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Joseph Nevins | The Nation

Joseph Nevins

Author Bios

Joseph Nevins

Joseph Nevins, a research fellow at the University of California, Berkeley, is the author of Operation Gatekeeper: The Rise of the Illegal Alien and the Making of the U.S.-Mexico Boundary (Routledge). He is currently working on a book about East Timor's ground zero in 1999.

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They say that war is hell, and Chris Hedges shows us how and why.
Hedges's War Is a Force That Gives Us Meaning painfully and
profoundly illustrates how violent conflict destroys those i

The twentieth century was arguably the bloodiest in modern history,
earning from one commentator the moniker of the Age of Barbarism. From
the Nazi genocide, to the killing fields of Cambodia and Rwanda, to the
"ethnically cleansed" areas of the former Yugoslavia, the twentieth
century was one of unprecedented horror for many.

Mass slaughter of civilians is, of course, much older than these
horrors. The modern world brought about by European expansionism, the
famed Pakistani intellectual Eqbal Ahmad once observed, is a time of
extraordinary unrecorded holocausts. How many of us, for instance, are
familiar with the deaths of upward of 10 million in the
Belgian-controlled Congo in the latter nineteenth and early twentieth
centuries? Or how about Australia's extermination of the indigenous
population of Tasmania? The decimation of inferior races in settler
colonies, brought about by Western imperialism and the associated
legitimizing ideologies, in fact, contends Sven Lindqvist in his
brilliant Exterminate All the Brutes, ostensibly laid the
groundwork for Hitler's crimes by creating particular habits of thought
and political precedents.

What was unique to the twentieth century--and thus the subtitle of
Samantha Power's very impressive "A Problem From Hell": America and
the Age of Genocide--
was the invention of the very word "genocide"
and its establishment as a legal construct outlawing one of the most
egregious forms of state terror. That represents a great advancement in
the construction of international law and associated political and
juridical mechanisms, but the fact that genocide continues to occur and
to go unpunished speaks to the difficulties of giving life to a legal
regime.

While the parties most responsible for this shortcoming are those that
perpetrate genocide, Power focuses much of her opprobrium on the party
that is in her estimation best positioned to put an end to or at least
significantly curb such horror: the US government. "No US President has
ever made genocide prevention a priority," she writes, "and no US
President has ever suffered politically for his indifference to its
occurrence. It is thus no coincidence that genocide rages on."

The myriad horror stories of this age of genocide have many ugly
characters, several of whom Power profiles in her well written and
extensively documented book. But there are also many heroes, namely
those within and without the US government who have spoken the
proverbial truth to power with the goal of making Washington appreciate
or acknowledge--and thus take appropriate action--that genocide was
taking place in the various case studies that Power carefully details.

Perhaps the biggest hero in Power's book is Raphael Lemkin. A Polish Jew
who as a young boy had a fascination with the history of mass
slaughters, Lemkin became a lawyer and international legal scholar. He
set out to ban the destruction of ethnic, national or religious groups,
to end the national sovereignty-granted impunity of state actors
who perpetrate such atrocities and to insure universal jurisdiction for
their prosecution.

Forced to flee his homeland when the Nazi army invaded in 1939, Lemkin
ended up in the United States soon thereafter. He worked indefatigably
to bring attention to and to record Hitler's extermination of Jews,
while urging Americans to do everything they could to put a stop to it.
At the same time, he endeavored to invent a word to characterize such
slaughters, one that, in Power's words, "would connote a practice so
horrid and so irreparable that the very utterance of the word would
galvanize all who heard it." When he coined the term "genocide" in 1944,
Western governments and political pundits quickly embraced it. This led
Lemkin to assume that actions to codify the term and fight the practices
comprehended in it would quickly follow. He soon learned that he had a
long fight on his hands--one that he waged incessantly until he died,
penniless, in 1959.

Before his demise, however, Lemkin saw the United Nations General
Assembly pass the genocide convention on December 9, 1948, the body's
first passage of a human rights treaty. And less than two years later,
the necessary twenty countries had ratified the convention, making it
international law. But he did not live to see the United States ratify
it, a necessary step, Lemkin thought, to insure its enforcement, given
American power. Indeed, it would not be until 1988 that the Senate did
so, but not before attaching a set of reservations, understandings and
declarations that insured that the United States itself could never be
charged with the crime, thus rendering American approval largely
symbolic.

The architects of the convention understood the danger of making
Hitler's crimes the standard by which to determine future genocides.
States must be able to identify as genocide acts aimed at destroying "in
whole or in part, a national, ethnic, racial or religious group"--the
legal definition of the crime--well before they have the chance to reach
such a scale in order to trigger appropriate actions. (The convention
enjoins its signatories to take measures to prevent and punish the
crime.) Despite such intentions, the link between genocide and Hitler's
so-called Final Solution "would cause endless confusion for
policy-makers and ordinary people who assumed that genocide occurred
only where the perpetrator of atrocity could be shown, like Hitler, to
possess an intent to exterminate every last member of an ethnic,
national or religious group."

While the Hitler-standard problem did help to undermine effective
responses by American officials and opinion-makers to various
post-World War II genocides, there were other dilemmas as well,
including the difficulty of believing reports of horrific slaughter.
Even in the face of extensive and graphic media coverage, Power writes,
"American policymakers, journalists and citizens are extremely slow to
muster the imagination needed to reckon with evil." In addition, there
is a tendency to assume, before the fact, that the would-be perpetrators
of genocide are rational actors who will not engage in horrific terror;
that traditional diplomacy can resolve the crisis; and that civilians
who keep a low profile during the conflict will survive. At the same
time, cold geopolitical calculations underlie official reactions, and
they often spin the violence as two-sided, a result of age-old hatreds
and thus inevitable, while arguing that any type of serious intervention
would be futile and even counterproductive. Thus, not only does
Washington abstain from sending troops but it also takes very few steps
along a continuum of potential interventions to deter genocide.

This nonresponse, Power demonstrates, is not something unique to the
presidencies of George Bush Sr. and Bill Clinton, who emerge looking
especially bad. It manifested itself to varying degrees in all the cases
she examines, beginning with the Ottoman Turks' slaughter of almost a
million Armenians in 1915. The United States under Woodrow
Wilson--despite being well informed of Turkey's crimes--did not support
the Allies' condemnation of Turkey's crimes against humanity, lest such
support undermine American neutrality. Disregarding the pleas of
Washington's ambassador, Henry Morgenthau, the Wilson Administration
refused even to issue a direct government-to-government appeal to cease
the killings or to pressure the Turkish authorities to allow
humanitarian aid deliveries to Armenians driven from their homes and on
the brink of starvation. For Power, Wilson's nonresponse "established
patterns that would be repeated."

But as Power illustrates, it was not simply that the United States did
nothing. Often Washington indirectly and directly aided the
genocidaires. In Cambodia, for example, the US bombing that
preceded Pol Pot's seizure of power "killed tens of thousands of
civilians." While horrific in its own right, "it also indirectly helped
give rise to a monstrous regime" responsible for the deaths of upwards
of an estimated 2 million Cambodians. And in the case of Iraq's
slaughter of the Kurds, the Reagan White House dismissed reports of
Saddam Hussein's gassings and other atrocities while maintaining aid to
his regime, preferring to maintain its unholy alliance with Iraq in its
war with Iran. The year after Saddam's forces decimated several thousand
Iraqi Kurdish villages and killed close to 100,000 Kurdish civilians
(1987-88), Washington, now under Bush Sr., actually doubled the
amount of agricultural credit it had been providing to Saddam's regime,
increasing it to more than $1 billion.

In other cases, the United States helped to undermine effective
international responses to genocide. Perhaps the most shameful case was
that involving the Clinton Administration during the 1994 slaughter in
Rwanda, which involved the killing of approximately 800,000 Tutsis and
moderate Hutus in the span of 100 days, making it the fastest, most
efficient killing spree of the twentieth century. Clinton, whom Power
inexplicably refers to as "a committed multilateralist," one with "faith
in the United Nations," did everything he could to avoid doing something
constructive. Throughout, and similar to their conduct through much of
the Serb-perpetrated atrocities in Bosnia, Administration officials
feigned ignorance of what was going on. US intelligence reports had
warned Washington of the likelihood of mass killings in Rwanda.
Nevertheless, Clinton refused Belgium's request to reinforce the small
UN peacekeeping mission to the country. And once the killing started,
the Administration denied almost until the end that genocide was taking
place, despite full knowledge to the contrary. To do otherwise would
have required that Washington take appropriate action. Instead, the
Administration insisted that UN peacekeepers withdraw from Rwanda and
then refused to authorize the deployment of a stronger UN force. It was
not until the Rwandan Patriotic Front had driven most of the
perpetrators out of the country and seized power in the capital that
Clinton ordered the closing of the Rwandan Embassy in Washington and the
seizure of its assets.

In her investigation, Power justifies her choice of case studies by two
key criteria: that each meets the terms of the 1948 genocide convention;
and that it presented the United States with the options for meaningful
diplomatic, economic, legal or military intervention. But as we shall
see, it is questionable whether all her cases satisfy the criteria.

In terms of the first, to suggest that what took place in Kosovo was a
genocide, or would have been had NATO not intervened, is a highly
contentious issue in the international legal and human rights community.
As for the Khmer Rouge, while they were guilty of killing large
percentages of the country's Muslim Chams, Vietnamese and Buddhist
monks, the bulk of their human targets were alleged political enemies.
In this regard, these killings would not form part of a genocide, at
least through the narrow criteria of the 1948 convention.

As Power explains, the architects of the genocide convention made the
explicit decision to exclude political groups--a move actively supported
by Lemkin. They did so in order to insure the support of many countries,
largely those of the Soviet bloc and some from Latin America as well,
that feared the inclusion of political groups would inhibit the ability
of states to suppress armed rebellions within their boundaries. It
appears that Lemkin was sympathetic to neither the underlying
assumptions nor the implications of such an argument but supported it
for pragmatic reasons--a position that Power seems to share. This might
explain why she has no problem including the horrors inflicted by the
Khmer Rouge under the general rubric of genocide. But given this more
flexible notion of what constitutes genocide, it begs the question of
why Power chose the cases she did in laying out her argument and ignored
other possible instances.

This question also relates to the second criterion for her choices,
namely that the United States had a variety of options available for
meaningful intervention. Here, Power is treading on even weaker ground
in some instances.

On Rwanda and Bosnia, Power makes her most convincing case that there
were concrete steps the United States could have taken that would have
had significant effects in lessening the bloodletting. In other
instances she examines, however, such as those of the Nazi and Khmer
Rouge holocausts, she is less convincing. Regarding Cambodia, for
example, she contends that the Khmer Rouge were less immune to outside
criticism than was claimed by American authorities. In this regard, she
argues that "bilateral denunciations by the United States may well have
had little effect on the Khmer Rouge's internal practices.
Unfortunately, because so few US officials spoke out publicly against
the genocide, we cannot know." In terms of the Nazis, Power appeals to
conventional wisdom and suggests that Washington could have done things
to prevent Hitler's crimes, but makes no serious effort to persuade the
reader or to engage the literature that has called such arguments into
question. As Peter Novick argues in his much-acclaimed The Holocaust
in American Life
, the various ex post facto proposals for rescuing
Jews from Nazi clutches ignore what were very real constraints at the
time and often would have been of little practical use. Substantial
rescue efforts, Novick contends, would have had a marginal effect at
best. (Nevertheless, he asserts, it would have been worthwhile to carry
out the proposed actions; but they would have saved 1, or perhaps 2
percent at most, of those who died.)

Power applauds US action loudly in the case of Kosovo. Indeed, she
argues that hundreds of thousands of lives would have been lost had the
United States and its NATO allies not engaged in the bombing campaign
against the Serbs. She offers no substantiation for this claim. And, of
course, how could she? Perhaps the greatest weakness of the Kosovo
chapter, however, is that she does not engage any of the critiques put
forth by the likes of Noam Chomsky and other commentators--many writing
in this magazine--that there were alternatives to the NATO action, ones
that would have been consistent with international law and might have
actually lessened the killings and expulsions that increased
dramatically after the start of the bombing, to say nothing about its
effects on Serb civilians. At the very least, Power should have
presented and grappled with such arguments. Hardly anyone contends that
Milosevic & Co. were not capable and guilty of enormous brutality.
Indeed, Power graphically shows how Serb forces put this capacity to
horrific and massive use in Bosnia and the fatal consequences of the
failure of the West to acknowledge the bloodshed and respond
appropriately. In this regard, mass killings in Kosovo were arguably a
distinct possibility. But the question remains, Were there courses of
action other than that taken up by Washington and its NATO allies?

Power understandably feels outrage at international and, more
specifically, American inaction in the face of mass killing. With an
American audience in mind, she challenges the reader to do
something--whatever is in her power--to suppress and/or bring to justice
those responsible for the slaughter of innocents. She makes a compelling
case for a collective moral, as well as an international legal,
obligation for the US government to do so. But this also raises what is
perhaps the biggest problem with "A Problem From Hell": Even
though she acknowledges that the United States sometimes directly and
indirectly aids genocidal regimes, the overall effect of her examples
and the manner in which she frames the book is to situate Washington as
an outsider to such horrors. In the book's final pages, for example, she
asks, "Why does the United States stand so idly by?" In this sense,
Power's choice of cases is quite safe. Had she looked beyond the
parameters of the conventional and examined instances in which the
American role in mass slaughter has been less that of a bystander and
more that of a partner-in-crime perpetrator, her call for greater levels
of US intervention would seem at best unpersuasive and at worst
hypocritical and potentially dangerous. Three cases--those of Indonesia,
East Timor and Guatemala--illustrate this point.

Led by General Suharto, the Indonesian military and the civilian militia
that it armed and directed engaged in one of the worst bloodlettings of
the postwar era. Over the course of several months in 1965-66, they
slaughtered members of the Indonesian Communist Party (PKI) along with
members of loosely affiliated organizations (women's groups, labor
unions, etc.). While Indonesia's holocaust does not meet the strict
guidelines of the genocide convention, the scale and nature of the
killing spree were undoubtedly genocide-like, similar to the bulk of the
Khmer Rouge's crimes in Cambodia. Amnesty International estimated "many
more than 1 million killed." The head of the Indonesian state security
system approximated the toll at half a million, with another 750,000
jailed or sent to concentration camps. The American political
establishment welcomed the slaughter and the emergence of Suharto's New
Order, with Time hailing it as "the West's best news for years in
Asia."

The United States had effectively helped to lay the groundwork for the
military's seizure of power through its interference in Indonesian
affairs and support for the military over the years. Washington had also
long urged the military to move against the PKI. Accordingly, it
supplied weaponry and telecommunications equipment, as well as food and
other forms of aid, to the Indonesian Army in the early weeks of the
slaughter. The American embassy also provided the military with the
names of thousands of PKI cadres who were subsequently killed.

About ten years later, the Indonesian Frankenstein that Washington had
helped to create decided to invade Indonesia's tiny neighbor of East
Timor. Rather than just looking away, as Power incorrectly reports in
her one reference to East Timor, Washington aided and abetted an
international crime of aggression. While this has long been alleged, the
recent release of formerly classified documents by the Washington-based
National Security Archive now proves that then-President Gerald Ford and
Henry Kissinger, his foreign policy czar, gave Suharto the green light
for the December 7, 1975, invasion while meeting with him the previous
day. Over the following quarter-century, various US administrations
provided billions of dollars in weaponry, military training and economic
assistance to Jakarta during its more than two decades of occupation.
And in the early years of the slaughter, a time described by an
Australian government body as "indiscriminate killing on a scale
unprecedented in post-World War II history," Washington took
concerted steps to insure that the UN did not take effective action to
end Indonesia's annexation. The result was the death of well over
200,000 East Timorese, about one-third of the preinvasion population.

And, finally, Guatemala. There, more than 200,000, most of them
indigenous Mayans, lost their lives in the context of a brutal conflict
between a US-backed military oligarchy and a guerrilla force during the
1970s and '80s. The 1999 report of the internationally supported
Guatemalan Commission for Historical Clarification concluded that the
state was responsible for over 90 percent of the deaths and had
committed "acts of genocide." The commission also found that American
training of members of Guatemala's intelligence apparatus and officer
corps in counterinsurgency "had significant bearing on human rights
violations."

Because Samantha Power excludes cases like these from her analysis, she
seems to have little problem endorsing American global dominance and, on
the basis of such, calling for the United States to take the lead in
battling genocide. At the very end of an excellent chapter on the grisly
slaughter by Bosnian Serbs at Srebrenica, for example, Power lets
Senator Bob Dole explain why the United States finally became involved
in helping to end the terror in Bosnia. "Because we happen to be the
leader of the world," Dole stated.

Clearly there is a problem with Washington taking the lead in fighting
something it has helped to perpetrate on numerous occasions, and for
which it has never atoned, apart from a halfhearted admission of
wrongdoing (but not an apology, by Clinton in the case of Guatemala).

Simply because the United States has been complicit in gross atrocities
in the past does not mean, of course, that it is therefore incapable of
doing good, if even for the wrong reasons. But it does mean that we
should remain extremely skeptical of American leadership on the global
stage. As the current Palestinian-Israeli conflict painfully
demonstrates, what Washington calls American leadership is, as often as
not, unilateralist, bullying, obstructionist. All of these manifest
themselves in Washington's acceptance of Israel's flouting of
international law regarding its ongoing occupation and dispossession of
the Palestinian people. The United States has long been a principal
obstacle to an internationally acceptable solution, and it has done what
it can to prevent a multilateral approach to resolving the conflict.
Such antipathy toward international law and political institutions means
that "genocide prevention" could turn out to be just another instrument
in Washington's empire-maintenance tool kit.

If one of the main objectives of Power's book is to get the United
States to take a more active role in ending mass slaughter, surely it
would seem to be more efficacious--as well as principled--to begin by
scrutinizing cases in which the United States has been directly
involved. In this regard, her appeal to the American political
establishment on the basis of morality and enlightened self-interest
(genocide, she argues, causes regional and international instability,
something bad for the United States) is ill conceived. Ending
Washington's role in the slaughter of innocents requires struggling
against American militarism and unilateralism, as well as against
Washington's refusal to submit to international security and legal
mechanisms that would have even a remote possibility of holding US
officials accountable. The US refusal to sign on to the recently
established International Criminal Court and to cooperate with efforts
by a number of countries to question Henry Kissinger regarding various
international crimes is merely the latest manifestation of such
obstructionism.

This is not to suggest that if we could get the American house in order,
the world would be fine. As Power's book shows, there are plenty of
"evildoers" to go around. Something must be done to stop them, yes, but
it should be a truly international project. The best place to start is
at home, but not by first and foremost asking Washington to intercede
abroad. Demanding a US foreign policy consistent with international law
and human rights standards, as well as international accountability for
American officials who may have engaged in war crimes and crimes against
humanity, is the first step. Doing so will also increase the likelihood
of international cooperation in cases championed by Washington.

Finally, it is not obvious why mass killing that falls under the rubric
of genocide should be paramount in terms of international prevention and
adjudication. Power does not claim this explicitly, but it is a fair
conclusion to draw given that she does not discuss other terrible crimes
against humanity that result in massive loss of life. Why, for example,
should Serbian crimes in Bosnia be more worthy of scrutiny and demands
for accountability than, say, the US war against Vietnam, which caused
the deaths of 2-3 million civilians? In this regard, we must be
careful that the need to suppress and seek justice for genocide does not
prevent us from seeing all mass killings of civilians, no matter who
commits them, as unacceptable, and from acting accordingly.

In their 1996 book The Next War, former Secretary of Defense Caspar Weinberger and Peter Schweitzer concoct some troubling scenarios they imagine could confront the United States. One is with Mexico: It's 1999, and a radical nationalist comes to power with the assistance of drug traffickers, resulting in a flood of migrants and drugs across the US boundary. In response, the Pentagon sends 60,000 troops to the border region. Tensions between the two countries mount over the next few years, leading to a full-scale US invasion of Mexico that restores law and order within six months. In constructing this nightmare scenario, the authors draw on a long history of depicting undesired immigrants as invading hordes and the international boundary as a line of defense. Peter Andreas recounts this hawkish vision in his provocative and highly persuasive Border Games: Policing the US-Mexico Divide. He argues that predictions of an inevitable march toward greater levels of militarization in the region--of which the Weinberger/Schweitzer vision is the most extreme--ignore the necessity of maintaining a porous boundary because of the significant and intensifying levels of economic integration between the United States and Mexico.

Still, as part of the US government's war on drugs and "illegal" immigrants in the border region, the enforcement regime has grown dramatically over the past two decades, as chronicled by Andreas. The antidrug budget of the Immigration and Naturalization Service, for example, rose 164 percent between fiscal years 1990 and 1997, while the overall budget for the INS nearly tripled between FY 1993 and 1999, from $1.5 billion to $4.2 billion, with border enforcement the biggest growth area. At the same time, transboundary trade has reached unprecedented heights because of the 1994 implementation of NAFTA. This exacerbates the challenge of "enforcement." As a 1999 government report cautioned, "Rapidly growing commerce between the United States and Mexico will complicate our efforts to keep drugs out of cross-border traffic." With a daily average of 220,000 vehicles now crossing into the United States from Mexico--and only nine large tractor-trailers loaded with cocaine required to satisfy annual domestic demand in the United States--the task facing US authorities is daunting.

Given such practical contradictions, it's the creation of an image of boundary control that has been most significant. As Andreas explains--and this is his well-written book's central point--the escalation of border enforcement is less about deterring drugs and migrants than it is about symbolism. In other words, state elites are more concerned about giving a good performance for reasons of domestic political consumption than they are about realizing the stated goals of boundary enforcement. In fact, the political-economic costs of too much success serve to limit enforcement. As one high-level US Customs official cited in Border Games stated, "If we examined every truck for narcotics arriving into the United States along the Southwest border.... Customs would back up the truck traffic bumper-to-bumper into Mexico City in just two weeks--15.8 days.... That's 1,177 miles of trucks, end to end."

To the extent that there is an appearance of success, however (statistics showing more interdiction, for example), it helps to realize a variety of political agendas. As Andreas contends, "Regardless of its deterrent effect, the escalation of enforcement efforts has helped to fend off political attacks and kept the drug issue from derailing the broader process of economic integration."

Thus, in the case of NAFTA, the deceptive image (one carefully crafted with the Clinton White House) that Mexico under Carlos Salinas de Gortari was having significant success in the binational war on drugs facilitated a reluctant Congress's passage of NAFTA. Moreover, the Administration promised that NAFTA would bring even greater levels of transboundary cooperation in the drug war and lead to more resources for boundary enforcement.

NAFTA also intertwined with the Administration's offensive against unauthorized immigration (a matter Andreas does not discuss), which was, in part, the US answer to massive disruption in Mexico's rural and small-business sectors brought about by growing economic liberalization. While Administration officials promoted NAFTA as a boundary-control tool (by creating better, high-paying jobs in Mexico, went the argument, NAFTA would lead to less immigration from Mexico to the United States), they also understood that NAFTA would intensify pressures to migrate among Mexicans displaced in the name of economic efficiency. As INS Commissioner Doris Meissner argued to Congress in November 1993, "Responding to the likely short- to medium-term impacts of NAFTA will require strengthening our enforcement efforts along the border."

For Andreas, specific developments are often the "unintended feedback effects of past policy choices" as much as the result of particular bureaucratic incentives and rewards. The 1986 Immigration Reform and Control Act (IRCA), for example, led to the legalization of large numbers of unauthorized immigrants as a way of ultimately reducing unsanctioned immigration. IRCA's main effect, however, was "to reinforce and expand already well-established cross-border migration networks" and to create a booming business in fraudulent documents.

These "perverse consequences" laid the foundation for the anti-immigrant backlash that emerged in the early 1990s--most vociferously in California, a state especially hard hit by the recession and feeling the effects of a rapidly changing population due to immigration. In advancing this argument, Andreas cautions that his goal is "not to provide a general explanation of the anti-illegal immigration backlash." Rather, he seeks to show how political and bureaucratic entrepreneurs partially whipped up public sentiment and channeled it "to focus on the border as both the source of the problem and the most appropriate site of the policy solution." While there is much merit in such an approach and the explanation that flows from it, it is insufficient.

First, as many have argued, the backlash of the 1990s was not simply against "illegal" immigrants but, to a large degree, against immigrants in general--especially the nonwhite, non-English speaking and the relatively poor. Moreover, as Andreas shows in a stimulating chapter that compares and contrasts similar developments along the Germany/Poland and Spain/Morocco boundaries, the seeming paradox of "a borderless economy and a barricaded border" is evidenced along boundaries that unite and divide rich and poor in other parts of the world. Given the locales of these developments and their uneven impacts on different social groups, there is need for another type of explanation.

How does one explain the differential treatment of the interests of the rich (enhanced trading opportunities) and those of the poor (those compelled by conditions to migrate and work without authorization)? It is in this area that Grace Chang is of great help. Disposable Domestics offers a refreshingly new perspective on immigration control. Chang's tone is overtly political and more polemical than that of Andreas, but her approach is equally rigorous. Her goal is to make poor immigrant women visible, to humanize them, to highlight their contributions and tribulations, and to show them as actively trying to contest their conditions of subjugation.

Chang argues persuasively that poor immigrant women--largely Third Worlders--have become a central focus of "public scrutiny and media distortion, and the main targets of immigration regulation and labor control" in the United States. To show the continuity between past and present, she provides an overview of the long history of imagery portraying immigrant women as undeserving users of welfare services and hyperfertile breeders of children. In doing so, she makes an invaluable contribution, showing how the regulation of immigration and labor is inextricably tied to matters of gender, as well as to those of class, race and nationality.

The author effectively challenges mainstream assumptions that surround the immigration debate. For example, she argues that studies attempting to measure the costs and benefits of immigration--regardless of their findings or the agendas behind them--ultimately reduce immigrants to commodities or investments. Chang sides with an emerging consensus among immigrant advocates that sees such studies as missing the point, and instead emphasizes the human and worker rights of all immigrants. In this regard, she criticizes immigrant advocates who have fallen into the trap of dividing immigrants between good ("legal") and bad ("illegal").

Chang highlights the folly of this approach in recounting the trials of Zoë Baird, Clinton's first nominee for Attorney General. When it came to light that she employed two undocumented immigrants as domestic servants--a common "crime" among two-career, professional couples--her nomination was sunk. What led to public outrage, according to Chang, was more the "resentment that this practice was so easily accessible to the more privileged classes while other working-class mothers struggled to find any child care," rather than the flouting of the law per se.

Throughout, Chang gives us moving accounts of gross exploitation of immigrant women working as domestics or caretakers, showing that relatively well-off households often look specifically for "illegals" to save money and to facilitate their privileged lives. Indeed, "the advances of many middle-class white women in the workforce have been largely predicated on the exploitation of poor, immigrant women." For Chang, this explains why "the major women's groups were conspicuously silent during Baird's confirmation hearings"--a manifestation of the racial and class privileges their members enjoy.

Recent antiwelfare efforts in the United States, which Chang explores in another provocative chapter, also rely on the exploitation and scapegoating of immigrant women. She compares representations of poor women--native and immigrant--used both in the promotion of welfare "reform" and in efforts to regulate undocumented working women. In both cases, poor women are portrayed as exploiters of the system (to facilitate their hyperfertility) and as criminals--either as welfare cheats or as "illegals." For welfare mothers, the resulting backlash is "workfare"--a program that forces them to work (outside their homes, under the assumption that raising children is neither work nor a benefit to society), but not for a wage. They work for their welfare benefits instead, a remuneration usually far below what they would earn as employees. Meanwhile, government officials, corporate spokespersons and household employers mask their exploitation of low-wage employees as beneficence, purportedly providing them with opportunities, training and preparation, and the ability to assimilate into respectable society.

The war on the poor (welfare reform) and that against unauthorized immigrants are also sometimes functionally tied. Virginia's state office of social services, for example, cooperated with the INS to open up jobs held by "illegals" for workfare participants. This, along with INS raids of workplaces in the midst of unionization drives, according to Chang, is a growing trend. It is far from clear, however--at least on the basis of the anecdotal evidence Chang presents--that such events indicate a long-term, upward trend. Indeed, while anti-union employers have long used the INS to undermine immigrant-worker organizing, with a number of especially outrageous incidents taking place in the late 1990s, those appear to have diminished over the last couple of years, apparently due to the outcry from union, immigration and human rights activists. In part, the discrepancy reflects the fact that Chang wrote the book--more a collection of essays stitched together--over several years, with some of the chapters having appeared in previous publications.

Chang tends to see the factors that create and drive immigration and the mistreatment of low-wage immigrant workers as derivative of an overarching economic logic and a resulting set of intentional, goal-oriented practices. Thus, the workfare/INS-raid nexus illustrates the "true function" of the INS: "to regulate the movement, availability, and independence of migrant labor." More generally, immigration "is carefully orchestrated--that is, desired, planned, compelled, managed, accelerated, slowed and periodically stopped--by the direct actions of US interests, including the government as state and as employer, private employers, and corporations." United States elites keep Mexico and other countries in "debt bondage" so that they "must surrender their citizens, especially women, as migrant laborers to First World nations." And the purpose of California's Proposition 187, which would have eliminated public health, education and social services for unauthorized immigrants, is "perhaps" to mold immigrant children into a "category entirely of super-exploitable workers--those with no access to language or other skills and, most of all, no access to a status even remotely resembling citizenship that might allow them the safety to organize."

Such contentions imply a level of unity within the state and coherency in thought among economic and political actors (who are seemingly one and the same) that simply do not exist. They also downplay the agency of immigrants--who appear to be mere pawns of larger forces--and factors internal to their countries of origin driving immigration. Finally, such economic reductionism is puzzling given Chang's emphasis on race, gender and nationality. It seems at times, however, that she thinks that these are mere tools for highly rational, all-knowing and all-powerful economic elites.

This is why we need to appreciate the autonomous roles of race-, class-, gender- and nation-based ideologies in informing much of the anti-immigrant sentiment--factors that do not always dovetail with the interests of capital. Indeed, those elements are frequently at cross purposes. More than anything, anti-immigrant initiatives over the past thirty years have been the work of opportunistic and/or entrepreneurial elected officials, state bureaucrats and the cultural right--often small grassroots organizations and right-wing think tanks--rather than the business sector. Historically, capital has been generally pro-immigration. As the New York Journal of Commerce gushed in 1892, "Men, like cows, are expensive to raise and a gift of either should be gladly received. And a man can be put to more valuable use than a cow." Today, the Wall Street Journal advocates the elimination of border controls for labor. While this probably does not represent the view of most capitalists, it is significant nonetheless. And in the case of Proposition 187--as Chang reports--California employers, while collectively failing to take a public stand on the measure, generally opposed it for fear that they had much to lose if it passed. That said, the author is undoubtedly right to castigate employers for doing little or nothing to stand up for the rights of immigrants from whose labor, and from whose politically induced marginalization, they profit.

Given the divergent emphases and approaches of Andreas and Chang, very different solutions emerge from their arguments. Andreas criticizes the overemphasis on the supply side of unauthorized immigration and drugs. In terms of immigrants, for example, he observes that among wealthy countries, the United States "imposes the toughest penalties on the smuggling of migrants and related activities yet is among the most lenient with those who employ them." Similarly, he criticizes the scant resources available for enforcing existing workplace rules, which would undermine the ability of employers to exploit unauthorized workers, and he chides Congress for failing to develop a forgery-proof identity card system. (His stand on continued drug policing in the border region is less clear, although he calls for framing the drug problem as one of public health rather than law enforcement.)

Andreas seems resigned to the continued emphasis on border controls, too, despite demonstrating their brilliant failure. As one INS official he quotes explained, "The border is easy money politically. But the interior is a political minefield." Ending the border buildup is also a political minefield--one Andreas seems unwilling to enter. He is decidedly critical of the border status quo and aware of the hardships it causes (a topic to which he gives insufficient attention), but he critiques it on its own terms. In this regard, he does not stray outside the mainstream confines of debate.

A law-enforcement approach to unauthorized immigration is destined to fail. The ties between the United States and Mexico (and increasingly much of Latin America) are too strong, migrants are too resourceful and creative, and Americans are too resistant to the types of police-state measures that would prove necessary, to reduce unsanctioned immigration significantly. A far more effective and humane approach would be to work with progressive sectors of Third World societies to address the breakdown of political, economic and social systems and/or institutionalized injustice that often leads to immigration.

De-emphasizing boundary policing will likely reduce the deaths of unauthorized migrants (almost 600 in the California border region alone since 1994). But increased internal enforcement will create other difficulties, such as increased discrimination against those who do not look "American." It will also cause greater hardships in immigrant households, many of which contain people of different legal statuses. Should the US deport a principal breadwinner (an "illegal") from such a household, for example, leaving behind his or her US citizen children and "legal" spouse to fend for themselves?

Although Andreas argues that "the state has actually structured, conditioned, and even enabled (often unintentionally) clandestine border crossings," he discusses this matter in narrow terms, focusing on how previous "solutions" to the putative problems had an exacerbating effect. Meanwhile, he neglects the role played by the government and US-based economic interests in creating the conditions that fuel immigration. Thus, no issues of moral or political responsibility enter the analysis.

Grace Chang, on the other hand, puts a strong emphasis on the responsibility of the United States in fueling outmigration; it benefits from immigrant women's labor and wreaks havoc in Third World countries through the likes of military interventions and the imposition of structural adjustment programs. For Chang, the question is not one of trying to devise the best policy to control the unauthorized but of bringing about the changes needed to realize the rights of immigrants as workers and as human beings. In making this case, Chang correctly calls upon those of us who benefit from an unjust world order to stand in solidarity with immigrants--especially low-wage, Third World women who enable our privileged lifestyles--in their struggle for social justice at home and abroad.