DIPLOMACY IN THE AGE OF TERRORISM: WHAT IS THE STATE DEPARTMENT’S STRATEGY? HEARING BEFORE THE COMMITTEE ON INTERNATIONAL RELATIONS HOUSE OF REPRESENTATIVES ONE HUNDRED EIGHTH CONGRESS SECOND SESSION AUGUST 19, 2004 Serial No. 108–152 Printed for the use of the Committee on International Relations ( Available via the World Wide Web: http://www.house.gov/international—relations U.S. GOVERNMENT PRINTING OFFICE 95–542PDF WASHINGTON : 2005 For sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: toll free (866) 512–1800; DC area (202) 512–1800 Fax: (202) 512–2250 Mail: Stop SSOP, Washington, DC 20402–0001 VerDate Mar 21 2002 14:35 Mar 03, 2005 Jkt 000000 PO 00000 Frm 00001 Fmt 5011 Sfmt 5011 F:\WORK\FULL\081904\95542.000 HINTREL1 PsN: SHIRL COMMITTEE ON INTERNATIONAL RELATIONS HENRY J. HYDE, Illinois, Chairman JAMES A. LEACH, Iowa TOM LANTOS, California CHRISTOPHER H. SMITH, New Jersey, HOWARD L. BERMAN, California Vice Chairman GARY L. ACKERMAN, New York DAN BURTON, Indiana ENI F.H. FALEOMAVAEGA, American ELTON GALLEGLY, California Samoa ILEANA ROS-LEHTINEN, Florida DONALD M. PAYNE, New Jersey CASS BALLENGER, North Carolina ROBERT MENENDEZ, New Jersey DANA ROHRABACHER, California SHERROD BROWN, Ohio EDWARD R. ROYCE, California BRAD SHERMAN, California PETER T. KING, New York ROBERT WEXLER, Florida STEVE CHABOT, Ohio ELIOT L. ENGEL, New York AMO HOUGHTON, New York WILLIAM D. DELAHUNT, Massachusetts JOHN M. MCHUGH, New York GREGORY W. MEEKS, New York ROY BLUNT, Missouri BARBARA LEE, California THOMAS G. TANCREDO, Colorado JOSEPH CROWLEY, New York RON PAUL, Texas JOSEPH M. HOEFFEL, Pennsylvania NICK SMITH, Michigan EARL BLUMENAUER, Oregon JOSEPH R. PITTS, Pennsylvania SHELLEY BERKLEY, Nevada JEFF FLAKE, Arizona GRACE F. NAPOLITANO, California JO ANN DAVIS, Virginia ADAM B. SCHIFF, California MARK GREEN, Wisconsin DIANE E. WATSON, California JERRY WELLER, Illinois ADAM SMITH, Washington MIKE PENCE, Indiana BETTY MCCOLLUM, Minnesota THADDEUS G. MCCOTTER, Michigan BEN CHANDLER, Kentucky KATHERINE HARRIS, Florida VACANCY THOMAS E. MOONEY, SR., Staff Director/General Counsel ROBERT R. KING, Democratic Staff Director KRISTEN GILLEY, Senior Professional Staff Member LIBERTY DUNN, Staff Associate JEAN CARROLL, Full Committee Hearing Coordinator (II) VerDate Mar 21 2002 14:35 Mar 03, 2005 Jkt 000000 PO 00000 Frm 00002 Fmt 5904 Sfmt 5904 F:\WORK\FULL\081904\95542.000 HINTREL1 PsN: SHIRL C O N T E N T S Page WITNESSES Christopher Kojm, Deputy Executive Director, National Commission on Ter- rorist Attacks Upon the United States ............................................................... 8 Susan Ginsburg, Team Leader for Border Security and Foreign Visitors, National Commission on Terrorist Attacks Upon the United States .............. 11 The Honorable J. Cofer Black, Coordinator of Counterterrorism, U.S. Depart- ment of State ........................................................................................................ 39 The Honorable Patricia de Stacy Harrison, Acting Under Secretary for Public Diplomacy and Public Affairs, and Assistant Secretary, Bureau of Edu- cational and Cultural Affairs, U.S. Department of State ................................. 47 The Honorable Maura Harty, Assistant Secretary, Bureau of Consular Affairs, U.S. Department of State .................................................................................... 53 The Honorable Francis X. Taylor, Assistant Secretary, Bureau of Diplomatic Security, and Directorof the Office of Foreign Missions, U.S. Department of State .................................................................................................................. 58 The Honorable Earl Anthony Wayne, Assistant Secretary, Bureau of Eco- nomic and Business Affairs, U.S. Department of State .................................... 64 James W. Swigert, Principal Deputy Assistant Secretary, Bureau of Inter- national Organization Affairs, U.S. Department of State ................................ 75 Carol A. Rodley, Principal Deputy Assistant Secretary, Bureau of Inter- national Organization Affairs, U.S. Department of State ................................ 78 The Honorable Christina B. Rocca, Assistant Secretary, Bureau of South Asian Affairs, U.S. Department of State ............................................................ 81 The Honorable Philo Dibble, Acting Assistant Secretary of State for Near Eastern Affairs, U.S. Department of State ........................................................ 88 LETTERS, STATEMENTS, ETC., SUBMITTED FOR THE HEARING Christopher Kojm and Susan Ginsburg: Prepared statement ............................. 14 The Honorable J. Cofer Black: Prepared statement ............................................. 41 The Honorable Patricia de Stacy Harrison: Prepared statement ........................ 48 The Honorable Maura Harty: Prepared statement ............................................... 55 The Honorable Francis X. Taylor: Prepared statement ........................................ 60 The Honorable Earl Anthony Wayne: Prepared statement ................................. 67 James W. Swigert: Prepared statement ................................................................ 76 Carol A. Rodley: Prepared statement ..................................................................... 80 The Honorable Christina B. Rocca: Prepared statement ..................................... 82 The Honorable Philo Dibble: Prepared statement ................................................ 90 APPENDIX Material Submitted for the Hearing Record .......................................................... 121 (III) VerDate Mar 21 2002 14:35 Mar 03, 2005 Jkt 000000 PO 00000 Frm 00003 Fmt 5904 Sfmt 5904 F:\WORK\FULL\081904\95542.000 HINTREL1 PsN: SHIRL VerDate Mar 21 2002 14:35 Mar 03, 2005 Jkt 000000 PO 00000 Frm 00004 Fmt 5904 Sfmt 5904 F:\WORK\FULL\081904\95542.000 HINTREL1 PsN: SHIRL DIPLOMACY IN THE AGE OF TERRORISM: WHAT IS THE STATE DEPARTMENT’S STRATEGY? THURSDAY, AUGUST 19, 2004 HOUSE OF REPRESENTATIVES, COMMITTEE ON INTERNATIONAL RELATIONS, Washington, DC. The Committee met, pursuant to call, at 10 o’clock a.m., in Room 2172, Rayburn House Office Building, Hon. Christopher H. Smith [Vice Chairman of the Committee] presiding. Mr. SMITH OF NEW JERSEY. The hearing will come to order, and good morning, everybody. The ability of Osama bin Laden’s al-Qaeda’s transnational ter- rorist network to inflict violence was felt with particular horror on August 7, 1998, when U.S. Embassies in Nairobi and Dar es Sa- laam were attacked. Members will recall more than 220 people were killed, including 12 U.S. Government employees. More than 4,000 were injured, mostly Africans. That was—or should have been—the wake-up call. Soon after the Embassy bombings, I chaired a hearing, one of several of legislation that I sponsored that became law, to author- ize substantial funds for counterterrorism, Embassy security, pub- lic diplomacy, broadcasting and democracy building. At one hear- ing, we heard from Admiral William Crowe, former Chairman of the Joint Chiefs of Staff and Chairman of the Accountability Re- view Boards, not unlike the 9–11 Commission, that probed the Em- bassy bombings. Admiral Crowe said at the time, ‘‘In our investigations of the bombings, the Boards were struck, as you noted, by the similarity of our recommendations with those drawn by the Inman Commission over 14 years ago. I find very troubling, the failure of U.S. Government to take the necessary steps to prevent such tragedies in the interim.’’ He also said, ‘‘Throughout the proceedings, the Boards were most disturbed regarding two interconnected issues. The first of these was the inadequacy of the resources to provide security against terror attacks, and the second was the relatively low priority ac- corded security concerns throughout the U.S. Government by the Department of State, other agencies in general, and on the part of many employees, both in Washington and in the field.’’ (1) VerDate Mar 21 2002 14:35 Mar 03, 2005 Jkt 000000 PO 00000 Frm 00005 Fmt 6633 Sfmt 6633 F:\WORK\FULL\081904\95542.000 HINTREL1 PsN: SHIRL 2 At that same hearing, in the late 1990s, Assistant Secretary for Diplomatic Security David Carpenter testified, and I quote him briefly, ‘‘During the past decade, prior to the tragic August 7th bomb- ings in Nairobi and Dar es Salaam, all of the attacks against U.S. interests involved indigenous terrorist elements. While we were aware of threats from external terrorist groups, none ever materialized. The August 7th bombings demonstrated the ex- istence of a global terrorist organization capable of and intent on attacking U.S. diplomatic targets. All our posts are now con- sidered at risk and we need to take a comprehensive security approach.’’ He also concluded, ‘‘Global or regional networks may strike where we are most vulnerable.’’ Prophetic words. On September 11, 2001, we were ‘‘most vulnerable’’ in New York, at the Pentagon and on four planes carrying Americans. 9/11 wasn’t the start, but the escalation of a war on Americans and oth- ers of goodwill. We are, in fact, in a war, but with a new and far different enemy than any we have previously encountered. Our enemies are un- likely to be vanquished in any traditional sense of achieving their surrender. In fact, there may never be an end to this conflict, never an end to the need for eternal vigilance, preemption and vigorous application of all measures within our capabilities. The 9–11 Commission