginning in offering encouragement and incentives instead of that year, it stopped sponsoring terrorist acts against threats to get such governments to stop arming, and other states, and even softened its anti-American moving to contain and deter them only if that approach rhetoric. Nevertheless, the image of a rogue state ruled fails. by a latter-day Genghis Khan has been difficult to shake, Hard-liners dismiss such talk as sympathy for the leaving the North an easy target for demonization. aggressor. They take it on faith, for example, that Name-calling does more than foster a domestic polit- Pyongyang is motivated by paranoid hostility to America ical climate of hostility. It also infects official thinking. and will not stop its campaign to become a full-fledged Epithets like “rogue” or “pariah” become a pernicious nuclear power. So what if it is reaching out to its neigh- premise of U.S. policy and intelligence estimates, blind- bors and the world and establishing diplomatic ties with ing officials to the motives of states for acquiring them? That’s just a tactic. So what if it agreed to freeze nuclear weapons. They predispose American policy- its plutonium program in 1994 — the only nuclear makers to take a coercive approach to stopping the weapons program it then had? That was just a ruse to spread of nuclear arms, threatening isolation, economic dupe the credulous while it began acquiring the means sanctions and military force. And they impede diplo- to enrich uranium. matic give-and-take, which is the best way to probe the So what if the DPRK is now offering to freeze and intentions of such states and try to induce them to dismantle its nuclear weapons programs — if only the change course. United States will normalize political and economic After all, a rogue is a criminal, and the only way to relations and provide assurances that it won’t attack, handle criminals is to punish them. interfere in its internal affairs, or impede its economic Yet, again and again, the crime-and-punishment development by maintaining sanctions and discouraging approach has failed to dissuade states from seeking their aid and investment from its neighbors? Even to discuss such proposals, say the hard-liners, would amount to Leon V. Sigal directs the Northeast Cooperative coddling criminals, or in their favorite turn of phrase, Security Project at the Social Science Research Council rewarding bad behavior. in New York. He is the author of Disarming Strangers: But the trouble is that by not upholding the 1994 Nuclear Diplomacy with North Korea (Princeton Agreed Framework, the United States failed to reward University Press, 1998) and the editor of The North North Korea’s good behavior, even though the accord Korean Nuclear Crisis: Regional Perspectives, which gave Washington what it most wanted up front: a freeze can be found at http://northkorea.ssrc.org/. of Pyongyang’s plutonium production, a program that

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by now could have generated Epithets like “rogue” fuses. It resumed reprocessing to enough nuclear material for at least extract plutonium from nuclear fuel 50 bombs. But when the Republi- or “pariah” have rods that it had removed from its cans won control of Congress just reactor in 1994 but had stored since days after the October 1994 accord predisposed American then at Yongbyon under internation- was signed, they quickly denounced al inspectors’ scrutiny. And it the deal as appeasement. Shying policy-makers to take a resumed making plutonium-laden away from taking them on, the spent fuel by refueling and restart- Clinton administration backpedaled coercive approach to ing its nuclear reactor. on implementing the agreement. As In an official statement on the a result, Washington did little easing states like North Korea. start of the war in March 2003, of sanctions until 2000. Having North Korea noted that the United pledged to provide two nuclear States had first demanded that Iraq power plants “by a target date of 2003,” it did not even submit to inspections, and it had. The United States pour concrete for the first foundation until August next demanded that Baghdad disarm, and it began to do 2002. It did deliver heavy fuel oil as promised, but sel- so. The United States then attacked it anyway. “This dom on schedule. Above all, it did not live up to its suggests that even the signing of a non-aggression treaty commitment in Article II of the accord to “move toward with the U.S. would not help avert war,” a DPRK full normalization of political and economic relations” Foreign Ministry spokesman said on April 6, 2003. — to end enmity and lift sanctions. “Only military deterrent force, supported by ultra-mod- When Washington was slow to fulfill the terms of the ern weapons, can avert a war and protect the security of accord, Pyongyang threatened to break out of it in 1997. the nation. This is the lesson drawn from the Iraqi war.” Its acquisition of gas centrifuges to enrich uranium from Pyongyang’s rhetoric and tactics convinced many in Pakistan began soon thereafter. Yet that was a pilot pro- Washington that it was determined to arm and should gram, not the operational capability U.S. intelligence therefore be punished for breaking its commitments. says it moved to acquire in 2001 after the Bush admin- Other policy-makers interpreted its actions as extortion, istration refused talks and instead disclosed that the intended to secure economic aid without giving up any- North was a target for nuclear attack. However, U.S. thing in return. In fact, it was doing neither, but simply hard-liners took it as conclusive evidence (as if they playing tit for tat — cooperating whenever Washington needed any) that North Korea was hellbent on arming. cooperated and retaliating when Washington reneged. After confronting Pyongyang over enrichment in It still is. October 2002, Washington retaliated by halting ship- Hard-liners call this approach blackmail. But that’s a ment of heavy fuel oil promised under the Agreed misnomer. It’s blackmail when a man menaces you with Framework. a baseball bat and demands that you hand over your wallet — and you do. It’s not blackmail when he hands The Road to Pyongyang you his bat and says, let’s play ball, and you don’t. That’s Hard-liners were convinced that Iraq’s fate would what North Korea did after October 1994 and says it is chasten North Korea. On the day Saddam Hussein’s willing to do again now. statue was toppled from its pedestal in Baghdad, Under Skeptics may ask why we should believe Pyongyang Secretary of State John Bolton declared, “We are hope- would be willing to re-engage in the face of implacable ful that a number of regimes will draw the appropriate hostility from Washington. One answer lies in President lesson from Iraq.” Kim Jong Il’s October 2001 decision to reform his coun- Yet, far from becoming more pliable, North Korea try’s moribund economy, a policy he formally promul- became more determined to arm itself — and will remain gated in July 2002. As a result of that policy shift, the so until the United States changes course. In 2003, as North Korean economy has begun to revive — but U.S. troops were deploying to the Persian Gulf, Pyong- reform cannot succeed without a political accommoda- yang challenged Washington by lighting two nuclear tion with the United States, Japan and South Korea that

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facilitates reallocation of re- In the belief that North Korea So why, in contrast, have sources from military use and U.S. policy-makers been so attracts aid and investment was on the verge of collapse, unwilling to countenance nego- from the outside. tiating with North Korea Bush administration hard- before reaching for their guns? Misreading the Situation For many, it is a blank screen In the belief that North liners kept pushing for an on which to project their own Korea was on the verge of col- predispositions and prejudices. lapse, however, Bush adminis- economic embargo and naval Given the endemic uncertainty tration hard-liners kept pushing about the DPRK’s nuclear for an economic embargo and blockade to strangle it to death. capabilities and intentions, the naval blockade to strangle it to years of hostility and the deep death. Yet all the North’s mistrust on both sides, the neighbors think that regime change can best be image of North Korea as a rogue state filled the vacuum achieved through prolonged engagement. They know of knowledge. that attempts to isolate and starve Pyongyang will pro- A prudent response to uncertainty would have been voke it to arm even faster, which is why they won’t try. to treat estimates of North Korean nuclear capabilities Instead, they have pursued talks of their own with and intentions as rough guesses rather than facts, and to North Korea, which persuaded them that it seems will- probe Pyongyang’s intentions through diplomatic give- ing to deal. and-take without running a high risk of war. The hard-

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liners’ response, instead, has been When Washington was freeze of activity at the Yongbyon to leak worst-case assessments and reactor and reprocessing plant, pursue rash policies — threats of slow to fulfill the terms though not enrichment sites at un- political isolation and economic known locations. Inspections of coercion, even armed force. of the Agreed these sites, as desirable as they are, By impeding a cooperative solu- will take time to arrange. But they tion, the unilateralists have put Framework, Pyongyang can wait: U.S. intelligence estimates Washington on a collision course the North cannot produce much not just with Pyongyang but, more threatened to break out highly enriched uranium until later in importantly, with America’s allies in this decade. Conversely, delaying a Asia. This approach threatens to of it in 1997. freeze to negotiate a detailed verifi- erode political support for the able agreement on enrichment will alliance in South Korea and Japan simply allow time for Pyongyang to and jeopardize the U.S. troop presence in the region. generate more plutonium, fabricate bombs and increase In fact, the hard-liners would apparently rather pick a its negotiating leverage. fight with China than negotiate with North Korea. The key to verification is what the International Their intransigence has been the catalyst for Atomic Energy Agency calls an “initial declaration,” unprecedented cooperation in Northeast Asia aimed at listing all the North’s nuclear facilities, equipment and reining in the United States. The January 2003 Japan- fissile material, in whatever form they may now be. Russia summit meeting and the Japan-DPRK summit Once that declaration is cross-checked against what meetings of 2002 and 2004 should be seen in this light, U.S. intelligence has already ascertained, elimination as should South Korea’s warming relations with China. can begin. The time for challenge inspections will Given the history of antagonism in the region, such come, but it is not yet here. Why waste time and bar- cooperation would have seemed unthinkable just a few gaining chips negotiating to verify that the North has short years ago. what it says it has when the aim is to get rid of its weapons programs altogether? “Action for Action” Pyongyang’s missile program can be dealt with in par- The best way for the United States to avoid further allel. The first priority is what the North offered in erosion in its position in the region is to negotiate in Beijing — a ban on missile test launches and exports of earnest with North Korea and test whether it makes a missile technology. Next is to negotiate the dismantling deal and lives up to it. of missiles and production sites. An agreement in principle stating what each side Washington will have to reciprocate for each of these wants at the end is a useful starting point. North Korea steps, of course. It will not get something for nothing. needs to agree to rid itself of its nuclear weapons pro- Words alone will not placate Pyongyang. Given the deep grams and abandon plans to build longer-range missiles. mistrust on both sides, and the belief on each side that The United States, in turn, should join other nations in the other reneged on the Agreed Framework, this cau- providing written security assurances and move to nor- tious approach makes sense. Each side needs concrete malize relations as the North eliminates its weapons and results from the other to enable it to build trust and move the means of making them. forward. The most urgent need for the United States is to The good news is that Pyongyang seems ready to deal. restore inspectors’ control over the plutonium that It says it wants to exchange “words for words” and “action North Korea removed from its reactor at Yongbyon in for action.” By “words for words” it means an agreement 1994, and again earlier this year, and to shut down that in principle that if Washington “gives up its hostile policy,” reactor to keep it from generating more plutonium in its it will “transparently renounce all nuclear-weapons related spent fuel. Shutting down and resealing the DPRK’s programs.” By “action for action,” it means phased, recip- reprocessing plant is another priority. rocal steps. To start, it is offering a freeze on “all the facil- Satellites and other technical means can monitor a ities related to nuclear weapons,” shutting down its nuclear

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reactor and reprocessing plant at American hard-liners North Korea insists on dealing Yongbyon. Whether Pyongyang has directly with the United States, “facilities” to enrich uranium or is in the like John Bolton were whether or not China, South Korea, process of building them it has yet to Japan and Russia are also at the negoti- clarify. That discussion could begin if convinced that Iraq’s ating table, because none of them can Washington engages in direct dialogue provide such assurances on behalf of with its foe. fate would chasten the United States. Direct dialogue is Most important, the proposed freeze also the least a state can do to end covers “even products achieved through North Korea. enmity. To refuse to talk face-to-face is reprocessing,” which meant putting the to deny the DPRK’s legitimacy as a plutonium acquired in 1994 — five to six state. bombs’ worth — back under inspection. In return, Pyongyang wants Washington to “participate” in providing Testing the Waters heavy fuel oil promised under the Agreed Framework, For the past four years the United States has watched take it off the list of “state sponsors of terrorism” and lift North Korea arm without trying what South Korea and related sanctions. North Korea’s negotiating stance is Japan think just might get it to stop: negotiating in intended to drive home the point that if the United States earnest. Instead, the Bush administration prefers to remains its foe, it feels threatened and will seek nuclear demonize North Korea as a rogue state and stick with a arms to counter that threat. Conversely, if the United crime-and-punishment approach to disarming it. This is States takes steps to end its enmity, it will reciprocate. not surprising, given that most hard-liners are unilateral-

THE REMINGTON

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ists who could not care less what The crime-and-punishment China’s influence there. Indeed, allies think. (As the Journal went far from isolating the North, to press, news came of a tentative approach — unlike Washington is itself becoming agreement at the six-party talks.) odd man out in the region, dissi- The Bush administration reassurances and pating political support for pres- insists that the six-party talks are suring Pyongyang and enhanc- succeeding in isolating North inducements — has failed to ing China’s influence. Korea and that additional pres- The great divide in American sure by China and others will dissuade states from seeking foreign policy thinking is between bring it to heel. And if not, well, those who believe that to get its the prospect of a nuclear-armed their own nuclear arsenals. way in the world the United States Pyongyang will at least drive has to push other countries Seoul and Tokyo further into around, and those who think that Washington’s arms. cooperation can sometimes reduce threats to security. But many Asians see a negotiated resolution as both Does Pyongyang mean what it says? The surest way desirable and possible. Indeed, the Washington hard- to find out is sustained diplomatic give-and-take. That liners’ uncompromising stance has led some in Seoul will require the United States to make a strategic deci- and Tokyo to wonder whether they can rely on the U.S. sion to spell out the steps it is prepared to take to end for their security. That suspicion is threatening to enmity if North Korea eliminates its nuclear weapons unravel U.S. alliances in Northeast Asia and enhance programs — and this time carry them out. I

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LIBYA: AN ALTERNATIVE PARADIGM PJ Loughran

THE U.S.-LIBYA DÉTENTE PROMISES GREAT MUTUAL BENEFIT, PROVIDED THE FORWARD MOMENTUM IS MAINTAINED.

BY DAVID L. MACK

early 33 years after leaving Libya as a young diplomat in 1972, I recently returned to Tripoli for five days of meetings with officials, university faculty and students and businesspeople. While recognizing that I only got a partialN and brief look at the Libya of 2005, let me offer a few general observations. Muammar Qadhafi is still in charge and likely to remain so for the foreseeable future. Even senior Libyans are unsure how his policies might evolve, but the leader’s current direction is the most reality-based and promising of his more than three decades in power. Internationally, he seeks acceptance by the West and integration into the global system. He

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seems to have recognized that Libya can be a positive companies benefited from this in Libya’s security is best assured by the January 2005 round of awards wary but peaceful relationships example to the North Koreas of petroleum exploration con- with the U.S. and other major gov- tracts. But companies from ernments, and that Libyan involve- and Irans of the world of Europe and the Far East have ment with international terrorism started to give them a run for their and weapons of mass destruction how to come in from the cold money, and bidding in the sum- had left the country less safe. He mer round was brisk. In this area, has also recognized that the future and become a respectable Libya has already reaped great is about global economic integra- benefit from improved relations tion and interaction with private member of the global with the U.S. Its oil and gas rev- companies representing the best enues will probably rise signifi- technology and management that community. cantly as a result. Libya’s oil and gas revenues can However, the process of re- buy, or attract, for investment. building effective state institu- The strategic benefits to the United States of Tripoli’s tions and encouraging the private sector to resume busi- current posture are immense. Libya is no longer an ness activity (euphemistically called “expanding the popu- adversary state located in the Mediterranean basin. lar sector”) is going very slowly. Libya has not yet passed Instead, it can be a positive example to the North Koreas laws and established mechanisms to implement rational and Irans of the world of how to come in from the cold planning, budgeting and other economic reforms for the and become a respectable member of the global commu- productive use of the country’s rapidly increasing oil and nity. To put it bluntly, there are too many bad govern- gas revenues. Moreover, the mostly nontransparent pow- ments seeking dangerous weapons for the U.S. to simply ers of the military, security and intelligence apparatus bomb them all into submission. The Bush administration remain intact. needs an alternative paradigm for international coopera- The status of Libyan women represents the single most tion. Détente, including intelligence exchanges on mutu- important change from 1972, when I left Tripoli. After al terrorist threats, serves the security needs of both states. three years there, I had not had an opportunity to meet a single Libyan woman. Their absence from the workplace Assets for Change and isolation in the home had a negative effect on the effi- Domestically, Qadhafi views Western-style political ciency of the government and productivity of the private reforms as unnecessary additions to international cooper- sector. Men often left their jobs early to do the family ation in foreign policy and economic matters. In the eco- shopping or absented themselves entirely to take a sick nomic sphere, he appears to have decided to leave oil and child to the doctor. Now, women seem to be everywhere. gas development and marketing control to the generally They made up half of the university audience I addressed, apolitical, professionally managed Libyan National Oil and two of them rose afterwards to ask questions. Those Company and the foreign partners it attracts through I met in offices and at social occasions were self-confident competitive bidding in a transparent process. American and assertive. I would hazard a guess that Qadhafi is more popular among Libyan women than among the men, even Retired FSO David L. Mack is vice president of the if he can only take partial responsibility for their emanci- Middle East Institute. He served as deputy assistant sec- pation. retary of State for Near Eastern affairs and U.S. ambas- It is hard to assess the actual levels of education and sador to the United Arab Emirates, and also held diplo- evaluate whether Libyans are being trained in a manner matic postings in Iraq, Jordan, Israel, Lebanon, Libya relevant to the country’s needs. But the rapid growth in and Tunisia. Assertions and opinions in this article are the numbers of educated Libyans provides manpower for solely those of the author and do not necessarily reflect economic and social development. Effective employment the views of the Middle East Institute, which expressly of Libya’s human resources, however, depends on the gov- does not take positions on Middle East policy. ernment’s adopting sound macro-economic policies and

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reforming a legal and commercial The lack of visa issuance in also said that Saudi Arabia was framework which does not meet using this issue to put the U.S. on global standards. Tripoli and Washington is the the defensive on at least one issue At this point, Libya is far from involving international terrorism. I rich, but it does not lack capital. most immediate impediment suggested that Libya should find a The government had an estimat- way to resolve matters with its ed $25 billion in reserves in 2004, to an expansion of U.S.- Saudi brothers. Shortly after his and revenues of $16 billion over accession to the throne in August, and above its operating budget. Libyan contacts in the areas King Abdullah pardoned the The problem is how to invest pro- alleged Libyan intelligence agents ductively in education and health, of commerce, tourism and it had under arrest. and get capital into the hands of Since this seems to be the only entrepreneurs who will create education. instance of alleged Libyan culpabil- jobs and become effective part- ity in international terrorism in ners for foreign business interests. recent years, Tripoli now expects Libyan businessmen expressed concern that there was no movement toward full relations by the Bush administra- apparent mechanism to do this, and that the trend was to tion. In a strictly legal sense, the Bush administration funnel money through a few cronies of the regime who could do so, but there is opposition from some members would create monopoly interests. of Congress who espouse the grievances of American cit- Libya’s strategic détente with Europe and the U.S. izens dating back to 1986. The continued inclusion of makes the country safer from future military pressures or Libya on the terrorism list has several practical effects, economic sanctions. NATO countries that formerly such as subjecting the sale of U.S. civil aircraft to onerous viewed it as a threat now want to cultivate common strate- U.S. bureaucratic hurdles. More importantly, from the gic and commercial interests. Of course, this also means Libyan perspective, it constitutes an example of U.S. bad that the regime no longer has the excuse of being under faith. siege from a hostile world. The lack of visa issuance in Tripoli and Washington is the most immediate impediment to an expansion of con- U.S.-Libya Relationship Stalled tacts in the areas of commerce, tourism and education. A theme I heard over and over was that Libya had The hold-up on the U.S. side is purely technical — lack of done so much — offering up its citizens for trial at The a secure facility for visa procedures. The U.S. Liaison Hague, giving a generous settlement to the Pan Am 103 Office in Tripoli, like diplomatic posts elsewhere, has to families, giving up its chemical weapons and its option to meet the rigorous security standards of the State develop nuclear weapons — and had gotten so little in Department. Greg Berry, the able Foreign Service officer return. In fact, Libya has already gained a great deal, but in charge, indicated to me during my visit that the mission three elements are still lacking: had located a property to the west of town with enough • Libya remains on the terrorism list; space to be set back from traffic, and negotiations are cur- • The U.S. is delaying the issuance of visas in Tripoli; rently under way to purchase the property. (Recently, zon- and ing issues have arisen that are an additional complication.) • Relations are still well below the full ambassadorial Once the property issue is solved, the next step would be level. the entry of pre-fabricated buildings and equipment under Removal of Libya from the terrorism list was compli- diplomatic seal to ensure security. cated by the serious allegation of a Libyan attempt two In the meantime, the Libyan Liaison Office chief in years ago to assassinate then-Crown Prince Abdullah of Washington, Ambassador Ali Aujali, appears to be subject Saudi Arabia. While not denying Libyan involvement in to instructions that he insist upon reciprocal steps by the some kind of anti-Abdullah agitation, Libyans I spoke with U.S. before he starts to issue visas. I explained the situa- in April charged that the U.S. was seeking any excuse to tion to my high-level Libyan contacts, and suggested that delay the country’s removal from the terrorism list. They this is an area where their interests would be better served

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by not waiting to proceed. Both Libya and the U.S. have adversaries in Europe and the Libya now enjoys full diplo- United States. The strategic matic relations with virtually gained strategically from the gains, as well as the benefits for every major government except business are nearly self-evident. for the United States. This is détente in their relations, At this point, however, an mostly symbolic — after all, we Iranian strategist or the ambi- can have relations with other but more forward movement tious political leader of another states, such as Syria, without government considering how to those relations being very satisfy- is needed to prevent a relapse. mend bad relations with Wash- ing to either side. But symbol- ington would probably conclude ism is all-important to Qadhafi, that the U.S. was not honoring who did not embark upon the dramatic changes in his for- its understandings with Libya. Less obvious, but perhaps eign policy to be spurned as not respectable enough to more important in the longer term, is the potential for have a U.S. ambassador in Tripoli who would deliver the Libyan citizens to gain economic and political reforms as occasional letter from the president. This is especially the result of the country’s new openness to the global the case given that other states, including the U.K., community. Neglect of the budding bilateral relationship have even engaged in summitry with Qadhafi. Libyans would risk both short-term and long-term strategic gains. are becoming nervous that the U.S., having received a There are steps that Libya should initiate itself, but let me generous settlement for the Pan Am 103 families and a focus on moves the Bush administration should make: huge intelligence and security windfall resulting from • Establish a target date for beginning visa issuance in Libya’s surrender of WMD materials and documents, is Tripoli. Inform the Libyan government of the date, but now prepared to let relations stall at the present level say that implementation depends on meeting practical of liaison offices with limited functions. At some point, requirements connected with the security of our facility. this would probably result in Libyan retaliation of some We should offer to announce that date publicly, so the kind, and several of my interlocutors hinted at that in Libyans have cover to begin visa issuance in Washington. vague terms. • Assure the Libyans that we are reviewing their listing President Bush’s second inaugural address, with its as a state sponsor of terrorism with an open mind and are emphasis on the need for democracy as a basis for our not subjecting them to shifting standards. In the mean- relations with other states, together with Washington’s time, tell them we intend to proceed with the normaliza- enthusiasm about the “Arab spring,” has set off alarm bells tion process to the extent that is consistent with U.S. legal in Tripoli. To the Libyans, this looks like we are simply requirements. raising the bar higher for development of normal rela- • Formulate proposals for dialogue between Libyan tions. I encountered hostile questions from the universi- and U.S. entities about the process of economic and polit- ty audience in addition to the more predictable queries ical reform. It must be made clear that we are prepared from senior Libyan officials. Quoting an Arab proverb, to listen with an open mind to what they have to say about one senior official said, “Enter the house of a friend by its The Green Book and Libya’s political system, known as front door, not through the window.” If we discuss inter- Jamahiriyah. (This is a form of participatory democracy nal political reforms, he said, we should do it on the offi- based on town-meeting-style gatherings called people’s cial level. If a U.S. embassy in any Arab country goes congresses, held at local, regional and national levels.) behind the back of the government, or if we send NGOs • Endorse the establishment of private-sector business into the country for this purpose, it will be viewed with groups in both the U.S. and Libya to present the concerns great suspicion by the people of that country — not just of our respective business communities to the govern- the regime. ments in each capital. • Send a high-level visitor to Tripoli to convey these Suggested U.S. Initiatives points to the Libyans. Public statements made about Libya’s policy shift, even with its shortcomings, has Libya should be neither unduly fulsome nor insensitive to been a dramatic success both for Libya and for its former their national pride. I

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INEXTRICABLY LINKED: THE U.S. AND SYRIA PJ Loughran

THE BUSH ADMINISTRATION COULD ADVANCE ITS OBJECTIVES, NOT ONLYINSYRIA BUT THROUGHOUT THE “ REGION, BY OFFERING CARROTS INSTEAD OF STICKS. BY MURHAF JOUEJATI

t takes two to tango” is perhaps the best way to explain why U.S.-Syrian relations are at an impasse: each has repeatedly engaged in behavior that alienates the other, yet neither can achieve its objectives without itsI reluctant partner. Damascus shot itself in the foot when it initially facilitated the infiltration of jihadists into Iraq soon after American troops marched into Baghdad. For its part, Washington has made it nearly impossible for Syria to provide the cooperation the U.S. needs to stabilize Iraq. Such miscalculations are all the more damaging because, in the long haul, both countries need each other to advance their respective interests —

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which, in the final analysis, are By ostracizing Syria, had done during the first Persian convergent. Gulf War. There have long been tensions Washington is opening itself in the U.S.-Syrian relationship, of All Sticks, No Carrots course, which the war has exacer- up to unintended Underlying Syria’s initial policy bated. Damascus opposed U.S. is the carrot-and-stick approach intervention in Iraq, not out of consequences. that the late Hafez Assad, the cur- love for Saddam Hussein but as a rent president’s father, employed result of its perceptions of threat. successfully vis-à-vis Washington. Despite the fact that the two countries share a history On the one hand, Syria frequently did Washington’s bid- of Baath Party rule, Syria and Iraq were at loggerheads ding to demonstrate that it could be useful in advancing even before Saddam came to power in 1979. Yet Syria, U.S. interests in the region. Syria’s intervention in the like Iraq’s other Arab neighbors, was satisfied with the Lebanese civil war, initially against the Muslim/ status quo: Saddam was weak enough not to threaten Palestinian alliance, is one case in point. Its stabilization the region, yet strong enough to keep Iraq united. of Lebanon and the assistance it rendered in gaining the If Damascus became the most vocal regional critic release of American hostages there during the 1980s is of U.S. policy, it is because it had additional reasons for another example. And its participation alongside U.S.- opposing the war. It opposed the concept of regime led coalition forces against Iraq during the first Persian change, fearing it would become a precedent in inter- Gulf War is yet another. national relations: if strong nations do not like the lead- On the other hand, Syria has never been shy about ership of their weaker rivals, they could take unilateral defending its national interests. Its support for Shiite action to change the regime of their foe. In particular, groups resisting the U.S. peacekeeping presence in Syria feared that Israel, its militarily superior rival, Lebanon during the early 1980s is just one example. might one day embark on such an adventure. Nor did As it turns out, however, that approach backfired it relish the prospect of having 140,000 American against Damascus. For in the post-9/11 era, Washing- troops at its doorstep. Syria is already surrounded by ton was in no mood to offer carrots. Moreover, Bashar U.S.-backed powers, whether to its north, where Assad is not the master strategist his father was, nor Turkey is a powerful member of NATO; to its south, does Russia provide the same patronage as the former where Jordan is Washington’s closest Arab ally; or to its Soviet Union did. Making matters worse, Assad, a southwest — Israel. Moreover, it feared that the U.S. political neophyte, badly underestimated longstanding war in Iraq would cause northern Iraqi separatist Kurds American wrath against Syria and the intensity of the to break away and proclaim an independent state of U.S.-Israel alliance, especially under the current their own. Such an outcome would likely whet the administration. appetite of Syria’s own Kurdish minority for greater Even when Syria belatedly took measures to stop autonomy. the infiltration of jihadists into Iraq, including the erec- It is as a result of these perceptions of threat that tion of a 12-foot-high wall along a section of its 360- Damascus facilitated, at least initially, the infiltration of mile border, the deployment there of 15,000 troops, jihadists into Iraq. Its aim in doing this was to tie down the arrest of over 2,000 Syrian and non-Syrian would- U.S. occupation forces in the hope that Washington be infiltrators, and the repatriation of the latter to their would later turn to it for help in fighting the insurgents countries of origin (Saudi Arabia and Jordan), and stabilizing the new Iraqi government, much as it Washington continued to pursue a policy of “sticks only” with Damascus. The U.S. imposed economic Murhaf Jouejati is the director of the Middle East Studies sanctions against Syria, withdrew its ambassador from program and a visiting assistant professor of political sci- Damascus, helped evict Syrian forces from Lebanon ence and international affairs at The George Washington and, to further isolate Syria, pressed its European allies University. He is also an adjunct scholar at the Middle to postpone the signing of the E.U.-Syrian Associate East Institute. Agreement. Nor would Washington provide Syria with

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night-vision equipment or even There have long been American miscalculations. assent to British assistance to Syria. Over and above that, Washington tensions in the U.S.-Syrian A Win-Win Scenario stood in the way of joint Syrian- This situation is unfortunate, Iraqi patrols along the common relationship, of course, for Washington and Damascus border. In fact, Damascus is still need each other to attain larger waiting for an official Iraqi security which the Iraq War objectives. Syria needs America’s team to initial that agreement. influence with Israel to recover its has exacerbated. Israeli-occupied Golan Heights. Miscalculations Washington needs Syrian cooper- Such tactics indicate that Wash- ation to control the border with ington is lashing out in frustration, at least partially Iraq to put pressure on the insurgency there. Beyond because it does not understand what makes Damascus that, Damascus’ staunchly secular government can help tick. By virtue of its history, specifically its leading role the U.S. check the rise of political Islam in the region. in the Arab national revolt during World War I, Syria Most broadly, Washington needs Syrian support to sees itself as the champion of Arab rights — an combat terrorism. Although this last point may, from ideational constraint that limits the external action of Washington’s perspective, seem a stretch in light of the any regime that dominates Syria. Accordingly, to retain country’s long presence on the State Department’s list its legitimacy any Syrian government is expected to of state sponsors of terrorism, it is not a contradiction defend Arabs, whether in Syria, Palestine or anywhere in Syrian eyes. Whereas Damascus views militant else in the region. Palestinian anti-Israel organizations as national libera- Thus, by ostracizing Damascus, Washington is open- tion movements struggling to end Israel’s occupation ing itself up to unintended consequences. First, the lit- of Arab lands, it sees al-Qaida as a terrorist organiza- tle popularity that the U.S. enjoys in the Arab world is tion that has murdered thousands of innocent civilians. diminishing. Indeed, the perception on the “Arab To emphasize that distinction, Syria has been a street” — that the U.S., in cahoots with Israel, has valuable ally in the fight against al-Qaida. Consider occupied one Arab country and is targeting another — the revelation that three years ago, Syrian security ser- runs directly counter to American efforts to win Arab vices tipped off the CIA to an impending al-Qaida hearts and minds. attack against the administrative unit of the Fifth Fleet Second, U.S. pressure is forcing Assad to limit the headquarters in Bahrain. If successful, the operation domestic reforms he set out to implement. Indeed, the would have killed a large number of American troops, message of the Tenth Baath Party Congress that was according to Richard W. Erdman, a State Department held in June is one of defiance to both civil society and specialist for Syria speaking at an American Israel to the U.S. Public Affairs Committee meeting in Washington. In Finally, Washington’s persistence in its aggressive addition, Syria provided information to the CIA on policy vis-a-vis Damascus might cause the Assad Mohammed Atta, the leader of the Hamburg cell who regime to implode. This might not be such a bad thing, had lived in Aleppo during the early 1990s, and were it not for the fact that (other than the ruling Baath Marwan Derkazenli, the financial conduit to al-Qaida, Party) the Muslim Brotherhood — an Islamist political enabling the CIA to break up the Hamburg cell and party that has been operating in Syria since the 1940s other al-Qaida entities in Europe. Syria also helped — is the largest and most organized political force in save American and Canadian lives when its security the country. Although some in Washington like to services tipped off Canadian authorities of an impend- think that this is just the kind of disinformation that the ing attack against American institutions there. Syrian government propagates to deter Washington Indeed, American and Syrian agendas are not mutu- from attempting to destabilize or even oust it, the real- ally exclusive. Washington could obtain Syria’s coop- ity on the ground speaks for itself: political Islam is con- eration on securing its border with Iraq, as well as tinually gaining in strength in Syria, helped along by controlling Hamas and Hezbollah (particularly in

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Lebanon), if it were to press Israel In the post-9/11 era, drawal than Israel thought neces- to resume peace talks with Syria, sary. this time in good faith. Although Washington was in Serious U.S. engagement in the Clinton administration attempt- the Syrian-Israeli issue that leads ed to do just that during the Syria- no mood to offer Damascus to peace is a win-win situation for Israel peace talks of the past all concerned. For the U.S., such decade, it could have pressed Israeli any concessions. an agreement would help stabilize Prime Minister Ehud Barak harder the Middle East. As for Syria, to withdraw from the Golan in recovery of its sovereignty over exchange for Syria’s recognition of Israel. After all, history the Golan would facilitate its desire to achieve an honor- shows that virtually every Israeli prime minister, Labor and able peace. And for Israel, peace would accomplish Likud alike, had at least one showdown with the U.S. For what the Jewish state has sought throughout its embat- David Ben Gurion, it was Dwight Eisenhower’s order to tled history: to be accepted in the region and to live with- quit the Sinai in 1956; for Menachem Begin, the most in secure and recognized boundaries, free from the well-known face-off was Ronald Reagan’s 1982 demand to threat of war. stop the shelling of Beirut. Even the late Yitzhak Rabin, In the final analysis, despite the sometimes overheated serving his first term as prime minister in the mid-1970s, rhetoric emanating from some quarters, Washington’s suffered a “reassessment” of U.S.-Israeli ties when Henry regional interests and those of Syria are convergent, not Kissinger, then negotiating a Sinai disengagement agree- mutually exclusive. It is time for U.S. policy to reflect ment with Egypt, insisted upon a deeper territorial with- that fact. I

52 FOREIGN SERVICE JOURNAL/OCTOBER 2005

FOR THE RECORD BREAKING THROUGH DIPLOMACY’S GLASS CEILING

SECRETARY OF STATE RICE CAN GIVE WELL-QUALIFIED FOREIGN SERVICE WOMEN MORE OPPORTUNITIES TO SERVE IN KEY COUNTRIES AND IN SENIOR POSITIONS NOT PREVIOUSLY OFFERED THEM.

BY ANN WRIGHT

ntil 1997, the citadel of U.S. diplo- Besides appointing female Secretaries of State, matic white male service — the Presidents Clinton and Bush both dramatically increased position of Secretary of State — had the number of women appointed as chiefs of mission and to not been breached by a woman or other senior positions in the State Department. In his eight by a member of an ethnic minority. years as president, Clinton appointed 116 women to senior President Clinton shattered the levels, 87 as chief of mission and 29 to other senior posts. Secretary of State gender barrier In his first term as president, Bush appointed 69 women, 50 with his appointment of Madeleine Albright in January of as chief of mission and 19 to other top posts. Uthat year. President George W. Bush broke the ethnic/racial The rapid gains of the past decade contrast sharply with glass ceiling for the position by naming Colin Powell in the incremental advances of the previous 70 years, and January 2001. His subsequent appointment of Condoleezza position women for new breakthroughs in the months and Rice, an African-American woman, as Secretary of State in years immediately ahead. January 2005 continues the movement of women into the highest levels of government. A Slow Start After women were permitted to join the U.S. diplomat- Ann Wright was an FSO from 1987 until 2003, when she ic corps in 1922, they have slowly made their way to the resigned from the Service while serving as deputy chief of highest positions in the State Department (see Charts 1 and mission in Ulaanbaatar. She was also DCM in Sierra 2, pp. 56 and 57). From the appointment of Ruth Bryan Leone, Micronesia and (for a short time) Afghanistan, and Owen as the first female chief of mission in 1933, through had assignments in Somalia, Uzbekistan, Kyrgyzstan, the end of 2004, 217 women were appointed to 313 slots as Grenada, Nicaragua and Washington, D.C. In addition, chief of mission (ambassador, minister or chargé d’affaires), she attended the Naval War College and was a Pearson assistant secretary of State and other senior-level positions. Fellow in the office of the governor of Hawaii. She Of those 217, 111 were career Foreign Service officers and received the State Department’s Award for Heroism for 106 were non-career, political appointees. her work as chargé d’affaires for leading the evacuation of From 1933 to the end of 2004, a total of 2,450 persons a large part of the international community from Sierra filled chief-of-mission positions, as either ministers, ambas- Leone in 1997. sadors or chargés d’affaires. Of these, approximately 8 per- Prior to joining the Foreign Service, Wright was in the cent were women (see Chart 3, p. 58). Women have been U.S. Army/Army Reserves and participated in civil recon- appointed or nominated to 207 chief of mission positions at struction after military operations in Grenada and ambassador/minister rank and to 23 chief-of-mission posi- Somalia. She attained the rank of colonel during 26 years tions at the chargé d’affaires level. American women have of military service. served as ambassadors in 115 countries. Sixty-six countries

OCTOBER 2005/FOREIGN SERVICE JOURNAL 53

have had two or more female U.S. women. Women made up only 25 chiefs of mission (ambassador or percent of the senior Foreign chargé d’affaires), while 11 countries The rapid gains of the Service, however. have had four or more female chiefs Historically, women are more like- of mission. past decade contrast ly to have been ambassadors to small But progress was slow. In 1933, countries (see Chart 7, p. 60), and Ruth Bryan Owen was appointed as sharply with the progress up the ranks of other senior the first female chief of mission. She positions has been halting (see Charts was appointed at the minister level to incremental advances of 5, 6, 8, 9 and 10, pp. 59 and 61). head the U.S. embassy for Denmark Women are especially likely to be and Iceland (located in Copen- the previous 70 years. appointed as ambassadors to small hagen). The first woman appointed countries in the Caribbean, Africa chief of mission at the ambassador and Asia. By the same token, level, Helen Eugenie Moore Ander- although six women have served as son, was named ambassador to assistant secretaries of geographic Denmark in 1949. The first female bureaus and 45 women have been career diplomat to be appointed as a appointed assistant secretaries of chief of mission (to Switzerland in and 10 were appointed to other functional bureaus, no woman has 1953), Frances Willis, was also the senior positions. Reagan and George served as deputy secretary of State, third woman to be admitted to the H.W. Bush continued the trend, with under secretary for political affairs, or Foreign Service. During her long 33 and 37 female appointments, as assistant secretary for East Asian career, Willis was named ambassador respectively. The Clinton administra- and Pacific affairs, Near Eastern affairs to two other countries and was the tion made a larger leap, appointing or Western Hemisphere affairs — half first woman to attain the rank of 116 women to the senior-most posts. of the geographic bureaus. career ambassador. In its first term, the George W. According to a column by former In the first 42 years (1933-1976) Bush administration named 69 AFSA State Vice President Louise following the Owens appointment as females to the highest diplomatic Crane, “How Are FS Women at State chief of mission, women were posts. Moreover, women played key Faring?” (AFSA News, Jan. 2005), appointed to 31 senior positions roles in the wars in Afghanistan and women have been promoted into and (ambassadors or assistant secretaries Iraq. Christina Rocca was the assis- within the Senior Foreign Service at of State) in the U.S. diplomatic tant secretary for South Asian affairs. the same rate as men for the past corps (see Chart 4, p. 58). Career Wendy Chamberlin was ambassador three years. “Generally, if women Foreign Service officers Carol Laise to Pakistan from 2001 to 2002, and make up 25 percent of the class,” and Frances Willis were each was followed by Nancy Powell (2002- Crane found, “they receive 25 percent appointed to three senior-level posts 2004). of the promotions.” But Crane also during this period, while political During this period several women found that of the 99 career-officer appointees Helen Anderson and were named ambassadors to Arab ambassadors in mid-2004, only 22, or Shirley Temple Black were each countries. Maureen Quinn was 22 percent, were FS women from the appointed to two ambassadorships. ambassador to Qatar from 2001 to State Department (one other career Black later was named to a third 2004. During the same period, woman was from the Foreign Agri- senior position, chief of protocol. Marcelle Wahba was ambassador to cultural Service). The number of female appoint- the United Arab Emirates, and was Crane noted that most officers ments as chief of mission or to other succeeded by Michelle Sison, who appointed as chiefs of mission are in senior positions stayed well within had been the deputy chief of mission the OC and MC ranks, and added that single digits from the Roosevelt in Pakistan from 2000 to 2002. In as of Aug. 31, 2004, there were 853 through Nixon administrations. The late 2003 Margaret Scobey was officers at the OC and MC levels. Of Ford administration broke that barri- appointed ambassador to Syria. those, 222, or 26 percent, were er, appointing seven female chiefs of women. Thus, Crane concluded, mission and three women to senior Measuring Progress career FS women from the State positions. With the Carter adminis- By 2003, 34 percent of Foreign Department were underrepresented tration, rapid progress began: 18 Service officers and 31 percent of by 4 percent in the ranks of chiefs of women were made chiefs of mission Foreign Service specialists were mission.

54 FOREIGN SERVICE JOURNAL/OCTOBER 2005

My own calculations found that of ever served as director of the Policy the 175 U.S. chiefs of mission listed Planning Staff or the Office of on the State Department’s list of The number of female Medical Services, or as the legal advis- biographies for chiefs of mission as of er to the State Department. December 2004 (www.state.gov/r/ appointments as chief of No women have been appointed as pa/ei/biog), including those assigned ambassador to countries of great polit- to missions at international organiza- mission or to other ical and economic importance to the tions, 27 were women: 19 State United States such as China, Russia, Foreign Service officers, one Foreign senior positions stayed Germany, South Korea, Japan, Saudi Agricultural Service officer and seven Arabia, Egypt, Israel, Turkey, India, non-career, political appointees. Thus, well within single digits Spain, Canada, Mexico, Indonesia, when political appointees are count- Thailand or Nigeria. Women have ser- ed along with FSOs, women filled through the Nixon ved only once as ambassadors to Euro- only 16 percent of the total U.S. pean allies: United Kingdom (Anne chief-of-mission positions at the end administration. Armstrong, 1976), France (Pamela of 2004. Harriman, 1993), Belgium (Anne Chambers, 1977) and Italy (Clare Opportunity for Action Boothe Luce, 1953). All were politi- While women have made some cal appointees, not career Foreign progress in reaching the senior levels Service officers. of the diplomatic corps, Secretary top jobs listed above, no woman has No woman has served as chief of Rice has the opportunity to appoint served as assistant secretary for the U.S. mission to: the European women to several key positions where administration, international organi- Union or the North Atlantic Treaty none have served before. Within the zations, politico-military affairs or Organization, both in Brussels; Inter- State Department, in addition to the diplomatic security. Nor has a woman national Organizations in Vienna; or

OCTOBER 2005/FOREIGN SERVICE JOURNAL 55

CHART 1 Dr. Rice’s own FIRSTS FOR FEMALE DIPLOMATS appointment as 1922 First woman admitted to the U.S. Foreign Service: Lucile Atcherson (FSO).* Secretary of State should 1933 First female chief of mission at the minister rank: Ruth Bryan Owen, Denmark and Iceland. be a signal of more 1949 First woman chief of mission at the ambassador rank: Helen Eugenie Moore Anderson, Denmark. opportunities in 1953 First female career diplomat chief of mission: Frances Willis (FSO), Switzerland. She was the third woman to be admitted to the Foreign Service. international relations 1961 First female chief of mission outside of Europe and first to South Asia: Frances Willis (FSO), Ceylon. for women. 1962 First woman to attain the rank of career ambassador: Frances Willis (FSO). 1965 First female African-American ambassador: Patricia Harris, Luxembourg. 1969 First female ambassador to a Caribbean country: Eileen Roberta Donovan (FSO), Barbados. 1971 First woman appointed to an international organization: Betty Dillon, representative to the International Civil Aviation Organization. the European Office of the U.N. and Other International Organizations in 1972 First female ambassador to an African country: Jean Wilkowski (FSO), Geneva. Zambia. Dr. Rice’s own appointment as 1973 First female assistant secretary of State: Carol Laise Bunker (FSO), Public Secretary of State should be a signal of Affairs. more opportunities in international 1975 First female ambassador to a Pacific island nation: Mary Olmsted (FSO), relations for women. The new Papua New Guinea and the Solomon Islands. Secretary of State can break the mold 1977 First female Hispanic-American ambassador and first female ambassador to on appointments for women in the a Central American country: Mari-Luci Jarimillo, Honduras. Foreign Service and offer well-quali- 1977 First female Asian-American assistant secretary of State: Patsy Takemoto fied women the opportunity to serve in Mink, Oceans and International Environmental and Scientific Affairs. key countries and in positions in the 1977 First female under secretary of State: Lucy Benson, Security Assistance, State Department that have not previ- Science and Technology. ously been offered to them. Editor’s Note: This article and the 1978 First female ambassador to a South American country: Nancy Ostrander (FSO), Suriname. accompanying charts are taken from a study by Ann Wright that was com- 1979 First female ambassador to an Asian country: Patricia Byrne (FSO), Burma. pleted in early 2005. Due to space con- 1981 First female U.S. Permanent Representative to the United Nations: Jeane straints, several of the charts were Kirkpatrick. In 1993, Madeleine Albright became the second woman appoint- omitted. You can find the complete ed as U.S. Permanent Representative to the U.N. report and all data online at the AFSA 1985 First woman to head a geographic bureau: Rozanne Ridgway (FSO), Web site at www.afsa.org. Assistant Secretary for European and Canadian Affairs. Data for this study was taken from 1994 First female Asian-American ambassador: March Fong Eu, Micronesia. the State Department’s list of Principal 1995 First female ambassador to a Middle Eastern country: Frances Cook (FSO), Officers, Chiefs of Mission by Oman. Country, 1778-2004 and Alpha- 1997 First female Secretary of State: Madeleine Albright. betical List of Chiefs of Mission and Principal Officials, 1778-2003 (http:// 2005 First female African-American Secretary of State: Condoleezza Rice. www.state.gov/r/pa/ho/po). 2004 data ______on ambassadorial appointments was * (FSO) Foreign Service officer. All others are non-career, political appointees. obtained from the new appointments section of State magazine.

56 FOREIGN SERVICE JOURNAL/OCTOBER 2005

CHART 2 AFRICAN-AMERICAN WOMEN WHO HAVE SERVED AS AMBASSADORS OR IN SENIOR POSITIONS AT THE DEPARTMENT OF STATE

1965 Patricia Roberts Harris Ambassador to 1998 Shirley Elizabeth Barnes (FSO) Ambassador to Luxembourg Madagascar 1968 Barbara Mae Watson Administrator for the Elizabeth Davenport McKune Ambassador to Qatar Bureau of Security and (FSO) Consular Affairs 1999 Harriet L. Elam-Thomas (FSO) Ambassador to 1977 Mabel M. Smythe Ambassador to Senegal Cameroon Carol Moseley-Braun Ambassador to New Barbara Mae Watson Administrator for the Zealand Bureau of Security and Sylvia Gaye Stanfield (FSO) Ambassador to Brunei Consular Affairs Diane Edith Watson Ambassador to Barbara Mae Watson Assistant Secretary for Micronesia Consular Affairs 2000 Pamela E. Bridgewater (FSO) Ambassador to Benin 1979 Anne F. Holloway Ambassador to Mali Sharon P. Wilkinson (FSO) Ambassador to Mabel M. Smythe Ambassador to Mozambique Equatorial Guinea 2001 Arlene Render (FSO) Ambassador to Cote 1980 Barbara Mae Watson Ambassador to d’Ivoire Malaysia Mattie R. Sharpless (FSO) Ambassador to the Central African 1986 Cynthia S. Perry Ambassador to Sierra Republic Leone Wanda L. Nesbitt (FSO) Ambassador to 1989 Cynthia S. Perry Ambassador to Madagascar Burundi Ruth A. Davis (FSO) Director General of the Ruth V. Washington* Ambassador to The Foreign Service Gambia 2002 Aurelia Erskine Brazeal (FSO) Ambassador to Jewel S. Lafontant-Mankarious Ambassador-at-Large Ethiopia as Coordinator for Robin Renee Sanders (FSO) Ambassador to the Refugee Affairs Republic of the Congo 1990 Aurelia Erskine Brazeal (FSO) Ambassador to Gail Dennise Mathieu (FSO) Ambassador to Niger Micronesia Ruth A. Davis (FSO) Career Ambassador Arlene Render (FSO) Ambassador to The 2004 Margarita Dianne Ragsdale Ambassador to Gambia (FSO) Djibouti 1992 Ruth A. Davis (FSO) Ambassador to Benin June Carter Perry (FSO) Ambassador to 1993 Aurelia Erskine Brazeal (FSO) Ambassador to Kenya Lesotho 1995 Mosina H. Jordan** (FSO) Ambassador to Central Joyce A. Barr (FSO) Ambassador to African Republic Namibia 1996 Arlene Render (FSO) Ambassador to Zambia Jendayi E. Frazer Ambassador to South Sharon P. Wilkinson (FSO) Ambassador to Burkina Africa Faso Constance B. Newman Assistant Secretary for 1997 Susan Rice Assistant Secretary of African Affairs State for African Affairs 2005 Condoleezza Rice Secretary of State Ruth A. Davis (FSO) Director of the Foreign Service Institute ______Aurelia Erskine Brazael (FSO) U.S. Representative to *Killed in automobile accident en route to post. the Organization for **Career Foreign Service USAID Officer European Cooperation and Development Betty Eileen King U.S. Rep. to the U.N. for ECOSOC

OCTOBER 2005/FOREIGN SERVICE JOURNAL 57

CHART 3 CHART 4 FEMALE CHIEFS OF MISSION BY REGION, 1933 – 2004 APPOINTMENT OF WOMEN AS CHIEFS OF MISSION AND TO OTHER SENIOR POSTS Ambassador Chargé d’Affaires BY ADMINISTRATION, 1933 – 2004 /Principal Officer Western Hemisphere 32* 6 Europe and Eurasia 62** 3 South Asia 10 0 President COM Other Near East 14*** East Asia and Pacific 23 10 Roosevelt (1935-1945) 2 -- Africa 66**** 4 Truman (1945-1953) 2 -- Total 207 23 Eisenhower (1953-1961) 4 -- ______* Three did not assume the post Kennedy (1961-1963) 2 -- ** Two did not assume the post Johnson (1963-1969) 4 1 *** One did not assume the post **** One did not assume the post Nixon (1969-1974) 4 2 From 1933, when the first woman was appointed chief of mission, to Ford (1974-1977) 7 3 the end of 2004, 2,450 persons filled chief-of-mission positions either as minister, ambassador or chargé d’affaires. Of those, Carter (1977-1981) 18 10 199 (8 percent) were women. Reagan (1981-1989) 22 11 A total of 207 women have been appointed/nominated as chief of G.H.W. Bush (1989-1993) 28 9 mission at the rank of ambassador or minister. Twenty-three women have been chiefs of mission at the chargé d’affaires level. Clinton (1993-2001) 87 29 A total of 115 countries have had female U.S. ambassadors. Sixty- G.W. Bush (2001-2004) 50 19 eight countries have had two or more female U.S. chiefs of mission, while 13 have had four or more female chiefs of mission.

58 FOREIGN SERVICE JOURNAL/OCTOBER 2005

CHART 5 CHART 6 FEMALE UNDER SECRETARIES OF STATE, FEMALE ASSISTANT SECRETARIES OF 1933 – 2004 GEOGRAPHIC BUREAUS, 1933 – 2004 Since 1933, when a woman was first appointed to a senior Since 1933, when a woman was first appointed to a senior position in the State Department, through 2004, 105 persons position in the State Department, to the end of 2004, 115 per- have served as deputy secretary or under secretary of State. sons have served as assistant secretaries of geographic Eight of these individuals (8 percent) have been women. All bureaus. Six of these individuals (5 percent) were women. were non-career, political appointees. Three of the six geographic bureaus have not had female assis- Under Secretary for Security Assistance, Science, and tant secretaries. No woman has served as assistant secretary Technology for Western Hemisphere affairs, Near Eastern affairs or East 1977, Lucy Wilson Peters Benson Asian and Pacific affairs. Under Secretary for Global Affairs 2001, Paula J. Dobriansky Assistant Secretary for European and Central Asian Affairs Under Secretary for Management 1985, Rozanne Lejeanne Ridgway (FSO) 1997, Bonnie R. Cohen 2001, A. Elizabeth Jones (FSO) Under Secretary for Economic, Business and Agricultural Affairs 1993, Joan Edelman Spero Assistant Secretary for African Affairs 1997, Susan Rice Under Secretary for International Security Affairs 2004, Constance B. Newman 1993, Lynn Etheridge Davis Under Secretary for Public Diplomacy and Public Affairs 1999, Evelyn Simonowitz Lieberman Assistant Secretary for South Asian Affairs 2001, Charlotte L. Beers 1993, Robin Lynn Raphel (FSO) 2003, Margaret DeBardeleben Tutwiler 2001, Christina B. Rocca

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CHART 7 WHERE FEMALE AMBASSADORS ARE MOST FREQUENTLY ASSIGNED

Europe and Central Asia Africa Norway: 5 (1937-2000) Ghana: 4 (1974-2002) Switzerland: 5 (1953-2003) Madagascar: 4 (1986-2001) Luxembourg: 5 (1949-1985) Mali: 4 (1976- 2002) Malta: 4 (1979-1997) Benin: 3 (1989-2000) Austria: 3 (1983-1997) Burundi: 3 (1980-1999) Denmark: 3 (1933-1964) Cameroon: 3 (1977-1992) Estonia: 3 (1997-2004) Kenya: 3 (1986-1996) Moldova: 3 (1992-2003) Mozambique: 3 (1987-2003) Female U.S. chiefs of mission have served twice in Bulgaria, Niger: 3 (1991-2002) Czechoslovakia, Ireland, Kyrgyzstan, Liechtenstein, the Sierra Leone: 3 (1980-1992) Netherlands, Portugal and Turkmenistan, and only once in Great Britain, France, Italy, Albania, Belgium, Croatia, Cyprus (as Togo: 3 (1974-1997) chargé d’ affaires for six months), Finland, East Germany, the Women have been appointed chief of mission/ambassador Holy See, Hungary, Iceland, Kazakhstan, Kosovo and Slovenia. twice to Djibouti, the Central African Republic, Equatorial The U.S. has never had a female ambassador assigned to Guinea, The Gambia, Guinea-Bissau (one as chargé d’ affaires), Germany, Spain, Russia, Poland, Ukraine, Greece or Turkey, Cote d’Ivoire, Senegal, Lesotho and Zambia. Women have Armenia, Azerbaijan, Belarus, Bosnia-Herzegovina, Croatia, served as ambassador only once in Angola, Burkina Faso, Cape Latvia, Lithuania, Macedonia, Poland, Romania, Serbia & Verde, the Republic of the Congo, Ethiopia, Gabon and Sao Montenegro, Slovakia, Sweden, Tajikistan or Uzbekistan. Tome/Principe, Guinea, Malawi, Mauritania, Namibia, Rwanda, Uganda and the Democratic Republic of the Congo (Zaire). Asia and the Pacific The first female ambassador was assigned to South Africa in 2004. No woman has served as ambassador to Nigeria, the Micronesia: 5 (1990-2004) most populous country in Africa, nor to Botswana, Chad, Burma: 4 (1979-2002) Eritrea, Liberia, Mauritius, Seychelles, Somalia, Sudan, Laos: 4 (1983-2004) Tanzania or Zimbabwe. New Zealand: 4 (1979-1999) Near East Area Papua New Guinea: 4 (1975-2000) In the Middle East, women have served as ambassador twice Women have served as ambassador twice in Malaysia, the in Algeria, Tunisia, Qatar and the United Arab Emirates, and Marshall Islands, Brunei and Mongolia, and once in Australia, once in Iraq, Morocco, Oman, Syria and Yemen. No woman East Timor (as chargé d’affaires) and Fiji. Women have never has served as U.S. ambassador to Bahrain, Egypt, Iran, Israel, been appointed as ambassador to China, Japan, Indonesia, the Jordan, Kuwait, Lebanon, Libya or Saudi Arabia. A woman has Philippines, Singapore, Thailand, South Korea, Laos, Cambodia served once as consul general in Jerusalem. or Vietnam. South Asia Western Hemisphere Nepal: 4 (1966-1993) Barbados*: 6 (1969-2004) In South Asia, women also have been posted twice as ambas- In the Western Hemisphere, women have served twice as sador to Pakistan, Bangladesh and Sri Lanka. No woman has ambassador to Colombia, the Dominican Republic, Ecuador, El served as ambassador to India or Afghanistan. Salvador, Guatemala and Suriname. Women have served as ambassador only once in the Bahamas, Belize, Bolivia, Brazil, Cuba (chief of U.S. Interests Section), Guyana, Haiti (as chargé d’affaires), Honduras, Jamaica, Nicaragua, Panama, Paraguay, Trinidad and Tobago and Venezuela. No woman has been named U.S. ambassador to Argentina, Canada, Chile, Costa Rica, Peru, Mexico or Uruguay. * Also accredited to Dominica, Grenada, St. Kitts/Nevis, St. Lucia, St. Vincent, Antigua, Barbuda.

60 FOREIGN SERVICE JOURNAL/OCTOBER 2005

CHART 8 FEMALE REPRESENTATIVES TO INTERNATIONAL ORGANIZATIONS From 1947, when the U.S. first Representative, Organization for Representative to U.N. Agencies for appointed officers to international Economic Cooperation and Food and Agriculture, Rome organizations, to the end of 2004, Development 1983, Millicent Fenwick 145 persons have been appointed to 1997, Amy L. Boudurant these organizations. Fourteen women (10 percent) have been appointed to 2003, Constance Albanese Morella Representative to United Nations international organizations. Educational, Scientific and Cultural Representative, International Civil Organization Permanent Representative to the Aviation Organization, Montreal 1980, Barbara Warne Newell United Nations 1971, Betty Rose Dillon 1981, Jean Broward Gerard 1981, Jeane Kirkpatrick 1994, Carol Jones Carmody 2004, Louise V. Oliver 1993, Madeleine Albright Representative of the U.S.A. to the Vienna Office of the United Nations Senior U.S. Official to the Asia- and Deputy Representative to the Deputy Permanent Representative Pacific Economic Cooperation International Atomic Energy Agency, to the United Nations Forum with the rank of ambassador 2004, Ann Patterson (FSO) 2004, Lauren Moriarty (FSO) 1991, Jane E. Becker (FSO)

U.S. Representative to the Organization of American States 1993, Harriet Coons Babbitt

OCTOBER 2005/FOREIGN SERVICE JOURNAL 61

CHART 9 FEMALE ASSISTANT SECRETARIES OF FUNCTIONAL BUREAUS (OR EQUIVALENTS)

Bureau of Arms Control Bureau of Human Rights and Bureau of Counterterrorism 1999, Avis T. Bohlen (FSO) Humanitarian Affairs 1993, Barbara K. Bodine (FSO), Acting 1997, Patricia Murphy Derian Coordinator Bureau of Nonproliferation 1992, Patricia Diaz Dennis 2004, Susan F. Burk Executive Secretary of the Bureau of Educational and Cultural Department of State Bureau of Consular Affairs Affairs 1998, Kristie Ann Kenny (FSO) 1977, Barbara Mae Watson 1978, Alice Stone Ilchman 2001, Maura Harty (FSO) 1983, Joan Margaret Clark (FSO) 2001, Patricia DeStacy Harrison 1989, Elizabeth M. Tamposi Director General of the Foreign 1993, Mary A. Ryan (FSO) Bureau of Public Affairs Service 2003, Maura Harty (FSO) 1973, Caroline Clendening Laise (FSO) 1975, Caroline Clendening Laise (FSO) 1989, Margaret DeBardeleben Tutwiler 1981, Joan Margaret Clark (FSO) Administrator of the Bureau of 1992, Genta Hawkins Holmes (FSO) Security and Consular Affairs Bureau of Legislative Affairs 2001, Ruth A. Davis (FSO) 1968, Barbara Mae Watson 1989, Janet Gardner Mullins 1977, Barbara Mae Watson 1993, Wendy R. Sherman Director of the Foreign Service Originally commissioned as administra- 1996, Barbara Mills Larkin Institute tor of the Bureau of Security and 1995, Teresita Currie Schaffer (FSO) Consular Affairs, the title was changed Bureau of Population, Refugees and 1997, Ruth A. Davis (FSO) to assistant secretary of State for Migration 2001, Katherine Hubay Peterson (FSO) Consular Affairs on Aug. 17, 1977. 1994, Phyllis Elliott Oakley (FSO) 1997, Julia Vadala Taft Chief of Protocol Bureau of Oceans and International 1976, Shirley Jane Temple Black Environmental and Scientific Affairs Bureau of Intelligence and Research 1978, Edith H. J. Dobelle 1975, Dixie Lee Ray 1993, Toby Trister Gati 1981, Leonore Annenberg 1977, Patsy Takemoto Mink 1997, Phyllis Elliott Oakley (FSO) 1981, Selwa Roosevelt 1993, Elinor Greer Constable (FSO) 1993, Mary Millonzi Raiser 1996, Eileen B. Claussen Bureau of International Narcotics 1997, Mary Mel French Matters Bureau of Verification and 1986, Ann Barbara Wrobleski Inspector General Compliance 1995, Jacquelyn W. Williams-Bridgers 2002, Paula A. DeSutter

CHART 10 WOMEN WHO HAVE HELD OTHER KEY POSITIONS AT THE STATE DEPARTMENT

Counselor of the Department of Coordinator for International Career Ambassador State Communications and Information 1962, Frances Elizabeth Willis 1980, Rozanne Ridgway (FSO) 1983, Diana Lady Dougan 1999, Mary A. Ryan 1997, Wendy R. Sherman 1988, Sonia Landau 2002, Ruth A. Davis 2003, A. Elizabeth Jones Director of Management Operations Ambassador-at-Large (U.S. 1977, Joan Margaret Clark (FSO) Coordinator for Refugee Affairs) 1989, Jewel S. Lafontant-Mankarious

62 FOREIGN SERVICE JOURNAL/OCTOBER 2005

BOOKS

Holy Terror justifications are remarkably similar. With respect to With respect to the theological component of terrorist motivation, Terror in the Name of God: the theological Stern sees similar grievances among Why Religious Militants Kill component of varied religious terrorist groups and Jessica Stern, Harper Perennial, 2004, terrorist motivation, organizations. The Islamic Jihad orga- $15.95, paperback, 400 pages. nization in Pakistan and Christian fun- Stern sees similar damentalist bombers in Oklahoma REVIEWED BY EDWARD MARKS grievances among have much in common. Essentially, varied religious they are unhappy with the new world There is a plethora of “terrorism” order, seeing themselves “as under books available these days, explaining terrorist groups and attack by the global threat of post- how to define the phenomenon, how organizations. Enlightenment Western values such to explain it, how to fight it. They vary as secular humanism. ... The point of in quality and insight, of course, but religious terrorism is to purify the two years after its original publication, u world of these corrupting influences.” Jessica Stern’s Terror in the Name of There is nothing new here in one God: Why Religious Militants Kill is sense, but her discussion of how this still one of the better ones. Her objec- attitude is fostered by self-proclaimed tive, quite simply, was to obtain by three religions: Christianity, Judaism leaders and by organizational partici- direct interview with religious terror- and Islam. Some were in jail at the pation is thoughtful and important. ists and their supporters, an under- time, but most were out in society. She notes how the perspective of indi- standing of “why, when they read reli- She describes the problems inherent viduals, often inchoate and unformed, gious texts, these terrorists find justifi- in this approach, most notably: Why is molded and channeled by organiza- cation for killing innocents, where oth- should they wish to speak with any tions. Her discussion of leaders and ers find inspiration for charity.” outsider, particularly an American, the key role they play is equally Professor Stern makes clear that Jewish, female professor from Har- enlightening. Few terrorists wake up the desire for political power, land and vard? But speak they did, and on a given morning and decide to play money, and wounded masculinity, Professor Stern’s description of her the martyr; rather, moral fervor must inter alia, also play motivating roles for effort to demonstrate empathy (as dis- be recognized, cultivated and directed even the most religiously character- tinct from sympathy) is successful. — and requires organizational support ized movements and individuals. But The conversations, which she for action. it is the religiously motivated terrorists relates in detail, are fascinating and This is all sobering stuff, providing (not just Muslims or Arabs, either) insightful. The conclusions she draws insight not only into contemporary ter- who most fascinate and apparently from them are sobering if not alto- rorism but also into much contempo- most threaten us today, so Professor gether new. For example, her re- rary politics. What motivates some to Stern’s focus on them is both under- search clearly confirms the findings of become terrorists motivates others to standable and welcome. previous studies, such as the American political activity just short of terrorism Stern’s technique is quite simple. Academy of Science’s 2003 report but still important. In one sense, reli- Drawing on her extensive contacts as a (“Strong Religion”), that across the gious terrorism is merely the froth on well-known academic on the subject, various religions, the theological as the wave of political unrest rampaging she interviewed extremist members of well as psychological motivations and throughout the Middle East and sig-

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nificant parts of Latin America, Africa and the Asia-Pacific region. It may not be strictly a clash of cultures, but conflict is certainly rife. Professor Stern’s book provides a good deal of insight into what is going on.

Ambassador Edward Marks, a retired FSO, is a former chairman of the Journal’s Editorial Board. For the past several years, he has been a consultant to the Joint Interagency Coordination Group on Counter- terrorism at the U.S. Pacific Command in Honolulu.

Behind Enemy Lines

Inside the Vatican of Pius XII: The Memoir of an American Diplomat During World War II Harold H. Tittmann Jr., edited with an introduction by Harold H. Tittmann III. Image Books/ Doubleday, 2004, $13.95, paperback, 213 pages.

REVIEWED BY DAMIAN LEADER

Serving as an American diplomat at the Vatican is a great stimulus for autobiography: three of our past four ambassadors have published accounts of their achievements. Harold Titt- mann’s memoir stands apart, however, because he was an FSO who spent nearly three years during World War II holed up inside the Vatican, a tiny patch of neutrality surrounded by occupied Rome. The present book is his account of those years as edited and abridged by his son, who, as a teenager, shared much of the experience. It is a remarkable story. President Franklin Roosevelt, with war imminent, recognized the role the Vatican could play in influencing European states. Since he knew the

64 FOREIGN SERVICE JOURNAL/OCTOBER 2005

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Senate would block the establishment with little success to get the U.S. to of formal diplomatic relations with the pressure the Soviets to stop persecut- Holy See, in 1939 Roosevelt named ing the Church (and was astonished by businessman Myron Taylor to be his FDR’s benign assessment of Stalin). “personal representative” to the Vati- Many readers will find Tittmann’s can, thus avoiding Senate confirma- discussion of the Vatican’s attitude tion. Based in the U.S., Taylor trav- toward the Holocaust to be particular- eled to Rome periodically on Roose- ly illuminating. Much has been writ- velt’s orders, and Tittmann was sec- ten on this subject, but Tittmann is onded to run his office there. rare in writing from first-hand experi- When the U.S. and Italy went to ence. He acknowledges that expecta- war in December 1941, Allied em- tions of the pope’s role as a moral bassies to the Holy See had to close or spokesman 60 years ago were very dif- move inside the Vatican’s walls. ferent than they are today. Pius Although Tittmann’s office was not, thought his often delphic pronounce- strictly speaking, an embassy, the State ments and veiled condemnations of Department instructed him to do the the persecution of Jews were clear. same, and the Vatican accredited him On Christmas Day in 1942, he spoke as chargé d’affaires. Still, conditions of “the hundreds of thousands who, were difficult. Italian and, later, through no fault of their own and sole- German authorities periodically ly because of their nation or race, have threatened to expel the diplomats, been condemned to death or progres- and all messages had to be sent back sive wasting away.” A few days later to the department via open chan- Tittmann met with him and then nels. Accommodations were less cabled the department that the pope than ideal for a Protestant family believed “he had spoken therein clear- with two teenagers, and relations ly enough to satisfy all those insisting between Tittmann and his secretary ... he utter some word of condemna- deteriorated so badly that she eventu- tion of Nazi atrocities, and he seemed ally left after safe passage could be surprised when I said there were some assured. On the plus side, he had who did not share his belief.” unparalleled access and numerous pri- Tittmann’s confinement in 1944 vate meetings with Pope Pius XII. ended with the advancing forces of the Tittmann’s account gives unique U.S. Army throwing Hershey bars and insight into the wartime mind-set of cigarettes up to his sons on the walls of Vatican officials and the context in the Vatican. Tittmann’s next assign- which they operated. It illustrates the ment was as ambassador to Haiti, and interplay of politics and religious con- he eventually retired as a career cerns that informed diplomacy on a ambassador. To the end of his life, variety of issues, including Roosevelt’s however, he said the high point of his efforts to keep Italy out of the war and, career were his years in the Vatican. later, his opposition to Vatican peace This account goes a long way toward efforts that might have undermined explaining why. I the Allied goal of unconditional surrender. The Vatican, for its part, An FSO since 1985, Damian Leader is guarded its neutrality jealously. While deputy director of the Office of Pius XII hated the Nazis and consid- Russian Affairs. He served earlier as ered them a threat to civilization, he political officer (and sometime chargé opposed Allied strategic bombing — d’affaires) at the U.S. Embassy to the especially of Rome itself. He also tried Holy See.

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OCTOBER 2005/FOREIGN SERVICE JOURNAL 71 REFLECTIONS Thank You

BY STEVEN MENDEL

hat does it say about a coun- were denser, yet somehow less tions at the top of Japanese society. Wtry when the one indispens- intrusive. For instance, when a sub- But this contract broke down able phrase is “thank you”? Let me way car was already jam-packed when the economic bubble burst in explain. My wife and I just got back with riders and someone wanted to the 1990s, and corporations did the from a two-week visit in Japan. The get on, they would back their way unthinkable: they fired employees. crucial phrase for the European into the crowd. This was done in People, young and old, we talked to countries that we had visited over such a non-confrontational way that still spoke of “the company” in rev- the years was “where is.” As in, none of the other riders took erential tones, although I sometimes where is the museum/church/bath- offense. Everyone else would just detected a hint of irony absent room, etc? We assumed the same squeeze in tighter to make room. before. would be true in Japan. Wrong. So Japan works — but only up to I am not so naïve as to say that Saying “thank you” and being polite a certain point. The high value changes in American society come are the keys for getting along in placed on being polite is a force for only from below. It is usually an Japan. This is true throughout the conformity. There is a beauty in alliance between elites and mass entire country. Japan in the minutiae of everyday movements that produce change in Japan is a country that functions. interactions, but these rituals can our country. But the inability of The streets are spotless, the trains become oppressive and have had popular opinion to drive the process run on time and the crime rate is far-reaching consequences for of change in Japan is striking. This infinitesimally small. The people Japanese society. It seems that all may be slowly evolving, however. are helpful, friendly and always the major social changes in Japan We talked to several young people polite. At every restaurant, in uni- have come from the top down. who said that they did not intend to son, the waitresses, the bus boys and Buddhism became the state religion work for the same company their the cashier shout out “welcome.” with the conversion of the emperor. whole life. They also said they When we left an eating establish- The contemporary version of this envied what they perceived to be ment the entire staff once again fealty to power is the fierce loyalty the relative ease of starting your became a chorus thanking us. We to one’s employer. People talk about own business in the West. Others responded with our one word of their employer or “the company” decried the erosion of tradition in Japanese, an enthusiastic “arigoto!” with a reverence that Westerners Japan among young people and the When we asked for directions, the reserve for God and country. declining importance of being Japanese would unfailingly do their Back when the Japanese econo- polite. best to help, sometimes leading us my was touted as the wave of the There seemed to be a widely to our destination. Other times they future, the assumption was that cor- shared concern among all ages that would walk blocks out of their way porations would guarantee lifetime Japan continue to develop economi- or insist on driving us. We live in employment in exchange for total cally, while retaining its Japanese- New York City, so we’re used to dedication — a sort of corporate ness. The fundamental question for crowds, but in Tokyo the crowds noblesse oblige. The government this unique country that works so was part of this social contract, too, well is how to retain the aspects of Steven Mendel is a psychologist and establishing an industrial policy to being polite that make things run so free-lance writer who lives in New assist the corporations in their smoothly while at the same time York City. The stamp is courtesy of the growth. The partnership worked loosening the ties that restrict cre- AAFSW Bookfair “Stamp Corner.” because it linked the two institu- ativity and initiative. n

72 FOREIGN SERVICE JOURNAL/OCTOBER 2005

AFSAAmerican Foreign ServiceNEWS Association • October 2005

AFSA NATIONAL HIGH SCHOOL ESSAY CONTEST Youth Honored for Essays and Inside Community Service This Issue: BY SHAWN DORMAN MILITARY LEAVE ...... 3 STATE VP: THE 700 CLUB ...... 3 n July 19, Acting AFSA to think about the role and functions of RETIREE VP: JOIN US...... 4 President Steve Kashkett pre- the U.S. Foreign Service, the craft of SINCLAIRE LANGUAGE AWARDS...... 4 sented the winners of the 2005 diplomacy and America’s role in the VP FCS: PLUS CA CHANGE...... 5 AFSA National High School world. The contest receives funding from LETTER FROM AFGHANISTAN ...... 7 O MOSCOW COURSE & AFSA BOOK ...8 Essay Contest with their awards during the the Nelson B. Delavan Foundation. annual Youth Awards Ceremony in the This year for the first time, Diplomatic RETIREE IN ACTION: MIKE WYGANT ...9 Department of State Benjamin Franklin Automobile Sales became an essay con- Diplomatic Reception Room. Family test sponsor and gave a generous contri- Liaison Office Director Faye Barnes opened bution. Lynn Griffiths of Diplomatic the ceremony and introduced Ambassador Automobile Sales came from New York FORMER PITS, PREPARE FOR BUYBACK Ruth A. Davis, who gave introductory City to attend the ceremony, and enjoyed remarks. The 2005 AFSA essay contest win- a lunch with the essay contest winner. Interim Regulations ners were: 1st place — Alison Noll from AFSA received 550 essay submissions Tustin, Calif.; 2nd place — Andrew this year. Over the six years since the Issued for Scheineson of McLean, Va.; and 3rd place establishment of the contest, a total of Retirement — Alice Nian-en Lee of Niskayuna, N.Y. more than 3,000 submissions have been The essay contest is one of AFSA’s received. Submissions have come in Buyback most successful outreach activities and is from all 50 states, with the largest num- BY BONNIE BROWN, designed to encourage students and ber coming from California and Florida. RETIREE COORDINATOR teachers from all over the United States Continued on page 6 FSA has worked for years, along with other groups and the depart- Ament, to get legislation passed and implemented that would allow former PIT (part-time, intermittent or temporary) employees to buy back retirement coverage. Success is finally upon us. In 1998, the Department of State created a new hiring mechanism, a five-year limited non-career appointment (the Family Member Appointment, or FMA), which provided PIT employees with Civil Jay Mallin Service retirement benefits. In 2002, the Director General W. Robert Pearson (center) with winners of the essay contest and youth awards. From front left: Rueben Luoma-Overstreet, Alice Nian-en Lee, Alison Noll, Julia Lange, Pearson, State Authorization Bill included a pro- Charlie Jesmer, Alex Jesmer, Caroline Perkinson. Back row, from left: Kevin McGrath, vision that would permit PIT employees Andrew Scheineson, Stuart Symington. Continued on page 5

AFSANEWSBRIEFS Katrina Relief: How You Can Help On Sept. 8, the Internal Revenue Service announced a program to allow federal employees to trade in their annual leave or sick days in exchange for cash to help victims of Hurricane Katrina. AFSA is working with the foreign affairs agencies to set up a mechanism for Foreign Service employees to participate in the leave donation program. We will let you know when this has been set up and how to donate. In addition, if you would like to donate to the State Department’s Employees Emergency Fund to support the families of colleagues in the hurricane-hit area, send a check (payable to the U.S. Department of State, designation for Employees Emergency Fund) to Donna Bordley, Department of State, 2201 C St. NW, RM/CFO, Rm. 7427, Washington, DC 20520.

Briefs • Continued on page 8 Life in the Foreign Service I BY BRIAN AGGELER, FOREIGN SERVICE OFFICER

AFSA HEADQUARTERS: Staff: Governing Board:

s: (202) 338-4045; Fax: (202) 338-6820 Executive Director Susan Reardon: [email protected] Business Department STATE DEPARTMENT AFSA OFFICE: PRESIDENT: J. Anthony Holmes (202) 647-8160; Fax: (202) 647-0265 Controller Steven Tipton: [email protected] Accounting Assistant Jon Reed: [email protected] STATE VICE PRESIDENT: Steven Kashkett USAID AFSA OFFICE: (202) 712-1941; Fax: (202) 216-3710 Labor Management USAID VICE PRESIDENT: Bill Carter General Counsel Sharon Papp: [email protected] FCS VICE PRESIDENT: Donald Businger FCS AFSA OFFICE: Labor Management Attorney Zlatana Badrich: [email protected] (202) 482-9088; Fax: (202) 482-9087 Labor Management Specialist James Yorke: [email protected] FAS VICE PRESIDENT: Laura Scandurra USAID Senior Labor Management Adviser Douglas Broome: [email protected] RETIREE VICE PRESIDENT: David Reuther AFSA WEB SITE: www.afsa.org USAID Office Manager Asgeir Sigfusson: [email protected] SECRETARY: Tex Harris AFSA E-MAIL: [email protected] Grievance Attorneys Neera Parikh: [email protected] and AFSA NEWS: [email protected] Joe Slotnick: [email protected] TREASURER: Andrew Winter FSJ: [email protected] Office Manager Christine Warren: [email protected] STATE REPRESENTATIVES: Bradford Bell, PRESIDENT: [email protected] Member Services Brian Cook, Hugh Neighbour, Director Janet Hedrick: [email protected] STATE VP: [email protected] Alan Misenheimer, Joyce Namde, RETIREE VP: [email protected] Representative Cory Nishi: [email protected] Web site & Database Associate Meijing Shan: [email protected] James Roseli and Andrew Young USAID VP: [email protected] Administrative Assistant Ana Lopez: [email protected] FCS VP: [email protected] USAID REPRESENTATIVE: Francisco Zamora Outreach Programs FCS REPRESENTATIVE: William Center FAS VP: [email protected] Retiree Liaison Bonnie Brown: [email protected] w to Contact U Contact w to Director of Communications Thomas Switzer: [email protected] FAS REPRESENTATIVE: Mike Conlon AFSA News Congressional Affairs Director Ken Nakamura: [email protected] IBB REPRESENTATIVE: Sheldon Daitch Editor Shawn Dorman: [email protected] Corporate Relations/Executive Assistant Austin Tracy: [email protected] Scholarship Director Lori Dec: [email protected] RETIREE REPRESENTATIVES: Leonard J. Ho (202) 338-4045 x 503; Fax: (202) 338-8244 Professional Issues Coordinator Barbara Berger: [email protected] Baldyga, Roger Dankert, Larry Lesser and On the Web: www.afsa.org/news Retiree Recruitment Coordinator Norma Reyes: [email protected] Gilbert Sheinbaum Elderhostel Coordinator Janice Bay: [email protected]

2 AFSA NEWS • OCTOBER 2005

PERSONNEL NOTES V.P. VOICE: STATE I BY STEVE KASHKETT Military Leave Credit The 700 Club BY JAMES YORKE, LABOR MANAGEMENT SPECIALIST oreign Service members who took military leave during the 1990s will or those who doubt that today’s Foreign Service has Fbe aware that a 2003 decision changed dramatically from what it was even a decade (Butterbaugh v. Department of Justice) Fago, here is an astonishing number for you: 700. That ruled that employees were required to take is the number of unaccompanied positions overseas that will military leave only on days on which they need to be filled in the summer 2006 assignment cycle alone, which is just getting were required to work. Under the ruling, under way now. That means another 700 people in the Foreign Service who will agencies should have allowed 15 workdays dutifully go off to dangerous hardship postings for a year or two of their lives with- of military leave for reserve training, rather out their families. than 15 calendar days. The court ruled that Last month, I wrote about the outdated and false image of a cushy, pampered agencies should not have charged military life in the Foreign Service, a quaint misperception that lingers in the minds of many leave for non-workdays that occurred with- of our critics. Let them reflect on this growing number of unaccompanied posts. in the period of military duty prior to Dec. There was a time just a few years ago when there were only a couple of countries 21, 2000. On this date, the law was changed deemed so dangerous that we did not allow families at our diplomatic posts there. to allow employees to take military leave on Today the list includes not just Lebanon and Liberia, but also Iraq and Afghanistan, an hourly basis. Burundi and Congo, Bosnia and Kosovo, Sudan and Cote d’Ivoire, Saudi Arabia Many federal employees filed claims and Pakistan, and others. and had annual leave recredited for those Needless to say, this unaccompanied list represents just a small subset of the many non-workdays, but there was a six-year dozens of overseas posts that are classified as hardship posts. The majority of Foreign limit, so many employees have only been Service assignments now fall into this category. This is the unstable, rough-and- able to have leave recredited for some of tumble — and decidedly not very “cushy” — world in which most Foreign Service the time, depending on when they filed employees serve out their careers. their claims. The people of the Foreign Service will undoubtedly rise to the challenge, as we However, a July 15 decision this year by always do. Some will enthusiastically volunteer for these unaccompanied positions. the Merit Systems Protection Board direct- Others will allow themselves to be persuaded reluctantly to rearrange their lives and ed that the six-year limit did not apply, their family situations for a year or two in order to answer the call of duty. Still many because the periods of service fell under others may not be willing or able to leave their families at this moment in time. the Uniformed Services Employment and The urgent need to fill these 700 unaccompanied positions will put enormous Reemployment Rights Act of 1994. pressure on Career Development Officers and others throughout the personnel sys- USERRA contains no time limit, but tem to bend the rules, to make dubious promises, to engineer behind-the-scenes because it was enacted in 1994, its effect can deals, to lean on people to take those jobs … in short, to do whatever they need to only go back that far. do to plug all the pigeon-holes. This decision appears to authorize AFSA’s role will be to make sure that management plays fair in filling these 700 recredited annual leave for employees who positions. We want to guarantee some degree of equity in assigning people to unac- were previously denied it based on the so- companied and other hardship posts. We want those who become part of the called “six-year rule.” This will apply to “700 Club” to receive appropriate incentives and rewards for doing so. At the same employees who were forced to take annu- time, we want to prevent those who cannot take unaccompanied assignments from al leave for reserve training between 1994 being unfairly penalized or disadvantaged. and 2000. In an era when so many Foreign Service members have to serve in remote places AFSA can provide information and without their families, AFSA will press the department to find ways to facilitate vis- copies of the MSPB decision so that mem- itation and make things easier for families that have to live apart. The Separate bers can claim a recredit of annual leave. Maintenance Allowance is woefully inadequate and should be substantially increased. In addition, anyone who has not taken It is a disgrace that people serving at unaccompanied posts should have to pay for advantage of the Butterbaugh decision in their own flights and use their own annual leave to see their children more than once the past will want to ensure that all their a year. There is certainly much more that department management could do to allowable leave is recredited. J help ease the blow of prolonged separation from family. J

OCTOBER 2005 • AFSA NEWS 3

V.P. VOICE: RETIREES I BY DAVID REUTHER SEEKING NOMINATIONS Sinclaire Awards Join Us for Language Study

ith this inaugural message, I would like to intro- FSA is currently accepting nomi- duce the new retiree contingent of the 2005-2007 nations for the Sinclaire Language WAFSA Governing Board. We have a particularly A Awards, which seek to honor out- robust group of retiree representatives in Gil Sheinbaum, standing achievement in the study of hard Larry Lesser, Roger Dankert and Len Baldyga. We intend languages and their associated cultures. to be accessible, and we encourage you to contact any of us. Candidates for the awards are nominat- A top-ranked mission for this board’s retiree contingent is to encourage an increase ed by language-training supervisors or in retiree membership in AFSA and to apply that increased voice to professional and instructors at the FSI School of Language practical retiree issues, particularly through getting our voice heard in Congress. Six Studies. Candi- in 10 Foreign Service retirees have annuities of less than $50,000 a year, so it is entire- dates may also be ly appropriate that bread-and-butter issues be on the table. nominated by I have served as a retiree representative on supervisors or two AFSA Governing Boards and have great post language appreciation for the role of Congress in con- officers. The win- Let Congress know trolling the framework of our retirement — ners are selected that retirees want the whether you are talking cost-of-living increase, by a committee pre-tax payment of health premiums (the “pre- composed of a JOSH same premium conversion mium conversion” issue) or removing the member of the that active-duty government Windfall Elimination Provision and AFSA Governing Board serving as chair, Government Pension Offset on Social Security the associate dean of the FSI School of employees get. benefits. These issues involve thousands of dol- Language Studies and the AFSA lars of actual or tax benefits per year to retiree Coordinator for Professional Issues. members and we plan to explain and illustrate Nominations should include the fol- them in great detail in coming Foreign Service lowing documents: Journal and Retiree Newsletter issues. 1. Completed Sinclaire Award As a start, I urge you in the strongest terms to heed AFSA’s Aug. 10 AFSANET call Nomination form (obtained from FSI or to let Congress know that retirees want the same premium conversion that active-duty AFSA), signed by the nominator and government employees get. (This alone would be worth $1,000/year if you are paying his/her immediate supervisor. $3,000 in premiums and your combined state and local tax bracket is 33 percent.) AFSA 2. Evidence of enrollment, if nomina- has joined with the National Active and Retired Federal Employees Association in seek- tion is based on formal training (in the case ing to repeal or reform the two Social Security offsets (the WEP and the GPO), and to of FSI students, the End-of-Training extend premium conversions to retirees. Report, DS-651). From this group of retiree representatives, I guarantee you will hear more calls that 3. A nominating statement. you intercede on your behalf with Congress. You will also hear more from us, because Each winner receives a check for one of the enormous changes in AFSA over the years has been the building of an excel- $1,000 from the Matilda W. Sinclaire lent professional staff. Bonnie Brown is our guru on retiree benefits and counsels mem- Endowment and a certificate of recogni- bers on their rights and privileges. Norma Reyes is focusing on our recruitment effort. tion signed by the president of AFSA and Janice Bay is running the Foreign Service Elderhostel program. Communications Director the chair of the AFSA Awards Committee. Tom Switzer directs a program that often calls on retirees to serve as speakers and to Over $150,000 has been awarded since the help tell the Foreign Service story to the American public. Key to monitoring congres- establishment of the program in 1982 to sional activity on retiree benefits is Bonnie Brown, who coordinates responses and ini- members of the Foreign Service. tiatives with Legislative Affairs Director Ken Nakamura. For further information, please con- As you read through the FSJ each month, I hope you are reminded that AFSA is a tact AFSA Coordinator for Professional strong advocate not only for the issues dealing with the legislation that governs the con- Issues Barbara Berger at [email protected] duct of our diplomacy, but also for issues that personally affect Foreign Service retirees. or (202) 338-4045, ext. 521, or the School AFSA is your voice, your lobbyist, your advocate. That is why we encourage each of of Language Studies at FSI at (703) 302- you to help us expand retiree membership. Ì 7242. J

4 AFSA NEWS • OCTOBER 2005

PIT • Continued from page 1 V.P. VOICE: FCS I BY DONALD BUSINGER with creditable service between 1989 and 1998 to buy back retirement coverage for that period. On Aug. 29, the Office of Plus ca Change Personnel Management, the implementing agency, finally issued interim regu- s I write my first column as the new AFSA FCS Vice lations to implement the PIT buyout pro- President, we have yet to have our first meeting with vision. There is a 60-day comment peri- A management on the fall 2005 midterm proposals od, which ends Oct. 28. (which is scheduled for Sept. 1). AFSA FCS Representative Applicants, including annuitants, will Will Center and I posted both the results of recent agree- be required to demonstrate that they meet ments, as well as topics for future consideration, on the AFSA the criteria for the buyback and to doc- Web site (www.afsa.org/fcs) under “current issues.” ument their creditable service during the There have been a host of other problems requiring significant attention — from years 1989-1998. AFSA encourages domestic relocation allowance to time-in-class issues and Personnel Audit Reports. applicants to begin this process now. As one who personally benefited from the domestic relocation allowance 10 years According to the proposed regula- ago, I was more familiar than most with 14 FAM 630 and FTR 302-11. But I remain tions, applicants must meet eligibility seriously concerned about recent changes both to the regulations and their appli- requirements for family-member limit- cation by our agency in times of tightening ed non-career appointments (in effect on budgets. Consult with me or your Office Sept. 30, 2002). In addition, the service of Foreign Service Human Resources man- We all know the really must have been performed at a U.S. mis- ager if you need to know more about this big issues surrounding sion abroad, been of a temporary nature allowance. (one year or less), lasted for periods of 90 Time-in-class regulations affect all “strategic disbursement,” days or more and would have been cred- Foreign Service agencies and FCS officers involving significant cutbacks itable under the Federal Employees in a fundamental way, and I thought we had Retirement System if it had been per- a set policy, but I discovered that there are both overseas and in HQ and formed before 1989. — surprise — some major issues lurking the domestic field. Applications for a buyback must be here as well, which we are currently revis- made within 36 months of the effective iting. date of the final regulations. Applicants For the 2005 Selection and Promotion Boards, all of you were asked to certify who were enrolled under the Federal your Personnel Audit Report. The PAR is meant to be a brief but accurate snap- Employment Retirement System must shot of each officer’s record in FCS, including assignments, promotion record, lan- submit Form 3108, called “Application guage proficiency and awards. I personally spent over an hour poring through my to Make Service Credit Payment,” which official personnel file, finding a number of minor errors in addition to issues I “dis- is available at www.opm.gov.forms/ puted.” While I had nothing major to change, other officers remain upset that in pdf_fill/SF3108.pdf. Applicants enrolled some cases their assignment history merely refers to “training complement” and does under the Foreign Service Pension not reflect their actual jobs. To some extent this relates to “programming deficien- System must submit a DS 5001, called cies” — the computer does not let us be fully accurate! “Application for Service Credit,” which I am proud to report that I just completed an unofficial count of our AFSA active- is available online at www.rnet.state.gov duty members — 168 out of 255 FCS officers (66 percent). Of these, 134 are over- under forms. In support applicants seas and 34 are in the United States at headquarters, in training or at Export Assistance should gather notices of personnel Centers around the country. actions (Form SF-50), pay adjustments In closing, we all know the really big issues surrounding “strategic disbursement” and leave statements for submission to (aka “supersized”right-sizing ), involving significant cutbacks both overseas (post the Retirement Office (HR/RET). closings) and in HQ and the domestic field (the latter two including Foreign Service Once HR/RET verifies creditable but mostly affecting the Civil Service). As our Civil Service colleagues in the periods of employment, the department International Trade Administration move back to the old five-level performance will calculate and inform applicants of the system (anyone remember merit pay?) and the administration pushes for system- deposit needed to purchase service cred- atic Civil Service reform with unknown consequences for the Foreign Service sys- it. Applicants must then make one lump- tem, we all may experience “back to the future” in these times of increasingly rapid sum deposit within 180 days of being change. Your AFSA VP and representative will make every effort to ensure that notified of the required amount. J the changes represent progress. J

OCTOBER 2005 • AFSA NEWS 5

Essay Winners • Continued from page 1 the Foreign Service are working diligently tion in the FSYF community service pro- A comment from first-place winner to prevent human trafficking throughout gram. Alison Noll illustrates just how well the con- the world.” Noll was struck by the enor- The winners of the Harry M. Jannette test succeeds in its outreach and education- mous reach of trafficking when she heard Award for International Community al goals: “While doing the research for the about the plight of a 12-year-old Egyptian Service were 13-year-old Reuben Luoma- AFSA essay contest, I learned a tremendous girl who was enslaved only blocks from her Overstreet, for his work in Cotonou, Benin; amount about the many and varied roles home. Noll’s essay can be found on the and 16-year-old Kevin McGrath, for labors that Foreign Service officers play within AFSA Web site at www.afsa.org/essay of love in Budapest and Moscow. While United States embassies, consulates and contest/winningessay05.cfm. learning about his temporary home coun- at the State Department headquarters. try, Luoma-Overstreet found that the I became much more aware that diploma- Foreign Service Youth Awards materials in the Historic Museum of cy is not just carried on between govern- Alison Noll and the other two essay con- Abomey — a UNESCO-designated world ments. I learned many specific ways that test finalists were not the only outstanding heritage site — were entirely in French, lim- Foreign Service officers interact closely with young people honored at the Youth iting access to the information. He trans- all segments of the population in the nations Awards Ceremony, which was hosted by lated all of the museum’s written materi- where they are posted. I discovered how Director General W. Robert Pearson. als into English, something the museum had long wanted to do but could not because of a lack of funding. McGrath was honored for raising funds and organizing a project to renovate a church kitchen serving political and religious émigrés in Moscow. His work in Budapest was also recognized: immediately after moving to Budapest, McGrath became deeply involved in volunteer service activities in his school and in the community. He worked in soup kitchens for the homeless, raised funds for several worthy projects and began an altar boy training program. Also, a special certificate of appreciation was bestowed on Foreign

Jay Mallin Service teen Stuart Symington Jr. for his AFSA National High School Essay Contest winners, from left: Alice Nian-en Lee, Andrew Scheineson extraordinary commitment and leadership and first-place winner Alison Noll. to his Washington, D.C.-area Foreign Service peers. Foreign Service officers develop working Also honored were the winners of the The first-place winner of the Kid Vid relationships with local businesses, NGOs, Foreign Service Youth Foundation’s Una Award — honoring Foreign Service youth schools, women’s groups and journalists, Chapman Cox Foreign Service Youth for the production of videos that depict life as well as government and law enforcement Award for Domestic Community Service for children and teens at posts worldwide officials. I was impressed with how and the Harry M. Jannette Foreign Service — was Cassandra Ruggenbuck, for her Foreign Service officers function on so Youth Award for International Community video of Abu Dhabi. many levels to help our government Service, and the joint Foreign Service “The Youth Awards ceremony at the understand the issues in each country and Institute Transition Center’s Overseas State Department was a wonderful and develop strategies to implement our gov- Briefing Center and FSYF Kid Vid memorable experience for me, as well as ernment’s foreign policy objectives.” Awards, funded by Clements International for my mother and both grandmothers, Noll’s essay topic was “The Role of the Insurance. who flew in from California,” essay win- American Foreign Service in the Battle The winner of the Cox Award was Julia ner Noll told AFSA News. “It was a great against Human Trafficking.” She chose to Lange (age 17), for her continuing service honor to be selected as the winning AFSA write about human trafficking because, she to Foreign Service teens through involve- essayist and to have the opportunity to meet explains, “it is a form of global crime that ment in the FSYF, including work as the Secretary of State Condoleezza Rice the day victimizes the most vulnerable people in editor of the FSYF publication, Wings of before [the ceremony]. The entire expe- society. It is present in some form in every AWAL, and for her dedication to serving rience of the ceremony and the time at the country. I learned that our government and others through her enthusiastic participa- State Department were unforgettable.” J

6 AFSA NEWS • OCTOBER 2005

LETTER FROM AFGHANISTAN Diplomats on the Front Lines BY MICHAEL METRINKO, IN CHEGHCHERAN, AFGHANISTAN

Editor’s note: The following letter is from retired Foreign Service Officer Michael Metrinko, who is serving in Ghor province, Afghanistan. He is responding to criticism of U.S. diplomats aired in one of the recent discussions held on GULF 2000, an Internet forum on the Middle East run out of Columbia University. Several experts in the group derided diplomats, American diplomats in particular, as being out of touch with the real world. “At first I was just amused by the generalization, and then I realized someone had to correct it,” Metrinko explains. “I served as an FSO from 1974 until 1996, and since then have been a WAE (While Actually Employed, a hiring mechanism for retirees) in Yemen, Iraq and Afghanistan. My present State Department assignment is for a full year to Afghanistan. Trust me when I say I know how my colleagues and I have lived in these places.” Here is his letter, one that AFSA will use as an example of real Foreign Service work in our many responses to cheap shots at the Foreign Service.

am a State Department representative assigned to a English class every night to our local interpreters so that Lithuanian Provincial Reconstruction Team (under they can communicate with the soldiers better.) My col- INATO’s International Security Assistance Force) in leagues and I walk on the streets, go shopping, visit the Cheghcheran, the capital of Ghor province in Afghanistan. local villages, listen to what the Afghans are saying and I share a dusty tent with three laugh and joke with them. We other guys (including a very capa- cooperate with our Afghan ble Lithuanian diplomat), which The funny thing is, friends here on a range of assis- we can’t keep clean because of the tance projects involving the local incessant dust storms that send there are lots of diplomats schools, bridges across the town 95-mph whirlwinds through the like me who have left their river, construction of better facil- area every day. The wind last week ities for the town hospital and was much stronger, and the tent cuff links and silk ties and general security for the upcom- next to mine simply disappeared. dark suits back home. ing elections so that the voters in The sink spigots and showers the province can cast their ballots are outside, near the outdoor toi- We tend to show up for meetings freely and safely. lets — all about a block-and-a-half In between these activities, I from where I sleep. We get one in jeans carrying backpacks. try to write reports that will help hot meal a day. My feet are the State Department and NATO cracked open from wearing heavy recipients understand this area boots and never having a flat surface to walk on (the camp better. And late in the evening, I finally get to my e-mail is covered with loose stones to keep the lunar quality dust (we have a generator here), where I sometimes enjoy the at a livable level, and there is no asphalt road or flat side- luxury of accessing the Internet to remind me that there walk that I know of anywhere in this area), and the tem- is a wider world. perature extremes have removed — painfully — a thick The funny thing is, there are lots of diplomats like me layer of skin from my face and head. in places like this in Afghanistan: Americans and My clothes are always dirty because of the dust, and Europeans and many others who have left their cuff links because we have to wash our clothing in mesh bags that and silk ties and dark suits back home. We tend to show can’t be opened during the washing. But this is the pleas- up for meetings in jeans carrying backpacks. And fun- ant season: roads to Cheghcheran become inaccessible most nier still, we think we have the best of worlds here. I know of the winter, and the temperatures in this mountainous I wouldn’t trade my tent for the biggest ambassadorial area hover far below zero. And yes, my colleagues and I residence in London, Paris or Rome. If any of the recent will be staying through it all. critics of the State Department and Foreign Service care I meet with Afghans of all kinds all day long, and I con- to make the three-day overland trip here (via a very bad duct my meetings in Dari. I speak Dari, along with a cou- dirt road from Herat), I would be happy to introduce them ple of other regional languages. (But I am also giving an to this version of the diplomatic life. J

OCTOBER 2005 • AFSA NEWS 7

AFSA BOOK IN MOSCOW CLASSROOM Teaching Future Russian Diplomats BY DEBORAH SISBARRO, EMBASSY MOSCOW

n a unique new partnership demonstrating how much the U.S.- Embassy officers volunteered to cover topics including the his- Russian relationship has changed from Soviet days, diplomats tory of U.S. diplomacy as well as foreign policy in various geo- Ifrom Embassy Moscow have been team-teaching future Russian graphic regions and functional areas. The students visited the diplomats at the prestigious Moscow State Institute for Foreign embassy for a video conference with the U.S. mission to NATO. Relations (called MGIMO This proved a fascinating in Russian). During Aca- opportunity for the officers to demic Year 2004-2005, Amb- speak directly with these stu- assador Alexander Vershbow, dents and dispel misconcep- Deputy Chief of Mission tions about U.S. intentions. As John Beyrle and 18 other the class size was relatively embassy officers lectured on small, officials typically began U.S.-Russia relations to with a brief lecture, followed approximately 60 interna- by intense discussion. tional relations students, The students — a critical many of whom aspire to audience for embassy outreach become diplomats. The efforts — enjoyed the chance course also involved students to hear from front-line in embassy events, such as the American diplomats, and “Election Night 2004” recep- expressed appreciation to the tion at the ambassador’s res- embassy for organizing the idence, and gave them a Embassy Moscow Public Affairs Officer Deborah Sisbarro (left) handing out course. The Americans, inclu- chance to meet and talk with copies of Inside a U.S. Embassy to Russian students. ding the ambassador, equally American foreign policy spe- enjoyed the experience, which cialists including Walter gave them a novel opportuni- Russell Mead, who was a guest of the embassy for a week in May. ty to engage with some of the best and brightest Russian students The final class was hosted by DCM John Beyrle in his resi- of international relations. J dence and featured Mead, the visiting Council on Foreign Relations Senior Fellow, who provided the students with an overview of the philosophical roots of American foreign policy and engaged AFSANEWSBRIEFS them in a discussion about its future direction. Each student was Briefs • Continued from page 2 given a copy of the AFSA book, Inside a U.S. Embassy: How the Foreign Service Works for America. Next year, this book will serve Legislative Action Fund as supplementary reading material for this course. (Note: Copies Don’t forget to make your contribution to AFSA’s Legislative of the book were also purchased by the embassy for American Corners and Centers throughout Russia.) Action Fund. AFSA’s legislative affairs department follows The course is the brainchild of former Moscow Public Affairs developments on the Hill and is always working to protect Officer Anne Chermak, who served as a visiting professor at MGIMO for the academic year 2003-2004. She created the first and improve Foreign Service benefits, for active employees yearlong American-taught course on U.S. diplomacy at Russia’s and retirees. Please mail your contribution to most prestigious foreign affairs institution. The weekly course was so popular that MGIMO asked the embassy to offer the course AFSA Legislative Action Fund, PO Box 98026, Washington, again this year, even though the diplomat-in-residence position DC 20090-8026. Checks should be made payable to was not continued. The public affairs section coordinated the weekly class, thereby gaining a unique opportunity to work direct- AFSA Legislative Action Fund. Please support the LAF ly with Russia’s next generation of leaders. by giving generously. J

8 AFSA NEWS • OCTOBER 2005

RETIREES IN ACTION At Home and Abroad, Wygant Serves On BY BROOKE DEAL, EDITORIAL INTERN

here is foreign service after the Foreign just as busy stateside. He collaborated with Brown Service,” says Michael Wygant. Retirement University to prepare a training course for Americans “T doesn’t mean relaxing holidays in the tropics selected to work with the OSCE. As program chairman or a quiet life at home for the former ambassador, of the World Affairs Council of Maine, Wygant has been who retired to Maine in 1990. On the contrary, Wygant has been busy in public service all over the world ever since he retired from the State Department 15 years ago. Shortly following his formal retirement, Wygant assisted in opening the first U.S. embassies in Kazakhstan and Kyrgyzstan in 1992 and 1993. He refers to his work in Kazakhstan as “a great introduction into ‘retirement.’” In 1994, Wygant went on to serve with the Organization for Security and Cooperation in Europe, the world’s largest security organization. The OSCE’s main goals include the resolution and prevention of conflict, particularly in countries of the former USSR and the Balkans, and active involvement with nation-building in newly-inde- Mike Wygant, center, with European colleagues in Moldova, 2003. pendent states. Wygant’s first assignment was in Georgia, where he spent several months as part of the organization’s conflict-resolution mission. in charge of recruiting foreign affairs speakers since 1991. From the Georgia assignment, he went on to head He has spoken extensively in northern New England, OSCE missions to Moldova, Ukraine and Croatia, still con- addressing students and faculty alike about his diplomat- centrating on conflict resolution and nation-building, from ic experiences in conflict resolution and nation-building. 1995 to 2000. The 1997-1998 mission to Ukraine was no He has made numerous presentations at Bowdoin easy task, as his workforce consisted of only four staff. The College and the University of Maine in Orono, focusing team was challenged to achieve more with less, and Wygant on the former USSR and the countries that have calls the mission “a small but significant success.” emerged from the Soviet Union. In 1999, Wygant served as head of the election obser- “Amb. Wygant has provided outstanding support for vation mission to Estonia, supervising a small team to mon- AFSA initiatives in recent years,” says AFSA Director of itor the election process before, during and after election Communications Tom Switzer. “His leadership result- day. The team observed campaigns by political parties and ed in increased involvement of Foreign Service retirees in candidates, the work of the election administration and a wide array of outreach programs all over New England. local authorities, and the media, as well as election-day pro- He himself has been one of the most energetic and effec- ceedings and the resolution of election disputes. Wygant tive AFSA speakers in recent years, explaining the key role then led OSCE election observation missions to five other of American diplomacy to leading universities, world affairs nations, including Ukraine, Slovakia, Moldova, Armenia councils and civic associations in his region.” and Georgia, from 2002 to 2004. Although his tenure at the State Department ended 15 While it would seem that this busy overseas schedule years ago, Michael Wygant’s career in foreign service is far would leave no time for work at home, Wygant has been from over. J

OCTOBER 2005 • AFSA NEWS 9

CLASSIFIEDS

RETIREMENT SERVICES TAX & FINANCIAL SERVICES

RETIRING? Don't let your AFSA membership lapse! To continue automatic deduc- ROLAND S. HEARD, CPA tion of your AFSA membership dues, you 1091 Chaddwyck Dr. must fill out a form for annuitant deduction. Athens, GA 30606 For a copy of Form SF 1187A, call AFSA at Tel/Fax: (706) 769-8976 (800) 704-2372 or (202) 338-4045, go to E-mail: [email protected] www.afsa.org/mbr/SF1187A.cfm or write us TAX & FINANCIAL SERVICES • U.S. income tax services at AFSA, 2101 E Street, N.W., Washington, • Many FS & contractor clients D.C. 20037. ATTORNEY, FORMER FOREIGN SER- • Practiced before the IRS You can fax the form to (202) 338-6820 VICE OFFICER: Extensive experience w/ tax • Financial planning or mail it to AFSA. Don't forget to sign it! problems unique to the Foreign Service. • American Institute of CPAs, Member Available for consultation, tax planning, and FIRST CONSULTATION FREE LEGAL SERVICES preparation of returns: WWW.ROLANDSHEARDCPA.COM M. Bruce Hirshorn, Boring & Pilger, P.C. 307 Maple Ave. W, Suite D, Vienna, VA 22180. ATTORNEY WITH 23 years’ successful VIRGINIA M. TEST, CPA: Tax service spe- Tel: (703) 281-2161. Fax: (703) 281-9464. experience SPECIALIZING FULL-TIME IN FS cializing in Foreign Service/overseas contrac- E-mail: [email protected] GRIEVANCES will more than double your tors. CONTACT INFO: TEL: (804) 695-2939. chance of winning: 30% of grievants win FAX: (804) 695-2958. before the Grievance Board; 85% of my CITIGROUP E-mail: [email protected] clients win. Only a private attorney can ade- quately develop and present your case, CITIGROUP’S PERSONAL BANKING including necessary regs, arcane legal doc- OVERSEAS offers a variety of financial solu- trines, precedents and rules. Call Bridget R. tions for individuals that are sent on interna- JACOB FORBAI, CPA/MS: Affordable expatriate tax solutions, compliance, plan- Mugane at Tel: (202) 387-4383, or tional assignment. If you work for a corpo- (301) 596-0175. 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10 AFSA NEWS • OCTOBER 2005

CLASSIFIEDS

PROPERTY MANAGEMENT TEMPORARY HOUSING MORTGAGE WJD MANAGEMENT IS competitively GEORGETOWN QUARTERS: Exquisite, GET THE MOST FROM YOUR HOME. priced, of course. However, if you are con- fully-furnished accommodations in the East BUYING? REFINANCING? CASHING OUT? sidering hiring a property management firm, End of Georgetown. Short walk to World OR INVESTING IN REAL ESTATE? At PLAT- don’t forget the old saying, “You get what you Bank and State Department. Lower floor of INUM Capital Group in Reston, Va., Guy pay for.” All of us at WJD have worked for three-level home built in 1803 and renovat- Danaux can advise you on the best option other property management firms in the past, ed in 2003. Private front and rear entrances, available on the mortgage market. As a mem- and we have learned what to do and, more eight-foot ceilings, fireplace, marble bath- ber of the Foreign Service community, in the importantly, what not to do from our experi- room with Jacuzzi and shower, granite and U.S. and abroad, Guy Danaux understands ences at these companies. We invite you to stainless steel kitchen, washer and dryer; the high level of service you expect in reach- explore our Web site at www.wjdpm.com for walk out to tiered rear garden great for enter- ing your real estate goals. Give him a call or more information or call us at (703) 385-3600. taining. Street parking and limited car/pick- send him an e-mail. He can help you find the up sharing with management. Dishes, flat- appropriate loan program to meet your needs. TEMPORARY HOUSING ware, towels, linens and light maid service Tel: (202) 297-3375. included. Preference for single person or E-mail: [email protected] SHORT-TERM RENTALS couple. 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OCTOBER 2005 • AFSA NEWS 11

CLASSIFIEDS

REAL ESTATE SHOPPING PET TRANSPORTATION

WASHINGTON STATE ISLANDS: 110 - 220 VOLT STORE Spectacular views, wonderful community, cli- MULTI-SYSTEM ELECTRONICS mate, boating, hiking. Access to Seattle & Vancouver, B.C. Former FSO Jan Zehner, PAL-SECAM-NTSC TVs, Windermere Real Estate/Orcas Island. VCRs, AUDIO, CAMCORDER, Tel: (800) 842-5770. E-mail: [email protected] ADAPTOR, TRANSFORMERS, Web site: www.orcashomes.net KITCHEN APPLIANCES PET MOVING MADE EASY. Club Pet GMS WORLD WIDE PHONES International, is a full-service animal shipper VACATION EPORT WORLD ELECTRONICS specializing in domestic and international trips. 1719 Connecticut Ave NW NORMANDY, FRANCE: Large, comfort- Club Pet is the ultimate pet-care boarding (Dupont Circle Metro. Btwn. R & S Sts.) able farmhouse near D-Day Beaches for facility in the Washington Metropolitan area. TEL: (202) 232-2244 or (800) 513-3907. weekly rental. E-mail: [email protected] Tel: (703) 471-7818 or (800) 871-2535. E-mail: [email protected] Web site: www.laporterouge.net E-mail: [email protected] URL: www.eportworld.com Web site: www.clubpet.com RENT A 300-year-old stone house in DOWNTOWN LOCATION 1030 19TH ST. NW (between K & L Sts.) a medieval village in the south of France DOMESTIC / WORLDWIDE SHIPPING: (Languedoc-Roussillon)! Photos online at Washington, D.C. 20036 TEL: (202) 464-7600. Over 25 yrs. experience, free estimates no www.pipeline.com/~denman/France.html. deposits required, military veteran, 24-hr. E-mail: [email protected] INQUIRE ABOUT OUR PROMOTIONS Government & Diplomat discounts availability. Tel: (304) 274-6859, (888) 234- 5028 SCOTTSDALE, ARIZONA: E-mail: [email protected] ENJOY world-class golfing and shopping PALESTINIAN EMBROIDERY: Hand- www.actionpetexpress.com in fully-furnished condo (sleeps 8). Month min- crafted jackets, vests, blouses, pillows, run- imum. E-mail: [email protected] ners, placemats, purses and eyeglass cases. BOOKS Tel: (703) 528-2623. OLD ASIA/ORIENT BOOKS BOUGHT E-mail: [email protected] NEW HAMPSHIRE RETREAT: Asian rare books. Fax: (212) 316-3408. Web site: www.mashrabiya.com 1780 farmhouse on 100 acres above Crescent E-mail: [email protected] Lake, Acworth. Five bedrooms, three baths, VISIT THE BOOKFAIR. The 45th fireplace, country kitchen, screen porch, deck, CRAVING GROCERIES FROM HOME? annual BOOKFAIR, sponsored by the swimming pond, canoes, rowboat, fall foliage, Visit www.lowesfoodstogo.com. We ship x-country from front door; 20 minutes from non-perishable groceries to you via the Dulles Associates of the American Foreign Service Mt. Sunapee. $1,500/wk or $650/weekend - mail-sorting facility, or your choice of ship- Worldwide, opens on Friday, Oct. 14, at 2 p.m. - 8 people. Tel: (603) 863-3817. ping facility. For more information e-mail: BOOKFAIR is held in the Exhibit Hall of Main E-mail: [email protected] [email protected] State. Employees, their escorted guests, retirees and their spouses are cordially invited. During the week, from Oct. 17 through BARBADOS: DIPLOMAT'S 3-BR, WWW.WEBNETSTORE.COM (sleeps 6) West Coast seaview home, Oct. 21, BOOKFAIR is open from 11 a.m. to walk to beaches, shops, restaurants, NORMAL -- 3,000+ HIGH-QUALITY 3 p.m. BOOKFAIR is open to the general pub- golfing. Low season: $1,000/week, GIFTS and products to choose from, shipped lic on two weekends: Oct. 15-16 and Oct. 22- $3,000/month.; High: $1,500/$3,750. wherever you want! Shop for yourself or send 23, from 10 a.m. to 4 p.m. On the final day, E-mail: [email protected]. gifts home to friends and relatives stateside! some items will be half-price. VISA, Tel: (301) 587-4956, (703) 582-5751 Our Web site uses the latest secure technol- Mastercard and checks will be accepted. ogy to process your orders safely and quick- Please call (202) 223-5796 with questions. DISNEY VACATION RENTAL: ly. Want our catalog(s)? Send an e-mail Your attendance at BOOKFAIR helps sup- Townhouse with pool sleeps eight nestled in request with your mailing address to port AAFSW programs to benefit the Foreign wildlife preserve minutes from Disney. Service community, so please come on over E-mail: [email protected] E-mail: [email protected] and shop! Web site: www.vacationdisneyhome.com Tel: (218) 741-2597. Cell: (612) 518-0848. WORLD WAR II EBOOK. A collection of MISCELLANEOUS rarely seen black-and-white photos taken dur- PLACE A CLASSIFIED AD: ing WWII in the Philippines. 140 pp. Check $1.25/word (10-word min.) First 3 SHIPPING out: www.buyww2ebook.com words bolded free, add’l bold text $2/word, header, box, shading $10 PLANNING TO MOVE OVERSEAS? BUSINESS CARDS ea. Deadline: 20th of the month for Need a rate to ship your car, household publication 5 weeks later. goods, or other cargo going abroad? Contact: BUSINESS CARDS printed to State Ad Mgr: Tel: (202) 944-5507. Joseph T. Quinn. at SEFCO-Export Department specifications. 500 cards for as Fax: (202) 338-6820. Management Company for rates and advice. little as $37.00! Herron Printing & Graphics. E-mail: [email protected] Tel: (718) 268-6233. Fax: (718) 268-0505. Tel: (301) 990-3100. Visit our Web site at www.sefco-export.com E-mail: [email protected]

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