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2 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 CONTENTS September 2002 I Volume 79, No. 9

Focus ON USAID COMEATING THREATS OF EMERGING DISEASES / 51 Experience in Latin America shows diat, in terms of 20 / ANDREW NATSIOS: GETTING USAID ON ITS FEET bodi technical effectiveness and sustainability, Administrator Andrew S. Natsios is rebuilding USAID from strengthening regional activities at the mission the dark days when absorption into State was likely. But level may be the best use of USAID resources. there is still much more to be done. By Dr. Charles W. Oliver and Dr. Jaime Chang Neyra By Ben Barber MAINSTREAMING TRADE AT USAID: 28 / AMERICA’S DEVELOPMENT CHALLENGE THE CASE OF EGYPT / 54 President Bush’s New Compact for Development USAID/Egypt has led die way in linking trade to is the first major new foreign assistance initiative development, creating models other missions can use. in over 40 years. USAID Administrator Andrew Natsios By Dr. J. W. Wright, Jr. explains how it is intended to work. By Andrew S. Natsios FEATURES

32 / FOREIGN AID: HELP OR HINDRANCE? KEEPING SCORE IN THE CONGRESSIONAL GAME / 60 Foreign aid has failed, despite die best efforts AFSA rates senators and representatives on how well of many dedicated professionals at USAID, they supported American engagement in world affairs. the State Department and elsewhere. By Ken Nakamura By Doug Bandow DIPLOMATIC CATHEDRAL-BUILDING / 71 37 / THE GHOSTS OF LUENA American-imposed solutions to international problems Two brushes with death in Angola, seven years apart, will provide only illusory benefits unless die nations affect have reinforced for one FSO the importance of ed come to share democratic visions and values. die work USAID and similar organizations do. By James E. Goodby By Jeffrey Ashley COLUMNS DEPARTMENTS

42 / DEJA VU ALL OVER AGAIN? LETTERS/6 PRESIDENT’S VIEWS / 5 USAID keeps trying, but it still hasn’t found a Tough Enough CYRERNOTES/12 magic formula for development that works worldwide. By John K. Naland BOOKS / 76 Yet it has done a lot of good. INDEX TO By Joseph C. Guardiano SPEAKING OUT /15 Ending USAID Hispanic ADVERTISERS / 82 47 / CONTROLLING CONFLICT IN CENTRAL ASIA Employee Neglect AFSA NEWS / Peace and stability are fragile and yet essential to anchor a By Francisco Zamora CENTER INSERT process of sustainable development in Central Asia. So, for USAID, building civil society is a priority. REFLECTIONS / 84 By Barbara Junisbai By Pam Anderson Cover and inside illustrations by Adam Niklewicz

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FOREIGNOERVICE Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W, Washington, D.C. 20037-2990 is published JLj 0 U R N A L Editor Editorial Board monthly by the American Foreign Service Association, a private, non-profit organization. Material appearing here¬ STEVEN ALAN HONLEY CAROLINE MEIRS, in represents the opinions of the writers and does not necessarily represent the views of the Journal, the Editorial Associate Editor CHAIRMAN Board or AFSA. Writer queries and submissions are invited, preferably by e-mail. Journal subscription: AFSA SUSAN B. MAITRA Business Manager LISA BRODEY Members - $9.50 included in annual dues; others - $40. For foreign surface mail, add $18 per year; foreign air¬ MIKKELA V. THOMPSON WES CARRINGTON mail, $36 per year. Periodical postage paid at Manchester, N.H., and at additional mailing offices. Postmaster: ELIZABETH SPIRO CLARK Send address changes to Foreign Service Journal, 2101 E Street N.W, Washington, D.C. 20037-2990. Indexed MAUREEN S. DUGAN AFSA News Editor by Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos SHAWN DORMAN JOHN DWYER or illustrations. Advertising inquiries are invited. The appearance of advertisements herein does not imply the Art Director CAROL A. GIACOMO CARYN J. SUKO endorsement of die services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E-MAIL: [email protected]. EDWARD MARKS Editorial Intern WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service Association, 2001. Printed ERIC RIDGE ARNOLD SCHIFFERDECKER in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., Washington, D.C. 20037- Advertising Intern HOLLIS SUMMERS NING ZHANG 2990. Printed on 50 percent recycled paper, of which 10 percent is post-consumer waste. WILLIAM WANLUND

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4 FOREIGN SERVICE ] OURN AH SEPTEMBER 2002 PRESIDENT’S VIEWS Tough Enough

BY JOHN K. NALAND

One year ago, people.” It is now up to the Foreign AFSA launched a We must prove that Service and State Department to live Foreign Service up to that pledge. reform initiative we are indeed In so doing, we must guard against a with this explana¬ tough enough to repeat of the injudicious e-mails that a tion: handful of Foreign Service members “Our personnel staff the front lines sent this past July with comments dis¬ system has not of national security paraging members of Congress. That adequately adapted to changes in its episode only reaffirmed our critics’ operating environment. Because of in a dangerous views that some in the Foreign Service that, the Foreign Service as a whole world. lack tire judgment and discipline to lacks the organization, abilities, and properly serve the country. outlook needed to carry out our mis¬ We must also focus on the underlying sion at a superior level of performance. the consular and diplomatic corps. cultural issue by continuing our push This exposes us to the danger that But anyone who cares about the to reform and reinvigorate the Foreign some outside force could impose future of the Foreign Service should Service so that no one can question our changes that — intentionally or unin¬ be very concerned about the argument commitment or ability to actively pro¬ tentionally — ’reform’ us out of exis¬ that was advanced to justify the trans¬ mote U.S. interests. We must prove tence. However, if we who know the fer of the visa function. Simply put, that we are not just “pin-striped diplo¬ Service the best can seize the opportu¬ some in Congress felt that the culture mats” as White House Press Secretary nity to advance a strategy for modern¬ of the Foreign Service places a higher An Fleischer dismissively referred to izing our personnel system, we stand a value on good bilateral relations (i.e., us last April, but instead that we are better chance of assuring a new renais¬ keeping foreign governments and tough enough to staff the front lines of sance of the career Foreign Service.” publics happy) than on actively pro¬ national security in a dangerous world. This warning about “some outside moting vital American interests. Interestingly, the producer of the force” trying to “reform us out of exis¬ Significantly, a similar argument was short-lived Fox TV drama “The tence” proved prescient this past June behind the decision a generation ago to American Embassy” (aka “Emma and July when some in Congress transfer the commercial function from Brody”) told me that had the series pushed to strip the visa function (per¬ State to the Department of continued the scripts would have haps even the entire consular function) Commerce. become more serious. The reason was out of the State Department. The We prevailed this time, in part that viewer focus groups meeting after White House, Secretary Powell and because Secretary Powell personally the Sept. 11 attacks told the show’s pro¬ AFSA lobbied hard against that move reassured Congress that this argument ducers that they expected the U.S. and, as I write these words, it appears was wrong, emphasizing that “we take diplomats who stood between them that there will be no overturning of the our responsibilities in the State and foreign foes to be strong, serious Rogers Act that created the modem Department and our consular respon¬ professionals. Foreign Service in 1924 by combining sibilities with utmost seriousness, and The task before us is to meet those we are seeing what else we need to do expectations. AFSA is committed to John K Naland is the president of the to make sure that we are doing every¬ playing a leading role in that vital American Foreign Service Association. thing to guard our nation, to guard our effort. ■

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 5 LETTERS

War II, who defied U.S. immigra¬ Only by claiming he was tortured Editor's Note: tion policy and issued 2,500 visas to could the Palestinian obtain a U.S. Honestreporting.com, a Web Jews, including artist Marc Chagall. visa. According to one 1979 report, site that says it is “only interest¬ Scorned by the State Department, Israeli intelligence informed U.S. ed in ensuring that Israel Bingham ended his career in 1946. authorities that Alexandra Johnson receives the fair media coverage However, the June edition also may have aided terrorist cells. that every nation deserves,” contains a vicious attack on Israel Some of Bird’s imprisoned posted an item condemning by a long-time anti-Israel propagan¬ Palestinian-Americans were found Jerri Bird’s article in the June dist, Jerri Bird, the wife of a retired guilty of bringing funds to Hamas FSJ, “Arab-Americans In Israel: diplomat. The article calls Israeli operatives. Bird labels Hamas an What Special Relationship?,” actions “terrorism” and claims that “illegal organization” — in quota¬ and urging its members to write Israel systematically “tortured and tion marks, as if Hamas is only con¬ the Journal and the State incarcerated” Arab-Americans. sidered so by Israel. Department to express their Bird heads “Partners for Peace,” Bird discounts the battle against outrage. We have received sev¬ a “sister organization” of the anti- terrorism shared by the United eral hundred e-mails, letters Israel Council for the National States and Israel. and faxes (and some phone Interest headed by Bird’s husband, HonestReporting asks: calls) quoting the following Eugene, and former congressmen • Why did the Foreign Service text, partially or fully: Paul Findley and Pete McClosky. Journal permit such a piece of (McClosky is praised heavily on rehashed propaganda — so at odds neo-Nazi Web sites — see with American policy — to be pub¬ Foreign Dis-Service Journal www.zundelsite. org) lished? The magazine written for Jerri Birds Journal article is a • Is the anti-Israel article a tool American diplomats around the rehash of accusations she made last to direct attention and criticism world runs an article calling Israeli July in “The Link,” an anti-Israel away from Saudi Arabia and Egypt, actions “terrorism.” The Foreign smear-sheet published by the the breeding ground for al-Qaida Service Journal has probably one of “Americans for Middle East terrorists? Would the Journal con¬ the most exclusive readerships in Understanding.” Part of Bird’s sider an article on a topic recently the world. Published by the charges are based on the 24-year-old aired in Congress: American chil¬ American Foreign Service cables of a junior Foreign Service dren abducted by their Saudi Association, the de facto “union” of officer, Alexandra U. Johnson, who fathers and held in Saudi Arabia? State Department employees, the interviewed Palestinian visa appli¬ • The battle against bin Laden Journal is written for and by cants and “detailed the treatment of and the international terrorist net¬ American diplomats around the Arab prisoners.” Bird hides the fact work, as conducted by the United world. that Johnson was later fired from the States, requires intense interroga¬ The June edition provides the State Department; according to a tion of captured terrorists who may inspirational story of Harry 1979 Washington Post report, possess information about “ticking Bingham, an American vice consul Johnson was “engaged to one of the bombs” ready to explode. Would in Marseille at the start of World Palestinians” cited in her cables. the Foreign Service Journal consid-

6 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 LETTERS

er an article critical of American Consular Assistance in Israel Thanks for the great day in interrogation tactics? The article by Jerri Bird on Washington, and thanks for the Arab-Americans in Israel (June wonderful article about my father in Serving American Interests? FSJ) was extremely interesting to the June Foreign Service Journal. I’m sure by now you’ve read me since I served many years in the Robert Kim Bingham HonestReporting. corn’s carefully Middle East and in the NEA Salem, Conn. researched and compelling criti¬ Bureau. I had already heard about cism of Jerri Bird’s article. It brings the situation Bird describes from Several Jewels to question the scholarship and someone who served in Jerusalem. The June 2002 issue of the FSJ honesty of your journal and makes That person told me that consular contains several jewels. David me wonder how you could allow personnel in Jerusalem would like Jones’ appreciation of Ambassador such a misleading piece to be pub¬ to offer Palestinian-Americans Robert Strausz-PIupe (Letter to the lished. We live in a time in which effective assistance, but are pre¬ Editor ) was a diamond. It is a great the knowledge we take in from the vented from doing so by Embassy analysis of his career, suggesting Foreign Service Journal could Tel Aviv. Strausz-Hupe’s role in fighting and be a basis for a world with less Lucy D. Quinn contributing to victory in the Cold hatred and prejudice. But Bird’s FSO, retired War on the intellectual level, as article shows that you are encour¬ Cumberland, Md. opposed to others who also played aging bias and hatred between peo¬ important roles by, inter alia, brand¬ ples. It’s a throwback to propagan¬ A Momentous Day ing our opponents as the Evil da and hate. Is this what our dedi¬ Thanks to AFSA for giving the Empire. And Jones’ last paragraph cated Foreign Service community Plarry Bingham family a momen¬ gives a superb summary of the Cold needs to bring harmony to the tous day to remember at the State War — in three sentences! nations in which they are serving? Department. The ceremony in the The “AFSA Dissent Awards” How does this serve American Ben Franklin Room June 27 will be focus of the issue was a pearl, and interests? cherished by my siblings and suggests answers to questions often John W. Hoffman Harry’s other descendants for gen¬ asked about the Dissent Channel Boca Raton, Fla. erations to come. We were thrilled and dissent in general. Several to hear Secretary Colin Powell friends commented favorably on it. Mobilized Outrage posthumously praise Harry’s life¬ And the last page, Postcard from You will undoubtedly have saving activity while he was posted Abroad, contains the ruby: received an avalanche of objections as a consul in Marseille from 1939 “Peshawar Memory.” This piece is a because you chose to publish the to 1941 and were impressed by the poem, masquerading as an essay. It article by Jerri Bird in the June stories of the other honorees. You cries out to be read aloud. Poets in issue of the Foreign Service and your staff did a tremendous job these times and places don’t make Journal. I have been visiting Israel- organizing the successful event. much money, their reward is the Palestine intermittently since the Congratulations from my grateful satisfaction of expressing an emo¬ early 1960s. My wife and I worked family! tion and sharing it with others. for the United Nations Relief and I am also most appreciative of Thanks, Mary Cameron Kilgour, for Works Agency for Palestine your support for the Hiram sharing this ruby with us. Refugees in the Near East Bingham IV postage stamp propos¬ Francis Xavier (UNRWA) as doctor and nurse, al. The USPS just wrote that “Mr. Cunningham respectively, in the Gaza Strip for Bingham is currently under consid¬ FSO, retired two years. We appreciate your eration by the Citizens’ Stamp Arlington, Va. courage in publishing the Bird arti¬ Advisory Committee as a future cle and wish you well in dealing stamp issuance.” In no small way, Present-Day Dissenters with the “righteous outrage” that your actions and those of Secretary As a 1994 winner of AFSA’s will have been mobilized in Powell bolstered the stamp cam¬ William R. Rivkin Award for con¬ response to it. paign, which began with a petition structive dissent by mid-level offi¬ Dr. Iain Chalmers to the Postmaster General in cers (a member of the group of 13 Oxford, U.K. December 1998. dissenters from the Clinton

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 7 MARKETPLACE LETTERS CONNECTIONS

Web access to major advertisers. Administration’s policies in the for¬ assistant secretary responsible for Go to www.afsa.org on the mer Yugoslavia) and as a former marquee, click on Marketplace tab Balkans policy, and every other FSJ editorial board member, I wish member of the group has had a suc¬ to take exception to the conclusions cessful career since receiving the Bukkehave reached by Gilbert Kulick’s award. www.bukkehave.com Speaking Out, “Let’s Put Foreign While the Foreign Service could Charles Smith Corp. Living Policy Back into Creative Dissent,” do even better in encouraging con¬ www.SmithLiving.com and David T. Jones, “Is There Life structive dissent and welcoming After Dissent?” in the June issue. differing views, I think it deserves Clements International Kulick bemoans what he views as credit for being more open to and www.clements.com the “serious dilution of the stan¬ supportive of dissent than most Diplomatic Auto. Sales dards by which courage and creativ¬ other institutions in both the pri¬ www.dipiosales.com ity in the Foreign Service are mea¬ vate and public sectors. sured today” compared with the Eric S. Rubin Executive Club Suites actions of those who opposed U.S. www. execl ubdc. com U.S. Consul General policy in Southeast Asia in the Chiang Mai, Thailand Harry Jannette International 1960s and 1970s. Jones concludes www. j a n n ettei ntl. com that “there has been a corporate Getting History Right conclusion within the Foreign I find it ironic that, in their Hirshorn Company, The Service that while (gently) rocking eagerness to deride author Khaled www.hirshorn.com the boat probably will not trigger Abdulkareem’s feel for American Laughlin Management obvious, overt retaliation, it also history, letter writers Casavis and www.century21laughlin.com doesn’t do any real good.” I could Boyatt (June FSJ) take glee in deny¬ not disagree more with both asser¬ ing there existed a “Republican Long & Foster tions. While we would all benefit Party” in 1812. In fact, the www.simunek.com from learning more about and hon¬ Republicans of that era were the Oakwood oring the heroism that Kulick and party of government; Jefferson, www.oakwood.com his colleagues displayed in the last Madison and Monroe, as well as the days of South Vietnam, and while I War Hawks, called themselves Remington agree with Mr. Jones’ conclusions Republicans. It was the part)' of www.remington-dc.com about the utility of the formal that name and its mutations which St Andrew’s-Sewanee School Dissent Channel, I believe I can eventually became the Democratic www.standrews.sewanee.edu speak for many “constructive dis¬ Party. As they say, you can look it senters” of the past decade in up. State Department Federal asserting that, in at least a few Arnold Isaacs Credit Union www.sdfcu.org cases, we made a real difference. FSO, retired Bosnia is a good example. Falls Church, Va. State Plaza Without exaggerating the role our www.stateplaza.com dissent played in prompting the Family Member Employment dramatic changes in U.S. policy in I am a member of the State TASIS www.tasis.com the Balkans that began in 1995 — Department’s Family Member as there were many other factors Employment Working Group, com¬ WJD Management and many more influential contrib¬ posed of representatives from the www.wjdpm.com utors — it should suffice to note Family Liaison Office, the Office of that our principal recommenda¬ Overseas Employment, the Office tions were adopted by the Clinton of Employee Relations, and the For more information regarding administration within two years of Policy Coordination Staff, and led AFSA branded products, mission relat¬ our dissent. ed programs and membership in the by the Human Resources Bureau’s American Foreign Service Association, One of our group became Deputy Assistant Secretary John see: www.afsa.org ambassador to Bosnia soon there¬ Campbell. We read Rebecca Park’s after, another is the current deputy Speaking Out piece, “Do Family

8 FORE IGN SERVICE JOURNAL/SEPTEMBER 2002 LETTERS

Member Associates Matter?” (May vesting in the Thrift Savings Plan FSJ), with great interest and sympa¬ (TSP) need clarification. When an thy. We were struck by how similar EFM employed on an FMA leaves the issues she raised were to many a position, the employee usually we have been trying to address in goes into Intermittent-No Work the Working Group over the past Scheduled (INWS) status and the year. Many of her points are indeed FMA is not terminated until the legitimate and need to be five-year expiration date of that addressed. appointment. That employee First, we want to clarify that the remains on State’s employment FMA is an employment mecha¬ rolls, and is not reported to the TSP nism, not a program for spouses. Service Center as separated. No The “A” stands for “Appointment,” TSP contributions are lost, even not “Associates.” There has been though the employee may have confusion between the FMA and an served for less than three years in earlier now-defunct program for the position. spouses called AFMA, American Even on those rare occasions Family Member Associates. when the employee’s FMA is termi¬ All eligible family member nated prior to vesting, losses would Enjoy your stay. (EFM) employees, regardless of be minimal. The employee loses Just don’t forget the employment method used to only the one percent agency contri¬ hire them, are eligible for job train¬ bution, plus associated earnings. to go home. ing and performance counseling. The employee gets to keep all of The term “PIT” (Part-time, his/her own contributions with Nobody could blame you for Intermittent, Temporary) is being earnings, plus all of the agency’s getting a little too comfortable at tossed into the dustbin of history: it matching contributions (up to four Residence Inn? After all, it’s Marriott’s flagship all-suite hotel. sends the wrong message and was percent) with earnings, no matter To learn more or make a never a usefully descriptive term. when the appointment is terminat¬ reservation, visit residenceinn.com Under the FMA and any other U.S. ed. or call 800-331-3131. government appointment, part- In our Working Group, we have time employment qualifies for U.S. deliberated about paying a post dif¬ government benefits, whereas ferential rate and a post cost of liv¬ intermittent or temporary employ¬ ing allowance (COLA) to EFM ment does not. (See the July 9 employees employed on an FMA. cable, 02 State 131614.) There is some flexibility for the post As for pay administration, the COLA. A few posts — generally in Room to work, room to relax, steps awarded with a change in high-labor-cost countries — do pay room to breathe? grade, either up or down, are being COLA to family members reviewed. Under current regula¬ employed full-time under the Residence Inn FairLakes tions, EFMs with experience and FMA. COLA is payable for EFMs 12815 Fair Lakes Parkway qualifications may be considered only in those posts where an excep¬ Fairfax, VA 22033 for a Superior Qualifications Rate tion has been approved by the 703-266-4900 and be appointed at a higher step. department, and only to full-time Residence Inn Herndon/Reston Entry level into a position should employees. If an EFM employee on 315 Elden Street depend on the qualifications of the an FMA is eligible for COLA, it Herndon, VA 20170 703-435-0044 candidate selected. Language lowers the basis for the career incentive pay is another area we employee’s family-size COLA cal¬ Residence Inn Fairfax/Merrifield will be looking into for cases where culation, but there is still a net gain. 8125 Gatehouse Road Falls Church, VA 22042 language proficiency is a necessary The post differential, based on 703-573-5200 part of the job. hardships and living conditions, is Parks concerns about difficulty more complicated. There is an

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 9 LETTERS

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10 FOREIGN SERVICE J O U RN AL/S EPT EM BER 2002 LETTERS PRESIDENT THE AMERICAN UNIVERSITY IN CAIRO agency and what it does to help The Trustees of the American University in Cairo are conducting a people in developing countries. She search for President. AUC, founded in 1919, is a leading univer¬ left with my order and later sity advancing the ideals of American liberal arts and professional returned to tell me she was sorry, education and life-long learning. Students are from all segments but they had no GRITS hats in of Egyptian society as well as from other countries. Candidates stock. Then I saw her talking to the must have a distinguished record of accomplishment in higher Cracker Barrel manager. After a education, diplomacy, NGO and/or other professional fields. An few minutes he approached me earned doctorate is preferred. While Arabic language skills are with a navy-blue baseball cap with not required, a deep respect and appreciation for Egypt and its the words “Cracker Barrel” embla¬ culture is a prerequisite. Under the university's protocol with the zoned in gold on the front. He government of Egypt, the president must be an American citizen. handed it to me and said, “We here at the Cracker Barrel want you to The Search Committee invites applications and nomina¬ have this in appreciation. We tions for the position, which should be sent prior to appreciate all our citizens — mili¬ October 1, 2002 to: tary and civilian — who are helping America by serving our country Malcolm MacKay, Managing Director over in the Middle East.” Russell Reynolds Associates, Until that moment, I had been 200 Park Avenue, 23rd floor, New York, New York 10166 feeling a little sad thinking about fax: (212) 286-9709, [email protected] leaving my family and friends in the U.S. for four years overseas. However, what he said galvanized my feelings of patriotism, reminding me that we non-military types also SEVEN MINUTES TO STATE DEPARTMENT serve our country and that what I do, even as a simple “paper pusher,” is important. Those of us who work in foreign aid — bombing them with

SEPTEMBER 2002/FOREICN SERVICE JOURNAL 11 CYBERNOTES

Majority of Americans registered among those who follow Still Shun World News If America wants to get out of international news. Only 6 percent One year after the terrorist recession and get its stock paid very close attention to that attacks of Sept. 11 shocked the particular issue, a trend that was market pumped up again, and if nation and the world, Americans are emblematic of American foreign still casting a blind eye toward the European Union wants to news coverage that fails to extend far international news, according to a survive, and Asia wants its past major issues like terrorism and recent survey conducted by the Pew the Middle East. stagnation ended, the only Research Center (www.people- In an interesting development, press.org). Surprisingly, nearly half answer is facilitating the the survey also found that the of those who said they did not follow development of Africa. American publics ability to follow international news said they did so international news is hindered by a Africa is the missing link of the because they believe it does not lack of background knowledge affect them. global economy.... Africa can necessary to fully understand the The 2002 report, released in answer the world’s economic news itself. Researchers found that June, is based on data collected from nearly two-thirds of those who needs right now if we only focus 3,002 adults during the time period reported only moderate or low from April 26 to May 12. This year’s on African potential rather than interest in international news cited a results were compared with those African problems. lack of background information as a from two years ago. Researchers — Andrew Young, former mayor reason for not following it. found that the percentage of those You can read the entire report on of Atlanta and U.N. representa¬ who follow international news veiy the Pew Research Center for the closely rose modestly from 14 to 21 tive, in an interview with People & the Press Web site percent, while the number of those allafrica.com, July 22, 2002. (http://people-press.org/reports/ following somewhat closely actually display. php3?ReportID=156). fell one percentage point, from 45 to — Eric Ridge, 44 percent. The aggregate of these year ago, when polls taken shortly Editorial Intern numbers constitutes a slight overall after Sept. 11 indicated that the increase in the number of those American public s interest in foreign The ICC Won't Go Away Americans who track international news would likely rise substantially The Bush administrations bold news. across a wider spectrum of society. “un-signing” of the Rome Statutes The survey attributed this small Americans are also quite selective for tire new International Criminal increase to growth within the when it comes to the breadth of Court in May, and the subsequent demographic groups that typically international news they choose to adoption by the U.N. Security follow foreign news: wealthy, highly follow. According to the study, 61 Council of a face-saving com¬ educated, older Americans. Those percent of Americans follow foreign promise giving American peace¬ who are less affluent, less educated news only when there are major keeping forces a one-year exemption or younger are not significantly developments. While 46 percent of from prosecution, have, at least more interested in foreign news Americans have closely followed the temporarily, buried the latest coverage than they have been in war on terrorism and 38 percent challenge to Americas definition of years past, according to the Pew have paid close attention to the sovereignty. study. events taking place in the Middle It is safe to say, though, that while These numbers came in stark East, the rise of far-right French the ICC may no longer be on the contrast to predictions made just a politician Jean-Marie Le Pen barely front page, and the U.S. is by no

12 FOREIGN SERVICE J OU RN Ah/SEPT EM B ER 2002 means the only major nation that has alike to stay up-to-date on the ICC and page (www.un.org/law/icc/index. refused to join the organization, the die issues it raises. Perhaps the most html) is limited, but authoritative. issues it raises will not go away. comprehensive and compact informa¬ Anodier U.N. news page (www.un.org/ Heralded by many as historic, the tion on the ICC can be found at die News/facts/iecfact/htm) contains an ICC’s development taps into the Web site of Human Rights Watch overview Q&A on the ICC. upsurge in human rights concerns in (www.hrw.org/campaigns/icc/), die More exhaustive documentation the wake of the Rwandan genocide largest U.S.-based human rights on die ICC can be found at the in Africa, the Balkans experience, organization, an NGO launched Web site of the Coalition for and the continuing violence and in 1978. The United Nations’ ICC Web an International Criminal Court destruction in the Middle East and elsewhere. Simultaneously, the pressure of globalizing trends in Site of the Month: www.smartreminders.com commerce and communications is The days when a bout with temporary amnesia was an excuse for forget¬ pushing the issue of world order — ting your best friends birthday or missing your business meeting are and all the attendant questions of over, all dianks to one very useful and free Web site. SrnartReminders multilateralism versus unilateralism, shows us how handy die Net can really be witii an easy-to-use site tiiat allows equity, democracy and sovereignty Web surfers to identify their interests, important dates, even favorite sports — insistently to the fore. teams and receive e-mail information and notifications accordingly. Part per¬ The Internet offers a range of sonal assistant, part personal news watcher, die value of SrnartReminders resources for die interested lay person stems from the fact that it has the potential to save the average Web surfer a and the embatded FSO in the field lot of time and trouble. Sorry, it can’t make photocopies like a living, breath¬ ing personal assistant, but it can save you much embarrassment by sending you an e-mail reminding you of all diose important dates tiiat are otherwise so easy to forget. 50 Years Birthdays and business meetings are just the beginning. The site has numerous other practical applications to help you efficiently manage your Ago finances, your vehicles and appliances, and more. For instance, The old Greek principle of SrnartReminders can send you a message reminding you that the time to change the batteries in your smoke detector is fast approaching, or that you moderation in all things is need to rotate the tires on your car or get a 75,000-mile servicing. The site doesn’t just send e-mails for important dates, either; messages can particularly needed these days. also be triggered by current events. For instance, you can be automatically notified of factory recalls concerning products you own — from kids’ toys to There is too much extremism, car mufflers. Users can sign up for an e-mail to be sent when one of die too much exaggeration and major U.S. stock market indices drops by 100 points in a day, or when severe weather is forecast for a specific region. The content of these messages is cus¬ sensationalism, too shrill and tomizable, so there is no need to sort through information that you don’t need. hysterical a note to life. The site’s scheduled daily and weekly e-mails are very useful too. For — George H. Butler, retired FSO, example, SrnartReminders can send you messages about current gasoline in his Letter to the Editor, FSJ, prices, college basketball odds, and even TV show ratings, among many other subjects. The best part is that the site is free; all you need to do is register, September 1952. and you can start receiving your personalized e-mails.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 13 PLEASE SEND US YOUR FINANCIAL QUESTIONS! □ Do you have basic finan¬ cial questions you would (www.iccnow.org), the coalition of way. The page also contains links to like to see answered by more titan 1,000 NGOs from around relevant documents pertaining to the experts who are knowl¬ the world that spearheaded establish¬ ICC. The Crimes of War Project was edgeable about the special ment of die international court. The formed in 1999 to raise public aware¬ needs of Foreign Service site contains information on all sup¬ ness of the laws of war and tiieir appli¬ personnel? porting NGOs, and a detailed cation to situations of conflict, with chronology of die history of die ICC die aim of clarifying diis seemingly / If YES, please send them initiative. The Coalitions monthly arcane subject and the developments to our Advertising & newsletter is posted, along with a cal¬ and debates around it, for a wider, Circulation Manager, endar of events concerning die court. nonspecialist audience. Ed Miltenberger, via e-mail Should you be interested, you may Finally, in the category of at [email protected]. sign up to receive e-mail notifications “resources galore,” note the Web He will then match your on day-to-day developments pertain¬ page of the University of Chicago’s questions to the appropriate ing to the ICC. library dedicated to the ICC experts. The resulting The U S.-based Crimes of War (www.lib.uchicago.edu/~llou/icc. Q&A columns will appear Project has a useful Web page on the html#internet). This page lists lit¬ periodically in AFSA News. ICC and the United States erally thousands of links to articles (www.crimesofwar.org/onnews/ and documents on the ICC. Many Please note that we cannot promise to answer all news-us-icc.html), which discusses of the links are broken, but that still questions in print, nor can we acknowledge receipt of those we do not use. the U.S. “unsigning” and its implica¬ leaves many hundreds of worthwhile tions in an informed and measured sources to explore. ■

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14 FOREIGN S E RVIC E ] O U RN Ah! S E FT E M B E R 2002 SPEAKING OUT Ending USAID Hispanic Employee Neglect

BY FRANCISCO ZAMORA

Secretary Colin Powell has right¬ one of the poorest performers in the ly earned high praise for doing One of the poorest federal government in terms of diver¬ more to promote equal oppor¬ sity, its record has actually deteriorat¬ tunity than any other secretaiy of performers in the ed over the past decade. In 1992, State in history. Early in his tenure, federal government there were 105 Hispanic employees he implemented bold initiatives to at USAID out of 3,346 total person¬ correct glaring employment imbal¬ in terms of nel: 3.14 percent. Ten years later, ances in an agency which, contrary to diversity,; USAID S there are only about 70 Hispanic stated U.S. government policy, still employees out of 2,100 or so staff, does not look like America. record has actually representing just 3 percent of the In particular, Hispanics already deteriorated over total workforce at USAID. (To keep account for 12.5 percent of the U.S. pace with the current makeup of the population and are poised to become the past decade. U.S. civilian labor force over the peri¬ the largest American minority. As od, there should instead be closer to drey naturally become more political¬ 250 Hispanic employees at the ly active, they are demanding better agency.) In fact, Hispanics are the representation in both public and pri¬ onlii underrepresented minority at vate institutions. Private enterprise, Foreign Service examination for USAID. President Bush and Secretary Powell States entry-level programs. More The agency’s outreach and recruit¬ all understand this phenomenon and importantly, the number of Hispanic ment resources are woefully inade¬ are responding to it, demonstrating personnel entering the Service has quate to correct this problem. There what can happen when upper man¬ also increased. is no full-time outreach recruiter at agement sets clear' public goals and True, there is still a long way to go. the agency of any land, let alone one provides the necessaiy resources to Secretary Powell himself has focusing on minorities. Recruitment reach them. declared it unacceptable that just is done part-time by one rotating Accordingly, Powells dynamic four percent of the employees at Foreign Service officer who works leadership at State has included an State are Hispanic, compared to six with a budget of barely $10,000 a unapologetic advocacy for increasing percent of the overall federal work¬ year, compared to seven full-time involvement of Hispanic-Americans force. And even that latter number recruiters at State whose budget was in the Foreign Service. Toward that means that Hispanics continue to be increased by $500,000 tliis year. At end, he has dramatically augmented the most underrepresented ethnic tliis level, USAID can only be repre¬ the recruitment budget and has even group within the federal government: sented at two or three major job fairs hired a full-time recruiter to target the Hispanic U.S. civilian labor force a year. What’s more, funds are prac¬ Hispanic applicants. Pie has also now stands at approximately 35 mil¬ tically nonexistent for promotional signed partnership agreements with lion — over 12 percent of tire total materials and advertising. Serious organizations such as the Hispanic population. But it is undeniable that recruitment efforts simply cannot be Association of Colleges and State is making progress. implemented at this low level of sup¬ Universities to identify more highly port. qualified Hispanic interns for the USAID Lags Behind Even so, USAID would only have State Department. Sadly, the trend is going the oppo¬ to increase its intake of Hispanic As a result of these efforts, record site way at the U.S. Agency for employees by 10 to 15 a year over numbers of Hispanics are taking the International Development. Already the next decade to achieve parity

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 15 SPEAKING 0 U T

with die private sector. That should Hisp cinics tions last year. And there are cur¬ be an easy target to meet given a rently just three Hispanic employees population base of 35 million U.S. are the only* in either the Senior Foreign Service Hispanics — were it not for underrepresented or Senior Executive Service at USAID’s institutional tendency to USAID, compared with nine in “blame the victim” for its own failure minority at USAID. 1991. to address diversity concerns. Consider the following excuses Fixing the Problem heard all too often around the The problem has been around for agency: enhancing assignments are infre¬ the last 25 years at USAID, regard¬ • “Hispanics are too family-ori¬ quently available to Hispanics and less of which administration was in ented and not interested in working no attempt is made to make use of power. Neither Republicans nor overseas.” their cultural qualifications. For Democrats have shown enough • “Hispanics with the right quali¬ example, currently there are no political will to change things — in fications can demand higher salaries Hispanic Foreign Service contract the very agency that spends millions from other employers and are not officers posted in any Latin of dollars a year overseas on democ¬ willing to work for USAID.” American country. racy and governance programs pro¬ • “There just aren’t enough qual¬ In 2001, no Hispanics were pro¬ moting full political participation of ified Hispanics.” moted into the Senior Foreign all sectors of society. Those Hispanics who do pursue Service. Nor were any chosen for In 1990, for example, the agency Foreign Service careers at USAID long-term training or assigned to contracted LCA & Associates, Inc. face obstacles at all levels. Career- Senior Management Group posi¬ to prepare a study focused on

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16 FOREIGN SERVICE ] OU RN AL/SEPTEM B ER 2002 SPEAKING OUT

“Achieving Workforce Diversity.” most of these steps were never candidates being interviewed for LCAs March 1991 report concluded implemented. openings with the agency; that USAID “has not demonstrated a The Hispanic Employee Council • Consider supporting other pro¬ willingness to make difficult deci¬ for Foreign Affairs Agencies at grams such as the Student Loan sions to insure the development and USAID has met on three separate Repayment program and paying implementation of policies” address¬ occasions during the past 10 months some relocation expenses; and ing affirmative action and equal with Administrator Andrew Natsios • Increase training opportunities employment opportunity. and two assistant administrators to for minorities at all levels and monitor The study contained a number of discuss these concerns. At our most selections to ensure diversity. excellent practical recommendations recent meeting with him, HECFAA These proposals are relatively mod¬ to address the problem, including made the following recommenda¬ est but would represent a concerted, increasing budgetary and staff tions: good-faith effort by management to resources for USAID recruitment • Announce support for diversity correct long-standing diversity prob¬ activities, as Secretary Powell has at USAID, encouraging senior man¬ lems at USAID. In fact, some of these now done successfully at State. agers to improve representation of all recommendations would be beneficial Other proposals addressed reten¬ underrepresented groups but empha¬ to non-minorities, as well. HECFAA tion, career advancement and train¬ size Hispanic levels in particular; also pointed out that Presidential ing. The report also recommended a • Hire a full-time, professional Executive Order 13171, signed on more assertive role for the EEO Civil Service outreach recruiter and Oct. 16, 2000, mandates all federal Office at USAID, noting that it “suf¬ increase the outreach and advertising agencies to establish and maintain a fers from both a lack of visibility and budget; program for the recruitment and a lack of credibility.” Regrettably, • Budget funds to cover costs of career development of Hispanics.

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 17 S P E A A / TV C 0 U T

As of this wilting, Natsios and his issues in the scope of the major reor¬ between USAID and State has never staff still have not responded formal¬ ganization currently being imple¬ been clearly defined. In fact, USAID ly to our concerns. Our attempts to mented by the Business Trans¬ was never meant to be a permanent follow up have elicited the same formation Executive Committee. agency and so its degree of indepen¬ excuse that dieir predecessors cited: a (The BTEC is overhauling and mod¬ dence has varied under different low operating-expenses budget. Yet ernizing the entire portfolio of sys¬ administrations. But it has always the amount of funding needed to tems supporting USAID’s procure¬ been clear that the head of USAID make a real difference in promoting ment, human resources, information reports to die secretaiy of State and diversity, around $150,000, would technology, financial and administra¬ that die two leaders’ policies should constitute only a miniscule percent¬ tive management functions.) Thus, be in sync. age of the agency’s total operating the lack of action is more a matter of Yet the two agencies’ personnel expense budget of $560 million in management will than wallet. structures seem to refiect opposed Fiscal Year 2002. visions of how America should pre¬ If increasing Hispanic employ¬ The Powell Model sent itself to die rest of the world. ment were a true agency priority, The dme has come for the mea¬ State appears genuinely committed USAID could find the money. After sures State has instituted to promote to promoting diversity and proactive all, it seems to have no trouble fund¬ diversity to be adopted at USAID, in solving its problems. USAID, ing multimillion-dollar initiatives of where Hispanics continue to be however, beyond a few token efforts, highly questionable utility, such as neglected in employment, promo¬ still does not include Hispanic- die New Management System cost¬ tions, career development and assign¬ Americans in significant roles in for¬ ing more than $100 million. And ments. eign affairs. USAID could easily include diversity It is true that the relationship Secretary Powell should be proud of his initiative to create a more diverse Foreign Service. But as de facto leader of both State and YEAR-END ROUNDUP OF USAID, he should ensure that the same policies are implemented at FOREIGN SERVICE AUTHORS both agencies. Hopefully, now that die problem has been identified, the As we have done the past two years, the December same innovative efforts will be 2002 Foreign Service Journal will include a list of aggressively implemented at recently published books by FS authors in an special USAID. Only then can the two major U.S. foreign affairs agencies section: “In Their Own Write.” FS authors who have be truly representative organizations had a book published either by a commercial or acad¬ embodying the rich diversity' of the emic publisher in the past two years (2001-2002) that American people. ■ has not previously been featured in the roundup, Francisco Zamora has been a health should send a copy of the book, along with a press development officer with the U.S. release or backgrounder with information on the Agency for International Develop¬ author, to: ment since 1980, when he joined the Susan Maitra agency as an international develop¬ Associate Editor ment intern. As an FSO, he has served in Mali, Liberia, Honduras Foreign Service Journal and Egypt, and is currently an 2101 E Street, N.W. assignment and performance coun¬ Washington, D.C. 20037-2990 selor in USAID’s Office of Human Resources. Mr. Zamora is also the president of the Hispanic Employees Deadline for submissions is Oct. 1. Council for Foreign Affairs Agencies (HECFAA) at USAID.

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 19 Focus ON USAID

ANDREW NATSIOS: GETTING USAID ON ITS FEET

ADMINISTRATOR ANDREW S. NATSIOS IS REBUILDING USAID FROM THE DARK DAYS WHEN ABSORPTION INTO STATE WAS LIKELY. BUT THERE IS STILL MUCH TO BE DONE.

BY BEN BARBER

ndrew S. Natsios, the head of the U.S. Agency for International Development, went to the Heritage Foundation on Capitol Hill in May to defend his foreign aid program, he walked into the proverbial lions den. Arrayed on tables in the entryway were a half-dozen treatises by Heritage scholars basically saying that Natsios’task was mission impossible. Foreign aid doesn’t work. Trade, not aid, works. U.S. tax dollars are going down a rathole. Corrupt foreign elites grow fat off American aid. Natsios, a conservative former Massachusetts legislator brought to Washington during the first Bush administration,

20 FOREIGN SERVICE J O U RN A L/S E PTE M B E R 2002 Focus

is mild-mannered in public, so it One of Natsios’ biggest Mexico Conference on Financing was never quite clear how he felt for Development, which some confronting so many critics. But fans is the man who observers call the biggest shock to what was immediately clear was the world of foreign assistance in a that he was willing and ready to sat in his chair before him, decade. The president pledged to defend his agency’s $8.5 billion increase U.S. foreign aid from $10 budget against charges that for¬ J. Brian Atwood. billion to $15 billion a year over the eign aid has frequently failed to next three budget years, but said improve living standards. this “smart” assistance will be tar¬ He began by reminding critics of the great success geted to governments that provide good governance, rule since 1960 of U.S. foreign assistance in East Asia, which of law, sanctity of contracts and free markets. Recipient helped develop impoverished Korea, Thailand and nations must also make their own contributions to Malaysia into Asian tigers. “Private domestic investment improved health and education as well as develop eco¬ and rapidly growing human capital were the principal nomic, currency, trade and investment policies that engines of growth,” he said. Nor can foreign aid reduce encourage private foreign and domestic investment in poverty without “sound macroeconomic management,” sectors vital for growth such as education and infrastruc¬ he noted, citing a key ingredient of the Bush administra¬ ture. tion s view of foreign aid. For countries that meet those standards, Bush and Admitting that USAID had made mistakes in the past, other donor nations pledged in the draff Monterrey Natsios then stole the thunder of his critics by citing Consensus document to “commit ourselves to mobilizing economist William Easterly, the dean of USAID critics, domestic resources, attracting international flows, pro¬ to signify his willingness to reform the agency. Quoting moting international trade as an engine for development, from Easterly’s recent book, The Elusive Quest for sustainable debt financing and external debt relief, and Growth (MIT Press, 2001), Natsios said: “Broad and enhancing the coherence and consistency of the interna¬ deep development happens when a government that is tional monetary, financial and trading systems.” held accountable for its actions energetically takes up the Third World governments lacking such policies would task of investing in collective goods like health, education, be lured into adopting them by the promise of the cash and the rule of law.” and technical assistance to set up the required institu¬ This is another key conservative concept in foreign aid tions. In part, some believe, the Bush administration that has been widely adopted by many foreign aid experts acted out of concern after Sept. 11 that isolated swamps around the globe. Even Natsios’ predecessor at USAID of poverty and discontent in the developing world could under Bill Clinton, J. Brian Atwood, adopted this concept provide a ready ideological justification for terrorists as and shut down USAID programs in corrupt or poorly well as a pool of recruits. managed developing countries and ended aid to coun¬ Thus, despite having run on a conservative platform tries such as Thailand which had “graduated” from decidedly hostile to foreign aid, Bush and his appointee, depending on foreign handouts. Atwood also paved the Natsios, now argue that foreign aid is a vital ingredient in way for Natsios’ reforms by insisting on “sustainable U.S. foreign policy. The justification may be terrorism, development,” which means that aid projects should ulti¬ humanitarian crises, environmental challenges, world sta¬ mately generate more income than they consume — bility or all of the above. But regardless, the Bush admin¬ including consumption of environmental resources. istration is now as firmly entrenched in the quest for Having placed himself on the side of the angels by cit¬ effective foreign aid as any of its predecessors dating back ing Easterly, Natsios then waved before his critics the to Harry Truman. “Millennium Challenge Account” announced by President Bush two months earlier at the Monterrey, A New Marshall Plan? In an interview in his office at the Ronald Reagan Ben Barber is the State Department co rrespondent for building recently, Natsios recalled how the Marshall the Washington Times. Plan had influenced his own thinking about the world.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 21 Focus

“As a kid I was in Greece to see my grandfather when ism is indirect, complicated and probably weak. per capita income was $200,” he said. The devastation of Terrorism is not a response to economic conditions. It’s World War II and the threats of communist insurgencies a violent political act,” he said. or political movements in Greece and other European USAID Assistant Administrator for Policy and countries had paralyzed the economy of the region. The Program Coordination Patrick Cronin agreed that evi¬ Marshall Plan’s massive infusion of income-generating dence shows “no compelling direct fink between pover¬ projects and materials turned firings around. In later vis¬ ty and terrorism,” though USAID programs are at least its Natsios saw his grandfathers village blossom and partially aimed at having an impact on the justification of income shot up to $10,000 per capita. terrorism and recruitment. Some foreign aid analysts hope that similar income¬ Krueger said that foreign aid can reduce terrorism generating assistance — they frequently call for “a new through “changing the content of education.” One goal Marshall Plan” for sub-Saharan Africa, Central Asia or would be to divert students away from the intolerant ide¬ other poverty zones — can drain support for anti- ology taught at some Islamic schools (madrassas), where American terrorism, much as the Marshall Plan drained the Taliban were trained and thousands of students are away support for communism in Western Europe. This still being taught to hate America. is an approach Natsios was clearly comfortable with, hav¬ “The message of Monterrey is you need to focus on ing witnessed up close the humanitarian horror of cor¬ what works — not just the amount of money,” Natsios rupt and indifferent rulers as head of the Office of added. “When people stand up to corruption we have to Foreign Disaster Assistance under the first President stand alongside them. [But] without local leadership, it Bush and dien as vice president of World Vision, a major won’t happen.” non-governmental organization delivering assistance Natsios also backed the often painful policies in which around the world. donor countries and banks urge poor nations to cut sub¬ “If diere are venal and predatory governments, for¬ sidies for food, schools and health in order to balance eign aid can keep people alive but die countiy won’t their budgets — tire highly unpopular “structural adjust¬ develop,” said Natsios in a March interview in his office. ment policies” that have set off riots in many nations in He said it is legitimate to ask why foreign aid investments recent decades. “If you don’t have macroeconomic sta¬ sometimes fail and sometimes work. bility,” he said, “if you have rampant inflation, an econo¬ “In Mali, Uganda, Ghana, Mozambique, El Salvador my can’t grow. 11 you don’t have convertible currency and Jordan — where there’s a reform process going on, you can’t trade. You have to balance your budget. We where there is a political will” — aid has worked, he said. help countries balance their budgets.” Natsios says the agency has learned from its success¬ es and mistakes. ‘We know what works. You need polit¬ The Atwood Years ical will and competent policy reform. Investing in If there is one major ideological difference between health and education works — we learned that from tire Natsios air cl Atwood administrations — and it may be Asia. And partnerships help — Unking ODA [Overseas due to the new post-Sept. 11 emphasis on counterter¬ Development Assistance from all donor nations], private rorism — it is that Atwood’s zeal to promote democracy sector investment and die $30 billion a year [in remit¬ is now somewhat on the back burner at USAID. tances] diasporas in America send back home each year.” Stability in tire face of terrorism is valued more highly at USAID these days than the Atwood-era faith in giving Fighting Terrorism the poorest and least educated people in the world con¬ Would that lessons learned in one battle could be so trol over the levers of power, in tire belief that approach easily applied to others. will bring about either improved living conditions or Unfortunately, at a June symposium at USAID, greater world security. Princeton economist Alan Krueger and others on the This shift also reflects the influence of the two admin¬ panel dashed hopes that the agency might easily play a istrators’ respective secretaries of State. Warren large role in the all-consuming fight against terrorism. Christopher and Madeleine Albright both espoused a “Any connection between education, poverty and terror¬ deep belief that democracy was dre elixir capable of tanr-

22 FOREIGN SERVICE ]OVRNAh/SEPTEMBER 2002 Focus

ing man’s savage instincts. Colin Natsios believes that his keep pace with attrition. But the Powell, although more liberal than staffer warns that USAID still faces his counterparts in the Bush national agency has afar clearer a personnel crisis: the people who security team, appears more skepti¬ know how to run the system are cal about the benefits of pushing mandate to work since about to retire and there are few rapidly for democracy, especially in rising stars in their 30s and 40s to countries with neither education nor the Sept. 11 attacks. replace them. traditions that support it. The damage from the massive In addition, while Clinton was budget cuts and firings was deep¬ sympathetic to Atwoods goals, neither he, Christopher ened by the waste of $100 million on various initiatives, nor Albright appeared willing to stand up to congression¬ chief among them a badly executed attempt to leapfrog al critics of foreign aid when it really counted. As a result, technologically from 1960s-era Wang computers to a Atwoods attempts to reform USAID were largely state-of-the-art system. stymied, though he did manage to defeat a campaign by Senate Foreign Relations Committee Chairman Jesse Tackling the Problems Helms, R-N.C., to merge USAID into State. Before becoming USAID administrator, Natsios had It is no surprise, then, that Natsios says that he inher¬ already spent more than a decade struggling with ever- ited an agency badly in need of reform and repair. larger bureaucracies — among them, stints as director “Problems with USAID include personnel, the financial of USAID’s own Office of Foreign Disaster Assistance management system, computers, the procurement sys¬ and assistant administrator of its Bureau of Food and tem and the system of grants and contracts,” Natsios said. Humanitarian Assistance (now the Bureau of ‘These affect everyone. Congress wants information [on Democracy, Conflict and Humanitarian Assistance) USAID programs], the NGOs want quick action [on pro¬ during the first Bush administration; vice president of posals] and we can’t do it.” World Vision U.S.; and, in 2000, back in Boston as a Of course, since most administrations accuse those trouble-shooting director called in to straighten out the that went before them of leaving a house badly in need of mammoth, over-budget “Big Dig” project that buried a repair and reform, it’s hard to know whom to blame. But major highway under downtown Boston. So he a Republican House staff aide with long experience over¬ plunged into his new role with purposeful energy. seeing the foreign assistance budget confirms diat He is primarily focusing on the management sys¬ USAID suffered a huge loss of brainpower during the tems in five areas: procurement, personnel, financial Atwood years. Not only was total foreign aid funding cut management, computer services and administrative throughout the mid- to late 1990s, but about half of what services. He’s begun to introduce electronic systems to remained was earmarked for Israel and Egypt to support replace paper in hiring and other areas. He says he’s the 1979 Camp David peace accord. Other aid was ear¬ replacing an 18-year-old system of writing contracts marked for child survival programs, leaving very little with a new automated system and will bring a new money for the kind of nuts-and-bolts development work financial management system to the field next year. that planners feel is needed to build productive The 2,200 Foreign and Civil Service officers he economies. manages, as well as the 4,000 Foreign Service National Those cuts also forced Atwood to order major reduc¬ employees, are about 40 to 45 percent below levels of tions in force. In 1990, there were 3,262 USAID direct- the 1990s due to the RIFs. So Natsios says he wants to hire employees; in 2000, there were only 1,947. get more out of the staff by getting more of them out in Recruitment of younger staff was also curtailed as work the field — where they also will learn more about how was farmed out to contractors instead of being handled foreign aid works in the political, economic and social in-house. This left a vast gap in the ranks of mid-level climate of the current decade. And he is committed to experts today. increasing Foreign Service staffing overseas: in 2003, The situation finally stabilized in 2001, when for the for the first time in over five years, there will be 700 FS first time in years the agency was permitted to try to slots at USAID’s missions worldwide.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 23 Focus

He is also responding to critics who say USAID con¬ While he believes Natsios’ reforms are “generally sen¬ tracts go mainly to former officials who set up large sible,” he was at first concerned that democratization firms with the know-how to write proposals and con¬ programs were being channeled into a back burner role tracts within the agency. “Small business can’t break inside the bureau for crisis management and post-con¬ into USAID so now one criterion is how much of a flict issues. But Atwood acknowledges that Natsios has budget is in subcontracts — the more the better — to taken steps to see that democratization programs are stop the perception of an old boy network” dominating central to sustainable development.” the USAID system, he said. Atwood also notes diat one of Natsios’ strongest One of Natsios’ biggest fans is the man who sat in his assets is his longtime relationship with a fellow chair before him. “Ive followed him closely and speak Massachusetts ex-legislator, White House Chief of often to Andrew—I hold him in the highest regard,” said Staff Andy Card, who was the best man at Natsios’ Atwood in an interview from his new office as dean of the wedding. Humphrey Institute for Public Affairs at the University of Thus, any plans to turn USAID into a grant-making Minnesota in Minneapolis. “He’s leading USAID into a foundation or a subsidiary of State, as once proposed by new era, especially with respect to resources.” Sen. Helms, have now been shelved. Atwood admits he’s jealous drat Natsios now has For his part, the man who controls the USAID bud¬ increasing supplies of cash. He predicts USAID will like¬ get — Rep. Jim Kolbe, R-Ariz., chairman of the House ly get a lion’s share of the $5 billion Millennium Appropriations Subcommittee on Foreign Operations Challenge Account because “it’s die agency with the abil¬ — agrees Natsios “is doing a good job.” ity to deliver on the ground.” “Natsios inherited a difficult [agency] that historically

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24 FOREIGN SERVICE ] O U RN AL/S E PT EM B E R 2002 Focus

lacked management and he’s been good to his word,” Account and listened to visionary Latin American econo¬ said Kolbe in an interview. “He has begun the process mist Hernando DeSoto discuss one of the most revolu¬ of cleaning up management and putting systems in place. tionary development ideas — the idea of helping peas¬ I would not give him an ‘A+’ but in terms of effort diere ants use their land as capital to borrow money to pay for has been an ‘A.’” investments such as farm machinery, irrigation, fertilizer, Due to this effort, Kolbe was optimistic that the $5 bil¬ transport and die like. Because most peasants lack legal lion foreign assistance increase President Bush pledged documents giving them tide to their land, banks won’t at Monterrey will be approved. “I drink diere will be make loans. DeSoto proposes that USAID and other support in the House,” he said. “What’s new is he is development agencies help set up local banking systems focused on results. He’s making sure aid goes to coun¬ geared to unlock trillions of dollars in wealth already in tries where it will make a difference economically. We the hands of the poor but unusable as collateral assets at put billions into Africa and the per capita income there is present. lower than it was 25 years ago. You’ve got to go where The DeSoto plan is an idea similar in many ways to the institutions can accommodate the aid.” innovative microcredit systems developed by While Kolbe said Natsios “is tackling die problems” at Bangladesh’s Grameen Bank and the Bangladesh Rural USAID, the Republican legislator said he’d like to see a Advancement Committee 20 years ago. It’s one of the new personnel system in place and a change in the con¬ visionary approaches to development some at USAID tracting system. But management changes are not all and other agencies think can make a difference in coun¬ drat Kolbe would like to see USAID consider. The day tries from the Congo to Guatemala, where poverty, illit¬ he was interviewed, Kolbe said the House subcommittee eracy and disease fueled by social, tribal and other rival¬ held its first hearing on die Millennium Challenge ries, keep billions of people from achieving the minimal

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 25 Focus

living standards that are seen Despite having run on a reports that Natsios is fighting a today as a natural human turf war with State and other birthright. conservative platform agencies to control foreign assis¬ tance. It may be that Natsios, Relations with State decidedly hostile to foreign Powell, Defense Secretary Natsios has worked hard to Donald Rumsfeld, National improve relations between aid, President Bush now Security Advisor Condoleezza USAID and State. In the past, Rice and other Bush administra¬ the relationship between the two argues that foreign aid is a tion foreign policy heavies like to sister agencies was frequently wrestle. Each offers their view tense. When the USAID mission vital ingredient in and argues it. But when the die is in a country such as Egypt or cast — by Bush — all fall into line Thailand once gave out billions in U.S. foreign policy. like the good soldiers they appear aid, and housed hundreds of U.S. to be. Even within the State experts — a far larger staff than Departments corridors, Deputy the local U.S. embassy — a certain rivalry for power Secretary of State Richard Armitage and Natsios both tended to develop. In addition, in some countries, the find themselves considerably more conservative than USAID mission of development was not necessarily tire Powell. But this does not prevent Powell and Armitage primary mission of the State Department. from being “best friends,” says Natsios, who has now But Natsios has put to rest any suspicion that he has developed a habit of frequent phone conversations with an agenda independent of Secretary of State Colin L. Armitage. Powell. On Powells trip to Africa last year, Natsios was along and was given a chance to come back in the plane Looking Ahead and talk to reporters — a gesture of trust between the Natsios agrees with the critical analysts of foreign two men that symbolizes the nature of their relationship. assistance who say trade is capable of greater growth than Natsios made clear that there is one foreign policy chief aid. He cites tire example of Uganda, which is exporting in the administration, Powell. And Natsios is part of tire $9 million a year in flowers and selling vanilla to Europe small core of close advisors who meet every day with with tire help of USAID expertise and assistance. Powell at 8:30 a.m. to set a common approach to issues However, Natsios disagrees with critics who say the Bush and problems. farm bill, with its billions in subsidies for American farm¬ Natsios was in awe of Powell, tire legendary son of ers, is undercutting Third World efforts to increase agri¬ Jamaican immigrants who rose from his Bronx neighbor¬ cultural production. These critics say that when U.S. and hood, through City College of New York, to command European subsidized wheat, com and rice hit world mar¬ the U.S. Army in the Gulf Wax- and serve as Chairman of kets, it drives down prices below the break-even point for the Joint Chiefs of Staff in tire first Bush administration Third World farmers. Natsios counters by saying “our before becoming the first black secretary of State last experts think its exaggerated — we help subsistence year. But he quickly learned how to work with Powell, farmers,” who neither buy cheap U.S. grains nor sell to whose leadership style resembles that of President Bush. their own domestic or export markets. Cotton was the Both men expect dreir subordinates to bring with them only crop he said might be depressed by U.S. farm sup¬ not just the issues, not just tire problems — but the solu¬ ports. tions to those problems. “He wants you to say what you Natsios also dismisses as unfounded fears expressed want to do,” recalled Natsios. “Now I know if I bring a by diplomats that the Bush plan to convert some World problem, he wants a set of options.” Bank loans into grants might undermine the internation¬ “Powell is a very secure person — he let me speak on al financial institutions which have huge amounts of cash the Africa trip. Its disarming to work for someone like to support development work because they see that loans tirat who does not wony about ego questions. There is no are repaid. rivalry at the senior level.” This is a far ciy from recent Above all, Natsios believes that since Sept. 11 his

26 FOREIGN SERVICE J OV RN AL/SEPT EM B ER 2002 Focus

agency has a far clearer mandate to “If there are venal and formance, not mere promises, to work. He says tire Bush administra¬ determine which countries would tions foreign policy has three legs — predatory governments, qualify for assistance under the new defense, diplomacy and development Millennium Challenge Account,” with its humanitarian component. foreign aid can keep said Natsios at dre Heritage Even before the attacks, the U.S. Foundation last May. The 50 per¬ government was tire biggest donor people alive but the cent increase in U.S. foreign aid fighting famine in Taliban-ruled failed to satisfy critics calling for the Afghanistan as well as North Korea country won’t develop."’ United States to meet a donor level •— two countries seen as enemies of of 0.7 percent of gross domestic — Andrew Natsios tire United States. product, set at previous U.N. devel¬ Natsios and other USAID experts opment conferences. But it was a hope to find a way to push invest¬ recognition that even witir the Cold ment in social sectors, good governance and economic War over and the global economy inserting far more cash freedom to build good will, prevent the despair that into die Third World dian the roughly $50 billion a year breeds anti-Americanism and defend American interests in total overseas development assistance given by all through the apparently altruistic system known as foreign donors, the Bush administration thinks foreign aid is 50 assistance — a system for development that is itself hr the percent more important than it was in the recent past. midst of development. If Natsios has had a part in bringing the Bush “President Bush, in Iris March 14 speech, set a new administration to this point in the road, he can call tiiat direction for development assistance by insisting on per¬ a success. ■

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 27 Focus ON USAID

AMERICA’S DEVELOPMENT CHALLENGE

PRESIDENT BUSH’S NEW COMPACT FOR DEVELOPMENT IS THE FIRST MAJOR NEW FOREIGN ASSISTANCE INITIATIVE IN OVER 40 YEARS. USAID ADMINISTRATOR ANDREW NATSIOS EXPLAINS IT.

BY ANDREW S. NATSIOS

n June 5,1947, Secretary of State George C. Marshall gave a speech at Harvard College that set the nations of Western Europe on the road to economic recovery and political integration. In the process, the United States abandoned the isolationism that had been our peacetime policy since independence and embarked upon die padi of international engagement we have maintained ever since. In his remarks, Marshall cited the “hunger, poverty, desperation and chaos” drat threatened the nations of post¬ war Europe, and called on the people of the United States to “face up to the vast responsibility that history has

28 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 Focus

clearly placed upon our country.” Like the Marshall Plan, Development, unveiled in “The truth of the matter is that Washington, D.C. and Monterrey, Europe’s requirements for the next the Millennium Challenge Mexico, this past March. three or four years ... are so much Only three times since World greater than her present ability to Account is an incentive- War II has a president gone to the pay that she must have substantial American people and introduced a additional help or face economic, based approach to new foreign assistance program. social, and political deterioration of Each has been issued in times of a very grave character,” he said. foreign assistance. peril, and each time the president Thus began the Marshall Plan, explained his reasons in terms of the most successful foreign assis¬ compassion and national security. tance program in history. While most Americans are The first was in March 1947, three months before familiar with the aid that we furnished, and the remark¬ Marshall’s historic speech, when President Harry S able use Europe made of it, the demands we placed on Truman warned of the grave threats facing Greece and the Europeans before they could get it are often over¬ Turkey. The second was at the height of the Cold War, looked. But Marshall was specific about them from tire when President John F. Kennedy launched the Alliance beginning: for Progress in March 1961. Soon he would follow this “There must be some agreement among the coun¬ initiative by creating the U.S. Agency for International tries of Europe as to the requirements of the situation Development. The third such time was this past March and the part the countries themselves will take,” he stat¬ 14, when President Bush announced as a key compo¬ ed clearly. “It would be neither fitting nor efficacious nent of his new development compact, the Millennium for this government to undertake to draw up unilateral¬ Challenge Account (MCA). ly a program designed to place Europe on its feet eco¬ Why, after years of relatively flat budgets, would the nomically. ... The initiative, I think, must come from president propose a new account, one that will amount Europe.” Thus, Marshall determined that obtaining to five billion dollars a year by Fiscal Year 2006? There European ownership was a critical component of its are several reasons: own development. First, our country maintains a long tradition of fight¬ From the very beginning, then, the Marshall Plan ing poverty and helping those in need. “As a nation was a bargain, an agreement between the United States founded on the dignity and value of every life, America’s and the Europeans about the economic and political heart breaks because of the suffering and senseless reforms they needed to make before they could get our death we see in our world,” President Bush said. assistance. Given their history, coordinating their own Poverty casts “a dark shadow across a world that is reconstruction efforts proved difficult for the increasingly illuminated by opportunity. Half the Europeans. But soon the benefits — to Europe and the world’s people still live on less than $2 a day. For bil¬ United States — became abundantly clear to everyone. lions, especially in Africa and the Islamic world, pover¬ There is no question that the prosperous, stable, demo¬ ty is spreading and per capita income is falling.” cratic Europe we take for granted today owes much to Second is the relationship between poverty and the process the Marshall Plan began. national security, a relationship that the events of Sept. 11 have underscored and one that has been duly noted The New Compact for Development by the president. “In Afghanistan,” he stated, “persis¬ Today, the United States is once again launching a tent poverty and war and chaos created conditions that major new foreign assistance initiative, one whose sig¬ allowed a terrorist regime to seize power. And in many nificance may one day rival that of the Marshall Plan. I other states around the world, poverty prevents govern¬ refer to President Bush’s New Compact for ments from controlling their borders, policing their ter¬ ritory, and enforcing their laws.” Andrew Natsios is the administrator of the U.S. The third reason is that our foreign assistance has not Agency for International Development. produced the results we would like. Indeed, we are not

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 29 Focus

alone as our fellow donor nations and the multilateral The Millennium Challenge Account development banks we support have also failed to pro¬ The heart of this new approach is an emphasis on duce enough measurable successes for the resources holding governments accountable for the policies they we’ve expended in the developing world. There is no pursue. Like the Marshall Plan, the MCA begins with substitute for good governance and holding developing a bargain. As the president put it, countries that wish nations accountable for their own development success. to take advantage of our generosity need to “adopt the Thus, a new commitment with a new approach was reforms and policies that make development effective required. and lasting.” In short, it is an incentive-based approach. Reforming USAID Over the last 40 years at USAID we have learned Improving that record is my single highest priority that there are three essential building blocks to success¬ as USAID administrator and it remains a top commit¬ ful development and they are the foundation of the new ment of Secretary Powell as well. To achieve this MCA. The funds in the Millennium Challenge Account objective we began by reforming USAID from the top wall be distributed to developing countries that demon¬ down: strate a strong commitment toward: • We have implemented a new management struc¬ • Good governance. President Bush has stated ture with both a functional and geographic matrix. that “good government is the essential condition of • We created four new pillar bureaus, giving our development. Rooting out corruption, upholding programs a tighter focus with both performance mea¬ human rights, and adherence to the rule of law are surement and management-for-results as key compo¬ essential conditions for successful development. nents of our new approach. • Investing in their people through health care • We have formed a new “Business Transformation and education. Healthy and educated citizens are the Committee” composed of senior USAID managers and agents of development, so we will reward nations that newly-arrived appointees to identify better ways of invest in better health care, better schools and broader doing our development business and implementing immunization. Indeed, developing nations need to those changes quickly and effectively throughout the build the capacities for sustainable development. organization. • Sound economic policies that foster sustained • We are strongly promoting trade and economic economic growth through enterprise and entrepreneur- growth as the real engines of development and giving ship. More open markets, sustainable budget policies, new emphasis to agriculture; after all, three-fourths of environmental stewardship and strong support for indi¬ the people in the developing world live in rural areas. vidual entrepreneurship all unleash the enterprise and • USAID is also now spending more money in the creativity for lasting growth and prosperity. field, where it matters, and less in Washington. Let me add here that while the general outlines of • We are building new alliances with a host of pri¬ the MCA are quite clear, discussions are still under way vate sector partners, pooling our experience with their about the criteria that will be used to determine which energy, ideas and financial resources. Indeed, there is countries will be eligible for MCA funding. no copyright on good development and in many cases private voluntary organizations, non-governmental Why Countries Fail to Develop organizations and the private sector can do a better job. When I was obtaining my master’s degree at • We are designing programs that offer incentives Harvard’s Kennedy School, there were two basic and demand new levels of accountability from the schools of thought about public administration. The developing countries with whom we work. first — the quantitative analysis school — relied heavi¬ Still, more needs to be done. As the president ly on mathematical models and economic analysis to observed, “many of the old models of economic devel¬ decide the proper public policy decision in a given cir¬ opment assistance are outdated. ... The needs of the cumstance. While this approach was interesting, people developing world demand a new approach.” At USAID could seldom use it. After finishing school, they would we are heeding that call. return to the government agencies or ministries where

30 FOREIGN SERVICE J OURN AL/SEPTEMBER 2002 Focus

they worked and immediately be There is no substitute for Still, there are predatory gov¬ confronted with the same politi¬ ernments that put little stock in cal realities that were there when good governance and holding the well-being of their people. they left. Public policy in the real Not surprisingly, they have little world is not decided through developing nations to show for the foreign assistance mathematical formulas: politics they have received. The fact is always intervenes. accountable for their own that until they change, there is The second school of thought little we can do to help them, relied on political or “stakehold¬ development success. except through our emergency er” analysis. This looks at a given or humanitarian programs. question from the point of view of the people who have a vested interest in the out¬ The Foreign Service Component come. As someone who has spent much of his adult life There are those in the development community and in government at the state, national and international Congress who believe that all that is needed for devel¬ level, I find it hard to believe that anyone still dismiss¬ opment to be successful is to throw money at it. This is es this approach. Without understanding whose inter¬ nonsense. It defies history and it defies the lessons we ests are at stake and how these interests are brought to have learned about the way countries grow and develop. bear on the people who make decisions, one simply It ignores the uses to which development money is put cannot understand why countries make the choices and the negative effects of corruption, incompetence that they do. and ill-conceived policy choices. And it begs the entire There are reasons why many developing countries question of accountability, performance assessment and have failed to raise the living standards of their citizens sound management. despite receiving millions of dollars in outside assis¬ President Bushs New Compact for Development tance. Invariably, there are vested interests, economic will take money, but official development assistance is and political oligarchies that exploit the economic and hardly the only source for it. As the president stated political weakness of the state and profit from peoples when he announced the Millennium Challenge lack of political power and human rights. In short, there Account, “most funds for development do not come is no sustainable constituency for reform. from international aid. They come from domestic cap¬ The solution is to identify reformers, agents of ital, from foreign investment, and especially from trade. change whom we can support so that they can compete ... Trade is the engine of development, and by promot¬ with these vested interests for die good of their people. ing it, we will help meet the needs of the worlds poor.” At the same time, we are looking to create competition The MCA is one of the most exciting new develop¬ among countries for our development dollars. The new ments in tiie field of foreign assistance in many years. It resources the MCA will make available — five billion promises a 50-percent increase in the resources this dollars a year — will be a powerful incentive to encour¬ country will devote to fighting poverty, disease and weak age them. During this process, we will work closely or corrupt governance. And most importantly, it with Congress to build a sustainable model of success¬ promises a more effective approach, one that empha¬ ful development. sizes accountability and sound policy. We expect that only a relatively small number of USAID has long benefited from the expertise, the countries will be selected for MCA funding at the ideas and the diligence of tire Foreign Service commu¬ beginning, so those that do can expect a substantial nity and we look forward to continuing our collabora¬ reward. In the meantime, we are refashioning our tion as the details of the MCA become more clear. But mandate in USAID for non-MCA countries, to focus already we know that the opportunity to effect real, sub¬ on helping these nations qualify for MCA at some stantive change in the developing world has never been point in the future. In fact, MCA is quickly becoming brighter. With development, defense and diplomacy as a way for us to reform how we provide development key components of our national security strategy, we assistance. will make those opportunities a reality. ■

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 31 Focus ON USAID

FOREIGN AID: HELP OR HINDRANCE?

FOREIGN AID HAS FAILED, DESPITE THE BEST EFFORTS OF MANY DEDICATED PROFESSIONALS AT

USAID, THE STATE DEPARTMENT AND ELSEWHERE.

BY DOUG BANDOW

here may be no more pitiful sight than tides of impoverished and starving refugees; there may be no greater irony than grievous want in the Third World amidst exploding possibilities in the First World. Nearly a quar¬ ter of the worlds population lives on less dian $1 a day. More than half survive on less than §2 a day. These images and numbers are used by supporters of foreign aid to shake money out of tight-fisted politicians and keep the U.S. Agency for International Development afloat. Of course, the term “foreign aid” encompasses a host of programs with different goals. Ever since the Cold War,

32 FOREIGN SERVICE J O V RN Ah! S E PT E M B E R 2002 Focus

much U.S. assistance has primarily The case for skepticism been an expensive wasteland, been political and military, dedi¬ strewn with spectacular failures. cated to buying and subsidizing about foreign aid is just For instance, Zaire received some friends; the large annual flows to $8.5 billion from a multitude of Egypt and Israel have nothing to as strong now as it was sources between 1970 and 1994, do with economic development, but imploded six years ago. (So for instance. Whatever the theo¬ last Sept. 10. bad was this experience that even retical arguments for these sorts of former USAID Administrator J. transfers in the past, it is hard to Brian Atwood has acknowledged justify them today, other than, perhaps, to buttress fragile that “The investment of over $2 billion of American for¬ regimes threatened by fundamentalist Islamists, such as eign aid [in Zaire] served no purpose.”) Yet in 1996 U.N. Pakistan. And Washington continues to pay a potentially Ambassador Bill Richardson made a pilgrimage to the high price by allying itself with such morally repugnant newly minted Democratic Republic of the Congo, regimes. promising to provide $50 million in aid to the new dicta¬ Or take humanitarian assistance. Hard to criticize in tor, Laurent Kabila, despite his authoritarian tendencies theory, in practice long-term aid programs can create sig¬ and the atrocities committed by his military. nificant problems. For instance, Food for Peace ship¬ In fact, virtually every nation in crisis, from Somalia to ments are more efficient at dispersing domestic agricul¬ Liberia to Haiti to Burundi, has received billions of dol¬ tural surpluses than feeding starving foreigners. They lars from the West. Between 1970 and 1995, aid to Africa, also have a sad record of ruining indigenous fanners in excluding Nigeria and Soudi Africa, averaged 12.3 per¬ countries like Haiti and India. cent of the recipients’ GDP, five times the peak share of Informational and technical assistance — how to orga¬ much shorter Marshall Plan transfers to France and nize a stock market or run elections, for example — is Germany. useful, yet this kind of assistance is widely available from Perhaps even more instructive is the failure to discern private sources, either businesses, individual philan¬ any positive relationship between aid levels and econom¬ thropists or nongovernmental organizations. The same ic growth. The United Nations Development Program applies to medical and scientific research; Bill Gates’ reported in 1996 that 70 developing countries were poor¬ $750 million donation to the Global Alliance for Vaccines er then than they were in 1980; 43 were poorer than they and Immunizations dwarfs what most governments can were in 1970. USAID itself acknowledged in a 1989 supply. report that “only a handful of countries that started But the most important form of government “assis¬ receiving U.S. assistance in the 1950s and 1960s have tance” is the least justified: economic or development aid. ever graduated from dependent status.” Yet 13 years Such programs were instituted 40 years ago when people later, the ideological commitment to state-led develop¬ believed the Third World was poor because it lacked ment planning funded by the West is alive and well, and money. Today we know that isn’t true. the international affairs establishment has continued to push for more money. An Expensive Failure The latest justification for underwriting assorted Even during the Cold War, most aid was officially venal autocrats is the post-Sept. 11 imperative to “do extended for development purposes. Yet the result has something” about terrorism by helping developing countries. The theory is that poor people lacking hope Doug Bandow is a Senior Fellow at the Cato Institute their lives will improve are more likely to resort to vio¬ and a former special assistant to President Reagan for lence. Of course, this approach ignores the fact that if policy development. He is the author of The Politics of there were such a link between terrorism and poverty, Plunder: Misgovemment in Washington (Transaction America would already have been combatting terror¬ Publishers, 1990) and co-editor of Perpetuating Poverty: ists from sub-Saharan Africa and South Asia for The World Bank, the IMF, and the Developing World decades. (Cato Institute, 1994). In reality, the case for skepticism about foreign aid is

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 33 Focus

as strong today as it was last Sept. 10. Such skepticism on the Federal Dollar: The Future of Development Aid, has nothing to do with isolationism, die term of oppro¬ supports continued aid funding, but their data actually brium routinely tossed at anyone who critiques any inter¬ undercut that policy prescription. They found that “the national initiative. Instead, it reflects a hard-headed negative relationship between aid flows and perfor¬ analysis of the facts, a realization that the world must be mance is clear at a general level. [Moreover,] absent a taken as it is, not how people might wish it to be. sound economic framework and functioning market in a Today there is no serious dispute that markets are recipient countiy, few such efforts can work.” Even required for growth, and that aid cannot work in the after endorsing limited aid initiatives, they cautioned: absence of markets. There is growing agreement that “Larger initiatives are unlikely to be effective unless assistance cannot buy market reforms. All that an recipients have sound economic and demographic poli¬ increasingly beleaguered band of aid defenders now cies.” In fact, foreign aid actually discourages reform by claim is that foreign assistance may be useful if extend¬ cushioning the price of policy failure and reducing the ed to governments which have already adopted good urgency of making politically painful changes. economic policies. Backing this conclusion, Hoover Institution scholars Bruce Bueno de Mesquita and Hilton Root report in Making Things Worse, Not Better the Summer 2002 National Interest that “On average, Perhaps the best broad-based study of economic every dollar of per capita foreign aid improves an policies over the last two decades is Economic Freedom incumbent autocrats chance of surviving in office of the World (published by an international coalition of another year by about four percent,” even after think tanks and updated annually) compiled by econo¬ accounting for a myriad of independent factors. “Since mists James Gwartney, Robert Lawson and Robert the average autocracy gets about $8 per capita in aid, Block. They created an index measuring 17 compo¬ foreign assistance may boost the survival prospects of nents of economic freedom, as well as three alternative poorly performing leaders by 30 percent or more,” they summary indexes. Although international comparisons conclude. are fraught with difficulty, two clear lessons emerge. With more and more countries moving toward free First, economic policies matter, with better policies markets (no thanks to foreign aid), some advocates con¬ yielding higher rates of growth. Second, changes in tend that there are now more places in which such economic policy affect growth rates. transfers can play a truly beneficial role. But the fact For years the late economist P. T. Bauer was almost that there might be some benefit in some limited cases alone in criticizing the efficacy of foreign aid. But his is hardly adequate justification for a program that has views are now mainstream. Particularly impressive are spent, in current dollars, over $1 trillion since World studies by Peter Boone of the London School of War II. Economics and Center for Economic Performance. After assessing the experience of nearly 100 nations, he Can Aid Buy Reform? concluded in a 1994 Center for Economic Performance As these insights have reached Capitol Hill, spawning working paper that foreign transfers had no impact on greater resistance to funding, assistance advocates have recipient countiy investment levels. “Long-term aid is desperately concocted a new justification for old aid pro¬ not a means to create growth,” reported Boone. As he grams: the promotion of policy reform and good gover¬ explains, “Aid does not promote economic development nance. Specifically, they now claim that foreign assis¬ for two reasons: Poverty is not caused by capital short¬ tance may be useful if targeted toward governments diat age, and it is not optimal for politicians to adjust distor¬ have already adopted good economic policies. tionary policies when they receive aid flow's.” Of course, there are cases of aid recipients that Boone also reviewed the impact of foreign assistance have adopted reforms. But it’s hard to find any on recipient regimes and found that it mostly benefited convincing evidence that they did so because of local political elites. Similar results turn up in research such assistance. Take three of the most dramatic by Michael O’Hanlon and Carol Graham of the examples: China, India and the Soviet Union. All Brookings Institution. Their 1997 study, A Half Penny chose a reform path over the last two decades, but

34 FOREIGN SERVICE J OU RN Ah/SEPT EM B ER 2002 Focus

foreign aid had nothing to do Even during the Cold War, there is no reason to believe that with that decision. Rather, all any reinvention of development three changed course for the development aid produced assistance or reorganization of same reason: the old statist USAID would make any real strategy had failed, and failed only an expensive difference. Given the very disastrously. The only alterna¬ nature of aid, beyond the tive was reform. wasteland, strewn with obvious problems in its adminis¬ Still, might there be a few tration by USAID and micro- cases where well-administered spectacular failures. management by Congress, aid might materially speed up targeting and more selectively the development process? It appropriating assistance would seems doubtful, but even if so, to use that as the justi¬ only reduce the money wasted. fication for maintaining foreign aid demonstrates just how far the debate has shifted. After all, if speeding A Cautionary Tale up growth that would otherwise occur was a good rea¬ Ignoring these lessons, President George W. Bush son for foreign aid, the U.S. itself should be a recipi¬ coupled his announcement of the Millennium Challenge ent. And as Heritage Foundation President Edwin Account at the Monterrey Summit this past March with Feulner notes in his preface to Heritages Index of a commitment to make aid more effective. But there is Economic Freedom, “countries with free economies little reason to believe that this latest initiative will work generally don’t need U.S. development assistance any better than the billions spent in the past at encourag¬ [anyway], because their economies are growing and ing reform. prospering.” Consider die IMF’s current strategy of bailing out Indeed, success begets success. Today private capital, countries in crisis, which dates from the 1996 “rescue” of particularly investment, flows account for 80 percent of Mexico. This, too, was supposed to be an entirely new, net long-tenn financial transfers, up from 30 percent a and limited, approach to aid. But it has become both few decades ago. Net foreign direct investment common and expensive. Charles Calomiris, a professor increased tenfold during the 1990s, to about $200 billion at Columbia Business School, argues that bailouts pro¬ annually; total trade more than doubled, to $4.6 trillion. duce three perverse effects: “(1) undesirable redistribu¬ Of course, private capital flows have been concentrated tions of wealth from taxpayers to politically influential oli¬ in particular developing states. That creates enormous garchs in developing economies; (2) the promotion of risks when countries stumble, as was evident during the excessive risk-taking and inefficient investment; and (3) 1997 Asian economic crisis. But shifting investment pat¬ the undermining of the natural process of deregulation terns also demonstrate the power of the private market¬ and economic and political reform which global compe¬ place to reward good policies. tition would otherwise promote.” That leverage is undercut, however, when donors fail First was Mexico, which was supposed to be unique. to hold recipients to their promises of economic and Its economy was intimately tied to that of America — the political reform. This past June, for example, African two nations had only recently inked the NAFTA trade leaders met with U.N. Secretary-General Kofi Annan to accord -— and refugees might flood across the border if make a pitch for more aid, with the promise of better prosperity was not restored. America’s southern neigh¬ governance in exchange. But before rushing to provide bor could not be allowed to fail. more assistance, donors would do well to recall that no The argument was never convincing, since the slump African government has ever been disciplined by its in an economy a tenth the size of America’s in no way neighbors for corruption and incompetence. threatened U.S. prosperity. But at least the contention Responding to such criticisms, Harvard’s Jeffrey Sachs had some surface plausibility. And there was only one has variously called for “a carefully designed program,” “a Mexico. No other developing state could make a similar better focused foreign aid program,” and one “limited in claim. duration,” accompanied by “a plan to phase it out.” But Afrhough the bailout has been widely hailed as a suc-

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 35 Focus

cess, Calomiris argues otherwise. The Mexican govern¬ In practice, every case is judged to be exceptional, war¬ ment has never attempted to hold responsible tire origi¬ ranting intervention. nal debtors after purchasing $45 billion in bad debt from This proclivity to intervene creates a further danger, insolvent banks, causing “die transfer of billions of dollars what economists call “moral hazard.” The expectation of from Mexican taxpayers collectively to the country’s a subsidy encourages people to behave irresponsibly, as wealdiiest and most politically powerful enterprises and did many owners of federally-insured savings and loans individuals. The economic result of diese taxes is more associations here in tire U.S., causing the S&L crisis of than a pure transfer to die rich; taxation has also slowed the late 1980s. International aid has similar effects. recoveiy from die recession.” Equally significant, the Warns economist Allan Meltzer, “[foreign] banks and banking system remains unreformed, a ticking financial financial institutions can now act safe in the knowledge time bomb. that the IMF will proride a safety net to protect them Then came Indonesia, whose trade with America is from some, or even most, of their losses.” negligible. Indonesia had been liberalizing a bit, but This is unfair, of course, a form of corporate wel¬ only a bit. The economy remained bedeviled by ineffi¬ fare conducted by government institutions that act as cient monopolies, insolvent banks, harmful trade barri¬ Robin Hood in reverse. But there is an even more ers, wasteful food subsidies and political favoritism. peiverse effect. In Calomiris’ view, “by insuring for¬ Being a relative, or married to a relative, of President eign creditors who fuel developing economy risk-tak¬ Suharto was long the surest way to wealth. His back to ing, the IMF and U.S. government are undermining the wall, Suharto agreed to the conditions of an IMF the natural process of reform in many emerging bailout in 1998, but did his best to resist its terms. And economies.” As he explains: “The incentives for oli¬ a succession of weak governments since his ouster has garchs to liberalize can be strong if foreign sources of done virtually nodiing to open the economy, despite capital are only willing to provide funds to economies repeated promises. with appropriate capitalist infrastructures — that is, All of these countries — and others, such as those which are based on the rule of law, the protec¬ Argentina, Brazil and Turkey — are in trouble not tion of creditors and stockholders rights, a predictable because of forces beyond dieir control, but their own means of laying claim to title, an orderly bankruptcy policies. Politicized banks are often at the root of such procedure, an intelligible system of accounting princi¬ economic disasters. Only after tire bubbles burst — ples, a non-confiscatory tax system and fair competi¬ when loans go bad, companies go bust, currencies crash, tion in markets. ... [But if] foreign investors are pro¬ foreign exchange reserves plummet and debt repayment tected by the IMF and the U.S. government, foreign¬ falters — are tire countries forced to address the under¬ ers will be less discriminating about where they place lying issues. Furthermore, because borrowers in crisis their funds, and thus provide less of an incentive for are likely to do only tire minimum necessary to receive reform in developing economies.” aid, foreign assistance only postpones true reform. Were For all these reasons, foreign aid has failed, despite the countries left to their own devices, they would have tire best efforts of many dedicated professionals at to adopt all of the policies necessary to recondition tireir USAID, the State Department and elsewhere. Nor is economies and reassure foreign investors, who tend to reform a real option. Whereas advocates once claimed be more careful with tireir own cash than are interna¬ that international transfers would move developing tional aid bureaucrats with tax monies from industrial¬ states into the industrialized age, an increasing number ized states. of supporters now acknowledge that the only cases in which it might work are where countries have already The Bottom Line adopted market reforms. But in those cases it is not Now that Washington has intervened again and again, needed. both bilaterally and nrultilaterally, what nation does not After a half-century of failure, it’s time to stop wast¬ expect help? Even the supposedly tough-minded Bush ing tire taxpayers’ money and to look for new strategies administration endorsed the Turkish bailout. So much to ease the agony that afflicts so many of the world’s for Sachs’ idea of “a better focused” foreign aid program! peoples. ■

36 FOREIGN SERVICE ] OU RN Ah! S EFT E M B ER 2002 Focus ON USAID

THE GHOSTS OF LUENA

Two BRUSHES WITH DEATH IN ANGOLA, SEVEN YEARS APART, HAVE REINFORCED FOR ONE FSO THE IMPORTANCE OF THE WORK USAID AND SIMILAR ORGANIZATIONS DO.

BY JEFFREY ASHLEY

■ y life has long been enmeshed in adventure and risk. In addition to two brushes with death in Angola, I have been lost and hypothermic in the highlands of Scodand, ambushed in both Guatemala and Peru, vio¬ lently seasick and despondent in the fjords of southern Chile, and marooned on an uninhabited island in die South Pacific. I have survived a bus accident in Argentina, a train derailment in the Andes mountains, a flood in Mexico, and a head-on collision in the wild bush of northern Namibia. I have seen war and violence in too many places to count, witnessed the horrific results of genocide in Rwanda, the astounding survival of post-genocide Cambodia, and have

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 37 Focus

even felt the fierce hands of heated violence and assault Such life-and-death decisions are, by definition, on my own body. I understand risk and darkness. But I excruciating — but how much more so in the midst of am also extremely luck)? to have known and relished light chaos and panic. I remember asking myself, how could and beauty as well. I possibly choose which of our friends and neighbors From 1993 to 1994, shortly before joining the would find safety with us in our small bunker? (In fact, Foreign Service, I lived in Angola at tire height of the I could not even be sure that we would survive, given civil war. I was working for a humanitarian relief non¬ the intensity of the shelling.) What would I tell the governmental organization providing emergency pub¬ many other desperate, innocent people who also lic health interventions to vulnerable people in need of sought refuge with us? That they could not come in immunizations, prenatal care and maternal and child because expatriates had priority? Who or what gave health care and nutrition. me the right to put a higher value on our lives than In early 1994,1 was on assignment in Luena, a city in dieirs? Me? Rules? Who? And how could I make the eastern Angola that was frequently attacked and bombed situation less frightening for everyone, or at least help by UNITA forces (the opposition party). Yet even as the them cope with it? fighting raged all around us, our team continued to Somehow, I managed to make what I hoped were implement and extend public heakh services to the peo¬ rational decisions. And while I will never know if I ple suffering from the conflict. Since I was in charge as made the “right” decisions, I did all I could to protect the NGO site manager for the Luena program, I con¬ as many people as possible from the attack. stantly had to figure out how to obtain logistics support I found out later that the civilian casualties around for our operations in a place that was extraordinarily poor the city resulting from that UNITA attack were numer¬ even by Angolan standards. With so many people to ous, the violence enormous. But my staff were safe and help, our resources would have been inadequate to the fortunately our neighbors were spared, as well. In fact task even in peacetime. And we were surrounded by all of those in the compound were safe, even those who death and destruction, forcing me to make impossible were not in the bunker with us. However, others in the choices over and over again. central market approximately six blocks from our com¬ But one day was particularly horrific, forever etched in pound were not so fortunate. I don’t recall the precise my memory. number lulled that day, but it was high. On a deceptively quiet Sunday in March 1994, my I left Luena shortly after the attack on a medical Brazilian colleagues and I were in the process of finishing evacuation due to severe malaria and hepatitis A. I was a breakfast filled with laughter and glorious conversation sent to Windhoek, Namibia, for medical care and recu¬ when UNITA launched a heavy offensive. Since our tiny peration. After my release about a month later, the bunker could only accommodate at most eight people, I doctors told me I could go back to Angola just long had to decide which of our neighbors and Angolan staff, enough to pack my things and leave. The danger of if any, could join our expatriate staff there during bomb¬ another malaria episode was too great, especially given ing attacks. the lack of quality medical care in Angola. I knew they were right but I also felt I needed more time, that I had Dr. Jeffrey Ashley is a Foreign Service officer currently much more work to do, many more people to tiy to serving as the Director of Projects for the USAID Mission help in Angola. In particular, Luena was very special to in Luanda. A public health scientist specializing in inter¬ me and, in its own way, beautiful despite the horror. national health and epidemiology, he has been with the But I followed the doctors’ advice. I returned to Luena agency since 1995, serving as health officer in Tanzania and within 24 hours, packed up my few firings, said and Cambodia before arriving in Angola last year. Before goodbye to my friends and staff, and left, very heavy- that, he worked with emergency and humanitarian relief hearted and weighed down by the chapters of my per¬ NGOs in Nicaragua, Honduras, Angola and Rwanda sonal and professional life. from 1992 to 1994 and also served as a Peace Corps Ever since then, Luena has occupied a very special, Volunteer in Paraguay from 1990 to 1992. He has traveled very sad place in my heart. Memories of the Sunday extensively in over 75 countries throughout the world. attack, memories of the war, the desperation, the pro-

38 FOREIGN SERVICE J O U RN AL/S EPT EM B E R 2002 Focus

found, nearly impossible needs, and Luena has occupied a sticks (incense) I had obtained in mv personal work there filled my Cambodia. I wanted them with me thoughts long afterward. very special, very sad so that I could light them as soon as I arrived. This rite would enable The Return place in my heart. me simultaneously to embrace After I finally left Angola, I spent Luena and finally let her go once six weeks recuperating in Los and for all. Angeles at the home of some close As we began our descent toward friends before going back to work. I then went to the runway at Luena Airport, our pilots lost control of Rwanda, where I helped refugees in the aftermath of the King Air plane about 1,000 feet up. Perhaps the 1994 genocide. Shortly thereafter I entered the because they had to follow the spiral-down descent pat¬ Foreign Service and began my work with USAID as a tern mandated for landing in the many war-tom areas health officer in February 1995, serving in Tanzania of Angola, the pilots misjudged the runway of the air¬ and Cambodia. port and the plane narrowly missed hitting the trees. It When the opportunity to work in Angola as the slammed into a land mine field about 30 meters outside General Development Officer and Director of Projects the entrance to the runway leaving a deep hole where of the USAID/Angola Mission appeared, I felt the time it hit the earth. was right to go back and attempt to finish the work I Part of the landing gear collapsed and the plane had left behind. I wanted to try ... again. So I bid on bounced up and smashed into the cement lip of the Luanda and was granted the assignment. runway entrance, collapsing tire remaining landing I returned in January 2001 to find a people even gear. That very likely saved our fives since the plane more war-tom and weary than I had remembered. But automatically stabilized itself after impact. Had we not I observed and felt the same paradox of great beauty in lost both landing gear, the plane would have rolled over its darkness and concomitant iniquity in its beauty that and surely exploded. I had experienced eight years before. And I was just as After we hit the lip of the mnway, the plane driven to do my part to deliver quality public health slammed onto the mnway and dragged on its belly for services and create a healthier, perhaps better future over one kilometer. I heard the sickening, deafening for the Angolan people. sound of metal scraping against tarmac and was petri¬ As soon as I arrived in Luanda, I knew that I would fied that the floor of the plane would rip up and tear my have to return to Luena, a place that had been locked legs off. In fact, I was more focused on losing my legs in my memory and heart. I had to make peace with the than the possibility of the plane exploding, at least at war I had seen there, the war I felt in my heart as a those moments of the crash-landing. result of the decisions and choices I made that dark By another piece of luck, as the plane careened Sunday back in early 1994. Fortunately, the opportu¬ against the tarmac, the propellers hit the mnway and nity soon presented itself. were damaged, but die wings (where the fuel tanks are On Wednesday, July 11, 2001, I traveled to Luena stored) did not touch the ground. Had they made con¬ with two colleagues as part of a 10-member delegation tact with the mnway, as we were told over and over led by the Vice Minister of the Ministiy of Health, a again afterward, they would have ignited and exploded. tremendously gifted, dedicated and passionate Angolan During the crash, I closed my eyes as countless senior government official. We were on board a 10- thoughts flooded my mind. I thought of love and a seat, twin-propped United Nations World Food lover and those who I believed loved me. These par¬ Program plane, on a mission to establish a five-year, $5 ticular thoughts gave me a modicum of solace as I con¬ million malaria prevention program sponsored by fronted what I fully expected was impending death. USAID. The plane finally came to a stop in the middle of the It was my intention to conduct a small, private mnway. When the initial shock of the crash subsided, meditation ceremony of forgiveness there, so in my I shouted that I smelled smoke and burning metal. I backpack I was carrying some blessed Buddhist jah had to repeat the admonition before I got a reaction

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 39 Focus

from anyone. A few moments later a While I will never Finding Peace USAID colleague of mine who was Although some of us had bumps seated in front of me also smelled burn¬ know if I made the and bruises and we were all in ing metal and shouted the same warn¬ shock, we fulfilled our mission to ing. Yet the pilots remained silent for “right” decisions, provide resources for the malaria what seemed like several minutes program. We solidified a bond of before reacting. At first I drought they I know I did all I could friendship and camaraderie that I had been seriously injured or killed, think will forever remain constant but they were just in shock. to protect as many in our lives. And we each took with I attempted to get the door of the us in our privacy profoundly per¬ plane open, but couldn’t. I initially people as possible. sonal feelings of a most momen¬ thought that was because I was too tous event. dazed to read the instructions proper¬ Before we left Luena after the ly, but I learned later the door was too severely dam¬ crash, a USAID/Washington colleague who had been aged to open. At the time, all I could think was that it with me in the plane helped me light the jah sticks I would have been my fault had we been unable to get had brought. We stood silently next to the wreckage on out of the plane in the event it caught fire. The the runway and watched a solemn wind carry the thought haunted me even after we all eventually smoke of die incense into die quiet breeze and gray¬ escaped safely through the emergency window and ness of the sky as we bowed our heads and meditated. saw die extensive damage to the plane. It was a very special moment, one I will always hold

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sacred with my friend and colleague. Although some of us goodness and giving. The crash While I had already spent six helped me see more clearly that months in the constant turmoil of had bumps and bruises those qualities are my constant com¬ Angola prior to the plane crash, the panions. And I am convinced they accident forced me to take a break and we were all in are infinitely more important than from all my responsibilities and exi¬ any one experience, even one that gencies. I needed to rest, to come to shock, we fulfilled our could have easily ended my life. terms with what I was feeling and all Angola will always be in my soul, the memories it summoned up, good mission to provide as are my colleagues who experi¬ and bad. enced the crash with me. But So I went to the States to reflect, resources for the despite the accident, I believe the to spend time with people who care ghosts of Luena are now put to rest. for me, to laugh and spill some tears malaria program. I now embrace my work with and sleep late, to read literature, eat renewed commitment. I have no good ice cream and drink good cof¬ greater passion than the pursuit of fee, and to embrace the comforts of ubiquitous oppor¬ beauty, the opportunity for giving and helping tunity and option. the many who are bereft of basic public health care I spent a month there before returning to Angola around the world. And forever I am reminded, forev¬ refreshed and restored, reminded of what is truly er certain, that even in darkness and iniquity, important: love, beauty, compassion, empathy, friends, there is joy. ■

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 41 Focus ON USAID

DEJA VU ALL OVER AGAIN?

USAID HASN’T YET FOUND A MAGIC FORMULA FOR DEVELOPMENT THAT WORKS WORLDWIDE. YET IT HAS DONE A LOT OF GOOD.

BY JOSEPH C. GUARDIANO

t different stages of my Foreign Service career, USAID has tried a series of different “develop¬ ment strategies. Certainly we have not yet stumbled across a magic formula for development that works worldwide. We have tried regional development, community development, small is beautiful, agricultural-led development, export-]ed development, Title IX activities that revolve around cooperatives and community-centered projects, integrated rural devel¬ opment, food for peace, food for development, water for peace, reimbursable development, legal and democratic training — a virtual encyclopedia of development jargon. But one wonders whether our successive strategies were designed more

42 FOREIGN SERVICE J O U RN AL/S EPT EM B ER 2002 AFSANEWS

Bert Escalante — onbehalfofhisfather.AsAFSA Awards Ceremony.Theawardwasaccept¬ Award forConstructiveDissent”toHiram the firsttimeU.S.governmenthasrec¬ President JohnNalandpointedout,thiswas all ofHiram“Harry”Bingham’schildren ed byBenjaminBingham—representing Bingham IVduringtheJune27AFSA issued over2,500life-savingvisastoJewsand ognized Bingham’sachievements.Bingham Secretary ColinPowellwiththeBinghamfamily. AmbassdadorTom Pickering (center)withthe2002Pickering Foreign AffairsFellows. It wasashiningmomentforAFSAand Powell presenteda“SpecialPosthumous for theForeignServicewhenSecretary AFSA HonorsDissentersand Outstanding Performers AFSA AWARDSCEREMONY American ForeignServiceAssociation•September2002 June ForeignServiceJournal.) occupied France.(Forthefullstory,see helped smugglerefugeesoutofNazi- other anti-Naziactivistswhileservingasa ognizing TomandAlicePickeringtoday,we Pickering. “Myfriends,”saidPowell,“inrec¬ cial awardofrecognitiontohiswifeAlice Diplomacy toThomasPickering,andaspe¬ for LifetimeContributionstoAmerican Secretary PowellalsopresentedtheAward France from1939-1941.Inaddition,he Foreign ServiceconsularofficerinMarseille, During theAFSAAwardsceremony, have givenmesinceIbecame tion whorepresenttheForeign secretary ofStatelastyear.”He “for allthesupportthatthey Service.” PowellthankedAFSA extraordinary skillanddedica¬ fraternity ofmenandwomen again witnessedthatculture, went on:“Wehaveworked Powell saidthathehas“timeand through anumberof contro- Tom Pickering.During are honoringtheForeign ing theceremony. the ForeignServicedur¬ positive remarksabout the quintessentialFSO.” his 42-yearcareer,hewas immediately thinkof of theForeignService,I Service WhenIthink ciates SecretaryPowell’s AFSA greatlyappre¬ Continued onpage3 winner’s certificatetoCarlisleintheTreaty before theAFSAAwardsCeremony, Room attheStateDepartmentDuring Long-Term Solutions.”OnJune27,just Contributions toShort-TermReliefand essay “After9/11:ForeignService winner ElizabethCarlisle. Secretary Powellpersonallypresentedthe Secretary ColinPowellwith highschoolessay AFSA’S NATIONALHIGHSCHOOL to Winner ESSAY CONTEST Secretary Powell Presents Certificate Elizabeth CarlisleofMissoula, AUDIT REPORT7 AFSA ELECTIONS4 Q&A: APAINLESSCHECKOUT10 OUTSOURCING HR MANAGEMENT6 KEEP CONSULARATSTATE3 NEWS BRIEFS2 This IssueinBrief. High SchoolEssayContestforher Montana wonAFSA’s2002National Continued onpage6 M5MKWSBMEFS Ei

Legislative Update: Still on Hold AFSA News on the Web You can now find AFSA News on the We are still awaiting final congressional action on the State Web every month. Look for it on the Department’s 2002-03 Authorization Bill. We hope it will implement “In the News” page of the AFSA Web site some key AFSA legislative agenda items including virtual locality pay, (www.afsa.org/news/).

changes to the dual compensation rules restricting payment to retired New Book on Foreign-Bom FS members, and retirement credit for PIT employees who served Foreign Service Wives during the 1990s. Up to half of all women married to U.S. Foreign Service officers are foreign-born. What do they experience as de Life in the Foreign Service facto representatives of their adopted country? Find out in the new book by Australian-born author Margaret ■ BY BRIAN AGGELER, FOREIGN SERVICE OFFICER & CARTOONIST Bender, Foreign at Home and Away: Foreign-Born Wives in the U.S. Foreign Service. The book, recently published by ADST (The Association for Diplomatic Studies and Training) and DACOR (Diplomatic and Consular Officers, Retired), is the first of the ADST-DACOR diplomats and diplomacy book series to examine the roles played by Foreign Service spouses. Bender draws on her own 25 years’ experience as a Foreign Service spouse and in- depth interviews with 40 Foreign Service wives from 28 countries. The book can be ordered from ADST at (703) 302-6990, or through on-line bookstores.

FSYF Welcome Back Picnic Sept. 8 All Foreign Service families with children ages nine to 19 are invited to attend the Annual Foreign Service Youth Foundation Welcome Back Picnic on Sunday,

Sept 8, from 4:00 p.m. to 6:30 p.m. For more infor¬

“REALLY, BEATRICE, IT DOESN’T DO ANY GOOD TO ARRIVE AT A NEW mation, please contact FSYF at (301) 404-6655 or POST SAYING YOU THINK IT’S GOING TO BE HELL...” [email protected]. □

AFSA HEADQUARTERS: Staff: Governing Board: Executive Director Susan Reardon: [email protected] (202) 3384045; Fax: (202) 338-6820 PRESIDENT: John K. Naland STATE DEPARTMENT AFSA OFFICE: Business Department 3 STATE VICE PRESIDENT: Louise K. Crane Controller Kalpna Srimal: [email protected] (202) 647-8160; Fax: (202) 647-0265 Accounting Assistant Christa Nyamekye: [email protected] USAID VICE PRESIDENT: Joe Pastic USAID AFSA OFFICE: Labor Management FCS Via PRESIDENT: Peter G. Frederick (202) 712-1941; Fax: (202) 216-3710 General Counsel Sharon Papp: [email protected] FAS VICE PRESIDENT: Edwin Porter Labor Management Attorney Zlatana Bad rich: [email protected] AFSA Internet and E-mail addresses: Labor Management Specialist James Yorfce: [email protected] RETIREE VICE PRESIDENT: Robert W. Fairand AFSA WEB SITE: www.afea.org USAID Labor Management Specialist Douglas Broome: [email protected] K SECRETARY: FA “Tex” Harris [email protected] USAID Office Manager Suzan Reager [email protected] AFSA NEWS: [email protected] Grievance Attorneys Han-y Sizer [email protected], and Neera Parikh: TREASURER: Thomas D. Boyatt FSJ: [email protected] Office Manager Christine Warren: [email protected] STATE REPRESENTATIVES: John P. Boulanger, a PRESIDENT: [email protected] STATE VP: [email protected] Member Services George W. Colvin, Roy Perrin, Lynn G. Sever Director Janet Hedrick: [email protected] RETIREE VP: [email protected] Representative: Vacant USAID REPRESENTATIVE: Woody Navin USAID VP: [email protected] Administrative Assistant Ana Lopez: [email protected] FAS VP: [email protected] FCS REPRESENTATIVE: James Joy FCS VP: [email protected] Outreach Programs RETIREE REPRESENTATIVES: Retiree Liaison Ward Thompson: [email protected] William C Harrop, David E Reuther, AFSA News Director of Communications Thomas Switzer [email protected] Editor Shawn Dorman: [email protected] Congressional Affairs Director Ken Nakamura: [email protected] Richard C Scissors, Theodore S. Wilkinson, III £ (202) 3384045 x 503; Fax: (202) 3388244 Corporate Relations/Executive Assistant Marc Goldberg: [email protected] Scholarship Director Lori Dec [email protected] IBB REPRESENTATIVE: Vacant On the Web: www.afsa.or^news Professional issues Coordinator Barbara Berger [email protected] FAS REPRESENTATIVE: Eric Wenberg

2 AFSA NEWS • SEPTEMBER 2002 Awards • Continued from page 1 RETIREE ■ BY ROBERT W. “BILL” FARRAND versial issues, and I think as the months have gone by, we have found more and Consular Duties Should Stay at State more areas of cooperation in which we can work together to make the Foreign The push to reorganize the U.S. government to meet the Service even better and stronger, to raise terrorist threat included an initiative in the House of morale and esprit de corps, and to make Representatives to move the visa function out of State sure that those who are willing to serve and into the new Department of Homeland Security, which the nation as Foreign Service officers, or presumably would staff overseas consular positions with a new in other categories of the department, get cadre of visa adjudicators. all the support that they need to get their No one disagrees that shoring up our nation’s defense, job done. And I thank John [Naland] including tightened visa procedures, must be urgently and the other leaders at AFSA for work¬ addressed. But the damage this proposed fix would wreak ing with us so closely.” on the integrity of embassy operations around the world is immense. Four other awards for constructive The core issue is that Congress itself has been loosening visa requirements for decades dissent were presented during the cere¬ at the behest of the travel industry, manufacturing sector, academic community, civic mony. Theodore E. Strickler received the and religious associations and a host of other legitimate interests. If Congress now Christian A. Herter Award, Peter E. wishes to reverse that policy and tighten visa requirements, let it say so. State’s veter¬ Cozzens received the William R. Rivkin an consular service will continue to adjust, as it has already done, to the new securi¬ Award, Carol J. Volk received the W. ty demands. An expensive and unwieldy new bureaucratic arm would take months Averell Harriman Award, and Andre de to recruit, years to train, and, in the meantime, leave our country more open to visa Nesnera received the F. Allen “Tex” fraud than it is now. Imagine adding yet another agency—comprised of new hires Harris Award. Three awards for exem¬ lacking language skills and cultural sensi¬ plary performance were also given. tivity, and reporting through separate chan¬ This initiative revealed yet Honora L. Myers received the Nelson B. nels —to the chief of mission’s plate in the Delavan Award, Lynne T. Murphy and war on terrorism abroad. again a lack of understanding Jennifer M. Watson jointly received the Regardless of its fate, this initiative by the public and Congress of M. Juanita Guess Award, and Sharon revealed yet again a lack of understanding O’Brien Miles received the Avis Bohlen by the public and Congress of what con¬ what consular officers do. Award. The AFSA Achievement Awards sular officers do. In mounting a vigorous were presented to Ambassador Willard campaign to keep consular affairs firmly in place at State, AFSA sought to explain the A. De Pree and Roy A. Perrin. (Stories importance to national security of having professional diplomats carrying out the visa on the award winners are in the June and function. July issues of AFSA News.) AFSA made these arguments in several approaches to Congress, including a meet¬ This year’s awards ceremony drew ing with 14 staffers of the Government Reform Committee of the House, and cul¬ heavy media coverage, in part due to the minating in a letter that AFSA President John Naland sent on July 3 to 26 key law¬ interest in the special award for Bingham, makers. I encourage the many retirees who share AFSA’s concern to use the follow¬ but largely due to the intensive public ing points from the Naland letter in any contacts you might have with the public and relations outreach efforts by AFSA’s Congress on this issue: Communications Director Tom Switzer. ■ Press criticism that not all applicants get personal interviews overlooks the fact Five network TV camera crews covered that there have not been funds appropriated for this for decades. If Congress wants the event. The Washington Post, NPR, to budget for this, State could assure the interviews. Bloomberg News, Insight magazine, and ■ The majority of the over 10 million annual visa applicants do not speak English. the Times of London all carried significant If other federal employees take over visa duties, they would need training in over 60 and positive stories. The only negative languages already spoken with above-average aptitude by Foreign Service members. press known to us was William Safire’s ■ Outside adjudicators would have the same burdens of service as the Foreign Service: July 1 column in the New York Times, in unhealthy posts, family disruptions, physical danger. which he criticized AFSA’s decision to ■ Most visa work is on the visa line. Lack of advancement possibilities would, as recognize VOA News Director Andre de Under Secretary Green testified in June, result in high turnover by employees of a cal¬ Nesnera for running a broadcast includ¬ iber he characterized as “rent-a-cop.” ing excerpts from an interview with ■ Removing visa adjudication from State would weaken a vital check and balance Taliban leader Mullah Muhammed if this function were placed in the same agency doing port-of-entry examination. The Omar. □ current two-step, two-agency procedure has long advanced homeland security. □

SEPTEMBER2002'AFSANEWS 3 Call for Nominations for the 2003 - 2005 AFS Election of AFSA Officers and Constituency Representatives It is time to elect the next AFSA Governing Board, which will Please look over the positions available and consider running for take office July 15,2003, and serve for two years. AFSA needs an AFSA Governing Board position, or nominating someone else who a strong and dlynamic leadership in order to best represent the you think would be the right person for the job. interests of all our Foreign Service members. Selecting AFSA’s lead¬ AFSA is beginning the election process eady this year to better ership is an important process, and we hope that all AFSA members accommodate active duty members, who are tied to the bidding cycle. will participate. The election process will be completed by March 2003.

Call for Nominations for Retired member Representatives addition, management officials and confi¬ AFSA Officers and Constituency (four positions) dential employees may not make nomina¬ Representatives Article V (4)(b) of the AFSA bylaws tions for Governing Board positions. For This election call, issued in accordance authorizes a constituency vice president for the purpose of the above discussion, man¬ with Article VII (2)(a) of the AFSA bylaws, each constituency with a minimum of 100 agement official means an individual who: constitutes a formal notice to all AFSA mem¬ members and one constituency represen¬ is a chief of mission or principal officer, occu¬ bers of the opportunity to participate in tative position for every 1,000 members or pies a position of comparable importance nomination and election of a new govern¬ fraction thereof. Active-duty constituency to chief of mission or principal officer, is serv¬ ing board. All of the officer and represen¬ representatives work full-time in regularly ing as a deputy to the foregoing positions; tative positions listed below are for two-year assigned non-AFSA jobs, with time allowed is assigned to the Office of the Inspector terms beginning July 15,2003. for AFSA activities in accordance with General; or is engaged in labor management A. Positions to be Filled AFSA’s labor management agreements. relations or the formulation of personnel 1. The officer positions to be filled in this B. Nomination Procedures policies and programs of the foreign affairs election are: 1. Any AFSA member in good standing agency. Confidential employees are employ¬ President (i.e., a member whose dues are automati¬ ees who act in a confidential capacity with Vice President for State cally deducted or who has paid dues as of respect to an individual who formulates or Vice President for USAID Nov. 14, 2002) may submit names — carries out management policies in labor Vice President for CS including his or her own name—in nom¬ management relations. Vice President for FAS ination for any or all of the above-mentioned Furthermore, the Foreign Service Act also Vice President for Retirees positions for which the nominee is eligible. places a two-year restriction on the move¬ Secretary No member may nominate more than one ment of Foreign Service personnel between Treasurer person for any one officer position or for certain positions in AFSA and certain The President and State, USAID, and more than the number of representatives Washington-based jobs in the foreign FAS Vice-Presidents are full-time positions established for each constituency. No mem¬ affairs agencies. The pre-AFSA restrictions: detailed to AFSA, The CS Vice President is ber’s name may appear on the ballot for Any individual who has served 1) in a man¬ detailed 50 percent time to AFSA, These more than one position. agement position in Washington in which employees are assigned over complement 2. In order to be nominated, a person he or she has engaged in labor management and eligible for time in class extensions. must be a member in good standing and relations or the formulation of personnel 2. The constituency representative posi¬ remain in good standing through the elec¬ policies and programs or 2) as a confiden¬ tions to be filled in this election are: tion process and, if elected, for his/her term tial employee (as defined above) within two State Department Representatives of office. years prior to taking office in AFSA is inel¬ (six positions) 3. The Foreign Service Act restricts igible to hold the position of AFSA president USAID Representative (one position) employees occupying certain positions in the or constituency vice president Post-AFSA CS Representative (one position) foreign affairs agencies from serving on the restrictions: In addition, any individual who FAS Representative (one position) Governing Board. Only employees in has held one of the foregoing positions in IBB Representative (one position) AFSA’s bargaining unit may serve on the AFSA may not serve 1) in a management AFSA Governing Board or nominate oth¬ position in Washington which involves labor Important Dates: ers to serve on the board. Therefore, indi¬ management relations or the formulation NOV. 14,2002 Deadline for Nominations viduals who will be serving as management of personnel policies and programs or 2) as JAN. 3,2003 Ballots Mailed officials and confidential employees (as a confidential employee, for two years after FEB. 28,2003 Ballots Receipt Deadline defined below) when the new board takes leaving AFSA. MARCH 3,2003 Ballots Counted office on July 15,2003, are ineligible to occu¬ Members should consider these restric¬ JULY 15,2003 New Board Takes Office py a position on the Governing Board. In tions before deciding whether to run for

4 AFSA NEWS • SEPTEMBER 2002 AFSA Governing Board positions covered described above addressed to the AFSA and declare elected the candidate receiving by these restrictions. Please direct questions Elections Committee to be received no later the greatest number of votes for each posi¬ regarding this issue to Sharon Papp, General than noon on Nov. 21,2002. Any nomi¬ tion. Candidates or their representatives may Counsel at phone (202) 647-8160; fax (202) nee whose written acceptance of nomina¬ be present during the tally and may challenge 647-0265, or e-mail [email protected]. tion has not been received by the Elections the validity of any vote or the eligibility of 4. Nominations maybe submitted indi¬ Committee by the above time limit will be any voter. The committee will inform can¬ vidually or in slates. To qualify as a slate, a considered to have declined candidacy. didates individually of the election results by proposed slate must have a minimum of C. Election Campaign the swiftest possible means and will publish four candidates from at least two con¬ 1. All candidates nominated under the the names of all elected candidates in the next stituencies. Slate designations will be noted procedure outlined above will be given the issue of the Foreign Service Journal The elect¬ on the ballot opportunity to submit campaign statements ed candidates will take office on July 15,2003, 5. All nominations must be submitted for dissemination to the AFSA membership as provided in the bylaws. in writing by letter, cable, fax or e-mail. All with the election ballots. Further informa¬ F. Questions, Suggestions, Complaints or written nominations must be addressed to tion regarding such statements and editor¬ Challenges the AFSA Elections Committee, 2101 E ial deadlines will be contained in the Any member may file a written question, Street, N.W., Washington, DC 20037. To “Instructions to Candidates,” which will be suggestion or complaint concerning the con¬ be valid, they must without exception, be issued by the Elections Committee on or duct of the 2003 election. These should be received at this address no later than 12 noon before Nov. 14,2002. addressed to “Chair, AFSA Elections on Nov. 14,2002. Members overseas can 2. The AFSA bylaws provide that, Committee” and mailed or delivered to send “AFSA Channel” cables marked for should candidates wish to mail supple¬ either AFSA, Room 1251, Department of delivery to the AFSA Elections Committee. mentary statements to the membership, the State, Washington, DC 20520 or AFSA, 2101 They must be received in the Department’s association will make available to them on E Street N.W., Washington, DC 20037 by Communications Center within the same request, and at their expense, the member¬ May 30,2003. time limit. Faxes can be sent to (202) 338- ship mailing list or address labels. Further Members may also file a written challenge 6820 and e-mails to [email protected]. information on this and other campaign pro¬ to the outcome of the electioa Such a chal¬ Alternatively, nominations can be hand- cedures will be included in the “Instructions lenge must be filed by April 18,2003, and delivered to a committee member who will to Candidates” mentioned above. should be addressed to “Chair, AFSA be in the AFSA office, Room 1251, D. Voting Elections Committee” and mailed or deliv¬ Department of State, from 11 a.m. to noon Ballots will be distributed on or about Jan. ered to either address stated above. The on Nov. 14, or to a committee representa¬ 3,2003, to each person who is a regular AFSA AFSA Elections Committee will respond in tive at AFSA headquarters at 2101 E Street member as of Dec 1,2002. Candidates or writing to the challenge within three months N.W. during that same time period. their representatives may observe the ballot of receipt of the challenge. If the member 6. A nominee can indicate his or her distribution process if they so desire. Each is not satisfied with the AFSA Elections acceptance of a nomination by appending member may cast one vote for President, Committee’s response, the member may file a letter to the letter of nomination or by Secretary, Treasurer, and constituency Vice a written complaint with the U.S. appropriate notation on that letter, or by President, and, in addition, one vote for each Department of Labor’s Office of Labor- communicating with the Elections Representative position in the member’s con¬ Management Standards. Such a complaint Committee, AFSA, Room 1251, Department stituency. Votes may be cast by voting for must be filed within one month of receipt of State, or AFSA, 2101 E Street N.W. candidates listed on the official ballot, or by of the Elections Committee’s response, n Washington, DC, 20037, or by fax or e-mail writing in the name(s) of member(s) eligi¬ as described above. Otherwise, an autho¬ ble as of Nov. 14,2002, or by doing both. ELECTIONS COMMITTEE MEMBERS rized representative of the Elections To be valid, a ballot must be received by Robert J. Wozniak, Committee will communicate with each Feb. 28,2003, at the address indicated on the Chair (202) 6860996 (202)4824334 nominee (excluding members who nomi¬ envelope accompanying the ballot More Peter Frederick Mike Martin (202) 712-0055 nate themselves) as quickly as possible after detailed balloting instructions will accom¬ Shiriie Pinkham (202)647-5910 the receipt of each nomination to determine pany the ballots. Ed Porter (202) 720-3650 E. Vote Counting and Announcement of whether the nominee wishes to be a candi¬ Richard Thompson (301)2296442 Results date. Anymemberwho so acceptsthe nom¬ STAFF ination must confirm his or her acceptance On or about March 3, 2003, the Susan Reardon (202) 9445505 in writing through one of the channels Elections Committee will count the ballots

SEPTEMBER 2002 • AFSA NEWS S Essay • Continued from page 1 FCS ■ BY PETER FREDERICK awards ceremony, he again acknowl¬ A Call for Outsourcing edged her achievement by asking her to stand and be recognized. Carlisle later During a four-week period last spring, AFSA filed three thanked AFSA for this “once-in-a-lifetime institutional grievances against the Commerce experience.” Department, as well as one charge of unfair labor prac¬ Carlisle graduated this spring from tices (ULP), and asked the Federal Impasse Panel to assist in Hellgate High School in Missoula, and will mediating. (Over the past 10 years, AFSA has filed three insti¬ attend Harvard University in the fall. She tutional grievances against all other foreign affairs agencies would like to pursue a career in public ser¬ combined) Commerce has severe problems meeting its vice, possibly teaching. Carlisle told AFSA Foreign Service personnel obligations. AFSA has raised this News she became interested in the Foreign issue with the secretary of Commerce and the Senate Foreign Service while conducting the research for Relations Committee. As of this writing, I have no positive actions to report. her winning essay. She was impressed with Few if any complaints have been filed about FCS work overseas, hi fact, the num¬ the key role played by the Foreign Service ber of letters praising our officers’ performance is staggering. Yet there is universal following the 9/11 terrorist attacks on concern about the management of our human resources. It is difficult if not impos¬ America. In her essay, she wrote: “As Powell sible to negotiate with FCS management On the appeared before TV cameras and foreign “Commerce has severe few occasions when the negotiations are success¬ leaders, Foreign Service officers worked ful, FCS tends to either renege on the agreement hard outside the spotlight. ... As we move problems meeting its or immediately call to reopen what AFSA had ahead in this unprecedented global assault thought was a signed and final agreement. The Foreign Service personnel on terror, we can count on Foreign Service problem has now reached significant proportions officers to continue protecting American obligations.” and is causing embarrassment to Commerce man¬ citizens while reaching out to other agement Their initial response was to blame AFSA nations for mutual benefit.” for interfering, but that fell on deaf ears as AFSA The essay contest, co-sponsored by doesn’t have the authority to take the offending actions. AFSA and the Nelson B. Delavan This is not a new problem, but what is the solution? Most suggestions would either Foundation, is designed to stimulate create new problems or be very hard to implement. Four of the concepts often men¬ interest among high school students tioned are: 1) move FCS back to State; 2) create a new Department of International nationwide in the Foreign Service and the Trade and Industry, 3) convert FCS from a foreign affairs agency to a Civil Service conduct of U.S. diplomacy. This year’s organization; and 4) outsource the personnel management functions. The first three contest drew 888 essay submissions. For would require legislative action and could create even more problems than they solve. more information about the contest, go to The fourth option, outsourcing, has potential Currently, the National Finance Center www.afsa.org/essaycontest/essay.html. □ manages the FCS payroll, the Department of Interior processes our vouchers, and State supervises the pension program for our retirees. State is the obvious choice for an outsource service vender. However, USAID or the Department of Agriculture may also be able to provide certain services. I would suggest that FCS maintain control over all the activities included in personnel planning and the management system, BOOKFAIR 2002 The Associates of the Foreign Service such as work plans, evaluations and selection boards. But all other personnel man¬ agement activities could be open for bidding. Worldwide invites you to visit the 42nd FCS retirement management can serve as an example State currently assumes respon¬ annual BOOKFAIR. BOOKFAIR will be sibility for FCSOs at retirement The FCS human resources staff is responsible for pre¬ held in the Exhibit Flail of the State retirement counseling of the approximately five Foreign Commercial officers who retire Department from Oct 18-27. Open to each year. It would make sense to have officers nearing retirement go directly to the employees, retirees (with retiree passes) organization that manages their retirement for counseling. The most frequently men¬ and spouses, and escorted guests Oct 18 tioned objection to the concept is that FCSOs would become dependent on a larger from 2-5 p.m. and Oct. 21-25 from 11 and less familiar bureaucracy, and be treated like they are in “coach class.” a.m. to 3 p.m. Open to the public the I have asked FCSOs for comments on this concept, and would appreciate com¬ ments from retirees and FSOs outside Commerce. Unlike many in Commerce, weekends of Oct 19-20 and Oct 26-27 I am willing to admit that FCS is a foreign affairs agency that needs advice on how from 10 a.m. to 4 p.m. Questions: call to operate as a foreign affairs agency. With your input perhaps we can improve (202) 223-5796 or (202) 362-6514. the situation. □

6 AFSA NEWS • SEPTEMBER 2002 BDO Seidman, LLP 7101 Wisconsin Avenue, Suite 900 Accountants and Consultants Bethesda, Maryland 20814-4805 IBDQ Telephone: (301) 654-4900 Fax; (301) 654-3567

Finance Committee Members American Foreign Service Association and Associated Organizations

We have audited the consolidated financial statements of the American Foreign Service Association and Associated Organizations (the Association) for the year ended December 31, 2001, and have issued our report thereon dated April 2, 2002.

The American Institute of Certified Public Accountants (AICPA) has established the requirement for independent auditors to communicate certain matters related to the conduct of each audit to those who have responsibility for oversight of management's financial reporting process.

Specific areas to be communicated are as follows:

* Auditors' Responsibility under Auditing Standards Generally Accepted in the United States of America * Significant Accounting Policies * Management's Judgments and Accounting Estimates * Significant Audit Adjustments * Auditors' Responsibility for Annual Reports * Disagreements with Management * Consultation with Other Accountants * Major Issues Discussed with Management Prior to Retention * Difficulties Encountered in Performing the Audit

Our comments regarding these matters, as they relate to the fiscal year 2001 audit of the Association, are presented in Exhibit A* of this report. Should you desire further information concerning these matters, we will be happy to meet with you at your convenience.

This report is intended solely for the information and use of the Finance Committee Members, the Governing Board, and management of the Association, and is not intended to be and should not be used by anyone other than these specified parties.

, L L-P

April 2, 2002

* Exhibit A and a complete set of the audited financial statements is available at the AFSA office at 2101 E St N.W., Washington, DC 20037.

SEPTEMBER2002-AFSANEWS 7 American Foreign Service Association and Associated Organizations Consolidated Statement of Financial Position December 31,2001 and 2000

2001 2000 Assets

Current Assets Cash and cash equivalents, including restricted cash of $119,335 in 2001 and $165,782 in 2000 $156,667 $259,142 Short-term investments, including restricted short-term investments of $34,178 in 2001 and $45,049 in 2000 69,130 69,098 Accounts receivable, less allowance for doubtful accounts of $30,000 in 2001 and $20,161 in 2000 166,456 119,779 Contributions receivable — 100,000 Accrued interest and dividends 19,265 21,988 Prepaid expenses and other assets 92,498 127,637 Total current assets 504,016 697,644

Noncurrent Assets Land, building and equipment, net of depreciation 580,117 597,381 Temporarily restricted marketable securities 4,158,473 4,886,439 Unrestricted marketable securities 574,905 424,511 Total noncurrent assets 5,313,495 5,908,331

Total Assets $5,817,511 $6,605,975

liabilities and Net Assets

Current liabilities Accounts payable $30,983 $26,750 Accrued expenses 54,517 67,626 Deferred revenue 246,913 274,678 Total current liabilities 332,413 369,054

Commitments and Contingencies — —

Net Assets Unrestricted 1,438,533 1,300,511 Temporarily restricted 4,046,565 4,936,410 Total net assets 5,485,098 6,236,921

Total liabilities and Net Assets $5,817,511 $6,605,975

A complete set of the audited financial statements is available at the AFSA office at 2101 E St. N.W., Washington, DC 20037

8 AFSA NEWS • SEPTEMBER 2002 American Foreign Service Association and Associated Organizations Consolidated Statement of Activities Years Ended December 31,2001 and 2000

2001 2000

Revenue, Gains, and Other Support $1,609,556 Membership dues $1,655,234 Advertising sales 458,963 410,779 604,582 Contributions 340,684 227,012 Other 252,519 127,214 Dividends and interest 137,986 33,708 Rental 32,422 Subscriptions 8,399 8,121 Net realized and unrealized (losses) gains on marketable securities (835,098) (69,020) Total revenue, gains, and other support 2,051,109 2,951,952

Expenses Program services Journal 720,855 638,389 Labor relations 488,954 497,647 Scholarship 338,988 345,296 Elderhostel 211,668 207,656 Congressional affairs 173,093 161,407 Retirees 90,778 60,866 Professional issues 89,724 86,362 Membership services 80,412 89,952 Public affairs 27,543 24,560 Essay contest 24,535 22,332 International Associates 24,285 19,506 Public education 17,540 20,234 Outreach / Speakers bureau 14,523 31,599 75th Presidential libraries 12,890 47,952 Club — 23,985 Total program services 2,315,788 2,277,743

Supporting services Management and general 259,440 281,467 Membership support 125,475 124,349 Board and President 62,767 32,136 Election 21,378 2,816 Fundraising 18,084 12,635 Total supporting services 487,144 453,403

Total expenses 2,802,932 2,731,146

Change in Net Assets $(751,823) $220,806

A complete set of the audited financial statements is available at the AFSA office at 2101 E St N.W., Washington, DC 20037

SEPTEMBER 2002 • AFSA NEWS 9 housing, the first thing you must do is If you disagree with the bill when you ensure that you have an accurate invento¬ get it, review it with the GSO. Bear the fol¬ ry and description of the condition of the lowing in mind: furniture and fittings (anything from air • Fair wear and tear is not your respon¬ conditioners and stoves to brooms and sibility. Things wear out over time unless items from the welcome kit). This gives you avoid walking on the carpets or sitting both you and the GSO a baseline from on the chairs. Personnel Issues which to work. If there are stains, wear or • If you have damaged something that BY JAMES YORKE, other damage on any furniture, carpets or must be replaced, depreciation should be LABOR MANAGEMENT SPECIAUST fittings, then document precisely where the taken into account You should not get damage is located and its nature. Take pic¬ charged the cost of a new armchair for Overseas Housing: tures if you like, and make sure they are reli¬ replacement of a 10-year old armchair. ably dated. • Look at any proposed re-upholstery Tips for a Painless Checkout Throughout your occupancy, it goes charges carefully. If necessary, compare the CL- After my pack-out from post, someone without saying that you should take care proposed costs with other upholsterers. from the General Services Office came, as of the furniture and fittings. If any dam¬ You should not be charged for fair wear and require, to clothe inventory of government age occurs, make a note of the extent of it tear. property, and to assess the state of the fur¬ and when and how it occurred. This will • On the other hand, be realistic. niture, carpets, etc The office then sent ensure that you are not taken by surprise Damage or soiling from pets and/or chil¬ me an enormous bill, claiming that I had during the checkout inspection, and will dren does not count as fair wear and tear damaged the chairs and soiled the carpets. enable you to identify damage that was not and you are responsible for repair or clean¬ How should I proceed? caused by you or your family. up. Large scratches and cigarette or other This problem arises more often You should be present during the bums on furniture are not fair wear and • than it should, and warrants checkout inspection. Compare your tear either, and are your responsibility. attention throughout your occupancy of observations to those you made on arrival. If you need help negotiating with the the house or apartment. You need to be Make sure you get a copy of the report, but GSO, speak with your AFSA Rep, who may aware of what you have and its condition. go over your own list as you inspect the contact the AFSA Labor Management When you move into your government house. Office for assistance. □ §1 CLASSIFIEDS GRIEVANCE ATTORNEY (specializing TAX & FINANCIAL SERVICES EHE32ZH! since 1983) Attorney assists FS officers cor¬ ATTORNEY WITH 22 years successful rect defective performance appraisals, reverse ROLAND S. HEARD, CPA experience SPECIALIZING FULLTIME IN FS improper tenuring and promotion board deci¬ 1091 Chaddwyck Dr., GRIEVANCES will more than double your sions, secure financial benefits, defend Athens, GA 30606 chance of winning. 30% of grievants win before against disciplinary actions and obtain relief Tel/Fax: (706) 769-8976 the Grievance Board; 85% of my clients win. from all forms of discrimination. Free Initial E-mail: [email protected] Only a private attorney can adequately devel¬ Consultation. Call William T. Irelan, Esq. • U.S. income tax services op and present your case, including neces¬ Tel: (202) 625-1800 Fax: (202)625-1616. • Many FS & contractor clients sary regs, arcane legal doctrines, precedents E-mail: [email protected] • Practiced before the IRS and rules. Call Bridget R. Mugane at • Financial planning WILL/ESTATE PLANNING by attorney Tel: (202) 387-4383, Tel: (301) 596-0175. • American Institute of CPAs, Member E-mail: [email protected] who is a former FSO. Have your will reviewed FIRST CONSULTATION FREE Free initial consultation. and updated, or new one prepared: No charge for initial consultation. M. Bruce Hirshorn, Boring & Pilger, FREE TAX CONSULTATION: For overseas ATTORNEY 307 Maple Ave. W, Suite D, Vienna, VA 22180 personnel. We process returns as received, Tel: (703) 281-2161, Fax: (703) 281-9464 without delay. Preparation and representation ESTATE PLANNING, WILLS, POW¬ E-mail: [email protected] by Enrolled Agents. Federal and all states pre¬ ERS OF ATTORNEY. General practice; pared. Includes ‘TAX TRAX” unique mini-finan¬ estate planning: wills, trusts, living wills, pow¬ PLACE A CLASSIFIED AD: $1.25/word cial planning review with recommendations. Full ers of attorney; review and update of old wills (10 word min.) First 3 words Bolded free, add'l planning available. Get the most from your or drafting of new one; probate administra¬ bold text $2/word, header, box, shading $10 financial dollar! Financial Forecasts Inc., Barry tion. Charles S. Abell, Furey, Doolan & Abell, ea. Ad Deadline: 20th of the month for pub. B. De Marr, CFP, EA 3918 Prosperity Ave. LLP; 8401 Conn. Ave., #1100, Chevy Chase, 5 wks. later. Contact: Ad Mgr: Tel: (202) 944- #230 Fairfax, VA 22031 Tel: (703) 289-1167, MD 20815, Tel: (301) 652-6880, 5507, Fax: (202) 338-6820 Fax: (703) 289-1178, Fax: (301) 652-8972. E-mail: [email protected] E-mail: [email protected]

10 AFSA NEWS • SEPTEMBER 2002 H CLASSIFIEDS

TAX a FINANCIAL SERVICES WJD MANAGEMENT IS competitively PROPERTY MANAGEMENT priced, of course. However, if you are consid¬ ering hiring a property management firm, don’t PRUDENTIAL CARRUTHERS REAL¬ TAX RETURN PREPARATION AND forget the old saying “You get what you pay TORS: (FORMERLY J.P. PROPERTIES & PLANNING by experienced tax professional for.” All of us at WJD have worked for other DIPLOMAT PROPERTIES): Complete pro¬ Federal and all State returns. Year round assis¬ property management firms in the past, and fessional dedication to the management of res¬ tance. JANE A. BRUNO; Tel: (561) 470-7631. we have learned what to do and more impor¬ idential property in Northern Virginia. Our pro¬ Fax: (561) 470-4790. tantly what not to do from our experiences at fessionals will provide personal attention to your E-mail:[email protected] these companies. We invite you to explore our home, careful tenant screening, and video Web site: www.americantaxhelp.com web site at www.wjdpm.com for more infor¬ mation, or call us at (703) 385-3600. inspections of your property. We are equipped to handle all of your property management needs. We work 7 days a week! Over 22 years real estate experience and Foreign Sen/ice overseas living experience. JOANN PIEKNEY. VIRGINIA M. TEST, CPA: Tax service REALTY GROUP, INC. Vienna: Specialize in Foreign Service/overseas con¬ Tel: (703) 938-0909 Fax: (703) 281-9782 tractors. CONTACT INFO: (804) 695-2939, DC PROPERTY MANAGEMENT E-mail: [email protected] AND SALES FAX: 804-695-2958. Arlington: of single family homes, E-mail: [email protected] Tel: (703) 522-5900 Fax: (703) 525-4173 condos & small apartment bldgs. We serve owners E-mail: [email protected] who appreciate personalized service & quality maintenance.

ATTORNEY, FORMER FOREIGN SER¬ Amy Fisher, CRS: (202) 544-8762 MANOR SERVICES: Former federal law VICE OFFICER: Extensive experience w/ tax E-mail: [email protected], problems peculiar to the Foreign Service. Visit our Web site: enforcement officer: offers best tenant screen¬ Available for consultation, tax planning, and dcpropertymanagement.com ing. Frequent inspections. Mortgages paid. preparation of returns: Repairs. Close personal attention. We’re M. Bruce Hirshorn, Boring & Pilger small, but very effective. FS refs. Our rates are 307 West Maple Ave W., Suite D, lower than anyone on this page. And our ser¬ vice is better. Compare. We do “hands-on” Vienna, VA 22180 Tel: (703) 281-2161, H.A. GILL & SON, INC.: Family owned management only. TERSH NORTON Box Fax: (703) 281-9464 and operated firm specializing in the leasing 42429, Washington, D.C. 20015 E-mail: [email protected] and management of fine single-family hous¬ Tel: (202) 363-2990, Fax: (202) 363-4736 es, condominiums and cooperatives in E-mail: [email protected] Washington, D.C. and Montgomery County since 1888. While we operate with cutting edge technology, we do business the old-fashioned PROFESSIONAL TAX RETURN TEMPORARY HOUSING PREPARATION: Thirty years in public tax way - providing close personal attention to our practice. Arthur A Granberg, EA, ATA, ATP. clients and their properties. We provide Our charges are $65 per hour. Most FSO expertise in dealing with jurisdictional legal WASHINGTON DC or NFATC TOUR? returns take 3 to 4 hours. Our office is 100' requirements, rent control, property registra¬ EXECUTIVE HOUSING CONSULTANTS from Virginia Square Metro Station, Tax tion, and lead paint requirements. We close¬ offers Metropolitan Washington D.C.’s finest Matters, Associates, PC 3601 North Fairfax ly screen all tenant applications and are on¬ portfolio of short-term, fully-furnished and Dr. Arlington, VA 22201 Tel: (703) 522-3828 line with Equi-fax Credit Information Services equipped apartments, townhomes and sin¬ Fax: (703) 522-5726 which provides our firm with instantaneous gle family residences in Maryland, D.C. and E-mail: [email protected] hard-copy credit reports. You can rest assured Virginia. while you are abroad that your property will In Virginia: “River Place's Finest” is steps be in the most capable hands. Please call to Rosslyn Metro and Georgetown and 15 John Gill, Jr. at (202) 338-5000 or for more minutes on Metro bus or State Department information or a brochure. shuttle to NFATC. For more info, please call E-mail him at: [email protected] PROPERTY MANAGEMENT (301) 951 -4111, or visit our Web site: www.executivehousing.com

PEAKE MANAGEMENT: Looking for a ROSSLYN METRO IN ARLINGTON great property manager experienced with FS FOREIGN SERVICE ASSOCIATES: has HONOR MOST GOV’T PER DIEM clients? Call me to set up an appointment, or fully furnished apartments at River Place just 1 BLK TO METRO, NFATC SHUTTLE to receive our free Landlord Manual. The 5 minutes from NFATC and one block from Efficiency, 1 and 2 bedroom apartments, Manual clearly explains the rental management Rosslyn Metro. Efficiencies, and 1 bedrooms Fully equipped kitchens, process no matter which company you are fully furnished with kitchens, cable TV, tele¬ Cable, phone, linens, gym & pool choose. We’re professional, experienced, phone, linens, and all utilities included. Call: GOVERNMENT FRIENDLY LEASE and friendly. In business since 1982. Lindsey (703) 477-5955, or Tel: (703) 553-8225 Peake: 6842 Elm St. McLean, VA 22101. E-mail: [email protected]. E-mail: [email protected] Tel: (703) 448-0212 Web site: www.foreignservicehousing.com Web site: www.temporaryrentals.com E-mail: [email protected]

SEPTEMBER 2002-AFSA NEWS 11 E CLASSIFIEDS

WASHINGTON STATE ISLANDS: RESIDENCES: SHORT & LONG TERM BOOKS Call Betsy (202) 234-5789, Spectacular views, wonderful community, cli¬ [email protected] mate, boating, hiking. Access Seattle & OLD ASIA/ORIENT BOOKS BOUGHT www.roommatespreferred.com Vancouver, B.C. Former FSO Jan Zehner, Asian rare books. Fax: (212) 316-3408, Windermere Real Estate/Orcas Island, (800) E-mail: [email protected] 842-5770; www.orcas-island.com REAL ESTATE e-mail: [email protected] HOW NOT TO BECOME AN AMBAS¬ SADOR. Crime and passion in the Foreign HEADED TO D.C.? Start planning now Service. Read THE DAUGHTER OF RAMON for house hunting in Northern Virginia. Let my GODOY by Ken Byrns. Paperback from sixteen plus years of experience providing FS VACATION RENTAL www.1stbooks.com Personnel with exclusive Buyer OCEANFRONT CONDO AT Bay Watch Representation work for you. My effective DIPLOMATIC RELATIONS by Robert Resort, North Myrtle Beach, SC. Wide, sandy strategy for home buying will make the tran¬ G. Morris, author of Diplomatic Circles, now beaches. “Golf Capital of the World.” Family pro¬ sition easier for you and your family! in paperback from www.thebookden. com grams, entertainment and great seafood, ail Contact MARILYN CANTRELL, Associate dose by. Sleeps six. Please Call (800) 763-7469 Broker, ABR, CRS, GRI at McEnearney or (843) 272-6266 and ask for Unit #603. EMPLOYMENT Associates, 1320 Old Chain Bridge Rd, FSO Bryan Smith, owner. PROPERTY SPECIALISTS, INC. McLean, VA 22101. Tel: (703) 790-9090, ext. See www.sandsresorts.com CAREER OPPORTUNITY 246, Fax: (703) 734-9460, Independent real estate firm primarily serv¬ E-mail: [email protected] ing the foreign sen/ice community & doing www.marilyncantrell.com FLORIDA business in D.C., Maryland and Virginia is NO STATE INCOME TAX enhances gra- offering positions in areas of property man¬ dous living in Sarasota, the cultural capital of agement and/or sales. SHORT - TERM RENTALS Florida's Gulf Coast. Contact former FSO Paul Byrnes, Coldwell Banker residential sales spe¬ Call: Donna Courtney (703) 247-3357 CORPORATE APARTMENT SPECIAL¬ cialist, through e-mail: [email protected] E-mail: [email protected] ISTS, INC.: has abundant experience work¬ or Toll - Free: (877) 924-9001. web: www.propertyspecialistsinc.com ing with Foreign Service professionals and the locations to best serve you: Foggy Bottom, FLORIDA Woodley Park, Cleveland Park, Chevy Chase, MISCELLANEOUS BEAUTIFUL SOUTHWEST FLORIDA: Rosslyn, Ballston, Pentagon City. Our office SHIPPING is a short walk from NFATC. One month min¬ SARASOTA- Sunshine, blue skies, excellent PLANNING TO MOVE OVERSEAS? imum. All furnishings, housewares, utilities, values in real estate. Call former FSO Tom Need a rate to ship your car, household goods, telephone and cable included. (703) 979-2830 Farley, AFSA member. New homes and or other cargo going abroad? Contact or (800) 914-2802 and fax: (703) 979-2813. condos a speciality. Broker-Associate, Keller SEFCO-Export Management Company for Web site: www.corporateapartments.com Williams Realty. Tel: (941) 926-8550, or toll- rates and advice. Tel: (718) 268-6233, Fax: E-mail: [email protected] free: (866) 391-0300. E-mail: [email protected] (718) 268-0505. Contact Joseph T. Quinn. Visit our Web site at www.sefco-export.com E-mail: [email protected] FURNISHED LUXURY APARTMENTS: NAPLES. Cosmopolitan, yet friendly. Let Short/long term. Best locations:Dupont Circle, me help you with your real estate needs. Call 110-220 VOLT STORE Foggy Bottom, Georgetown. Utilities includ¬ Peggy Finn, Realtor, widow of former NSA MULTI-SYSTEM ELECTRONICS ed. All price ranges/sizes. Parking available. member and current AFSA member. PAL-SECAM-NTSC TVs, (202) 296-4989, Independent Brokers Realty, Naples, FL. VCRs, AUDIO, CAMCORDER, E-mail: [email protected] Tel: (239) 514-2321, cell (443) 629-5093, ADAPTOR, TRANSFORMERS, e-mail: [email protected]. KITCHEN APPLIANCES EPORT WORLD ELECTRONICS CLOSE-IN BETHESDA. Fully furnished 1719 Connecticut Ave. N.W. house. 3 BR, 3 Bath. Fenced yard. Available Washington, D.C. 20009, near Dupont MORTGAGE June-October. Minimum one month. Circle Metro. Between R & S Streets. [email protected] Tel: (202) 232-2244, Fax: (202)265-2435, BUYING OR REFINANCING A HOME? (800) 513-3907. Save money with some of the lowest rates E-mail: [email protected] in 40 years. Jeff Stoddard spedalizes in work¬ URL.www.220AV.TV ing with the Foreign Service Community, FOGGY BOTTOM APARTMENT: Government & Diplomat discounts along with Washington Mutual’s broad prod¬ Efficiency furnished apartment for rent on 922 uct line. Jeff offers first-class customer ser¬ NAVCO MALL 24th St. N.W. 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12 AFSA NEWS • SEPTEMBER 2002 Focus

to sustain USAID than they were to One wonders whether explained this to the American advi¬ achieve sustainable development. sor, Iris initial reaction was tirat he USAID’s successive drought it was a European custom, Stages of Development — and he wasn’t about to perpetuate The European Model strategies were designed their habits! But he changed, and so When I started out on tire Sonrali did the situation. desk in the early 1960s, the U.S. had more to sustain it than to The USAID country strategy for just recognized the many newly-inde- Zaire in tire 1970s and 1980s is illus¬ pendent states of Africa, established achieve sustainable trative of how little we understood embassies and begun to initiate assis¬ our clients. Fifteen years after com¬ tance programs. In those heady days development. pleting my three-year tour in Zaire I when we thought we could change returned on a TDY and noticed that the world, we believed that the the USAID mission was following a underdeveloped countries of Latin America, Asia and development strategy tirat I had written. I had originally Africa were essentially “primitive” versions of European written the plan without the benefit of trained social scien¬ nations. In time, having gone through patterns of change tists on the staff and without the benefit of a long working similar to the more advanced nations, they might “devel¬ relationship with the Mobutu government. At the end of op” the institutions and standards of living of Europe and my first tour in Zaire, I already had suspicions that my North America. And given that the Marshall Plan had strategy would only be partially effective. It relied on the been a resounding success, we drought drat we had a blue¬ assumption tirat working closely with central government print for our assistance programs in dre rest of dre world. ministries was tire only way to ensure local support and Yet success came more slowly and with greater effort in success. That assumption was incorrect, yet an aid strategy Africa than in Asia or Europe. There are many reasons for tirat should have been scrapped in the mid-1970s was still tiris. Africa’s stage of economic development demands being followed in the late 1980s. more constancy and larger inputs from abroad. Most of dre While stationed in Niger, I used to think that President continent suffers from a shortage of counterpart funding Hamani Diori was correct in his assessment tirat, due to for operational costs, a sparseness of qualified local per¬ tire Peace Corps experience, some day the U.S. would sonnel, tribal conflicts, immense health problems and only develop a mature outlook on the world and a better under¬ skeletal infrastructure to support nation-building. standing of its realities. But it seems that just the opposite Another factor impeding our effectiveness in Africa is has occurred. Many Americans still have the attitude tirat American ignorance of local customs. One U.S. technician poverty is a sign of laziness, indifference or an entitlement once complained to me, for example, that his counterpart mentality. And at the other extreme, many former Peace wouldn’t give him the time of day. I discussed it with the Corps Volunteers regard Africans as helpless victims, and African official and found out tirat tire American never therefore feel compelled to keep sending charity to their shook his hand! The Africans always shook hands when “families” long after leaving. Similarly, some fonner they first met each day, and they often held hands with USAID personnel have established private voluntary agen¬ other men, spending half an hour to say hello. When I cies to undertake good works on that unfortunate conti¬ nent. But these are palliatives, not solutions. The mis¬ Joseph C. Guardiano is a retired USAID Senior sionary view that we need to do good for those poor folk Foreign Service officer. He served as a desk officer in may help them to some degree, but only long-term and the Africa and Latin America Bureaus in Washington sustained efforts will truly change the situation in those and worked as a program officer, USAID affairs officer, countries. and assistant director in numerous overseas posts in The early groups of volunteers were given anthropolog¬ Africa and Asia. After retiring from USAID, he pro¬ ical and sociological training on the countries where they vided consultant services in Mauritania, Bangladesh, were sent to serve. Out of those experiences came an Mali, Poland, Armenia and Egypt. He and his wife Jan excellent book, Living Poor: A Peace Corps Chronicle presently live in Ft. Myers, Fla. (University of Washington Press, 1969), that realistically

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 43 Focus

reported on how a culture, or at least how the poor in that (since we didn’t produce four-wheeled trucks). culture, are captives of their environment. Disease, mal¬ Unfortunately it also confirmed the expatriates’ predictions nutrition and die monotony of their lives all act to oppress tiiat the U.S. trucks would founder in the Sudanese sand. die villagers and leave them with litde energy or ambition. But die American experts insisted diat’s the way they had But inexplicably, many PCVs did not seem to understand done it in Arizona. either this situation or die local cultures. Maybe diey never On the odier hand, some U.S. advisors may have been read the book! Similarly, in die early days of USAID, U.S. too understanding about how diings worked in dieir coun¬ advisors were given six weeks of training, both in USAID tries. One of them wrote in a draft planning document documentation/practices and in country specifics. Sadly, that, “The most we can hope for is diat we can keep cor¬ those brief yet useful sessions were eventually dropped, ruption widiin reasonable limits!” victims of budget cuts, no doubt. Nor did it help tiiat in die “good old days” we kept try¬ ing to spend the aid money in die U.S. We financed com¬ Custom-Tailoring Aid modities, training and services for activities tiiat were usu¬ In the 1960s, USAID instituted an impressive set of ally planned and designed by American technicians. manual orders for custom-tailoring each aid program to Americans wrote the specifications for the commodities or the particular needs of the recipient country. Field mis¬ services, die bids were mainly restricted to U.S.-made sions prepared elaborate annual strategies, budgets and products from U.S. sources and in most cases, American program and project planning documents. Each mission technicians earned out project and non-project activities. annually had to submit a balance of payments estimate for From time to time we relied on host country agencies to its client country. The requirement was dropped when prepare bid documents and to award contracts but to the USAIDs chief economist pointed out tiiat given the dis¬ extent we were vigilant in our reviews, the results seemed crepancies in die estimates and the large size of the pay¬ to coincide with what our own reviewers might have con¬ ment gaps relative to the amount of assistance that USAID cluded. Concern with die impact of offshore spending might be able to provide, the reporting was not worth the began to assume special importance during the early effort. It was retained only for countries where our pro¬ Kennedy years when the Treasury Department noticed a gram included funding for balance of payments support. growing balance of payments deficit. In the field we were We also designed strategies for each country as if our even asked at one time to identify not only die portion of “social soundness” analyses really explained how the soci¬ our program tiiat was spent offshore instead of in the U.S., eties work. In virtually all cases we designed and required but also die relative division for personal consumption as impossibly complicated planning documents drat even few well. We had to do this even tiiough our trade deficit widi USAID bureaucrats understood. We rarely relied on a tiiese countries was relatively miniscule. truly in-depdi knowledge of the local sociological scene for shaping our strategies and practices. ‘Will diis project work Country Studies in this country at this time?” is a crucial question drat most In die former French colonies in Africa we opted to U.S. experts have difficulty answering adequately. I was allow the French to take a lead in virtually all development. dismayed, for example, to read a detailed project descrip¬ We looked for “targets of opportunity,” projects that would tion for a new agricultural extension project proposal in not add to die recipient’s budgetary burden. We thus tend¬ Niger. The project relied heartily on an elaborate fleet of ed to finance “commodity drops.” This practice also vehicles, touring die countryside, gathering statistical data assumed tiiat France could provide technical advisors and dispensing advice to fanners. It would have required because USAID would not be able to find U.S. technicians major recurring operational costs. The U.S. advisor with adequate French-language capability. This led, for designed it in die only way he knew, he said, the way he example, to an anomalous situation in 1963 in Chad. We had carried out agricultural extension programs in the had a nominal technical assistance program, but no tech¬ U.S.. Similarly, when U.S. technicians changed the design nical assistance personnel. U.S. experts flew in for a few for the purchase of trucks for die Sudan and specified sand days, a week, or longer, reviewed dieir projects, made then tires instead of the four-wheeled vehicles proposed by recommendations and flew on to another country where British expatriates, it opened the bidding to U.S. vehicles there was also a similarly small “U.S. aid presence,” but not

44 FOREIGN SERVICE ] O U RN AL/SEPT EM B ER 2002 Focus

much more. USAID even tried for a while to eliminate of millions of dollars from the government. “Trust but ver¬ having any development officers at post, in favor of using ify” was not an explicit motto, but we tried to follow the the U.S. embassy as a postal drop, with embassy personnel concept, if not the language, and we usually avoided transmitting messages to and from Washington. adding substance to charges that the aid program made Predictably, that approach failed abysmally in all respects. dictators rich. Although we did write checks to govern¬ In the late 1960s in Asia, Korea was already a success ments to support structural change (after I retired!), in story. We had provided all forms of assistance, including most of my years as an aid bureaucrat we did not give budget support, and we even reviewed line items in the money directly to governments, either corrupt or honest. Korean budget to verify inclusion of self-help measures we For a long time we separated aid that was politically moti¬ had negotiated. The Koreans were an extremely hard¬ vated from that which was solely developmental, even working, task-oriented and clever people. As part of the though die projects diemselves might have been exactly U.S. aid program, they were able to import U.S. com¬ die same. It often seemed this was more a labeling exercise modities such as cotton and wheat, process them, and then designed to satisfy congressional carping. sell the finished products abroad to U.S. and other con¬ But despite the tailored approach, the agency’s general sumers. The Koreans always had detailed shipping and emphasis seemed, at least initially, to center on capital for¬ receipt documents to support their distribution of U.S. mation and industrialization, basic economic issues that PL480 foods. Not a pound of grain or a can of oil was ever related direcdy to increasing investment and national lost according to their records. But our auditors were suf¬ income. For diat reason, while USAID gave technical ficiently alert to find diversions of U.S. commodities in a assistance on a grant basis, our policy for capital assistance variety of activities, and we successfully negotiated refunds was to provide “development loans.” In the Africa Bureau,

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for example, if a capital project cost at least $400,000, it was limited means to help other countries. We depend on immediately slotted for a loan rather than grant-financing. high-tech solutions, using satellites, for example, for Arguments to waive the philosophy of using loan funds in phone conversations, whereas in many countries the such poor countries for basic roads, town water supplies, or phone doesn’t even work for local calls. We’re impatient similar capital projects were usually parried with die with the pace of change in our client states. We expect response, “They may be poor now, yet who would have results and change to come the way we perceive they do predicted a few years ago that Libya would become so in the U.S., but we forget that our own plumbing some¬ rich?” times leaks and the family car dies on lonely roads. We In retrospect, tailoring our aid programs at that time rail against corruption among government and business to the requirements of die country was sometimes a bit officials who are surrounded by poverty and misery in the bizarre. I look back in wonderment, for example, at our recipient countries, yet until recently, we ignored scan¬ naivete when in 1962 we proposed a long-range assis¬ dalous business practices here at home. And we lack the tance strategy for the Sudan. USAID was willing to political will and national consensus to stay in the devel¬ pledge a multiyear grant of some $2 million (!) subject opment game for die long haul. I’m afraid that instead of to the Sudanese government’s having an acceptable helping in a substantial way we’ll decide to identify and development plan and undertaking associated self-help address only a few striking global problems (health, over¬ measures. I say naivete because we thought we under¬ population, food production, etc.), looking for maximum stood so much more than we really did, both about the impact witii minimum investment. This is what we’ve development process and about Sudanese society. typically done in the past; and this is what we appear will¬ Moreover, $2 million was a rather paltry sum, even for ing to settle for in the future. those days. But Africa has always been the slighted con¬ For that matter, just how relevant are USAID’s meth¬ tinent in the USAID family. ods and approaches today? At one time we practitioners We are, of course, captives of our own culture. talked about appropriate technology. But we don’t apply Perhaps our experience in our own society witii its the term to our own way of doing things, either in giving seemingly boundless economic opportunities, its polit¬ aid or in planning it. How can we recognize what it means ical freedoms, its geographic fortune, its rich resources when applied to those whom we’d like to help? What we and incredible development history dims our vision can best offer is foreign exchange to cover the import of and overwhelms our judgment. Why can’t the rest of goods and services, and some techniques, methodologies the world be like the U.S., we ask? When the minister of and knowledge that can substantially improve life in the agriculture in Niger told me that his farmers couldn’t Third World. duplicate the results of the Chinese agricultural assis¬ Most U.S. technicians will never receive the recogni¬ tance teams who were obtaining multiple yields of rice tion they deserve. But USAID’s aid has worked. I still from their demonstration plots, he said, “We are feel good about being involved in our program to eradi¬ Muslims; we have to pray five times a day. The Chinese cate smallpox and control measles, among other killer farmers don’t stop to pray. The Chinese are bachelors diseases in Africa. I am pleased that my efforts helped who work from sunup to sundown; we are family people get the JFK Bridge built in Niamey. I take pride in hav¬ and have to spend time on family matters as well as on ing sent the first Chadian to die U.S., on a participant farming.” My colleagues laughed when I told them this, training program, and recall that on his return, he pro¬ but the minister was clearly highlighting a basic truism claimed that witii what he had learned about sorghum about exporting technology into another culture — a con¬ production in tire U.S., he could transform agricultural cept that is easy to understand but not always easy to rec¬ production in Chad if he had the means. I still derive ognize. great satisfaction from knowing that I played a major role in initiating a successful integrated rural development Aid That Works project in Zaire. And I recall the pride I felt in more than My current views are not too different from what they one country when local companies, organizations, and were almost 50 years ago, but I am much more mindful governments feted American advisors for the difference of how complicated the world really is. The U.S. has only they had made. ■

46 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 Focus ON USAID

CONTROLLING CONFLICT IN CENTRAL ASIA

hat we now know as the gate conflict diat focuses on giving citizens opportunities to sovereign territories of participate in decisions that affect their communities and WKazakhstan, Kyrgyzstan, improve their living standards. This strategy cuts across Tajikistan, Turkmenistan die agency’s four core objectives in die areas of economic and Uzbekistan were development, democratization, health care and natural created by Soviet dictator resources management. Joseph Stalin in the 1920s to divide and con¬ Nurturing Civil Society quer tlie Central Asian peoples. The artificial boundaries The majority of people in Central Asia, particularly separated communities, created ethnic enclaves, and dis¬ tiiose outside of large cities, believe that diey are powerless rupted patterns of trade and movement. With the collapse over the issues that affect dieir lives. By increasing citizen of the Soviet Union in 1991, these unnatural dividing lines participation in community decision-making and promot¬ became international borders. To compound the tension, ing cooperation within and between communities, Uzbekistan, which is bordered by the other four Central between NGOs and local governments, and between citi¬ Asian republics and Afghanistan, has militarized its borders zens and their local government representatives, in an attempt to combat the threats of terrorism, drug USAID/CAR is helping communities identify, prioritize smuggling and illegal immigration. and solve dieir own problems, problems diat often lead to Though the republics have a combined population of conflict, building on traditional models of self-help already 55 million, a land mass larger than existing in the local culture. Here Western Europe and a significant PEACE AND STABILITY ARE are some of die program’s success share of the worlds oil and gas FRAGILE AND YET ESSENTIAL stories. reserves, the people of Central Asia TO ANCHOR A PROCESS OF Bridging CrossrBorder Villages. face a precipitous loss of socioeco¬ The Ferghana Valley in eastern SUSTAINABLE DEVELOPMENT nomic security for all but die new Uzbekistan is especially notorious for elites. Competition between ethnic IN CENTRAL ASIA. SO, FOR Soviet-drawn borders that cut groups, artificial boundaries, poorly USAID, BUILDING CIVIL through villages and communities of managed natural resources, and the SOCIETY IS A PRIORITY. surrounding Kyrgyzstan. There, in conflict between Islamic fundamen¬ Batken Province, Kyrgyzstan, two talism and repressive secular gov¬ villages are bisected by a slice of ernments are endemic problems. BY BARBARA JUNISBAI Uzbekistan's territory. The Uzbek When this is coupled widi an inabil¬ government closed the border in ity to express frustration through peaceful political chan¬ 1999, stringing barbed wire and imposing cross-border nels, citizens’ alienation and grievances can easily erupt in tolls and taxes on goods where none existed before, mak¬ the fonn of violent conflict, as has happened repeatedly ing life extremely difficult for the Kyrgyz villagers separat¬ over die past decade. ed by the now strictiy enforced border. Lines of commu¬ Because many conflicts in Central Asia have arisen at nication and trade were sundered, families divided, and the local — rather than international — level and because children in one village were prohibited by armed border USAID’s ability to change structural factors at die national guards and barbed wire from crossing through Uzbek ter¬ level is limited, die agency has adopted a strategy to miti¬ ritory to go to their school in the other Kyrgyz village.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 47 Focus

To come to a solution, USAID-funded Counterpart Solving Local Environmental Problems. The Consortium worked with a local NGO and the local com¬ ARMON Womens Center for Environmental Law, in munities to conduct an intensive, participatory needs- partnership with the USAID-funded American Bar assessment. Residents of the two Kyrgyz villages identified Association/Central and East European Law Initiative, the lack of access to each other as their main problem and, established tire Environmental Public Advocacy Center in on their own initiative, planned a solution and identified Uzbekistan in February 2001. Staffed by local lawyers and local resources to implement it. environmentalists, EPAC educates citizens on their envi¬ Apart from tire impossible border crossing, the only ronmental rights under both Uzbek and international law way to connect the two Kyrgyz villages was to traverse a and helps them identify and address local environmental small river. Residents determined to build a bridge using concerns. It also holds environmental pitblic advocacy local labor and material. No grant was requested, and workshops, assists the public in resolving local environ¬ none was given, and the bridge was completed in fall 2001. mental issues, and provides free legal advice to citizens With this small act, local residents have significantly and NGOs. lowered cross-border tensions between the Uzbek and Recently EPAC assisted a group of citizens from Kyrgyz sides. Confrontations between irate Kyrgyz citi¬ Brichnrulla, a town 150 kilometers from Tashkent and the zens and Uzbek border guards have dr opped dramatically. site of Islamic Movement of Uzbekistan incursions in mid- At tire same time, tire two Kyrgyz villages’ joint effort has 2000, with a project to plant safflower seeds in 50 hectares proven to themselves that drere is much to be gained by of exposed laird along tire Chervok Water Reserve. After cooperating widr one another. finally obtaining approval from tire local mayor, the citizen Reducing Interethnic Tensions over Water. The group purchased seeds and planted 10 hectares of land as village of Dusti (Friendship), a community of 1,500 people a pilot project. The project will prevent further erosion in the Sughd province of Tajikistan, uses water from from dust storms that currently plague tire area and will Kyrgyzstan for irrigation. The same water supply is also employ up to 40 local citizens. EPAC is helping tire group used by farmers from dre Kyrgyz village of Arka, located register as an NGO and seek funds to purchase equipment. just across the border in Kyrgyzstan. Because dre Kyrgyz EPAC’s efforts demonstrate both the publics substan¬ villagers use dris water to irrigate then land, drey often tial need for legal and technical assistance to resolve local block die channel to divert the water. As a result, farmers problems and die success of environmental advocacy as a from Dusti do not receive enough water for dieir own irri¬ tool to promote public participation and democratic prac¬ gation needs. tices in Uzbekistan. With the assistance of Counterpart Consortium and a Investing in a Community’s Response to Drought. local NGO, Ittifok (Unity), Dusti community members On July 25, 2001, U.S. Ambassador Herbst and Esnazar developed a Community Action Plan in November 2001 to Usenov, executive director of Atamakan, a non-govern¬ build 1,300 meters of underground pipeline from tire main mental charitable organization, signed an agreement pro¬ channel. However, tire villagers from Arka opposed allow¬ viding $25,000 to fund a potable water supply improve¬ ing Tajiks to lay pipeline tirrough their territory. Leaders ment project for residents of the Karakafpakstan commu¬ from Arka were invited to participate hr a roundtable con¬ nity of Khalkabad. Khalkabad has suffered from a two- ducted by Ittifok, and, after discussing tire situation, drey year drought that affected all of Karakalpakstan. This signed an agreement permitting tire pipeline. In return, funding was provided by USAID’s Office of Foreign tire Tajik villagers agreed to repair a drain system located Disaster Assistance in response to the government of in Kyrgyz territory but used by both communities. Both Uzbekistan’s request for emergency relief. groups also agreed to resolve future conflicts through Atamakan, with the assistance of local communities, the negotiation and roundtable discussions. The pipeline was city holdmiat (city mayor’s office) and local organizations, completed in January 2002. drilled 70 wells and installed hand-operated pumps. From the outset, Atamakan closely collaborated with mahallas Barbara Junisbai is an information specialist with (local communities or neighborhoods), the city holdmiat, USAID’s Regional Mission for Central Asia and local organizations to plan the project. Executive (USAID/CAR) in Washington. Director Usenov, with tire support of the local holdm and

48 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 Focus

mahalla representatives, organized The majority of people in ticipating in a USAID-sponsored participation of all residents in study tour of Poland on decentraliza¬ detennining the location of the Central Asia believe that tion reforms organized by the hand pumps. Representatives from International City Managers Associa¬ more than 1,700 families actively they are powerless over the tion, Ms. Galina Tischenko, secretary participated in die preparatory of Leninogorsk’s maslikhat (city phase. They selected 50 three- to issues that affect their lives, council), convened the city’s first five-person groups to monitor all public hearings. These provided an work related to drilling wells and even at the local level. opportunity for residents to discuss installing hand pumps. Atamakan energy rate hikes, one of the most contracted with local producers and hotiy debated issues in Kazakhstan. construction firms for the actual drilling and installation. To prepare for die hearings, Ms. Tischenko invited For example, 70 hand pumps were manufactured at the ICMA trainers to conduct a special seminar instructing cotton-processing plant located in Khalkabad, using its idle official participants — city council deputies, the Anti- machine shop and employees. Monopoly Committees regional representatives and city Tliis project was followed closely by die Karakalpakstan government specialists — on conducting public hearings. public and received considerable attention from the local The trainer was the Pavlodar city council secretary, mass media. As a direct result of the project, nearly 10,500 Sansyzbai Aldmbekov, an experienced local government residents of Khalkabad now have reliable access to potable practitioner. Ms. Tischenko chaired die hearings and kept water. One resident noted, “It is a great support for our the audience focused on the topic. Local energy providers, families. Now we have a reliable source of water. It gives Anti-Monopoly Committee specialists and the mayor all us a confidence in die future.” openly discussed the issue widi the audience. A striking by-product of this process is diat Atamakan As a result of die public hearings, energy providers received more dian 20 proposals from mahallas and die agreed not to increase utility rates, and residents’ confi¬ city mayor s office for assistance in resolving different social dence in their elected officials was strengdiened. and economic problems. Community members saw that they could play a role. Opening up a Dialogue with Public Hearings. Even the mayor agreed diat die public must be informed Leninogorsk, a city with a population of 53,000, is located about and participate in die decision-making process. in eastern Kazakhstan near the Russian border. After par¬ Strengthening Local Government Independence.

USAID Goes Back to Basics in Central Asia Since 1992 U.S. assistance [to the Central Asian country, less centered on technical practice and more republics] has totaled more than $1.7 billion, including devoted to improving public knowledge and changing $650 million in USAID assistance. The expected results attitudes and values. And finally, the new strategy of USAID’s programs, based on the Eastern European emphasizes a longer-term perspective: stressing funda¬ model of rapid [structural] transition [to open market mentals; focusing on basic sociopolitical issues; and democracy], were too ambitious for the political and designing ways to build relationships and partnerships economic realities of the region. Some expectations between these new nations, their citizens and the world about the pace of change possible in Central Asia were community. The need to build a constituency for reform naive and unrealistic. across the board, in health, democracy and enterprise With the benefit of experience and greater realism, development programs, is fundamental. USAID’s new assistance strategy shifts focus and These broad changes... stem from the hard lessons emphasis. The most important change is the increased learned from eight years of development experience in emphasis on individuals, communities and the institu¬ the region... tions that nurture and serve them.... The new strategy is more realistic about what is pos¬ Excerpted from USAID’s Assistance Strategy for sible and what is required to bring about change. It is Central Asia 2001-2005, issued by the USAID Regional more selective about the assistance provided to each Mission for Central Asia, July 2000.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 49 Focus

Officials at the city level have created the Kyrgyz Mayors and council chairpersons mandated tiiat die asso¬ Republics first independent local government association, ciation actively solicit comments from city governments on the Association of Cities. USAID’s implementing partner, upcoming local finance legislation and advocate then- inter¬ the Urban Institute, facilitated die establishment of die ests. To secure its independence, die Assembly of the association in late 2000, and has worked with the group to Association of Cities formally voted on a membership dues develop it as a real member-based organization indepen¬ structure of 30 tyin (about half a cent) per person per year, dent of die national government. The association provides which should yield roughly $6,000 in dues annually. information to its constituents and advocates local govern¬ Membership dues make the Association of Cities one of a ments’ interests tiirough participation in government com¬ very few NGOs in die Kyrgyz Republic to be able to sup¬ mittees, law drafting, publications, televised interviews, port itself with funding sources outside of donor grants. research, and briefings by governmental officials. As diese examples show, die participatory' approach is The Kyrgyz Republic has a strong tradition of hierar¬ proving to be die crucial instrument of empowering people, chical, centralized rule in which all levels of government enabling diem to believe in their own strengths in solving are subordinate parts of one apparatus. As a result, local local problems. People in towns and cities throughout the governments lack meaningful experience in lobbying for region have commented diat diey had been waiting for tiieir own interests. someone else to solve tiieir problems, never imagining tiiat Thanks to energetic interventions from several mayors tiiey could come together as a community to analyze and who recognize the value of a separate, independent associ¬ tackle diem successfully on tiieir own. USAID/CAR’s con¬ ation, attempts to sweep die association into a larger tribution to tiiese efforts is like a small pebble striking water: grouping headed by national officials were rebuffed. the ripple effect extends beyond our original reach. ■

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50 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 Focus ON USAID

COMBATING THREATS OF EMERGING DISEASES

umans and mosquitoes (like assistance from institutions such as the Centers for other agents that cause or Disease Control and Prevention, USAID and the Pan H transmit disease) share a American Health Organization has been better coordi¬ common disregard for bor¬ nated and targeted to serve the region. der formalities along the huge frontiers that countries Success Stories often share. Common sense, The examples of such cooperation are numerous. In therefore, would seem to the HIV/AIDS arena, USAID/Bolivia and USAID/ dictate that regional cooperation in public health mat¬ Brazil have been strengthening coordination related to ters be the norm rather than the exception. prevention, control and epidemiological surveillance in In the context of international public health, region¬ key border portal towns. This cooperation may have al cooperation is usually understood as that occurring helped curtail the extent of the pandemic in Bolivia among ministries of health of two or more countries in (where there have only been 847 HIV/AIDS cases the region, but it can also involve cooperation among reported to date). Continued cross-border coordina¬ USAID missions. In fact, one tion is envisioned. could argue that strengthening Regarding vector-bome dis¬ EXPERIENCE IN LATIN regional activities at the mission eases control, Peruvian experts level — rather than channeling AMERICA SHOWS THAT, from USAID and Peru’s resources through distant off¬ IN TERMS OF BOTH Ministiy of Health have partici¬ shore contractual mechanisms TECHNICAL EFFECTIVENESS pated in technical meetings on of bureaus at the central level —- malaria and yellow fever control AND SUSTAINABILITY, may be the most efficacious use in Bolivia. Peru welcomed a of resources in terms of both STRENGTHENING REGIONAL Bolivian team to participate in technical effectiveness and sus¬ ACTIVITIES AT THE MISSION antimalarial drug efficacy trials tainability. The recent experi¬ LEVEL MAY BE THE BEST USE supported by its Project Vigia ence of USAID missions in (an MOH/USAID collaborative OF USAID RESOURCES. Latin America makes that case. activity), the Peruvian National Since 1999, USAID/Bolivia, Institute of Health, CDC, and USAID/Peru and USAID/Brazil BY DR. CHARLES W. the U.S. Naval Medical have actively promoted and sup¬ OLIVER AND DR. JAIME Research Detachment in Peru. ported activities to strengthen CHANG NEYRA The subsequent replication of regional cooperation. Mutual these trials in Bolivia was assets such as institutional expe¬ accomplished with the support rience, project design docu¬ of these same organizations. ments, results of research and, most importantly, Further collaboration between ministries of health human resources (both from respective ministries of and other institutions from Peru, Bolivia, Brazil, health and the missions themselves) have been openly Colombia, Ecuador, Guyana, Suriname and shared and effectively utilized. As a result, a larger pool Venezuela is occurring under a new Amazon Malaria of regional resources has been generated, and technical Initiative sponsored by USAID’s Bureau for Latin

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 51 Focus

America and the Caribbean, Mutual assets such as in the Latin-American region. designed to roll back the resur¬ One program instructs doctors, gence of malaria in tire region. institutional experience, nurses, and medical students in Turning to another ancient the proper case management of tropical scourge, yellow fever, project design documents, tuberculosis; the other teaches USAID/Bolivia supported key a global diagnostic and treat¬ research at the University of results of research and ment algorithm for the integrat¬ Texas Medical Branch in ed management of childhood Galveston to determine the human resources have been illnesses. After sharing the transmissibility of the genotype tuberculosis program at a (II) of yellow fever virus found openly shared and utilized. regional conference sponsored in Peru and Bolivia. This geno¬ by PAHO, several countries in type exists among strains of the region, including Nicaragua mosquitoes common in rural and Peru, have already request¬ areas. If the results of this research prove to be defin¬ ed and received copies of this program, and both Brazil itive, the findings may influence policy-makers in both and Haiti have expressed interest in adapting versions countries to consider universal immunization for this in Portuguese and French, respectively. The overarch¬ life-threatening disease. ing goal of the training programs is to save lives and resources by reducing the risk of antimicrobial Coordinated Training resistance by ensuring strict compliance with treatment Another example of effective regional coordination regimens. is USAID/Bolivias development of two interactive Cross-border coordination efforts between the computer-based training programs in Spanish, which health services of Brazil and Bolivia may already have have been made available free of charge to all missions prevented the more virulent form of dengue fever (dengue hemorrhagic fever) from spreading to Bolivia Based in La Paz, Dr. Charles Oliver manages from Brazil, where, according to the Centers for USAID/Bolivia’s infectious diseases, HTV/A1DS and Disease Control, there were some 317,787 cases of the child survival prograins. Prior to joining the U.S. disease reported as of May 2002. More than 15 years Foreign Service, he served jointly on the faculty of ago, USAID/Bolivia helped to establish PROCOSI, a Johns Flopkins School of Hygiene and Public Health unique network of 24 Bolivian non-governmental orga¬ and as a senior technical advisor for numerous USAID nizations that provides vital basic health services and Missions and projects in Asia, Africa, Latin America, assistance for the poorest sectors of Bolivian society, and USAID’s Global Bureau for Health (Division of mostly in remote rural areas of the country. During the Infectious Diseases). He holds a master’s degree in past year, USAID/Brazil sent a team to explore the pos¬ public health and a Ph.D. in epidemiology. He led the sibilities of adapting the PROCOSI model in the State Department to the 1986 Inter-Services Tennis Brazilian context. Through the leadership of USAID, Championship and received an award from Secretary indigenous healthcare NGOs from Bolivia, Brazil and of State George Shultz. Ecuador (ProSalud, BEMFAM and CEMOPLAF, Dr. Jaime Chang Neyra, M.D., has worked extensive¬ respectively) were encouraged to coordinate their ly in the region and is recognized as one of the top med¬ efforts in the social marketing of basic health services ical epidemiologists in Peru. An FSN in Lima, he man¬ and commodities. ages USAID/Peru’s infectious diseases programs. He There are also examples of bilateral inter-mission col¬ holds a master’s degree in public health from the laboration. USAID/Bolivias and USAID/Perus Health London School of Hygiene and Tropical Medicine. He Teams share technical documentation and provide each is also an accomplished photographer and skydiver. other technical input; e.g., in the preparation and evalua¬ This article reflects the personal views and opinions of tion of proposals and reports presented by consultants. the authors and not necessarily those of USAID. USAID/Peru contributed staff to conduct the evaluation

52 FOREIGN SERVICE ]OURNAt/SEPTEMBER 2002 Focus

of Bolivia’s national immuniza¬ Cross-border coordination “basic” countries (those on tion program, which resulted in the cusp of the epidemic). Bolivia’s adoption of key recom¬ efforts between the health As a result, USAID missions in mendations that led to signifi¬ those countries will be able to cant improvements in its pro¬ services of Brazil and Bolivia retain management of their gram. Conversely, USAID/ bilateral LIIV/AIDS program¬ Bolivia (as well as die Bureau for may have prevented the ming resources, with the addi¬ Latin America and the tional benefit of technical over¬ Caribbean) sent technical per¬ spread of the more virulent sight from the newly created sonnel to participate in a joint HIV/AIDS Division of USAID’s evaluation of USAID/Peru’s form of dengue fever. Bureau for Global Health. In bilateral program for infectious addition, USAID/Brazil may diseases. step up its technical presence in the field, intensifying cross-border collaboration. Battling Infectious Diseases The joint evaluation in June 2002 demonstrated die Continuing Impact advantages of inter-mission collaboration. Peru chose to Other forms of cooperation among USAID missions conduct a mid-term evaluation of its bilateral infectious need to be actively explored. For example, USAID/Nepal diseases project with an infectious diseases advisor from has supported development of a vector-borne diseases the LAC Bureau, an infectious diseases epidemiologist center at Hetauda in Nepal’s tropical lowlands since from USAID/Bolivia and a Peruvian public healtii con¬ 1995. In September 2000, a regional conference on sultant. The team members had considerable prior strengthening cooperation on vector-borne diseases knowledge of the project from previous regional coordi¬ among neighboring countries of Bhutan, Bangladesh, nation activities, which contributed to what was per¬ India and Nepal was successfully conducted at the ceived as a highly effective approach to the design and Hetauda center. Also in 2000, USAID/Bolivia supported implementation of the evaluation. More importantiy, this a feasibility study for development of a similar center for approach was well received by counterparts in the tropical diseases in the Bolivian Amazon, which was sub¬ Peruvian Ministry of Health, who appreciated being full sequently established by a ministerial resolution in partners in the process. For the first time, a member of Januaiy 2002. If language differences can be sorted out, Peru’s Office of External Cooperation actively participat¬ Bolivian scientists could gain much from the experiences ed in the evaluation process. Moreover, this approach and lessons learned from their Nepali counterparts. An resulted in saving thousands of U.S. taxpayer dollars as earlier precedent for this type of cooperation was estab¬ the services of the two U.S. members of the team (both lished in the 1990s when a Bolivian team was sent to USAID employees, one of whom was already resident in Zambia to share their experiences with fortification of the area) were provided at no extra cost. sugar with Vitamin A, a micronutrient that has proven to After USAID/Ecuador’s health program was phased demonstrate multiple synergies in improving the health out in 2000, USAID/Peru stepped in to provide impor¬ status of young children. tant technical assistance related to infectious diseases The success of these activities demonstrates the need in key border areas of Peru and Ecuador. to maintain in-country technical leadership by Foreign Undoubtedly Ecuador could have done more and Service officers and Foreign Service Nationals assigned gained more from such regional cooperation to to manage the health programs of individual U.S. mis¬ address tuberculosis, malaria and HIV/AIDS if its sions in the field. Fortunately, top management at the health program were to be at least partially revived — USAID missions in Bolivia, Brazil, Peru and elsewhere but, at the same time, all was not lost. already recognizes the comparative advantages in sup¬ USAID missions in Bolivia, Brazil and Peru provided porting such regional cooperation activities, which will timely technical feedback in early 2002 to the center continue to have a significant impact on the health of our regarding a proposed regional strategy for HIV/AIDS in partners in the region. ■

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 53 Focus ON USAID

MAINSTREAMING TRADE AT USAID: THE CASE OF EGYPT

n March 14, 2002, in the run-up capacity building into country strategies and fostering a to the U.N. International “Geneva Dialogue” with key trade multilaterals such as O Conference on Financing for the World Trade Organization, the U.N. Conference on Development in Monterrey, Trade and Development, dre International Trade Center Mexico, President Bush said, (operated by UNCTAD-WTO), and the Common Fund ‘Trade is the engine of develop¬ for Commodities. The Africa Bureau and the Europe & ment and by promoting it we will Eurasia Bureau subsequendy wrote grants to the WTO for help to meet the needs of the accession and compliance programs. In April 2002, worlds poor.” Linking trade to Assistant Administrator Robert development has become a cor¬ Randolph signed memoranda of HAS LED nerstone of this administrations USAID/EGYPT understanding with ITC and CFC, foreign policy, an important theme THE WAY IN LINKING TRADE which gave Asia and dre Near East being mainstreaming trade into TO DEVELOPMENT, CREATING missions access to dreir expertise, development assistance protocols MODELS OTHER MISSIONS as we have done in Egypt. and helping developing countries From January' 2001, the focus CAN USE. understand the benefits of global¬ on trade intensified at USAID, ization. We have had considerable leading to a reorganization that success with this agenda at BY DR. J. W. WRIGHT, JR. created a pillar Bureau for USAID/Egypt and, while our mis¬ Economic Growth, Agriculture sions size makes tire program and Trade and strengdrened its novel, we have created models other missions can use. Office of Emerging Markets. In late 2001, USAID fund¬ ed a trade capacity building project with Nadran and Trade Comes On Line Associates to provide field support and trade-related tech¬ Although pressure from the Bush White House has nical assistance. Further, OEM is working with ITC to made USAID realize that trade capacity building is a formalize then relationship and give all missions access to theme drat cannot be allowed to sink into its bureaucracy, ITCs market analysis services. Several field missions are dre push inside die agency to “mainstream” trade into adding positions for trade officers and/or offering trade development strategies had began earlier. During prepa¬ and export projects. rations for tire 1999 Seatde World Trade Organization Today, according to the agency’s own surveys, USAID Ministerial, Ambassador James Michel, then Counselor, spends around $250 million on trade capacity building initiated an internal effort that led USAID to increase its activities annually. Even so, how to coordinate tiiese activ¬ participation in interagency processes on trade in ities is a key question, as is deciding how to balance a Washington and Geneva. demand-driven dialogue on trade with an entrenched After Seatde, an exchange of letters between Deputy internal bureaucratic process. And, with the impact of Administrator Harriet Babbitt and Deputy U.S. Trade trade multilaterals clearly rising, USAID needs to find Representative Susan Essennan accelerated dre process. better ways to work with agencies like the ITC, CFC and The exchange confirmed drat trade training has “strong UNCTAD, which can provide subsidized technical assis¬ demand from developing countries and broad interna¬ tance, expertise and direct finks to the WTO (the tional appeal,” and that priorities are integrating trade Common Fund will actually co-fund projects).

54 FOREIGN SERVICE JOURNAL/SEPTEMBER 2002 Focus

On the Ground in Egypt There was little million assistance for trade refonn pro¬ Work at USAID/Egypt is complicat¬ ject at the Egyptian Ministry of ed by several factors, including the mis- interaction among Foreign Trade tiiat promotes policy sions size. It has a current annual bud¬ reform and will help establish a viable get of around $650 million (down from agencies within the WTO unit. Unlike its unpopular prede¬ over $1 billion in 1996-1997). As cessor project, which focused on policy opposed to most missions, where the government of Egypt and economic analysis, ATR is majority of funds come from the designed to provide sector-specific USAID core budget, funding in Egypt on trade. training, address services bottlenecks is primarily “Economic Support caused by MFT rules, and encourage Funds” provided by the Department of MFT sectors and otiier ministries to State, making State-USAID cooperation necessarily accept international standards. strong. The Economic Growth Directorate controls the In addition, a customs reform and trade facilitation pro¬ most funds, and focuses on four areas: sector policy and ject is being designed tiiat should set a new model. While privatization, competitiveness and agricultural develop¬ improving tariff rates and valuation methods, this project ment, finance and information technology, and the will focus much more broadly on the impact poorly oper¬ Commodity Import Program. Trade falls within sector ated customs regimes have on services and will address policy, where about $65 million in trade policy reform and issues like ports, transport and reporting efficiency. trade-training activities are coordinated. In the mission’s Human Development Division, a $20 Three USAID-funded projects focus on trade or trade million Management Development Initiative II project training: Pal-Techs Management Development Initiative, has recentiy been funded that will provide training to the the International Executive Service Corps’ Center for private sector on a range of management topics. It will Business Support, and Chemonics’ Technical Assistance also help Egypt establish a technical university focused on for Policy Reform. Local partners USAID supports, such building information and communications technologies. as die American Chamber of Commerce, die Alexandria Business Association and the Alexandria Chamber of Immediate Measures Needed for Doha Commerce, also work on trade issues. The agriculture-led By 2000, the increased volume of trade-related export businesses project and the agriculture technologies requests from Egyptian organizations indicated that die utilization and transfer project work on sector-specific mission needed a trade advisor. Creating a new position trade issues. The participation of firms tiiat work witii the was difficult, so a specialist was hired through the missions Commodity Import Program, many of which American Association for the Advancement of Science also export, heightens our success. Diplomacy Fellowship program. At the high end, the mission has recentiy funded a $20 Initial consultations made it obvious that a sizable amount of trade-related activity was taking place, but seri¬ Dr. J. W. Wright, Jr. has served as the Chief Trade Advisor ous contractor coordination was needed. There was little at USAID-Egypt for the past two years and, before that, interaction among agencies within the government of was a senior advisor in USAID’s Office of Emerging Egypt on trade, and partially because of this, immediate Markets. Both positions were funded through the American measures were needed if the country was going to prop¬ Association for the Advancement of Sciences Diplomacy erly prepare for the WTO’s Fourth Ministerial Fellows program. He currently designs trade and trade Conference at Doha, Qatar. Further, there was inade¬ capacity building programs with PricewaterhouseCoopers. quate contact between the MFT and international trade His publications include Structural Flaws in the Middle support agencies, like ITC and CFC, and that resulted in East Peace Process: Historical Perspectives (Macmillan, an urgent need for trade flows analysis. Indeed, the MFT’s 2002), Economic and Political Impediments to Middle foreign trade sector was not basing its negotiating strate¬ East Peace, with Laura Drake, (Macmillan, 2000), ami The gies on real market analysis. Political Economy of die Middle East: The Impact of To respond to this situation, an informal team of project Competing Trade Agendas (Routledge, 1999). chiefs-of-party,’ whose projects could work on overcoming

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 55 Focus

barriers to trade, was formed and discussions about how to sentations from CFC, and met with the U.S. and offer more trade training were initiated. Two projects took Egyptian missions to the WTO. Egypt’s ministries of the lead: MDI (I) for training and studies aimed at increas¬ finance, foreign affairs, foreign trade, and international ing Egypt’s global competitiveness, and TAPR for policy- cooperation each sent several representatives. The reform-oriented training for the government. group also included a team of executives from five We began by organizing market analysis and aware¬ Egyptian import and export firms. Several senior staff ness building activity in Geneva. MDI funded a series of from USAID/Egypt, including the mission director, and ITC-generated studies on opportunities for Egyptian embassy staff also attended, which helped to build con¬ exporters in tire Maghreb, Gulf Arab, and Common sensus widiin the mission for trade training in general Market for Eastern and Southern Africa states, and orga¬ and cooperation with ITC in particular. nized a four-day workshop on “WTO Compliance and Evaluations following dris exercise indicated that the Competitiveness.” The workshop was held in February participants better understood the negotiating positions 2001, just as negotiations over Doha were beginning. being taken in advance of Doha, and the linkages between Workshop participants spent most of their time at ITC, WTO compliance and export competitiveness. At home, but also visited the WTO and UNCTAD and heard pre¬ die participants formed the “Geneva Group,” which

TRADE IS KEY: A MULTILATERAL CONSENSUS

Participants discussed in Seattle but demanded in raises employment most rapidly. They are also aware that Doha that the WTO recognize that undeveloped trade areas without substantial production bases, like Djibouti capacities, generally, and weak services sectors, specifi¬ or Palestine, must necessarily focus on building services- cally, are the broken links in the developing countries’ led economies if they want to benefit from trade. benefit chain with global trade. The multilateral dialogue The evidence is compelling that those countries that concurs that trade growth is dependent on liberalizing see services and international standards compliance as services and building firm-level awareness among pro¬ competitive factors win, while those who see them only ducers that meeting core standards and beating market as political factors lose. Generally, economies that used prices lead to profitability and greater global market par¬ their development plans to address services and stan¬ ticipation. dards issues have far outpaced countries that did not in The Doha Declaration made trade capacities a core global growth participation. For instance, Egypt has not issue for the next round of negotiations that will take place followed a services and standards approach, while over the next two years, and recognizes that assistance countries in East Asia with comparable demographics must go beyond policy reform and address real bottle¬ have. Had Egypt followed Thailand and South Korea’s necks to competitiveness — usually deficient capacities models (not to mention Hong Kong, Singapore or in services and standards. Sometimes this means identi¬ Dubai), exports would have been 10 to 20 times higher. fying market opportunities for currently produced prod¬ It is also true that nations in East Asia trade with each ucts and services and helping raise quality and standards other, which does not happen in the Middle East. This that will allow developing country entrepreneurs to must change. expand into other markets. In other cases, it means A simple comparison of Ireland to Italy reveals that the developing service industries that can lower overall situation is no different in Europe. Having followed a ser- import and export costs and allow a particular country to vices-led economic strategy, Ireland grew at a 7.1 percent exploit geographical advantages. rate in 2001, and maintained similarly high growth rates More specifically, with Hong Kong, Singapore and throughout the 1990s. However, Italy, which continues to Dubai serving as models, leaders on both sides of the rely on subsidies to producers and bureaucratic trade bar¬ industrial and digital divides are keenly aware that ser¬ riers, grew at only 1.6 percent in 2001, and has had a vices sector liberalization creates cost efficiencies and struggling economy for at least a decade.

56 FOREIGN SERVICE JOURNAL!SEPTEMBER 2002 Focus

requested follow-on activities and consistendy supported Summers in Egypt are poor times for conducting pro¬ these activities, staying involved in die seminar series we grams, but good times for planning. Both the outgoing held before and after Doha. and incoming ambassadors (Daniel Kurtzer and David Welch, respectively) felt die upcoming Doha WTO min¬ Moving to In-Country Activities isterial presented a window of opportunity to promote Government participants were die most strident in trade liberalization and generate positive publicity on U.S. dieir requests for in-country activities. In response, TAPR programs; and U.S. Trade Representative Robert B. provided support for ITC specialists in trade information, Zoellick wanted all the support we could give. Richard executive development, and supply chain management to Albright, the embassy’s economic counselor, assembled an visit Egypt in April 2001, to present seminars and assess informal interagency team to work on Doha-related options for longer-term activities. The team met with var¬ issues, such as simultaneous requests for commercial ious public and private sector players, and presented sem¬ diplomacy support in advance of Doha at both the MFT inars in botii Cairo and Alexandria. and the Ministry of Foreign Affairs. Direct funding from Demand was clearly high. For the Cairo seminar the USAID mission was constrained by the time frame, so members of die Geneva Group were each asked to invite we again turned to our lead contractors. five guests; over 120 people attended, 50 percent from die What developed was a trade training and WTO aware¬ private sector In Alexandria, about 25 people came, with ness campaign presented by former high-level govern¬ 80 percent from die private sector. In May 2001, a team ment officials and staff from international organizations from UNCTAD held anodier trade information workshop who were actively working on die Doha ministerial: in Cairo and approximately 100 people attended. • Simultaneous commercial diplomacy courses at

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SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 57 Focus

MFT and MFA, led by Geza Feketekuty, president of the collaborated with CFC (which contributed $50,000) to International Commercial Diplomacy Project and a for¬ co-host a food exports conference, and MDI agreed to mer senior assistant U.S. trade representative, were fund¬ end the series with a seminar on Egypt’s competitiveness, ed via TAPR and the Development Training II project. led by Peter Cornelius of the World Economic Forunr. • A “Trade Diplomats Discussion Series” was initiated The specific topics addressed grew out of priorities by IESC to build public awareness of WTO issues and dis¬ identified by the focus groups held during the pre-Doha cuss the benefits of trade with the private sector. Eight series: regional market opportunities, trade and informa¬ retired ambassadors and senior speakers participated. tion technologies, export trade finance, trade and tourism, (Ahhough the Sept. 11 attacks occurred just as the series trade and services, supply chain management, overcom¬ began, eight of the nine scheduled speakers came and ing technical barriers to trade and quality management. showed great commitment.) Dr. Yousef Boutrous Ghali, Minister of Foreign Trade, • A journalists’ training and roundtable series was sup¬ asked that linkages to small and medium enterprises be ported by IESC, with help from ICDP staff and a critical explored, and declared March 2002 “SME Export role played by Embassy Cairo’s press office. Economic Assistance Month.” editors were given access to tire trade diplomats through The initial session on “Trade and Information open-forum roundtables, but only if they attended train¬ Technologies” was held in February and attracted over ing sessions on “Reporting on Trade Issues.” 160 attendees in Cairo and 70 in Alexandria, including The day after each session, private sector focus groups people from the Egyptian government, USTR Geneva, were held in the morning and roundtables with USAID and representatives from the Canadian, Danish, E.U. and staff in dre afternoon (FSN staff were especially targeted). Japanese embassies in Cairo. Between February and In addition, a tour for ITCs Executive Director April, an average of about 100 people attended each of the Ambassador Denis Belilse was organized by MDI. The 12 seminars in Cairo and an average of about 50 attended tour included a “Global Economy Series” lecture to an eight seminars in Alexandria. The CFC/IESC food audience of over 300 people, a television interview with exports conference in mid-June was attended by 92 peo¬ the Minister of Foreign Trade and private sector meet¬ ple. The World Economic Forum finale at the end of June ings. The tour also included a donors lunch with repre¬ attracted well over 100 people in Cairo and 50 in sentatives from six embassies that support business devel¬ Alexandria, the most sustained interest being generated opment activities. by the Geneva Group. A panel of experts, who discussed the Doha Declaration agreed to the night before, concluded tire What Next? campaign on Nov. 14. Over 50 (almost all positive) news¬ The obvious question is: Will Egypt’s interest and activ¬ paper and magazine articles and a flurry of requests for a ity on trade matters continue to broaden and deepen? For spring series materialized. the government, the level of continued interest is high. The Information Decision Support Center, the secretari¬ Responding to Doha at and main support center for parliamentarians and Our success indicated tire need for renewed program¬ members of the president’s cabinet, now has access to ming in early 2002, and we used the Doha Declarations ITCs market analysis program and is providing it to both focus on export capacity building to set the agenda. The public and private Information Decision Support Center missions human development strategic objective funded sector groups. And ITC received letters from the Minister a training grant of $275,000 to ITC that would be man¬ of Foreign Trade, the Minister of Supply, the president of aged under the economic growth strategic objective. ITC the Egyptian Organization for Standards, and the prepared new market studies and designed an intensive Alexandria Chamber of Commerce (under the Ministry of “Tools for Trade” export assistance series, delivered hr col¬ Supply) asking for more training in commercial diploma¬ laboration directly with tire MFT, MDI, TAPR, IESC, the cy, trade information and market analysis, supply chain American Chamber of Commerce and tire Alexandria management and quality management. In the private sec¬ Business Association. The Alexandria Chamber of tor, the Alexandria Business Association has asked ITC to Commerce agreed to provide local support. IESC also help it establish a regional export services training center

58 FOREIGN SERVICE J OU RN AL! SEPT EM BER 2002 Focus

and support project. As a result of the CFC/IESC semi¬ is also committing new resources to trade capacity build¬ nar, several agriculture groups are requesting assistance ing. Including these firms has helped significantly to on enhancing commodity exports. increase the sustainability of the trade training and aware¬ Of course, many organizations will accept any training ness programs, and to link diem to trade multilaterals. USAID will finance, but in this case the core Geneva However, the most far-reaching changes may have Group has loyally participated for almost two years, which been widiin USAID/Egypt itself. As indicated above, indicates a deeper commitment (and also confirms that the new ATR project focuses on services and standards, tins was a good way to jump-start a trade training series). and the winning bid specifically states they will work That their requests have reached ministerial levels also directly with ITC. MDIII was specifically designed to indicates commitment. The sustained participation from build competitiveness in services sectors and help to tlie private sector shows that more and more firms see the bridge the digital divide that so inhibits Egypt’s trade. value of export services and meeting international stan¬ The new customs reform projects dual focus on tariff dards. reform and trade facilitation is pioneering. This cross¬ Movement among contractors is one of the most sig¬ sector style of programming is relatively new to nificant tlungs diat has happened. As a direct result of die USAID, but it represents a decisive shift in thinking Doha series, two organizations — MD [/Pal-Tech and within USAID/Egypt. IE SC — are adding trade and export training to tiieir In the end, contractors may cariy these agendas for¬ strategies and are botir working direcdy with trade multi¬ ward more quickly dian anyone else: because local gov¬ laterals. Through ATR, Nathan and Associates are institu¬ ernments are demanding trade training and export assis¬ tionalizing ITCs market analysis service and commercial tance, field missions will increasingly emphasize these diplomacy training at the MFT. PricewaterhouseCoopers priorities in requests for proposals and contractors. ■

CREATING A BETTER MARKET: WHAT WE LEARNED IN EGYPT

Our approach has helped to create a better market in • Coordination with specialized trade agencies can be Egypt by breaking the traditional policy reform mode with extremely effective for delivering trade training (although the addition of commercial diplomacy, coordination with United Nations agencies in particular must readjust their international organizations, and a focus on services and bureaucracies in ways that make work with donors feasi¬ standards as tools for competitiveness. The work has not ble). been easy, but it has been satisfying, and now that the • Contractor coordination across sectors is critical and, model is set it will certainly be easier for other missions. Our while time-consuming, can yield extraordinary results and experience shows us that: enable missions to address a broader range of stakeholder • Starting with industry reviews, product maps and mar¬ and firm-level assistance needs in shorter periods of time. ket analysis is critical. Most Egyptian firms and/or bureau¬ • In addition, under certain circumstances, such as those crats are left out of global markets because they do not we found in Egypt, it is necessary to find creative ways to know their real market opportunities and priorities. respond to specific political needs, help influence policy • Including commercial diplomacy training early on is across sectors and support reform-minded, inner-circle also crucial because if key political constituencies do not staff. Unlike elsewhere, in Egypt we have an open and understand either the benefits of increased trade or the impressive Minister of Foreign Trade who, even though he is aims/limits of the WTO, trade liberalization will not take restrained by a huge bureaucracy (in the 2002 World place. Competitiveness Report, Egypt ranks highest out of 75 coun¬ • Broad awareness campaigns are necessary so that tries studied in government red tape), realizes that open mar¬ both government and the private sector it should serve kets matter. In such situations, additional imaginative activ¬ understand that meeting WTO/international standards is a ity is called for. While this does curry political favors, it more competitiveness issue and can lead to greater profitability. importantly builds core institutional capacities.

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 59 2002 AFSA CONGRESSIONAL SCORECARD

KEEPING SCORE IN THE CONGRESSIONAL GAME

ver the past four years, organizations. Thus, our second question is whether AFSA has compiled three members’ votes reflect support for such engagement. O Congressional Scorecards. Over 170 votes in the House and the Senate were The first rated legislators’ examined. Several categories of votes were automati¬ votes in tire 105th Congress cally not used. For instance, in December 2001, the (1997-98), the second was House of Representatives passed a resolution by a vote developed for the 106di of 404-1 paying tribute to Radio Free Europe and Congress (1999-2000), and Radio Liberty for their contribution in promoting this one looks at the votes from democracy over die last 50 years. 2001 through early June 2002 for These types of “motherhood and AFSA RATES SENATORS the 107th Congress. The AFSA apple pie” votes do not reflect the Scorecard is intended to give our AND REPRESENTATIVES intent of the scorecard and were readers an analysis of how their ON HOW WELL THEY not considered. Other votes were elected representatives are voting SUPPORTED AMERICAN not included because they did not on issues relating to providing involve a question of providing ENGAGEMENT IN funding for U.S. engagement and funds but rather where within the WORLD AFFAIRS. promoting U.S. participation in 150 International Affairs account the international arena. The the funds should be used. For Scorecard also gives AFSA an BY KEN NAKAMURA instance, some votes proposed opportunity to look at voting moving funds from the Andean trends over the years to see what Anti-Drug Initiative to child sur¬ changes may be taking place. vival programs within the foreign aid bill. Finally, we did not count several non-foreign affairs procedural Methodology votes that happened to take place when a foreign affairs In developing the Scorecard, we have utilized two bill was on the floor. categories. Of the 90 remaining votes, AFSA identified those Engagement: First, AFSA believes it is in tire that addressed key resource and engagement issues. interest of the United States that we remain actively In developing a score for engagement votes (E) in the engaged in shaping tire world in which we live. It is no Senate, 12 votes were examined and eight (67 per¬ longer a question as to whether we can live in “splendid cent) of these were used. For the House of isolation,” but rather what form our engagement will Representatives, 40 engagement votes were exam¬ take. Thus, we looked at whether particular votes help ined, and eight (20 percent) of those were used. or hinder active U.S. participation in the world. Likewise, on resources GO, 10 votes on the Senate Resources: Secondly, AFSA believes that ade¬ side were considered and seven were used for scoring quate resources must be provided to support our for¬ (70 percent), while 28 House votes were considered eign policy. Funding is needed both for operating and five used for scoring (18 percent). The two sub¬ expenses and for the tools of diplomacy, which range scores were then averaged according to their respec¬ from public diplomacy, including exchange programs, tive weights to produce a total score (T) for each sen¬ to foreign assistance to participation in international ator and representative.

60 FOREIGN SERVICE ] O U RN AL/S E PTE M B E R 2002 SCORECARD

The events of Sept. 11 also influenced voting patterns in Congress, particularly in regard to many of the resource bills covered in the Scorecard.

When a member did not vote, for whatever reason, The events of Sept. 11 also influenced voting patterns in AFSA counted it as a vote against the AFSA position Congress, particularly in regard to many of the resource because that abstention represented one fewer vote in bills covered in the Scorecard. There was a mood in the favor of engagement or additional resources. country and the Congress following the attacks that “poli¬ As in past Scorecards, the scores have been converted tics should be put aside.” What that meant, in terms of this to a familiar 0-10 rating scale, with 10 representing a vot¬ survey, is that many changes and disagreements on funding ing record that fully supports AFSA positions and a 0, of and other issues were worked out in such a way that when course, one that differs with AFSA on all votes counted. amendments were eventually voted on, they passed either by voice vote or by unanimous consent. For instance, when Some Things to Consider the Senate took up the FY 2002 Foreign Operations appro¬ We do not assume that even the most internationally- priations bill, 46 amendments were resolved either by voice oriented senators and representatives (or all AFSA vote or unanimous consent. In such cases, we do not always members, for that matter) will agree with AFSA on know what the original position was before a compromise every issue. Certainly there are many issues on which was reached, and what the vote would have been if the leg¬ reasonable, intemationally-minded people can disagree islative mood had not favored consensus. In any case, by the — instances in which there are different views of how spring of 2002, this attitude was already changing as we best to be engaged with the world. entered the election year. AFSA does assume that the president is responsible Finally, it is important to remember that looking at for developing this nations foreign policy and that he floor votes does not provide the whole picture. They do should be supported in the implementation of that poli¬ not show crucial committee votes where bills are worked cy. And we have found that those senators and represen¬ out so that they can pass on the floor. Nor do they show tatives in the president s party will generally support his how much help senators, members of Congress and policy, and those in the opposition are more likely to their offices provide us as we work for our legislative express their concerns. During the Clinton presidency, objectives. Thus, as you look at these scores, please also for example, many Republicans offered and supported consider other sources of information about your repre¬ amendments to limit the placement of U.S. troops in the sentative and senators. Balkans and therefore received lower AFSA scores That said, we hope you will find this Scorecard useful because of efforts to fetter the president in the exercise in providing a part of the picture of where your senators of foreign policy. Likewise, several Democrats are con¬ and representatives stand on international affairs issues. cerned about the increases in the Andean Anti-Drug Note that (Ret) after a members name means that per¬ Initiative proposed by President Bush and seek to son is retiring at the end of the 107th Congress, and (O) reduce funds for the program or place limitations on means that the individual is seeking another office. how those funds could be used. As a result, tire party We would like to thank AFSA Congressional Affairs occupying the White House generally comes out better Interns Jessica Roseberry, a rising fourth-year student in the Scorecard because of this assumption, which at Bellarmine University in Louisville, Ky., and could also be called an administration bias. Gabriele Templet, a rising third-year student at Mount Holyoke College, in South Hadley, Mass., for their Ken Nakamura is AFSA’s Director of Legislative hard work in making this Scorecard possible. They did Affairs. the “heavy lifting.” ■

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 61 SCORECARD

U.S. Senate

Senator State Party E R Total Senator State Party E

Jeff Sessions AL R 7.5 8.6 8.0 Peter Fitzgerald IL R 10.0 8.6 9.3

Richard Shelby AL R 8.8 10.0 9.4 Evan Bayh IN D 8.8 8.6 8.7

Frank Murkowski AK R 10.0 10.0 10.0 Richard Lugar IN R 8.8 10.0 9.4

Ted Stevens AK R 10.0 10.0 10.0 Charles Grassley IA R 10.0 8.6 9.3

Jon Kyi AZ R 10.0 7.1 8.6 Tom Harkin IA D 7.5 10.0 8.8

John McCain AZ R 10.0 5.7 7.9 Sam Brownback KS R 8.8 8.6 8.7

Tim Hutchinson AR R 10.0 10.0 10.0 Pat Roberts KS R 10.0 10.0 10.0

Blanche Lincoln AR D 10.0 10.0 10.0 Jim Bunning KY R 8.8 8.6 8.7

Barbara Boxer CA D 6.3 10.0 8.1 Mitch McConnell KY R 10.0 10.0 10.0

Dianne Feinstein CA D 7.5 10.0 8.8 John Breaux LA D 10.0 10.0 10.0

Wayne Allard CO R 10.0 8.6 9.3 Mary Landrieu LA D 5.0 8.6 6.8

Ben Nighthorse Susan Collins ME R 10.0 10.0 10.0 Campbell CO R 7.5 8.6 8.0

Christopher Dodd CT D 5.0 8.6 6.8 Olympia Snowe ME R 10.0 10.0 10.0

Joseph Lieberman CT D 8.8 10.0 9.4 Barbara Mikulski MD D 6.3 8.6 7.4

Joseph Biden, Jr. DE D 8.8 10.0 9.4 Paul Sarbanes MD D 6.3 10.0 8.1

Thomas Carper DE D 8.8 10.0 9.4 Edward Kennedy MA D 6.3 7.1 6.7

Bob Graham FL D 10.0 8.6 9.3 John Kerry MA D 7.5 10.0 8.8

Bill Nelson FL D 8.8 10.0 9.4 Debbie Stabenow Ml D 6.3 10.0 8.1

Max Cleland GA D 8.8 10.0 9.4 Carl Levin Ml D 6.3 10.0 8.1

Zell Miller GA D 10.0 10.0 10.0 Mark Dayton MN D 7.5 8.6 8.0

Daniel Akaka HI D 6.3 8.6 7.4 Paul Wellstone MN D 6.3 10.0 8.1

Daniel Inouye HI D 7.5 10.0 8.8 Thad Cochran MS R 8.8 10.0 9.4

Larry Craig ID R 8.8 8.6 8.7 Trent Lott MS R 8.8 8.6 8.7

Mike Crapo ID R 10.0 10.0 10.0 Jean Carnahan MO D 6.3 10.0 8.1

Richard Durbin IL D 6.3 10.0 8.1 Christopher Bond MO R 10.0 8.6 9.3

62 FOREICN SERVICE ] OU RN At/S E PT EM B E R 2002 SCORECARD

U.S. Senate

| Senator State Party E R Total Senator State Party E

Max Baucus MT D 10.0 10.0 10.0 Aden Specter PA R 10.0 10.0 10.0

Conrad Burns MT R 10.0 10.0 10.0 Lincoln Chafee Rl R 10.0 10.0 10.0

Chuck Hagel NE R 8.8 8.6 8.7 Jack Reed Rl D 6.3 10.0 8.1

Ben Nelson NE D 10.0 10.0 10.0 Ernest Hollings SC D 6.3 10.0 8.1

John Ensign NV R 8.8 7.1 7.9 Strom Thurmond (Ret) SC R 7.5 8.6 8.0

Harry Reid NV D 6.3 10.0 8.1 Tom Daschle SD D 7.5 8.6 8.0

Judd Gregg NH R 8.8 10.0 9.4 Tim Johnson SD D 6.3 10.0 8.1

Robert Smith NH R 8.8 8.6 8.7 Bill Frist TN R 10.0 10.0 10.0

Jon Corzine NJ D 6.3 10.0 8.1 Fred Thompson (Ret) TN R 10.0 8.6 9.3

Robert Torricelli NJ D 6.3 8.6 7.4 Phil Gramm (Ret) TX R 10.0 7.1 8.6

Jeff Bingaman NM D 8.8 8.6 8.7 Kay Bailey Hutchinson TX R 8.8 10.0 9.4

Pete Domenici NM R 10.0 10.0 10.0 Robert Bennett UT R 10.0 10.0 10.0

Hillary Rodham Clinton NY D 6.3 10.0 8.1 Orrin Hatch UT R 8.8 8.6 8.7

Charles Schumer NY D 6.3 10.0 8.1 James Jeffords VT I 8.8 8.6 8.7

John Edwards NC D 8.8 10.0 9.4 Patrick Leahy VT D 6.3 10.0 8.1

Jesse Helms (Ret) NC R 5.0 7.1 6.1 George Allen VA R 10.0 10.0 10.0

Kent Conrad ND D 6.3 10.0 8.1 John Warner VA R 7.5 10.0 8.8

Byron Dorgan ND D 6.3 10.0 8.1 Marie Cantwell WA D 8.8 10.0 9.4

Mike DeWine OH R 10.0 10.0 10.0 Patty Murray WA D 8.8 10.0 9.4

George Voinovich OH R 8.8 8.6 8.7 Robert Byrd WV D 5.0 8.6 6.8

James Inhofe OK R 10.0 10.0 10.0 John Rockefeller IV WV D 6.3 10.0 8.1

Don Nickles OK R 10.0 8.6 9.3 Russell Feingold Wl D 3.8 7.1 5.4

Gordon Smith OR R 10.0 10.0 10.0 Herb Kohl Wl D 8.8 10.0 9.4

Ron Wyden OR D 8.8 10.0 9.4 Michael Enzi WY R 10.0 8.6 9.3

Rick Santorum PA R 10.0 8.6 9.3 Craig Thomas WY R 10.0 7.1 8.6

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 63 SCORECARD

House of Representatives

Representative State District Party E R T Representative State District Party E R

Sonny Callahan (Ret) AL 1 R 6.3 6.0 6.1 Anna Eshoo CA 14 D 6.3 10.0 8.1

Terry Everett AL 2 R 2.5 4.0 3.3 Mike Honda CA 15 D 7.5 10.0 8.8

Bob Riley (0) AL 3 R 5.0 4.0 4.5 Zoe Lofgren CA 16 D 6.3 10.0 8.1

Robert B. Aderholt AL 4 R 5.0 4.0 4.5 Sam Farr CA 17 D 6.3 10.0 8.1

Robert (Bud) Cramer Jr. AL 5 D 7.5 10.0 8.8 Gary Condit CA 18 D 5.0 6.0 5.5

Spencer Bachus AL 6 R 7.5 10.0 8.8 George Radanovich CA 19 R 6.3 2.0 4.1

Earl Hilliard AL 7 D 7.5 8.0 7.8 Calvin Dooley CA 20 D 8.8 8.0 8.4

Don Young AK at large R 5.0 4.0 4.5 William Thomas CA 21 R 8.8 8.0 8.4

Eni Faleomavaega Samoa delegate D N/A N/A N/A Lois Capps CA 22 D 7.5 10.0 8.8

Jeff Flake AZ 1 R 5.0 6.0 5.5 Elton Gallegly CA 23 R 7.5 8.0 7.8

Ed Pastor AZ 2 D 6.3 10.0 8.1 Brad Sherman CA 24 D 5.0 10.0 7.5

Bob Stump (Ret) AZ 3 R 5.0 6.0 5.5 Howard P. Buck McKeon CA 25 R 7.5 10.0 8.8

John Shadegg AZ 4 R 7.5 8.0 7.8 Howard Berman CA 26 D 7.5 10.0 8.8

Jim Kolbe AZ 5 R 8.8 10.0 9.4 Adam Schiff CA 27 D 7.5 10.0 8.8

J.D. Hayworth AZ 6 R 6.3 6.0 6.1 David Dreier CA 28 R 7.5 10.0 8.8

Marion Berry AR 1 D 6.3 6.0 6.1 Henry Waxman CA 29 D 5.0 10.0 7.5

Vic Snyder AR 2 D 6.3 10.0 8.1 Xavier Becerra CA 30 D 7.5 8.0 7.8

John Boozman (0) AR 3 R 5.0 6.0 5.5 Hilda Solis CA 31 D 6.3 6.0 6.1 Diane Watson CA 32 D 4.3 8.0 6.1 Mike Ross AR 4 D 5.0 8.0 6.5 Special Election 6/01

Mike Thompson CA 1 D 6.3 8.0 7.1 Lucille Roybal-Allard CA 33 D 6.3 10.0 8.1

Wally Herger CA 2 R 7.5 8.0 7.8 Grace Napolitano CA 34 D 7.5 10.0 8.8

Doug Ose CA 3 R 7.5 8.0 7.8 Maxine Waters CA 35 D 6.3 10.0 8.1

John Doolittle CA 4 R 7.5 4.0 5.8 Jane Harman CA 36 D 6.3 8.0 7.1

Robert Matsui CA 5 D 6.3 8.0 7.1 Juanita Millender-McDonald CA 37 D 5.0 10.0 7.5

Lynn Woolsey CA 6 D 6.3 8.0 7.1 Stephen Horn (Ret) CA 38 R 8.8 10.0 9.4

George Miller CA 7 D 5.0 8.0 6.5 Edward Royce CA 39 R 5.0 2.0 3.5

Nancy Pelosi CA 8 D 6.3 10.0 8.1 Jerry Lewis CA 40 R 7.5 10.0 8.8

Barbara Lee CA 9 D 3.8 8.0 5.9 Gary Miller CA 41 R 7.5 8.0 7.8

Ellen Tauscher CA 10 D 7.5 8.0 7.8 Joe Baca CA 42 D 6.3 8.0 7.1

Richard Pombo CA 11 R 3.8 2.0 2.9 Ken Calvert CA 43 R 7.5 10.0 8.8

Tom Lantos CA 12 D 6.3 10.0 8.1 Mary Bono CA 44 R 7.5 8.0 7.8

Pete Fortney-Stark CA 13 D 5.0 6.0 5.5 Dana Rohrabacher CA 45 R 3.8 2.0 2.9 1 1

64 FOREIGN SERVICE J O U RN AL/S EPTEM B ER 2002 SCORECARD

House of Representatives

Representative State District Party E R T Representative State District Party E R T

Loretta Sanchez CA 46 D 6.3 8.0 7.1 Adam Putnam FL 12 R 5.0 6.0 5.5

Christopher Cox CA 47 R 5.0 10.0 7.5 Dan Miller (Ret) FL 13 R 7.5 10.0 8.8

Darrell Issa CA 48 R 6.3 10.0 8.1 Porter J. Goss FL 14 R 7.5 10.0 8.8

Susan Davis CA 49 D 10.0 8.0 9.0 Dave Weldon FL 15 R 5.0 6.0 5.5

Bob Filner CA 50 D 7.5 8.0 7.8 Mark Foley FL 16 R 6.3 6.0 6.1

Randy Duke Cunningham CA 51 R 7.5 6.0 6.8 Carrie P. Meek (Ret) FL 17 D 8.8 10.0 9.4

Duncan Hunter CA 52 R 6.3 8.0 7.1 lleana Ros-Lehtinen FL 18 R 7.5 10.0 8.8

Diana DeGette CO 1 D 7.5 8.0 7.8 Robert Wexler FL 19 D 7.5 10.0 8.8

Mark Udall CO 2 D 6.3 10.0 8.1 Peter Deutsch FL 20 D 7.5 10.0 8.8

Scott Mclnnis CO 3 R 5.0 6.0 5.5 Lincoln Diaz-Balart FL 21 R 7.5 10.0 8.8

Bob Schaffer (Ret) CO 4 R 5.0 0.0 2.5 E. Clay Shaw, Jr. FL 22 R 8.8 8.0 8.4

Joel Hefley CO 5 R 5.0 2.0 3.5 Alcee L. Hastings FL 23 D 7.5 8.0 7.8

Thomas Tancredo CO 6 R 3.8 2.0 2.9 Jack Kingston GA 1 R 3.8 6.0 4.9

John Larson CT 1 D 8.8 10.0 9.4 Sanford D. Bishop, Jr. GA 2 D 7.5 8.0 7.8

Rob Simmons CT 2 R 6.3 10.0 8.1 Mac Collins GA 3 R 3.8 6.0 4.9

Rosa DeLauro CT 3 D 8.8 10.0 9.4 Cynthia McKinney GA 4 D 5.0 8.0 6.5

Christopher Shays CT 4 R 8.8 10.0 9.4 John Lewis GA 5 D 5.0 8.0 6.5

James Maloney CT 5 D 8.8 8.0 8.4 Johnny Isakson GA 6 R 7.5 10.0 8.8

Nancy Johnson CT 6 R 8.8 8.0 8.4 Bob Barr GA 7 R 3.8 4.0 3.9

Michael Castle DE at large R 7.5 10.0 8.8 Saxby Chambliss (0) GA 8 R 7.5 8.0 7.8

Eleanor Holmes Norton DC delegate D N/A N/A N/A Nathan Deal GA 9 R 3.8 8.0 5.9

Jeff Miller FL 1 R 5.0 2.0 3.5 Charlie Norwood GA 10 R 3.8 4.0 3.9

Allen Boyd FL 2 D 6.3 8.0 7.1 John Linder GA 11 R 7.5 10.0 8.8

Corrine Brown FL 3 D 7.5 10.0 8.8 Robert Underwood Guam delegate D N/A N/A N/A

Ander Crenshaw FL 4 R 7.5 10.0 8.8 Neil Abercrombie HI 1 D 7.5 10.0 8.8

Karen Thurman FL 5 D 7.5 8.0 7.8 Patsy T. Mink HI 2 D 6.3 6.0 6.1

Cliff Stearns FL 6 R 5.0 4.0 4.5 C.L. "Butch" Otter ID 1 R 5.0 4.0 4.5

John Mica FL 7 R 7.5 8.0 7.8 Michael K. Simpson ID 2 R 7.5 10.0 8.8

Ric Keller FL 8 R 7.5 6.0 6.8 Bobby Rush IL 1 D 7.5 8.0 7.8

Michael Bilirakis FL 9 R 6.3 6.0 6.1 Jesse Jackson IL 2 D 6.3 10.0 8.1

C.W. Bill Young FL 10 R 7.5 10.0 8.8 William Lipinski IL 3 D 2.5 8.0 5.3

Jim Davis FL 11 D 10.0 8.0 9.0 Luis Gutierrez IL 4 D 7.5 8.0 7.8

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 65 SCORECARD

House of Representatives

Representative State District Party 8 R T Representative State District Party E R T

Rod Blagojevich (0) IL 5 D 6.3 8.0 7.1 Jim Ryun KA 2 R 7.5 2.0 4.8

Henry Hyde IL 6 R 6.3 10.0 8.1 Dennis Moore KA 3 D 10.0 8.0 9.0

Danny Davis IL 7 D 6.3 10.0 8.1 Todd Tiahrt KA 4 R 7.5 8.0 7.8

Phillip Crane IL 8 R 7.5 6.0 6.8 Ed Whitfield KY 1 R 8.8 10.0 9.4

Janice Schakowsky IL 9 D 6.3 10.0 8.1 Ron Lewis KY 2 R 7.5 6.0 6.8

Mark Steven Kirk IL 10 R 8.8 10.0 9.4 Anne Northup KY 3 R 7.5 10.0 8.8

Jerry Weller IL 11 R 7.5 8.0 7.8 Ken Lucas KY 4 D 8.8 10.0 9.4

Jerry Costello IL 12 D 6.3 8.0 7.1 Harold Rogers KY 5 R 5.0 8.0 6.5

Judy Biggert IL 13 R 7.5 10.0 8.8 Ernest Fletcher KY 6 R 7.5 10.0 8.8

Dennis Hastert IL 14 R 5.0 2.0 3.5 David Vitter LA 1 R 7.5 10.0 8.8

Timothy Johnson IL 15 R 7.5 8.0 7.8 William Jefferson LA 2 D 10.0 8.0 9.0

Donald Manzullo IL 16 R 6.3 4.0 5.1 W.J. “Billy” Tauzin LA 3 R 7.5 10.0 8.8

Lane Evans IL 17 D 7.5 8.0 7.8 Jim McCrery LA 4 R 7.5 10.0 8.8

Ray LaHood IL 18 R 6.3 10.0 8.1 John Cooksey (0) LA 5 R 7.5 10.0 8.8

David Phelps IL 19 D 6.3 8.0 7.1 Richard Baker LA 6 R 7.5 10.0 8.8

John Shimkus IL 20 R 7.5 10.0 8.8 Christopher John LA 7 D 8.8 8.0 8.4

Peter Visclosky IN 1 R 6.3 10.0 8.1 Thomas Allen ME 1 D 7.5 10.0 8.8

Mike Pence IN 2 R 5.0 6.0 5.5 John Elias Baldacci (0) ME 2 D 7.5 8.0 7.8

Tim Roemer (Ret) IN 3 D 6.3 6.0 6.1 Wayne Gilchrest MD 1 R 8.8 10.0 9.4

Mark Souder IN 4 R 6.3 8.0 7.1 Robert Ehrlich (0) MD 2 R 7.5 8.0 7.8

Stephen Buyer IN 5 R 6.3 10.0 8.1 Benjamin Cardin MD 3 D 7.5 10.0 8.8

Dan Burton IN 6 R 3.8 6.0 4.9 Albert Russell Wynn MD 4 D 7.5 10.0 8.8

Brian Kerns IN 7 R 5.0 0.0 2.5 Steny Hoyer MD 5 D 7.5 10.0 8.8

John Hostettler IN 8 R 3.8 0.0 1.9 Roscoe Bartlett MD 6 R 3.8 6.0 4.9

Baron Hill IN 9 D 8.8 8.0 8.4 Elijah Cummings MD 7 D 5.0 8.0 6.5

Julia Carson IN 10 D 6.3 10.0 8.1 Constance Morelia MD 8 R 10.0 10.0 10.0

James Leach IA 1 R 10.0 10.0 10.0 John Oliver MA 1 D 7.5 10.0 8.8

Jim Nussle IA 2 R 7.5 10.0 8.8 Richard Neal MA 2 D 8.8 8.0 8.4

Leonard Boswell IA 3 D 7.5 8.0 7.8 James McGovern MA 3 D 8.8 10.0 9.4

Greg Ganske (0) IA 4 R 7.5 10.0 8.8 Barney Frank MA 4 D 5.0 10.0 7.5

Tom Latham IA 5 R 7.5 10.0 8.8 Martin Meehan MA 5 D 8.8 8.0 8.4

Jerry Moran KA 1 R 6.3 4.0 5.1 John Tierney MA 6 D 6.3 10.0 8.1

66 FOREIGN SERVICE JO URNAL/SE PTE MBE R 2002 SCORECARD

House of Representatives Representative State District Party R T Representative State District Party E R B Edward Markey MA 7 D 7.5 10.0 8.8 Gene Taylor MS 5 D 3.8 2.0 2.9

Michael Capuano MA 8 D 7.5 10.0 8.8 Bill Clay MO 1 D 5.0 8.0 6.5

D 10.0 7.5 Stephen Lynch MA 9 5.0 Todd Akin MO 2 R 3.8 6.0 4.9 Special Election 10/01

William Delahunt MA 10 D 7.5 8.0 7.8 Richard Gephardt MO 3 D 7.5 8.0 7.8

Bart Stupak Ml 1 D 6.3 8.0 7.1 Ike Skelton MO 4 D 7.5 10.0 8.8

Peter Hoekstra Ml 2 R 6.3 10.0 8.1 Karen McCarthy MO 5 D 8.8 8.0 8.4

Vernon Ehlers Ml 3 R 10.0 10.0 10.0 Sam Graves MO 6 R 7.5 8.0 7.8

Dave Camp Ml 4 R 7.5 8.0 7.8 Roy Blunt MO 7 R 6.3 8.0 7.1

James Barcia Ml 5 D 6.3 6.0 6.1 Jo Ann Emerson MO 8 R 5.0 8.0 6.5

Fred Upton Ml 6 R 6.3 8.0 7.1 Kenny Hulshoff MO 9 R 7.5 6.0 6.8

Nick Smith Ml 7 R 7.5 8.0 7.8 Denny Rehberg MT at large R 7.5 8.0 7.8

Mike Rogers Ml 8 R 7.5 8.0 7.8 Doug Bereuter NE 1 R 7.5 10.0 8.8

Dale Kildee Ml 9 D 6.3 10.0 8.1 Lee Terry NE 2 R 6.3 8.0 7.1

David Bonior (0) Ml 10 D 6.3 8.0 7.1 Tom Osborne NE 3 R 7.5 8.0 7.8

Joe Knollenberg Ml 11 R 6.3 10.0 8.1 Shelley Berkley NV 1 D 7.5 8.0 7.8

Sander Levin Ml 12 D 8.8 10.0 9.4 Jim Gibbons NV 2 R 7.5 8.0 7.8

Lynn Rivers Ml 13 D 6.3 8.0 7.1 John Sununu (0) NH 1 R 6.3 8.0 7.1

John Conyers Ml 14 D 3.8 10.0 6.9 Charles Bass NH 2 R 7.5 10.0 8.8

Carolyn Kilpatrick Ml 15 D 5.0 10.0 7.5 Robert Andrews NJ 1 D 8.8 8.0 8.4

John Dingell Ml 16 D 7.5 10.0 8.8 Frank LoBiondo NJ 2 R 5.0 8.0 6.5

Gil Gutknecht MN 1 R 6.3 6.0 6.1 Jim Saxton NJ 3 R 5.0 8.0 6.5

Mark Kennedy MN 2 R 7.5 8.0 7.8 Christopher Smith NJ 4 R 5.0 10.0 7.5

Jim Ramstad MN 3 R 7.5 8.0 7.8 Marge Roukema (Ret) NJ 5 R 7.5 10.0 8.8

Betty McCollum MN 4 D 7.5 10.0 8.8 Frank Pallone, Jr. NJ 6 D 7.5 10.0 8.8

Martin Olav Sabo MN 5 D 6.3 8.0 7.1 Mike Ferguson NJ 7 R 7.5 10.0 8.8

Bill Luther MN 6 D 8.8 8.0 8.4 Bill Pascrell, Jr. NJ 8 D 6.3 8.0 7.1

Collin Peterson MN 7 D 5.0 6.0 5.5 Steven Rothman NJ 9 D 6.3 10.0 8.1

James Oberstar MN 8 D 8.8 10.0 9.4 Donald Payne NJ 10 D 5.0 10.0 7.5

Roger Wicker MS 1 R 7.5 8.0 7.8 Rodney Frelinghuysen NJ 11 R 7.5 10.0 8.8

Bennie Thompson MS 2 D 6.3 8.0 7.1 Rush Holt NJ 12 D 7.5 10.0 8.8

Chip Pickering MS 3 R 6.3 8.0 7.1 Robert Menendez NJ 13 D 5.0 10.0 7.5

Ronnie Shows MS 4 D 6.3 8.0 7.1 Heather Wilson NM 1 R 6.3 8.0 7.1

SEPTEMBER 2002/FOREICN SERVICE JOURNAL 67 SCORECARD

House of Representatives

Representative State District Party E R T Representative State District Party E R T

Joe Skeen (Ret) NM 2 R 7.5 10.0 8.8 Amo Houghton NY 31 R 10.0 10.0 10.0

Tom Udall NM 3 D 7.5 8.0 7.8 Eva Clayton (Ret) NC 1 D 7.5 8.0 7.8

Felix Grucci NY 1 R 7.5 10.0 8.8 Bob Etheridge NC 2 D 8.8 8.0 8.4

Steven Israel NY 2 D 8.8 8.0 8.4 Walter Jones NC 3 R 1.3 2.0 1.6

Peter King NY 3 R 5.0 10.0 7.5 David Price NC 4 D 8.8 8.0 8.4

Carolyn McCarthy NY 4 D 7.5 8.0 7.8 Richard Burr NC 5 R 6.3 8.0 7.1

Gary Ackerman NY 5 D 8.8 10.0 9.4 Howard Coble NC 6 R 2.5 4.0 3.3

Gregory Meeks NY 6 D 6.3 6.0 6.1 Mike McIntyre NC 7 D 5.0 8.0 6.5

Joseph Crowley NY 7 D 8.8 10.0 9.4 Robin Hayes NC 8 R 6.3 8.0 7.1

Jerrold Nadler NY 8 D 6.3 8.0 7.1 Sue Wilkins Myrick NC 9 R 7.5 6.0 6.8

Anthony Weiner NY 9 D 8.8 10.0 9.4 Cass Ballenger NC 10 R 5.0 8.0 6.5

Edolphus Towns NY 10 D 7.5 10.0 8.8 Charles Taylor NC 11 R 5.0 4.0 4.5

Major Owens NY 11 D 7.5 8.0 7.8 Melvin Watt NC 12 D 7.5 10.0 8.8

Nydia Velazquez NY 12 D 7.5 8.0 7.8 Earl Pomeroy ND at large D 7.5 8.0 7.8

Vito Fossella NY 13 R 7.5 10.0 8.8 Steve Chabot OH 1 R 7.5 8.0 7.8

Carolyn Maloney NY 14 D 8.8 8.0 8.4 Rob Portman OH 2 R 7.5 10.0 8.8

Charles Rangel NY 15 D 8.8 10.0 9.4 Tony Hall (0) OH 3 D 6.3 10.0 8.1

Jose Serrano NY 16 D 8.8 10.0 9.4 Michael Oxley OH 4 R 7.5 10.0 8.8

Eliot Engel NY 17 D 7.5 10.0 8.8 Paul Gillmor OH 5 R 6.3 10.0 8.1

Nita Lowey NY 18 D 8.8 10.0 9.4 Ted Strickland OH 6 D 6.3 8.0 7.1

Sue Kelly NY 19 R 8.8 8.0 8.4 David Hobson OH 7 R 6.3 10.0 8.1

Benjamin Gilman (Ret) NY 20 R 5.0 10.0 7.5 John Boehner OH 8 R 7.5 8.0 7.8

Michael McNulty NY 21 D 8.8 8.0 8.4 Marcy Kaptur OH 9 D 6.3 8.0 7.1

John Sweeney NY 22 R 7.5 10.0 8.8 Dennis Kucinich OH 10 D 6.3 10.0 8.1

Sherwood Boehlert NY 23 R 7.5 10.0 8.8 Stephanie Tubbs Jones OH 11 D 5.0 10.0 7.5

John McHugh NY 24 R 6.3 8.0 7.1 Pat Tiberi OH 12 R 7.5 6.0 6.8

James Walsh NY 25 R 7.5 10.0 8.8 Sherrod Brown OH 13 D 7.5 10.0 8.8

Maurice Hinchey NY 26 D 6.3 6.0 6.1 Thomas Sawyer OH 14 D 7.5 8.0 7.8

Thomas Reynolds NY 27 R 7.5 8.0 7.8 Deborah Pryce OH 15 R 8.8 10.0 9.4

Louise McIntosh Slaughter NY 28 D 6.3 8.0 7.1 Ralph Regula OH 16 R 5.0 10.0 7.5

John LaFalce (Ret) NY 29 D 8.8 8.0 8.4 James Traficant OH 17 D 3.8 6.0 4.9

Jack Quinn NY 30 R 6.3 8.0 7.1 Robert Ney OH 18 R 7.5 4.0 5.8

68 FOREIGN SERVICE J O U RN AL/SEPT EMB ER 2002 SCORECARD

House of Representatives

1 Representative State District Party R T Representative State District Party R B Steven LaTourette OH 19 R 5.0 8.0 6.5 Phil English PA 21 R 8.8 10.0 9.4

Steve Largent OK 1 R 7.5 8.0 7.8 Anibal Acevedo-Vila PR resident D N/A N/A N/A

Brad Carson OK 2 D 7.5 8.0 7.8 Patrick Kennedy Rl 1 D 7.5 10.0 8.8

Wes Watkins (Ret) OK 3 R 5.0 6.0 5.5 Jim Langevin Rl 2 D 6.3 8.0 7.1

J.C. Watts Jr. (Ret) OK 4 R 7.5 8.0 7.8 Henry Brown SC 1 R 7.5 8.0 7.8

Joe Wilson SC 2 R 5.0 N/A 5.0 Ernest J. Istook, Jr. OK 5 R 7.5 6.0 6.8 Special Election 12/01

Frank Lucas OK 6 R 6.3 2.0 4.1 Lindsey Graham SC 3 R 6.3 10.0 8.1

David Wu OR 1 D 7.5 10.0 8.8 Jim DeMint SC 4 R 7.5 6.0 6.8

Greg Walden OR 2 R 7.5 8.0 7.8 John M. Spratt, Jr. SC 5 D 6.3 10.0 8.1

Earl Blumenauer OR 3 D 6.3 8.0 7.1 James Clyburn SC 6 D 8.8 10.0 9.4

Peter DeFazio OR 4 D 3.8 8.0 5.9 John Thune (0) SD at large R 7.5 8.0 7.8

Darlene Hooley OR 5 D 8.8 8.0 8.4 William Jenkins TN 1 R 6.3 6.0 6.1

Robert Brady PA 1 D 3.8 8.0 5.9 John Duncan TN 2 R 2.5 0.0 1.3

Chaka Fattah PA 2 D 7.5 8.0 7.8 Zach Wamp TN 3 R 6.3 6.0 6.1

Robert Borski (Ret) PA 3 D 5.0 10.0 7.5 Van Hilleary (0) TN 4 R 6.3 4.0 5.1

Melissa Hart PA 4 R 6.3 8.0 7.1 Bob Clement (0) TN 5 D 8.8 8.0 8.4

John Peterson PA 5 R 7.5 8.0 7.8 Bart Gordon TN 6 D 7.5 8.0 7.8

Tim Holden PA 6 D 6.3 8.0 7.1 Ed Bryant (0) TN 7 R 7.5 6.0 6.8

Curt Weldon PA 7 R 6.3 8.0 7.1 John Tanner TN 8 D 7.5 6.0 6.8

James Greenwood PA 8 R 7.5 10.0 8.8 Harold Ford TN 9 D 8.8 8.0 8.4

Bill Shuster PA 9 6.3 6.0 6.1 Max Sandlin TX 1 D 6.3 8.0 7.1

Don Sherwood PA 10 R 7.5 8.0 7.8 Jim Turner TX 2 D 7.5 8.0 7.8

Paul Kanjorski PA 11 D 7.5 10.0 8.8 Sam Johnson TX 3 R 5.0 6.0 5.5

John Murtha PA 12 D 6.3 10.0 8.1 Ralph Hall TX 4 D 7.5 6.0 6.8

Joseph Hoeffel PA 13 D 7.5 10.0 8.8 Pete Sessions TX 5 R 7.5 2.0 4.8

William Coyne (Ret) PA 14 D 7.5 10.0 8.8 Joe Barton TX 6 R 7.5 4.0 5.8

Patrick Toomey PA 15 R 7.5 6.0 6.8 John Culberson TX 7 R 7.5 8.0 7.8

Joseph Pitts PA 16 R 7.5 10.0 8.8 Kevin Brady TX 8 R 7.5 10.0 8.8

George Gekas PA 17 R 7.5 10.0 8.8 Nick Lampson TX 9 D 7.5 8.0 7.8

Michael Doyle PA 18 D 7.5 10.0 8.8 Lloyd Doggett TX 10 D 7.5 8.0 7.8

Todd Platts PA 19 R 7.5 8.0 7.8 Chet Edwards TX 11 D 7.5 8.0 7.8

Frank Mascara PA 20 D 5.0 10.0 7.5 Kay Granger TX 12 R 7.5 10.0 8.8

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 69 SCORECARD

Representative State District Party E R T Representative State District Party E R T

Mac Thornberry TX 13 R 6.3 8.0 7.1 Frank Wolf VA 10 R 6.3 10.0 8.1

Ron Paul TX 14 R 2.5 2.0 2.3 Thomas Davis VA 11 R 8.8 10.0 9.4

Rubin Hinojosa TX 15 D 10.0 6.0 8.0 Jay Inslee WA 1 D 6.3 8.0 7.1

Silvestre Reyes TX 16 D 6.3 6.0 6.1 Rick Larson WA 2 D 7.5 8.0 7.8

Charles Stenholm TX 17 D 7.5 10.0 8.8 Brian Baird WA 3 D 7.5 8.0 7.8

Shelia Jackson-Lee TX 18 D 7.5 10.0 8.8 Richard “Doc” Hastings WA 4 R 7.5 4.0 5.8

Larry Combest TX 19 R 6.3 4.0 5.1 George R. Nethercutt, Jr. WA 5 R 7.5 6.0 6.8

Charles Gonzalez TX 20 D 8.8 10.0 9.4 Norman D. Dicks WA 6 D 7.5 8.0 7.8

Lamar Smith TX 21 R 6.3 10.0 8.1 Jim McDermott WA 7 D 7.5 8.0 7.8

Tom DeLay TX 22 R 5.0 6.0 5.5 Jennifer Dunn WA 8 R 7.5 8.0 7.8

Henry Bonilla TX 23 R 7.5 8.0 7.8 Adam Smith WA 9 D 7.5 8.0 7.8

Martin Frost TX 24 D 8.8 10.0 9.4 Alan Mollohan WV 1 D 5.0 10.0 7.5

Ken Bentsen TX 25 D 10.0 8.0 9.0 Shelley Moore Capita WV 2 R 5.0 8.0 6.5

Richard Armey (Ret) TX 26 R 7.5 6.0 6.8 Nick Rahall II WV 3 D 5.0 6.0 5.5

Solomon Ortiz TX 27 D 8.8 10.0 9.4 Paul Ryan Wl 1 R 7.5 8.0 7.8

Ciro Rodriguez TX 28 D 8.8 8.0 8.4 Tammy Baldwin Wl 2 D 7.5 10.0 8.8

Gene Green TX 29 D 6.3 10.0 8.1 Ron Kind Wl 3 D 8.8 8.0 8.4

Eddie Bernice Johnson TX 30 D 8.8 10.0 9.4 Gerald Kleczka Wl 4 D 7.5 10.0 8.8

James Hansen UT 1 R 6.3 6.0 6.1 Thomas Barrett (0) Wl 5 D 8.8 8.0 8.4

Jim Matheson LIT 2 D 10.0 8.0 9.0 Thomas Petri Wl 6 R 6.3 6.0 6.1

Chris Cannon UT 3 R 6.3 4.0 5.1 David Obey Wl 7 D 6.3 10.0 8.1

Bernard Sanders VT at large I 5.0 8.0 6.5 Mark Green Wl 8 R 7.5 8.0 7.8

Donna Christian-Green Virg. Is. delegate D m N/A N/A James Sensenbrenner Wl 9 R 3.8 0.0 1.9

Jo Ann Davis VA 1 R 5.0 6.0 5.5 Barbara Cubin WY at large R 3.8 2.0 2.9

Edward Schrock VA 2 R 6.3 10.0 8.1

Robert Scott VA 3 D 7.5 10.0 8.8

J. Randy Forbes VA 4 R 8.3 10.0 9.2 Special Election 6/01

Virgil H. Goode, Jr. VA 5 I 1.3 4.0 2.6

Bob Goodlatte VA 6 R 7.5 6.0 6.8

Eric Cantor VA 7 R 7.5 10.0 8.8

James Moran VA 8 D 8.8 10.0 9.4

Rick Boucher VA 9 D 8.8 10.0 9.4

70 FOREIGN SERVICE ] OU RN AL/SEPTEM BE R 2002 DIPLOMATIC CATHEDRAL-BUILDING

AMERICAN-IMPOSED SOLUTIONS TO INTERNATIONAL PROBLEMS WILL PROVIDE ONLY ILLUSORY BENEFITS UNLESS THE NATIONS AFFECTED COME TO SHARE DEMOCRATIC VISIONS AND VALUES.

BY JAMES E. GOODBY

eorge Shultz, Ronald Reagans second They are not likely to sponsor terrorism, or to tiireaten G secretary of State, has described one humanity with weapons of mass destruction.” aspect of diplomacy as gardening. For proof, we need look no further than Western “The way to keep the weeds from Europe, where a democratic peace has emerged, ending overwhelming you,” he wrote in his centimes of fratricidal war. We are still part of diat process, memoirs, “is to deal with them con¬ and our policy of extending that peaceful order in Europe as stantly and in their early stages.” We far to die east as possible has been remarkably successful. learned the hard way in Central Asia drat when the weeds The world is safer because of it. Elsewhere on die Old get the upper hand, we must sometimes turn to another Continent, we have been painfully reminded that the transi¬ type of statecraft — crisis management and die use of force. tion to democracy can be a time of demagoguery and intol¬ But another aspect of diplomacy deserves its own erance and diat constitutional liberalism — the governing metaphor, as well: “cathedral-building.” This approach aims mechanisms of a democracy — is an indispensable compo¬ to build a lasting order based on common values, as opposed nent of die democratic peace. Nowhere is that clearer than to a transitory order based on balance of power or hegemo¬ in todays Russia, where democratic institutions are still in ny. It recognizes that American-imposed solutions to inter¬ the process of development. But die trends diere are national problems will provide only illusory benefits unless encouraging and in that lies our best hope for a peaceful dre nations affected come to share democratic visions and future in Europe. values. Otherwise these solutions are built on sand. Shakespeare, as usual, captured the idea memorably: “like Standing Together the fabric of this vision, the cloud-capped towers, the gor¬ Joining widi other nations in pursuit of some common geous palaces, tire solemn temples . . . shall dissolve and . . . goal is perhaps die most familiar example of catiiedral-build- leave not a rack behind.” ing statecraft. The coalition we assembled last fall to con¬ To take the metaphor a step further, catiredral-building duct the war against the Taliban and al-Qaida in Afghanistan assumes that a structure erected on a foundation formed by helped to consolidate a growing consensus diat die behavior similar modes of governance, a shared identity and common of governments — even widiin dieir own borders — can be institutions will be more enduring than one imposed by a threat to international peace and security, justifying inter¬ hegemonic power alone. The results of this strategy are dif¬ vention by the world community. And as such, it is but die ficult to discern within the term of one president, yet a suc¬ latest in a series of precedents confirming U.N. Secretary cession of American presidents in both parties, practical General Kofi Annans judgment that a new principle of politicians all, have recognized tirat tire spread of democrat¬ international law is taking shape. ic values serves American interests — if for no otiier reason Yet despite its success in Afghanistan, the Bush adminis¬ tiran because it reduces die risk of an attack against our tration has not made much use of diis emerging rule of country. As the first George Bush in his last foreign policy international behavior to support its policies elsewhere in speech as president observed, “governments responsive to the world, including the Middle East. Instead, it prefers to die will of the people are not likely to commit aggression. use the rhetoric of good and evil and the principle of the

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 71 right of self-defense to justify militaiy earlier. And a poll taken in the fall of intervention. 1999 showed that 66 percent agreed This reticence may spring from a Joining with other that the United States should support concern that this principle could be an international criminal court. misused, but a more likely reason is nations in pursuit of I believe what we are seeing eur- that the administration is allergic to rendy are policy differences driven by the idea that international norms some common goal is domestic politics, magnified by the affect the behavior of nations. That writings of advocates of a frankly skeptical view has a long and distin¬ perhaps the most imperial role for the United States, guished pedigree in the thinking of ratiier than any fundamental change “realist” political philosophers. Yet the familiar example of in attitude about the value of transat¬ democratic principles that have lantic solidarity. bound the Western community of cathedral-building nations together for so many years Striking the Balance seem to have a quality of permanence statecraft. Scholars have described the about them that makes one wonder Jeffersonian legacy in American for¬ whether the shifting sands of transito¬ eign policy as a tendency to oscillate ry coalitions can offer a better long¬ between engaging in the world to term approach to creating a peaceful were an assault on all the members of make it look more like us or with¬ order among nations. Coalitions are die alliance. drawing from it to tend our own temporary, ad hoc affairs while com¬ Yet less than a year later, the Garden of Eden. Now, it seems, iso¬ mon values, rules of behavior, and United States stood alone in the lationism is a thing of the past. alliances that bind democracies one to United Nations as the American Americans are too dependent on the the other are as enduring as anything ambassador vetoed the extension of a rest of the world — and too aware can be in international affairs. mandate for peacekeepers in Bosnia. that they are — ever again to with¬ International solidarity was never Why? The United States, a non-party draw into 1920s-style isolationism. more in evidence than in the reaction to the newly created International We are all internationalists now. of ordinary people all over the world Criminal Court, had required an So the new struggle in U.S. foreign to the Sept. 11 attacks on New York exemption from the courts reach for policy seems to be between the poles and Washington. It was an unprece¬ any American citizen engaged in of unilateralism (independence) and dented display of unity and sympathy. peacekeeping operations. And multilateralism (interdependence). For the first time in its history, NATO Americas closest friends — Canada, Or to put it another way: do we have invoked Article V of the North Mexico and all the European mem¬ to accommodate ourselves to the con¬ Atlantic Treaty, declaring that the bers of NATO — saw in this request a ventions, rules, and norms of the attacks on New York and Washington U.S.-imposed, self-serving amend¬ international community, with all the ment to die treaty establishing die constraints that entails, or can we act Ambassador James E. Goodby International Criminal Court. as though our interests and needs entered the Foreign Service in 1952. Do Americans and Europeans require freedom to accomplish our Since retiring from the Service in really have such different opinions purposes — even if this results in 1996 w ith the rank of career minister, about the importance of such issues? declining support for the United he has taught at Carnegie Mellon, It is true that the European Union, States abroad? Stanford, and Georgetown, and is having gained strength through pool¬ The “realists” would have us currently a senior adviser at MIT and ing die sovereignties of its members, believe that it is an open-and-shut a senior fellow (non-resident) at The is now more willing to challenge the case. But as our friends abroad know, Brookings Institution. He is the co¬ United States. Yet polls taken after it is not. We need to reflect, now and author of A Strategy for Stable Peace the Sept. 11 attacks showed diat huge then, on how much of our influence and author of Europe Undivided, majorities of Americans also favored comes from our nearly $400 billion and has edited or co-edited four other multilateral responses to terrorism. annual defense budget and how books dealing with U.S.-Russian rela¬ More Americans in the fall of 2001 much from our aspiration to be “a tions He has also published numerous drought that top priority should be shining city on a hill.” articles on Northeast Asia, especially given to strengthening the United Only a judicious balance between concerning the Korean Peninsula. Nations than thought so four years the ideas represented by the two

72 FOREIGN SERVICE J OU RN AL/SEPT EM BER 2002 poles of independence and interde¬ tems, was what the Clinton team was rules and norms are generally helpful pendence provides the basis for sound practicing. to Americas global interests. That U.S. policy. Indeed, the genius of In turning away from that judgment may have been premature, American diplomacy in the period fol¬ approach from the beginning, with but it is undeniable that Bush has lowing World War II was that it struck only a few exceptions (trade policy modified some of his positions from this balance in a way that made peo¬ and relations with Latin America time to time in a direction diat is con¬ ple want to be on our side. among them), the Bush administra¬ genial to diose of us who see an inter¬ Aiding this quest for balance is the tions diplomacy had a consistency dependent world. He now accepts fact diat Americans tend to apply both that is die hallmark of a carefully the need for nation-building and he moral standards and pragmatic think¬ thought-out philosophy. The Bush has increased the U.S. budget for ing in foreign policy. “Grand designs” team apparendy believed, at least ini¬ development aid very substantially. run against the grain but the rule of tially, that a stronger defense of But he has gone the other way, too, on law resonates well, abroad as at home. American interests would be possible steel tariffs for example. So it is fair to Probably the closest President if die United States could drop the say that his foreign policy is still a Clinton came to espousing a grand constraints of certain international work in progress, as has often been design was his genuine devotion to agreements or multilateral obliga¬ die case with other administrations, globalization, which he saw as die tions. Many in Congress, of course, even at diis stage. “central reality of our time.” His saw things die same way. But even as administration was committed to pro¬ early as June 2001, when he made his Dreams of Empire moting the rule of law on a global first trip to Europe, Bush used The American democracy can only scale, through die rules of die World rhetoric diat any traditional Adanticist succeed in die international arena if it Trade Organization, to cite but one would endorse. A note of apprecia¬ pursues a policy based on transparen¬ example. Similarly, the success of the tion for die idea of an international cy, norms and rules, and steadiness in negotiating team I led in 1993 in community seemed to have crept into commitments. This is the American paving the way for die elimination of his official pronouncements. style, imposed on us by our history nuclear weapons in Belarus, Ukraine We will never know whether it and culture. Any effort to act differ- and Kazakhstan owes something to would have happened anyway, but endy will not ring true, at home or the fact that the “norm” of nuclear after Sept. 11 there was a further abroad. To act differendy we will non-proliferation had already sunk in course correction in die foreign policy have to turn into a different country. eveiywhere and was being quite logi¬ of die administration. The presidents Nevertheless, a rising chorus of cally and vigorously reinforced, first energies were directed toward die mostly conservative voices insists by President George H. W. Bush, war on terrorism and he believed that, that die salvation of this country can then by Clinton. as a wartime president, his adminis¬ only be found in an explicit The Clinton administration was tration would be defined by that. American policy of global hegemo¬ often criticized for using military Personally involved day after day in ny. What they expect to achieve from force, eidier too readily or, as others dealings with foreign leaders, such a policy is not entirely clear, saw it, too hesitandy. It was, in fact, President Bush seemed to develop a however. Some argue that prevent¬ only after much hesitation that new appreciation for the needs and ing the rise of peer competitors is President Clinton decided that cer¬ concerns of other governments. He the primary task of U.S. statecraft. tain principles of international behav¬ forged new security relationships with Some, a little less ambitious, simply ior needed defending and tiiat it was Pakistan and with the former Soviet want to forestall hegemonic aspira¬ in the U.S. national interest to do so. republics of Central Asia. Chinas tions by rising powers. Others sim¬ In such cases he used American support for die war against terrorism ply want to be rid of troublesome strengdi, amounting to hegemonic was welcomed; and the administra¬ regimes or to settle old scores. power, to imprint acceptable rules of tion’s view of Beijing as the main com¬ Many of them agree that alliances behavior on recalcitrant governments. petitor of die United States in die 21st are a good diing in principle because The Balkans are the best example of century was much muted. allies will refrain from building up diis, but Haiti is another. The relative Some observers, myself included, competing military forces lest they success or failure of these efforts does quickly gave die president credit for lose their protectors favor. And, to not contradict the fact that order¬ diis apparent realignment of his for¬ the extent that these thinkers agree building diplomacy, aimed at eign policy. I diought that he had that international collaboration is strengthening democratic value sys¬ been convinced that international sometimes required, they tend to

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 73 believe that the formation of limit¬ modem military forces. Our allies in ed, temporary coalitions is enough. Europe and in Northeast Asia are sec¬ Yet such calls to arms ignore the Despite its success in ond only to the United States in field¬ moral and philosophical question of ing highly capable militaries. Not whether conscious, though muted, Afghanistan, the Bush least because of this, the struggle also imperialism befits the American demands a type of diplomacy that is republic. There is also tire practical administration has not multilateral and rales-based. There issue of whether that option is even really is no other way. Combating ter¬ available to dre United States on a used a similar approach rorism places a premium, after all, on sustained basis, or whether it would asking other governments not only to require budgets and actions drat no to win support for its observe but also to enforce norms of administration is likely to propose and good behavior because it is in their — dre American people would not will¬ policies elsewhere and our — national interest. ingly support. The current stmggle tends to pit Proponents of American hegemo¬ in the world. all legitimate governments against ny also ignore the lessons of history. shadowy non-state entities. In Henry Kissinger has written that essence, die world community is “Bismarck was able in Iris lifetime to facing a new medievalism, that is, replace the philosophical constraints armament race and two world wars.” the privatization of large-scale vio¬ of the Mettemich system with a pol¬ The hazards of repudiating con¬ lence coupled with fealty to move¬ icy of self-restraint. Because these straints developed by the interna¬ ments that transcend frontiers. This nuances were not as self-evident to tional community over decades are is a clash between organizing princi¬ Bismarck’s successors and imitators, as real today as they were in the 19di ples for human society, between the literal application of Realpolitik century. states and transnational militancy If led to their excessive dependence on The character of the struggle in the states fail to act together to military power, and from there to an which we are now engaged requires uphold the constraints imposed by international law and custom, the terrorists will win.

Year-End Roundup of The Task Ahead Thus, the next few years will be FOREIGN critical ones for the republic as the Bush administration and Congress SERVICE AUTHORS together define the strategic approach that this country will take as As we have done the past two years, the December 2002 Foreign it enters a new era, one that can no Service Journal will include a list of recently published books by longer simply be defined as the “post- FS authors in an special section: “In Their Own Write.” FS Cold War.” Many of the issues we authors who have had a book published either by a commercial or face as a nation involve dre basic academic publisher in the past two years (2001-2002) that has not terms on which we choose to be previously been featured in the roundup, should send a copy of involved in the world. Do we see our¬ the book, along with a press release or backgrounder with infor¬ selves as part of a community of mation on the author, to: nations or as essentially alone — free Susan Maitra of “foreign entanglements” and their Associate Editor obligations? The United States in die early 21st century has become so Foreign Service Journal powerful that it is in a position to act 2101 E Street, N.W. with few constraints, except diose Washington, D.C. 20037-2990 imposed by die American people. And for this reason, foreign policy Deadline for submissions is Oct. 1. must and almost certainly will receive a higher priority among the concerns

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habitually raised his voice, using color¬ Outlasting the ful, earthy language — just to let his Bastards Boykin’s account of interlocutors know that he was serious, he later recounted. But according to Cursed is the Peacemaker: Habib’s brusque but Boykin, Habib saved his most tower¬ The American Diplomat Versus ing rages for those he believed had the Israeli General, Beirut 1982 effective tactics in lied to him, frequently accusing John Boykin, with foreword by Sharon of playing fast and loose with George Shultz, Applegate Press, 2002, dealing with Ariel the facts and trying to undermine his $29.95, hardback, 318 pages. peacemaking mission. Sharon amounts to a Ultimately, Habibs persistence REVIEWED BY (“oudasting the bastards," as he called ARNIE SCHIFFERDECKER virtual school on it) in shuttling through mine fields — diplomatically and literally -— enabled Cursed is the Peacemaker: The diplomacy. him to defuse the immediate crisis. American Diplomat Versus the Israeli Boykin gives a riveting account of the General, Beirut 1982 is an overdue many snags Habib and his colleagues paean to the life and work of the late overcame to implement the painstak¬ FSO Philip Habib. John Boykins Bashir Gemayal’s murderous ingly complex arrangements for the masterful analysis of Habib s crowning Phalange militia in a bid to destroy die PLO’s evacuation from Beirut. achievement, walking Israeli Defense PLO and oust Syria from Lebanon, Shortly diereafter, Sharon and his Minister Ariel Sharon back from his turning it into an Israeli fiefdom. Phalangist allies covered themselves in disastrous 1982 invasion of Lebanon, Working with his small staff of shame through their invasion of West ought to be required reading for any¬ FSOs and career ambassadors in the Beirut and wanton murders of hun¬ one dealing with tire Middle East. region and reworking his official dreds of innocent Palestinian civilians After covering Habibs upbringing instructions when necessary, Habib in the Sabra and Shatila refugee in a Lebanese-American family living built a series of “understandings” camps. Although Sharon’s Lebanese among Orthodox Jews in Brooklyn piece by piece for die removal of the adventure was then cut short by a cha¬ and his education as a forester in PLO from Lebanon and the stand- grined Israeli political leadership, he Idaho, Boykin then details Iris rapid down of IDF troops. With Haigs managed to save his political skin to rise drrough the Foreign Sendee to forced resignation on June 25, 1982, live and fight anodier day. under secretary of State for political and replacement by George Shultz, Sadly, by the time a grateful affairs under Henry Kissinger. Habib Habib got considerably more coher¬ President Reagan awarded Habib the retired from die Sendee in 1980 due ent support from Washington, but die Presidential Medal of Freedom, the to persistent heart problems, but was Israeli siege of Beirut continued to highest U.S. civilian honor, in brought back two years later as a spe¬ exacerbate die situation. September 1982, his exhausted special cial envoy to the Middle East. Boykin’s account of Habibs envoy had expended most of his per¬ In June 1982, Israeli Defense brusque but effective tactics, based on sonal and political capital in the Minister Ariel Sharon had used then- recendy declassified documents and region. In subsequent missions he Secretary of State Alexander Haigs interviews with key U.S. diplomats, was unable to prevent the savage out¬ virtual “green light” to send Israel amounts to a virtual school on diplo¬ breaks of Lebanese in-fighting nor the Defense Forces into Lebanon, osten¬ macy. Llabib’s strengths lay in his murderous 1983 attacks on the sibly to protect Israels northern bor¬ absolute integrity, grasp of detail, logic American embassy and U.S. Marines der. The IDF then drove into die sub¬ and patience — and forcefulness. in Beirut. Nonetheless, Phil Habib’s urbs of East Beirut, linking up with When he hit a stumbling block, he courage and indefatigable pursuit of

76 FOREIGN SERVICE ]OVRNAL/SEPTEMBER 2002 BOOKS

peace, taken at great cost to liis health The book is well organized, divided (he died in 1992 during a private visit into four sections (Purposes, to France), redefined and expanded Institutions, Methods and Conclu¬ die practice of diplomacy, inspiring an sions) preceded by an introduction entire generation of Foreign Service entitled “Why Bilateral Relations?” officers. Boykins account is worthy of which could stand by itself as a useful close study by todays policy-makers. essay. In it die author succinctiy reviews the old debates as to whether Retired FSO Amie Schifferdecker is a diplomacy is an art or a science, and member of the Journals Editorial whether diplomatic skills can be taught Board. or only acquired by practice. He is convinced that diplomacy can be taught, or that at least “there are stan¬ dard methods that need to be set out hi Diplomacy 101 descriptive form and learnt in training The only book ever about programs. These create a frame of ref¬ Bilateral Diplomacy erence ...” Kishan S. Rana, Mediterranean The 16 chapters methodically cover Philip Habib Academy of Diplomatic Studies a wide range of subjects: the work done His life, remarkable Foreign Service (Diplo Handbooks), 2002, paperback, by embassies and consulates to 21 Euros (approx. U.S. $21), 283 career, and mission of a lifetime: strengdien bilateral relations, diplomat¬ How he negotiated an end to pages. ic reporting, negotiating strategies and Ariel Sharon's 1982 siege of Beirut performance evaluations. He also spec¬ REVIEWED BY EDWARD MARKS ulates about future trends in diplomacy. ❖ Each chapter includes sidebars "Outstanding." Henry Kissinger Judged by its unpretentious tide, with examples and amplifications and Bilateral Diplomacy might initially concludes with a number of questions "A unique account of diplomatic appear to be a mere stocking-stuffer, a obviously designed for teaching pur¬ genius. Extremely well-sourced." mere primer for newcomers to the poses, plus references and extensive, Brandon Grove profession of diplomacy. But upon substantive notes. For instance, the closer examination, it turns out to be a chapter on embassies and consulates "This book belongs on your shelf." comprehensive survey of the subject includes questions such as “What are Richard Holbrooke that far outshines most other examples the tasks of junior officials in the mis¬ of the genre. sion?” and “How do the duties of the Over the course of a 35-year career, DCM differ from tiiose of die coun¬ Cursed is THE its author, Kishan S. Rana, served as selor?’ The writing is clear and free of India’s ambassador to Algeria, academic jargon, a model of good Peacemaker Czechoslovakia, Kenya, Mauritius and drafting. The American Diplomat Versus Germany, as well as its consul general Although obviously based on the in San Francisco. In addition to diat author’s personal experience, the The Israeli General, Beirut 1982 discussion ranges over the experi¬ extensive experience, he spent six by John Boykin months organizing and managing a ence of many countries and is free diplomatic training program for of any special pleading or national Foreword by George Shultz Namibia shortly after that country bias. The chapter on performance A selection of the ADST-DACOR obtained its independence and has includes discussion of the Diplomats & Diplomacy Book Series written extensively on various aspects German as well as the American $29.95 Applegate Press of diplomacy, including a study of die inspection system, French ambas¬ Indian Foreign Service. Thus he sadors’ instructions, U.S. mission www.diplomatbook.com knows whereof he speaks and does so program plans, British experimen¬ or toll-free 1-866-606-8782 clearly and comprehensively. tation with corporate techniques,

SEPTEMBER 2002/FOREIGN SERVICE JOURNAL 77 B o o k s

and Singapore’s “cutting edge” verbatim quotes from conversations may say far more about Clinton’s administrative concepts. might just as well have been tape- apparent personal fascination with As Rana notes, his book is designed recorded. “Of Boris” than with tiie intricacies of for “students of diplomacy at academ¬ Yet it is far from a bad read, thanks tiie two nations’ sudden emergence ic institutions who are interested in to Talbotts sharp eye for detail and from enmity — as if Yeltsin were part practical issues and particularly young subdued-yet-gossipy prose. This is no court jester to a lonely, isolated diplomats who are under training or at “tell-all” book, however. Primly allud¬ Clinton. What personal bond tiie two die early phase of their careers.” It ing to tiie Monica Lewinsky scandal, very different men might have shared would indeed be useful as a part of for example, Talbott simply notes that remains a mystery. FSI’s still essentially non-substantive “The uproar it caused seemed to have After Yeltsin’s retirement in 1999, A-100 curriculum, for orientation little effect on Clintons standing Chnton’s waning interest in tilings background for political appointees to abroad. Foreign leaders and publics Russian grew cold almost overnight. the State Department (department alike tended to shake their heads at Perhaps it just wasn’t fun anymore. appointments as well as ambassadors) the whole frenzy and hope that it Yeltsin’s successoi; Vladimir Putin, was and the interested general public. It would subside.” polite but unwilling to cultivate would also benefit media contacts, Likewise, he ignores reports of out¬ Chnton, obviously preferring to wait many of whom obviously do not right rancor toward his own candidacy for a successor. The stinging letdown believe that knowledge of diplomatic to succeed Warren Christopher in left Clinton oddly philosophical; his theory and practice is a requirement 1996, when certain senators reported¬ comments ranged only from irritation for writing about those subjects. ly blackballed him, privately calling at being patronized to perplexed him “the uncrowned king” of State. humor at Putins tactics. “Either he’s Retired FSO Edward Marks is a Instead, he emphasizes how much he dense or thinks I am,” Chnton mut¬ member of the Journals Editorial enjoyed his successive, dutiful rela¬ tered before rushing off to get a Board. tionships with “Chris” and farewell bear hug from Yeltsin. “Madeleine,” as he often calls them. Intentionally or not, this memoir With similar loyalty, Talbott strug¬ only reinforces die conventional wis¬ The Days of gles throughout the book to maintain dom that Talbott himself was tiie tiie polite fiction that Clinton was tire administration's real expert on Russian Bill and Boris “Russia hand” of his title, insisting that affairs, even after stepping up to tiie the presidents “personal diplomacy” more demanding portfolio of deputy 7 The Russia Hand: A Memoir of with Boris Yeltsin was “frequent and secretary at State. He had, after all, Presidential Diplomacy intense.” What seems clear, instead, is been an expert on tiie Russian lan¬ Strobe Talbott, Random House, 2002, that Russian politics showed up only guage and tiie current Russian politi¬ 478 pages, hardcover, $29.95. episodically on Clintons radar screen, cal state ever since his days as Clintons and even more rarely stirring him Oxford roommate. His encyclopedic REVIEWED BY intellectually. Indeed, Clintons virtual grasp of die ups and downs of Russia’s BENJAMIN R. JUSTESEN absence from the stage for long government — tiie endless parade of stretches is puzzling. Talbott fills some Yeltsin’s prime ministers among them The Russia Hand: A Memoir of of tiie resulting vacuum by detailing — is genuinely impressive. Presidential Diplomacy promises Yeltsin’s problems with health, alco¬ Sadly, as die decline of its name¬ much: an insiders view of foreign pol¬ holism and private scandal, and other sake unfolds, The Russia Hand loses icy during tiie Clinton years, told by racy morsels about foreign diplomats. most of its credibility as a memoir, and the president’s key confidant and long¬ The roller-coaster relationship borders instead on parody. At the end, time personal friend. Disappointingly, between tiie two leaders is effectively we have been duly entertained, but it mirrors both the flaws of die admin¬ tiie memoir’s unifying thread. Yet the are hardly wiser for the ride. ■ istration and the leader it describes very fact that “Bill” and “Of Boris” and the deadline-driven shallowness met 18 times (often contentiously; Ben Justesen, a former Foreign Service of most modem journalism. Its breezy during tiie 1999 NATO bombing of officer, is the author of George Henry tone alternates between irreverence Serbia, Yeltsin all but cursed Clinton White: An Even Chance in the Race and occasional cattiness, while its long, over the telephone) over seven years of Life (Louisiana State Press, 2001).

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Trailing the Tiger in the Sundarbans

BY PAM ANDERSON

“We’re on a tiger hunt and we’re only 284 Bengal tigers remain in the not afraid.” That song of childish Dense forest mangrove swamps of the Sundarbans, bravado is actually about lions, not mosdy in die Indian portion of the tigers, but it kept echoing in my head bordered an expanse nature preserve. Saving die tiger from as we trooped through the tall grass of of grassland where extinction seems like a futile endeavor die mangrove swamps of southwest tigers could easily lie widi die loss of tiieir habitat and food Bangladesh: home to die Bengal tiger. sources and widi the poaching of the Well, maybe we were a little anx¬ in wait for a cjiiick big cats themselves for their supposed ious. pounce on an medicinal and curative properties. Of course, we were not literally Selfishly, I suppose, each person in hunting any tigers. Rather, we were on unsuspecting our group hoped to catch a glimpse o a photographic expedition, hoping to deer or tourist. a Bengal tiger so he could say that he catch sight of them. had seen one in die wild. While waiting Dense forest bordered an expanse and hoping, we were regaled with the of grassland where tigers could easily bird life of die Sundarbans, both camouflage themselves and lie in wait 6,600 pounds of prey a year. I hoped indigenous and migratory: brilliantiy for a quick pounce on an unsuspecting diat we wouldn’t be die next meal for colored kingfishers, bee-eaters, ele¬ deer or tourist. “Oh, diat looks like a one of them. gant, long-necked white egrets, and juicy one, tire one with the glasses,” I Our guide, on loan from one of the the stately Brahminy kites which imagined die tiger to be saying to itself Sundarbans forest outposts, was ner¬ reeled overhead and seemed at times as I nervously scanned the jungle just vous and didn’t want us to go further. to escort us. We also saw crocodiles, to the right of die padi. In addition to being nervous, he had a monkeys, gangetic dolphins and ehital Before embarking on our trip, I had disconcerting habit of clearing his (spotted deer, which some claim to be read an article detailing die tiger’s throat and spitting, a custom obnoxious the most beautiful of die deer family). unique hunting capabilities: “finely to Americans but common to many We even heard the bark of the elusive adapted stalk-and-ambush hunters,” parts of die world, particularly South barking deer, one of die more diminu¬ “powerful jaws and legendary canines,” Asia. I silentiy referred to him as Mr. tive deer species. “... their striped coloration blends into Hackn’Spit. Altiiough we saw plenty of paw shadows of forest edge and dry grass¬ Mr. Hackii'Spit was unarmed as prints and fresh feces, evidence of tiieir es.” The article went on to state diat were die rest of us. Normally, two presence in the area, the elusive each adult tiger needed to consume guides with rifles are assigned to Bengal tiger eluded us on this trip. accompany each tourist group. The Perhaps die tiger is wise to avoi Pam Anderson is the spouse of forest service could spare only one humans, for human contact with this USAID FSO Tim Anderson, with man for our protection. Regulations magnificent animal seems only to poin whom she has been posted to required diat two rangers could carry to its eventual demise. Again, die lirr Islamabad, Cairo, Washington, D. C. rifles, but not one, so our one guide from that childhood song comes t and Dhaka, where she is currently came unarmed. Could someone mind, "... and we’re not afraid.” W working on her first novel. The explain die logic of diat? should be afraid. Afraid of forever los stamp is courtesy of the AAFSW Coincidentally, just diat morning, mg one of creation’s most regal species Bookfair “Stamp Comer.” the BBC radio news had reported that die tiger. ■

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