On a late June day that will surely have been picked by the political astrologers around him, Kofi Annan of Ghana will likely be coronated for a second five-year term as Secretary General of the United Nations. The 63-year-old Annan's first term doesn't end until December, but since there's no opposition to him, the Security Council--which decides on such things--seems inclined to formally name him in June.
The timing, of course, couldn't be better, both for Annan and the beleaguered UN system, which is hurting financially because the United States, its biggest donor, owes it more than $1.2 billion in arrears and continues to refuse to pay. A freshly crowned Annan will clearly wield re-energized clout as the General Assembly opens a special session on HIV/AIDS on June 25, a three-day conference that is expected to draw even leaders known to harbor antipathy toward the UN--such as George W. Bush.
Annan has made AIDS his special cause this year. He has established a global fund; the initial target was $7-10 billion. Bush has pledged $200 million, a sum that most AIDS activists consider inadequate. It's quite likely that Annan will coax another $300 million out of the Western Europeans. It's not at all certain that the AIDS session will end up as an exercise in effective fundraising, but its value may well lie in drawing unprecedented attention to the subject.
It's probably uncharitable to suggest that Annan's engagement with the AIDS issue flows from concern about the incipient actions of the Oslo-based Nobel Peace Prize Committee. But if Annan is honored by this body, it may well be because of the extraordinary steps he's been taking to advance public support for helping victims of HIV/AIDS. Until recently the UN's approach had been to let the issue be handled by a small, quiet unit in Geneva called UNAIDS. It is headed by a Belgian physician named Peter Piot, who has traveled the world articulating fearful statistics associated with the AIDS pandemic and gaining the reluctant cooperation of various feuding UN agencies. But Dr. Piot lacks Annan's stature and does not enjoy the benefit of his bully pulpit. Moreover, there are many competing issues within the UN system.
Whether Annan will be able to mobilize additional resources for AIDS is an open question. The world's thirty richest countries--members of the Organization for Economic Cooperation and Development--currently give less than $40 billion annually to the poorest 135 nations. The trend has been downward for several years now, since the record foreign-aid high of $75 billion some fifteen years ago. Some suggest that the $7-10 billion target for Annan's new global fund is a conservative figure, considering that the number of AIDS-affected people worldwide may well double in the next decade from the present 33 million. Most of the victims are in poor countries--especially in Africa--where economic and social development is already faltering.
Annan's strategy has been to link AIDS to the broader issues of jump-starting economic growth and insuring environmental security. The AIDS session in New York is only one of several international meetings that Annan is convening in the next eighteen months. The idea is that these conferences will serve as a sort of continuum and fashion a body of work on development issues. The idea is also to get leaders of rich and poor countries to commit at least modest new amounts of money to tackle the widening problems of poverty. And last, the idea is to project a recharged image of the UN.
Thus, a General Assembly special session on the plight of cities was held in early June; after the AIDS conference, there will be another assembly session, on the wide misuse of small arms and light weapons, especially in poor countries, where children are often employed as soldiers and vigilantes. During the summer, there will be a climate conference in Bonn, where the Bush Administration's stance against full recognition of the harmful effects of global warming--and renunciation of the 1997 Kyoto Protocol--will surely be a major item on the agenda. Then the UN will convene in Durban, South Africa, to mobilize world support against racism and other forms of discrimination. There's a summit on issues relating to children's rights and a world food summit in Rome, both in the fall; a conference on financing for development next spring in Mexico; and a conference on the problems of aging, also in the spring, in Madrid.
All these conferences will lead up to a World Summit on Sustainable Development in Johannesburg, in September 2002. Annan wants every head of state or government to attend, and he wants to review what's happened in the fields of environmental protection and poverty alleviation since the June 1992 Earth Summit in Rio de Janeiro. World leaders, including Bush the Elder, promised to act on the Earth Summit's Agenda 21, a sort of blueprint for global economic development, and said that the world's thirty richest nations should commit $125 billion each year in development assistance to the 135 poorest countries. Of course, no one's kept the promise.
Annan and India's Nitin Desai, his Under Secretary General for Economic and Social Affairs, aver that the decline in development assistance is unacceptable, especially at a time when globalization is leaving more and more people further behind. They cite the fact that despite worldwide improvements in such matters as infant mortality and literacy rates, some 2 billion people out of a global population of 6 billion live in poverty.
But Annan knows it's unlikely the rich nations will pony up more cash for development, particularly when public support for foreign aid is steadily losing ground in many wealthy countries. So he's trying to rally big business behind his plans. On the eve of the UN meeting on AIDS, former US ambassador to the UN Richard Holbrooke said that with Annan's encouragement, he has agreed to head the Global Business Council on HIV and AIDS, a UN initiative. Annan also recently persuaded outgoing Shell chairman and CEO Sir Mark Moody-Stuart to chair a new "business action council" for the Johannesburg 2002 summit. Moody-Stuart, a soft-spoken man who acknowledges that the energy industry's environmental record has been less than commendable, wants to devise ways whereby the business community can generate culturally and socially sensitive economic development in the poor countries; he says more economically healthy and socially stable societies are in everyone's self-interest: "Less confrontation, more cooperation--let's give it a try," he said in a London interview.
Nice sentiment. But already some nongovernmental organizations are alarmed that big business may unduly influence the UN at a time when the world body has never been more vulnerable financially. While it's unlikely that various UN organizations would rescind carefully negotiated protocols on subjects like the environment, it's not at all clear that the UN would be able to resist some sort of reciprocity for business largesse. What might such reciprocity consist of--co-branding, such as combining corporate logos with that of the UN? Or perhaps something more troublesome, such as designating UN personnel to serve as de facto commercial representatives?
No one is insinuating, however, that Kofi Annan can be bought. Indeed, the prevailing consensus in the donor community and in the corridors of the UN is that a cozier UN/big business relationship can bring another source of strength to the world body, not to mention burnish Annan's own reputation as a dynamic secretary general.
Third term, anyone?
Arriving to record a television debate at the Hoover Institution here a few months ago, I found the personnel of the preceding show still standing around and chatting. Prominent was the rather chic figure of George Shultz, former Secretary of State, who has become almost dandyish and svelte since his second marriage, to a prominent local socialite. He was reminiscing about the first time that Ballistic Missile Defense, or "Star Wars," was being marketed to the American people. It was Ronald Reagan who set up the first Strategic Defense Initiative Organization, headed by Lieut. Gen. James Abrahamson. This officer duly arrived, accompanied by a uniformed associate, at Shultz's office on the fifth floor at Foggy Bottom. The Secretary bade him welcome and said he had a number of questions about the new scheme, some of which had to do with its feasibility. Whereat the general turned to his assistant and asked, in a rather show-stopping manner, "Is the Secretary cleared for this conversation?"
Of course, Shultz ought to have turned the man out of his office right then and there. (He had, after all, refused to have anything to do with the Oliver North operation, another military usurpation of civilian authority. And while at Treasury in a previous administration, he had rejected Nixon's demand for confidential tax information on political opponents.) As it was, he was recalling the moment as one of slightly sinister absurdity. But the core of the anecdote is the clue to the utter stupidity of the press coverage of the Bush "listening tour" of Europe. It is not true that the United States wants a missile defense, while "the Europeans" remain skeptical. The Turkish military, after all, has already signaled its sympathy for the scheme. So have the yes-man regimes that owe Washington a debt for the fantasy of NATO enlargement. I would expect Tony Blair to fall into line without very much demur. (It is, after all, what he's for.) It is the people of the United States who remain substantially unpersuaded, for excellent reasons, and who have never been given an opportunity to vote for or against this gargantuan, destabilizing boondoggle.
Reagan's original speech on the subject, which purported to make nuclear weapons "impotent and obsolete," was cleverly and explicitly designed to defuse the mass appeal of the nuclear freeze movement, which nineteen years ago this June drew a million people to Central Park. By suddenly discovering that mutual assured destruction was "immoral and unstable," it spoke to the years of effort, on the part of countless physicists and activists, to point out precisely that.
The Bush propaganda scheme is typically narrower and more parochial. It may call for an empire of science-fiction hardware on earth and in heaven, but its selling point is essentially isolationist: "We" can have our very own shield against "them." (Indeed, the earlier impetus given to the project under Clinton and Gore, who could and should have stopped the demented plan but didn't, derived from poll findings showing that millions of Americans believed that the United States already had a missile-proof roof arching above its fruited plains.)
Thus, as presented and packaged, the Star Wars proposal is the apotheosis of the Bush worldview. It appeals to the provincial and the inward-looking in American culture, while simultaneously gratifying and enriching the empire-building element in the military-industrial complex. If only it could be run on oil-based products alone, it would be the picture-perfect reward for the donor-based oligarchy that underpins the regime. And, by drawing on the imagery of shields and prophylactics, it neatly conceals its only conceivable utility, which--if it worked at all--would be the development of an impregnable first-strike capacity.
Just as the MX missile, advertised as a "silo-busting" weapon, was obviously not going to be fired at empty silos, so the "shield" would be a guarantee that an aggressive launch could take place; the aggressor possessing the ability to parry any retaliatory move. There is, quite literally and obviously, no other reason for wishing to possess such a system. Once in place, it would make its own decisions, and no elected politician would ever again be cleared for any discussion of it. The militarization of the state would be complete.
Dr. Martin Luther King Jr. once summarized the preparation for nuclear war as the willingness to commit genocide and suicide at the same time. It has never been put better. The delusion of "Star Wars" is the delusion that the "suicide" bit can be taken out of the equation. That's why we hear the absurd term "nuclear umbrella" being circulated--possibly the greatest concentration of stupidity ever packed into any two words in apposition--while the words "suicide bomber" are reserved for small-time Levantine desperadoes, of the kind who can evade any known laser or radar.
Given the Clinton/Gore sellout on this greatest of all issues, and the extent to which the commitment to "research" has already been made, the Democrats will have to move very fast to outpace the juggernaut. I'm not holding my breath. I suppose there exists one faint hope. On advice from his daddy, the President abandoned his customary unilateralism and, against the temper of his Congressional right wing, upheld the US commitment to the United Nations. A few weeks later, again after urgent paternal representations, he reversed himself on North Korea. (The conduit in this case was Donald Gregg, former ambassador to South Korea and once Bush Senior's fall guy for Iran/contra matters.) This isn't much more heartening, for those of us who would like to live in a democratic republic, than reading of Prince Charles getting a dressing-down from Queen Elizabeth and Prince Philip. It's not all that encouraging to think of our first line of defense being old-style, pinstripe Republicans, from George Shultz to Donald Gregg, who survived the wreckage of previous administrations, but it may be all that we've got.
Behind closed doors at the UN and in Western capitals, government and corporate officials are arguing over the size and governance of a fund that is going to be the primary international response to the greatest public health pandemic since the Black Death.
"How would you feel if your wife and children were brutally raped before being hacked to death by soldiers during a military massacre of 800 civilians, and then two governments tried to cover up the killings?" It's a question that won't be asked of Elliott Abrams at a Senate confirmation hearing--because George W. Bush, according to press reports, may appoint Abrams to a National Security Council staff position that (conveniently!) does not require Senate approval. Moreover, this query is one of a host of rude, but warranted, questions that could be lobbed at Abrams, the Iran/contra player who was an assistant secretary of state during the Reagan years and a shaper of that Administration's controversial--and deadly--policies on Latin America and human rights. His designated spot in the new regime: NSC's senior director for democracy, human rights and international operations. (At press time, the White House and Abrams were neither confirming nor denying his return to government.)
Bush the Second has tapped a number of Reagan/Bush alums who were involved in Iran/contra business for plum jobs: Colin Powell, Richard Armitage, Otto Reich and John Negroponte. But Abrams's appointment--should it come to pass--would mark the most generous of rehabilitations. Not only did Abrams plead guilty to two misdemeanor counts of lying to Congress about the Reagan Administration's contra program, he was also one of the fiercest ideological pugilists of the 1980s, a bad-boy diplomat wildly out of sync with Bush's gonna-change-the-tone rhetoric. Abrams, a Democrat turned Republican who married into the cranky Podhoretz neocon clan, billed himself as a "gladiator" for the Reagan Doctrine in Central America--which entailed assisting thuggish regimes and militaries in order to thwart leftist movements and dismissing the human rights violations of Washington's cold war partners.
One Abrams specialty was massacre denial. During a Nightline appearance in 1985, he was asked about reports that the US-funded Salvadoran military had slaughtered civilians at two sites the previous summer. Abrams maintained that no such events had occurred. And had the US Embassy and the State Department conducted an investigation? "My memory," he said, "is that we did, but I don't want to swear to it, because I'd have to go back and look at the cables." But there had been no State Department inquiry; Abrams, in his lawyerly fashion, was being disingenuous. Three years earlier, when two American journalists reported that an elite, US-trained military unit had massacred hundreds of villagers in El Mozote, Abrams told Congress that the story was commie propaganda, as he fought for more US aid to El Salvador's military. The massacre, as has since been confirmed, was real. And in 1993 after a UN truth commission, which examined 22,000 atrocities that occurred during the twelve-year civil war in El Salvador, attributed 85 percent of the abuses to the Reagan-assisted right-wing military and its death-squad allies, Abrams declared, "The Administration's record on El Salvador is one of fabulous achievement." Tell that to the survivors of El Mozote.
But it wasn't his lies about mass murder that got Abrams into trouble. After a contra resupply plane was shot down in 1986, Abrams, one of the coordinators of Reagan's pro-contra policy (along with the NSC's Oliver North and the CIA's Alan Fiers), appeared several times before Congressional committees and withheld information on the Administration's connection to the secret and private contra-support network. He also hid from Congress the fact that he had flown to London (using the name "Mr. Kenilworth") to solicit a $10 million contribution for the contras from the Sultan of Brunei. At a subsequent closed-door hearing, Democratic Senator Thomas Eagleton blasted Abrams for having misled legislators, noting that Abrams's misrepresentations could lead to "slammer time." Abrams disagreed, saying, "You've heard my testimony." Eagleton cut in: "I've heard it, and I want to puke." On another occasion, Republican Senator Dave Durenberger complained, "I wouldn't trust Elliott any further than I could throw Ollie North." Even after Abrams copped a plea with Independent Counsel Lawrence Walsh, he refused to concede that he'd done anything untoward. Abrams's Foggy Bottom services were not retained by the First Bush, but he did include Abrams in his lame-duck pardons of several Iran/contra wrongdoers.
Abrams was as nasty a policy warrior as Washington had seen in decades. He called foes "vipers." He said that lawmakers who blocked contra aid would have "blood on their hands"--while he defended US support for a human-rights-abusing government in Guatemala. When Oliver North was campaigning for the Senate in 1994 and was accused of having ignored contra ties to drug dealers, Abrams backed North and claimed "all of us who ran that program...were absolutely dedicated to keeping it completely clean and free of any involvement by drug traffickers." Yet in 1998 the CIA's own inspector general issued a thick report noting that the Reagan Administration had collaborated with suspected drug traffickers while managing the secret contra war.
So Bush the Compassionate may hand the White House portfolio on human rights to the guy who lied and wheedled to aid and protect human-rights abusers. As Adm. William Crowe Jr. said of Abrams in 1989, "This snake's hard to kill."
George W. Bush's European trip came at a time when American policy-makers, who once dismissed the European Union for its weakness and indecision on the world stage, are worrying about Europe's more assertive foreign policy. More than once this year, Washington has found itself upstaged as Europe showed itself willing and able to defy Washington on behalf of the larger global interest--organizing international opposition to the White House's repudiation of the Kyoto accords and taking it upon itself to keep the prospects of détente alive on the Korean peninsula, not to mention the role it played in voting the United States off the United Nations Human Rights Commission and its International Narcotics Control Board.
Still, the real danger is not a European-American divide, as serious as that would be, but a Europe that reverts to its old docile self when faced with Bush Administration pressure, deferring to Washington on issues like missile defense and NATO enlargement even when it disagrees with US policy. Although more confident in the foreign policy arena than it once was, the European Union is still struggling to develop a common foreign and defense policy and is reluctant to antagonize Washington on issues central to the transatlantic relationship. But it would be a mistake for European leaders to appease this Administration in the name of good relations with Washington. For on issues like global climate change, diplomacy on the Korean peninsula, missile defense and NATO enlargement, the EU better represents American interests and moral concerns than does the current Administration.
An immediate challenge is Washington's repudiation of the Kyoto accords on global warming. Europe is currently considering whether to continue with the treaty without the formal participation of the United States, which accounts for about 25 percent of greenhouse gases. The Administration hoped that Bush's more moderate tone of late would persuade Europe to back down or that there would be a lengthy renegotiation of the accord, but his pre-departure speech flopped. Many Americans will support Europe's decision to press ahead by demanding that US companies and local governments reduce their greenhouse gas emissions. Even without full American compliance, it would keep the Kyoto accords alive.
European leaders must also stand firm on the question of missile defense. Many Americans share Europe's concerns: that Bush's missile defense will not work, that it will renuclearize great-power relations, and that it will eat up resources desperately needed to promote economic development and stability in the Balkans and other troubled regions. Only if Europe speaks with a clear and confident voice will it be possible for these American opposition voices to gain leverage in the US debate. The Administration hopes European governments will buy into the program and even cover part of the cost. But a Bush speech in Brussels to leaders of NATO countries was met with open doubts.
The Administration's plan for NATO enlargement, said to include the Baltic states, will be another test of European foreign policy. Many European leaders are skeptical about the wisdom of extending the NATO alliance up to Russia's borders. They know that what the countries in Eastern Europe need now is not a military alliance but more economic reform, more investment and more trade. They also know just how important Russia is to European security. Europe needs a constructive and reasonably strong Russia, one that can keep nuclear weapons out of the hands of criminals and terrorists, that can supply Europe and its eastern neighbors with cheap energy, that can help keep Belarus and the Ukraine from collapsing and that can help maintain order in the Caucasus and Central Asia. NATO expansion would unnecessarily put this critical relationship with Russia at risk and distract EU candidate countries from necessary economic reforms.
Europe may be reluctant to question Washington's lead on NATO issues for fear of weakening the US military commitment. But nothing should prevent Europe from staking out a contrary position on NATO that would be shared by a significant part of the US foreign policy establishment. Indeed, Europe has more leverage with Washington than at any time in the long history of the transatlantic relationship. There is now no military threat in Europe or even in the larger European zone that requires an American military presence. To be sure, Europe would prefer to have the United States shoulder part of the burden in the Balkans, particularly in Kosovo. But there is no reason it can't handle these problems without America's high-tech military, especially in light of the Pentagon's now-famous reluctance to put US soldiers at risk.
On a range of international issues, Europe brings an important perspective and experience to world affairs. It understands better than does the Bush Administration that foreign policy is more than a matter of advancing national power, and that economic development is more than imposing a free market economy without the requisite social and political institutions. Indeed, Europe's recent experience--after centuries of conflict--of pooling sovereignty, of knitting together diverse national perspectives, of encouraging democracy and economic reform and of managing more powerful neighbors is exactly what countries in Asia, Latin America and Africa might learn from. What Europe has been able to do over the past several decades and what it is trying to extend to the countries of Eastern Europe is what other regions could do to overcome decades of mutual suspicion to tackle common problems, reduce trade barriers and cooperate to stabilize currencies.
But this example will be lost if Europe remains in America's shadow, if it follows Washington's lead and makes missile defense and NATO enlargement the capstones of its international policy in the first decade of the twenty-first century. US interests and values would be better served by a Europe that acts as both a balance and a complement to American power.
The two sisters from the Our Lady of Angels convent had driven down from Pennsylvania with a message for their Congressman: Say no to Star Wars. It was proving a tough sell.
A baccalaureate should be an occasion to celebrate the present and express optimism about the future, but I must come to you today with very bad news about Russia, my subject of study, and therefore with great alarm about the future. If America's post-cold war triumphalism has led you to believe we are now safer than we were before, I recommend an adage Russians use only partly in jest: "An optimist is an uninformed pessimist."
The bad news is this: Because of what has happened in Russia since the end of the Soviet Union ten years ago, you are graduating into a world more dangerous than ever before. For the first time in history, a fully nuclearized nation is in a process of collapse. The result is potentially catastrophic.
Most of Russia's essential infrastructures--economic, social, technological--are in various stages of disintegration. The state is virtually bankrupt, unable to reinvest in those foundations or even regularly pay the wages and pensions of its own people. The country has been asset-stripped, impoverished and left on the verge of a "demographic apocalypse," as a Moscow newspaper recently termed it. Technology is breaking down everywhere, from electricity and heating to satellites.
In these and other ways, Russia has been plunging back into the nineteenth century. And, as a result, it has entered the twenty-first century with its twentieth-century systems of nuclear maintenance and control also in a state of disintegration.
What does this mean? No one knows fully because nothing like this has ever happened before in a nuclear country. But one thing is certain: Because of it, we now live in a nuclear era much less secure than was the case even during the long cold war. Indeed, there are at least four grave nuclear threats in Russia today:
§ There is, of course, the threat of proliferation, the only one generally acknowledged by our politicians and media--the danger that Russia's vast stores of nuclear material and know-how will fall into reckless hands.
§ But, second, scores of ill-maintained Russian reactors on land and on decommissioned submarines--with the destructive capacity of nuclear weapons--are explosions waiting to happen.
§ Third, also for the first time in history, there is a civil war in a nuclear land--in the Russian territory of Chechnya, where fanatics on both sides have threatened to resort to nuclear warfare.
§ And most immediate and potentially catastrophic, there is Russia's decrepit early-warning system. It is supposed to alert Moscow if US nuclear missiles have been launched at Russia, enabling the Kremlin to retaliate immediately with its own warheads, which like ours remain even today on hairtrigger alert. The leadership has perhaps ten to twenty minutes to evaluate the information and make a decision. That doomsday warning system has nearly collapsed--in May, a fire rendered inoperable four more of its already depleted satellite components--and become a form of Russian nuclear roulette, a constant danger of false alarms and accidental launches against the United States.
How serious are these threats? In the lifetime of this graduating class, the bell has already tolled at least four times. In 1983 a Soviet Russian satellite mistook the sun's reflection on a cloud for an incoming US missile. A massive retaliatory launch was only barely averted. In 1986 the worst nuclear reactor explosion in history occurred at the Soviet power station at Chernobyl. In 1995 Russia's early-warning system mistook a Norwegian research rocket for an American missile, and again a nuclear attack on the United States was narrowly averted. And just last summer, Russia's most modern nuclear submarine, the Kursk, exploded at sea.
Think of these tollings as chimes on a clock of nuclear catastrophe ticking inside Russia. We do not know what time it is. It may be only dawn or noon. But it may already be dusk or almost midnight.
The only way to stop that clock is for Washington and Moscow to acknowledge their overriding mutual security priority and cooperate fully in restoring Russia's economic and nuclear infrastructures, most urgently its early-warning system. Meanwhile, all warheads on both sides have to be taken off high-alert, providing days instead of minutes to verify false alarms. And absolutely nothing must be done to cause Moscow to rely more heavily than it already does on its fragile nuclear controls.
These solutions seem very far from today's political possibilities. US-Russian relations are worse than they have been since the mid-1980s. The Bush Administration is threatening to expand NATO to Russia's borders and to abrogate existing strategic arms agreements by creating a forbidden missile defense system. Moscow threatens to build more nuclear weapons in response.
Hope lies in recognizing that there are always alternatives in history and politics--roads taken and not taken. Little more than a decade ago, Soviet leader Mikhail Gorbachev, along with President Ronald Reagan and the first President George Bush, took a historic road toward ending the forty-year cold war and reducing the nuclear dangers it left behind. But their successors, in Washington and Moscow, have taken different roads, ones now littered with missed opportunities.
If the current generation of leaders turns out to lack the wisdom or courage, and if there is still time, it may fall to your generation to choose the right road. Such leaders, or people to inform their vision and rally public support, may even be in this graduating class.
Whatever the case, when the bell warning of impending nuclear catastrophe tolls again in Russia, as it will, know that it is tolling for you, too. And ask yourselves in the determined words attributed to Gorbachev, which remarkably echoed the Jewish philosopher Hillel, "If not now, when? If not us, who?"
The bombing of a Tel Aviv disco, in which twenty Israelis, many of them teenagers, were killed, was an atrocity of such horror that it seemed to shock both sides into taking steps toward installing a very tentative, precarious cease-fire. In the aftermath Secretary of State Colin Powell ritually urged Yasir Arafat to "take every action necessary to bring those responsible to justice" and continued to defend the Administration's refusal to become directly involved. This posture (barely modified by the dispatch of George Tenet to the region in response to growing international pressure) betrays an ongoing, willful and dangerous blindness to the consequences of US actions and inaction.
As events accelerated to what Powell called "the edge of a very deep hole," Secretary Powell has seemed almost eerily disengaged, intoning with bureaucratic punctilio when asked if he had requested Prime Minister Ariel Sharon not to retaliate, "I have not given that direct comment to the Israeli government." After telling Sharon a month ago to pull his troops out of their brief reoccupation of a sliver of Gaza, he ducked behind Bush's campaign-rhetoric Mideast policy of "Clinton not"--hands off until conditions ripen on their own to create a greater likelihood of an Israeli-Palestinian rapprochement. Yet it is Sharon--whose ruthlessness has been well demonstrated and who is a champion of the Israeli expansionism that's at the root of the Palestinian despair that drives more desperate acts--who should be curbed from using the senseless bombing as a pretext for drastic military reprisal intended to wipe out the Palestinian Authority's institutions.
And so, with no moral leadership being voiced by officials of either party in Washington and a press that is locked in a pro-Israel tilt, the American public casts a plague on both houses.
Of course, the image of the United States as a low-profile "honest broker" is false. The Bush Administration has been following the Clinton Administration's blindly pro-Israel policy since it took office. Last month, it failed to raise the issue of Sharon's deployment of American-made F-16s in a retaliatory strike. In January it increased military aid to Israel; in February it cleared the way for the sale of nine Apache attack helicopters to Israel; in March, it vetoed a UN Security Council resolution calling for an unarmed observer force.
What the Administration should be talking about is a new policy: putting pressure on Israel, not just the Palestinians. That could mean suspending military help or at least threatening to withhold the hundreds of millions of dollars in economic aid that goes indirectly into supporting and expanding the settlements. (Bush Senior issued such a threat, and the pressure helped move then-Prime Minister Yitzhak Shamir to the negotiating table.) It should be calling not only for Palestinians to clamp down on terrorist operations but for Israel's adoption of the Mitchell report's proposed freeze on settlements, including no more expansion to accommodate "natural" growth of population, and withdrawal of its troops to pre-September 28, 2000, positions.
Ultimately, US policy must be predicated on the goal of creating a viable, contiguous Palestinian state and, to that end, the abandonment of all the Israeli settlements. This is the only solution that can insure Israel's security as well as the Palestinians' right to self-determination. As Richard Falk, a member of the Nation's editorial board who traveled to the region with a UN mission in February, recently revealed, conditions in the Palestinian territories have badly deteriorated. The mission found that Israeli policies of settlement expansion and bypass roads, destruction of Palestinian houses, commandeering of their land and water, random assassinations of their leadership and denial of access to education, jobs and healthcare have become intolerable. The mission concluded that Israel's use of force against the intifada has been excessive and that its conduct as occupying power and its callous treatment of Palestinian refugees have entailed numerous violations of the Fourth Geneva Convention. The mission called for an international protective presence in the territories, along with implementation of longstanding UN resolutions and the Geneva Convention.
If these things are not done, and if the Palestinians fail to see that terrorism is not just immoral but increasingly counterproductive, the consequences will be deeper immiseration of the Palestinians and demoralization of Israeli society. Americans should demand action by their government to halt a growing tragedy.
Policies are more confused than at any time since the weapons were invented.
What sticks in my mind more than any particular accomplishment of the supersecret National Security Agency is its mammoth size. Only a few miles from my home, I now know, exists a secret Orwellian town where tens of thousands of people live and work. It is surrounded by barbed-wire fences, massive boulders and thick cement barriers, all hidden by tall earthen berms and thick forests. Armed police patrol the boundaries of Crypto City, as this restricted area near the sleepy hamlet of Annapolis Junction, Maryland, is called. Telephoto surveillance cameras peer down. Heavily armed commandos dressed in black and wearing special headgear are on standby in case of trouble.
Beyond lies a forbidden city unlike any other on earth. Its main business is global eavesdropping; its mission is to obtain secrets about foreign enemies and friends alike, and to identify terrorist threats, drug trades, illegal arms sales and so on, all by intercepting voice, phone and radio communications. Using math, cryptology, statistical and other techniques, the NSA can break any code or cipher. The raw material is collected by its spyplanes, ships, satellites and through various other technical means, then is processed by the largest, most powerful electronic brain on earth.
More exact details of this forbidden city remain secret. County officials say they have no idea how many people work there, and no one will tell them. But James Bamford, in his Body of Secrets, offers some clues. The city's post office distributes 70,000 pieces of mail a day; there are more than 37,000 cars registered there. The local police have more than 700 uniformed officers and their own SWAT team. The city's consumption of electricity--to power six acres of computers, twenty-five tons of air-conditioning equipment and more than a half-million lightbulbs--costs nearly $2 million per month. In case of power outages, its own power-generating plant can quickly produce enough wattage for a community of more than 3,500 homes. It has its own fire department as well as twenty-three separate alarm systems and 402 miles of sprinklers, feeding 210,000 sprinkler heads. There are theaters, a bank, kindergartens, fitness centers, gas stations, clubs (even its own Gay, Lesbian or Bisexual Employees--"GLOBE"--club). Religious services are held in an unbuggable room, where priest and minister have security clearance far above Top Secret.
At the heart of this community is the NSA headquarters; with 3 million square feet of floor space, it could accommodate the entire US Capitol building four times over. The headquarters building almost metaphorically represents the NSA as well: From the outside, it looks like a stylish modern office building of dark one-way glass. But the real building is hidden under this reflective glass and is protected by a skin of orange-colored copper and unique windows--a thick outer pane, five inches of sound-deadening space, a thin copper screen and an inner pane. The protective shielding is designed to keep all sounds--and indeed any type of electromagnetic radiation--from getting out. It is used throughout much of the city to keep what is said to be the largest body of secrets ever compiled.
Created at the height of the cold war, the NSA was to be the eyes and ears of the Central Intelligence Agency after the Communists drew an impenetrable "iron curtain" around their borders and effectively put human spies out of action. Its very existence has been so highly classified that few people outside the top echelons of government knew much about it. Until, that is, Bamford's first book, The Puzzle Palace, was published in 1982.
Body of Secrets is more than an update of Bamford's previous effort. It includes an engaging and informed history of signals intelligence during World War II, chronicling the breaking of Japan's ciphers and Britain's success in cracking Germany's code. After the war's end, the United States insisted on hosting the opening session of the United Nations in San Francisco to enable it to "eavesdrop on its guests," Bamford says. "Like cheats in a poker game they [the Americans] were peeking at their opponents' hands." For a few years after 1945, the United States also read encrypted Soviet communications. But one Friday in 1948--it is still known as Black Friday among intelligence watchers--all Soviet ciphers went dark. Just as the Americans had successfully penetrated secret Soviet networks, so the Russians had penetrated the Army Security Agency. After that, Washington apparently knew little about Communist intentions. In 1950, when the North Koreans invaded the South, Washington was caught by surprise. Ditto on China's entry into the war. With the Russians having just exploded a hydrogen bomb, the situation was getting more perilous. The loss of effective intelligence work prompted the Director of Central Intelligence, Walter Bedell Smith, to tell the National Security Council that he was "gravely concerned" by "ineffective" intelligence operations. President Truman, on Election Day 1952, scrapped the Pentagon-run operation and created in its place a new agency to be largely hidden from Congress, the public and the world.
Bamford, an accomplished journalist, weaves a narrative about the NSA that includes sympathetic portraits of key players and detailed accounts of such highly publicized events as the Cuban missile crisis, the Vietnam War and the capture of the spy ship Pueblo by North Korea. There are many heretofore undisclosed tidbits of information. President Eisenhower, for example, was personally micromanaging each U-2 high-altitude surveillance flight over Russia but refused to admit it after Francis Gary Powers was shot down in 1960. Further, Eisenhower instructed his Cabinet officers to lie about it while testifying under oath. The famous Gulf of Tonkin resolution, which officially plunged the United States into the Vietnam War, was passed by Congress on the strength of Robert McNamara's "unequivocal proof" of a North Vietnamese attack on a US ship; that "unequivocal proof" turned out to be a "major blunder by NSA, and the 'hard evidence' on which many [in Congress] based their votes for the war never really existed."
Beyond this there is Bamford's somewhat speculative account of an Israeli assault on the US spy ship Liberty during the 1967 Middle East war. Bamford argues that it was a coldblooded action by Israel but offers no evidence of the culpability of the Israeli political leadership. The attack may well have been sanctioned by an Israeli military commander, but it is hard to imagine the top Israeli politicians signing off on such a risky venture, which carried enormous potential dangers for their state.
The NSA is only one component of the US intelligence community, and for a good deal of its existence it has been subservient to the CIA and the Defense Intelligence Agency. Its business was to collect raw information that was then analyzed by other agencies. The Director of Central Intelligence--head of the CIA--supervised the whole process. All along there has been, to be sure, a good deal of institutional and bureaucratic rivalry among the agencies, which is presented by Bamford in readable and dramatic fashion. Underlying these rivalries is a doctrinal issue: the conflict between old-fashioned, cloak-and-dagger human intelligence (humint) versus high-tech signals intelligence (sigint). The NSA, which spends the lion's share of the $30 billion annual intelligence budget, reflects America's predilection for gadgetry and high tech.
If there is a serious shortcoming in this massive book, it is the failure to provide a critical assessment of the mission for which the NSA was founded: to provide Washington with accurate information on the political, military and economic state of the Soviet Union. For most of the second half of the twentieth century, the NSA had one singular objective: "to break the stubborn Russian cipher system and eavesdrop on that nation's most secret communications," Bamford writes. But there is no evidence whatsoever to suggest that the NSA ever cracked a single high-level Russian cipher system. That being the case, what are the nation's most precious secrets that Bamford keeps mentioning are held in a fantastic system capable of storing 5 trillion pages of text--a stack of papers 150 miles high--allowing for almost instant retrieval of any piece of information? What is there to be retrieved?
Not much, I suspect. From personal experience I know that whenever the NSA did successfully accomplish something--it managed to decrypt Russian voice communications in the early 1970s and for a long time eavesdropped on the phone conversations of Soviet leaders talking in their limousines--word of its success filtered out. Washington, apart from its almost bottomless appetite for "intelligence," is also a town where anything worth knowing is quickly disclosed by gossiping officials eager to show that they are in the loop. One such official told me in early 1973 about a car accident involving Soviet Premier, Alexei Kosygin. He knew exactly when it happened and where, but nothing more. As a young reporter, I rushed breathlessly to my office, already envisioning it on the front page of the Post the next morning. I had no idea how this information had been obtained; now I know that we would have blown an important intelligence operation had we published the story. But executive editor Ben Bradlee knew it was sensitive enough to require consultations with the Post's legal counsel Joseph Califano and Director of Central Intelligence Richard Helms. After protracted haggling the story was scrapped, but not because of Helms's talk about dire consequences: Only if Kosygin was hurt and a leadership change was imminent, Bradlee said, would he run the story.
In the wake of the collapse of the Soviet Union, US intelligence stood accused of having failed in its primary mission. Since few people knew much about the NSA, blame naturally fell on the CIA; critics said it had overestimated the Soviet military threat and not foreseen the economic and political demise of our prime adversary. Stansfield Turner, Director of Central Intelligence from 1977 to 1981, talked about the "enormity of failure" in a 1991 article in Foreign Affairs, in which he alleged that "I have never heard a suggestion from the CIA, or the intelligence arms of the departments of defense or state, that numerous Soviets recognized a growing systemic economic problem." William Odom, NSA director from 1985 to 1988, argued in 1994 that the CIA was superfluous and should be disbanded. "The only serious issue here is whether you want to continue to pay all these people.... I consider...their analytical effort a welfare transfer package," he stated at the Harvard Intelligence and Policy Project, conducted by professors Ernest May and Philip Zelikow.
How did US policy-makers get into such a state of ignorance? Solid though the product of an intelligence service may be, it is only as good as the uses to which it is put. Governments--all governments--gather, conceal, suppress and manipulate "intelligence." American leaders have frequently done so to serve their political objectives. Richard Nixon, under the rubric of "national security," tried to use the intelligence community to hide his involvement in the Watergate scandal; he also used the NSA to secretly target antiwar protesters. In the late 1970s Congress outlawed wholesale, warrantless acquisition of raw telegrams and arbitrary watch lists containing the names of Americans, but the Foreign Intelligence Surveillance Act did not cover Americans living abroad.
The product, by the late 1970s, was no longer solid. Internal bureaucratic struggles consumed the community. Once an unwanted stepchild of the CIA--the NSA director was initially denied a seat on the Intelligence Advisory Committee--the NSA had in fact grown large and powerful. Its original mandate was to collect intelligence, not analyze it, but by the late 1970s the NSA began hoarding its information. The material it distributed was sanitized, according to then-Director of Central Intelligence Turner, who charged it with "deliberate withholding of raw information from the true analytic agencies. NSA wants to get credit for the scoop."
Under Ronald Reagan, arguably the most zealous cold war President, the intelligence community regained its footing to become once again the chief tool of US foreign policy. Its anti-Soviet activism led to the criminal excesses of the Iran/contra scandal. The chief strategist of malfeasance was William Casey, the first Director of Central Intelligence to be a member of the Cabinet as well. Casey chose as his deputy Robert Gates, a hard-line anti-Soviet analyst. Odom was their soulmate, "an arch-conservative military hard-liner" who wanted the NSA to assume a greater analytical role.
Throughout the 1980s the intelligence community provided Congress and the public with exaggerated accounts of Soviet military and economic prowess. The slick annual Pentagon review called "Soviet Military Power" showed the Russians developing and deploying ever-more dangerous weaponry. America was facing a "window of vulnerability"--a time when the Soviet Union, an indestructible colossus, could start a nuclear war. Paul Nitze and his Committee on the Present Danger speculated that the Russians could win such a war, owing to their extensive civil defense network and capacity to absorb a US retaliatory strike but deliver the final nuclear blow. As late as October 1988, top CIA analyst Robert Gates warned that "the dictatorship of the Communist Party remains untouched and untouchable. A long competitive struggle with the Soviet Union lies before us." When the Senate intelligence panel asked Gates earlier what the intelligence community was doing to prepare American policy-makers for the consequences of Gorbachev's reforms, Gates replied: "Quite frankly, without any hint that such fundamental change is going on, my resources do not permit me the luxury of sort of just idly speculating on what a different Soviet Union might look like."
Yet we all know that in 1989 the Soviet empire was dismantled; in 1991 the Soviet Union itself collapsed, and American leaders were clueless. What went wrong?
Reagan's Secretary of State George Shultz, who says in his memoirs that he was "misled, lied to" by the CIA, reveals that Casey had effectively usurped the prerogatives of the Secretary of State and had run an alternative foreign policy. Casey could do so because he controlled the analytical process, the estimates, covert action and counterintelligence. Casey's views, Shultz writes, "were so strong and so ideological that they inevitably colored his selection and assessments of materials. I could not rely on what he said, nor could I accept without question the objectivity of 'intelligence' that he put out, especially in policy sensitive areas."
Gorbachev was initially described as "just talk, just another Soviet attempt to deceive us," Shultz says. "When it became evident that the Soviet Union was, in fact, changing, the CIA line was that the changes wouldn't really make a difference."
Casey and Gates systematically ignored their own specialists and overstated the "evidence" of Soviet arms procurement programs, and the state of the Soviet economy in general, to buttress their argument. Douglas MacEachin, director of the CIA's Office of Soviet Analysis from 1984 to 1989, has testified that the pattern of self-deception was promoted by an Administration eager to rebuild US military power. The intelligence community aided the effort by inflating projections of Soviet military strength.
"Never mind that the Soviet Union never in ten years, from the late 1970s through the entire 1980s, ever lived up to the projections that were made," MacEachin said. "We projected these huge forces, then used those projections as a rationale for our [military] spending, and they never lived up to those projections." Richard Kerr, deputy director for intelligence, took a memo to that effect from MacEachin before the National Foreign Intelligence Board--but it wasn't mentioned, even as a footnote, in the final documents.
The problem here was not one of honest people with strong views having honest disagreements. Rather, it was a blatant politicization of intelligence. Hawks were in charge; those who disagreed were singled out for being "soft" on communism. Robert Blackwell, a high-level CIA official, talked of palpable tension at Langley. "Whether anything was being twisted or reordered upstairs or not, people felt that they were under extra burdens to somehow be very careful about how things were said." MacEachin said the Reagan Administration "thought of us as the enemy." The implication was, he added, "that part of the national threat was that the CIA undercut our ability to rebuild our national forces."
MacEachin's successor, George Kolt, had set up in September 1989 a supersecret contingency planning group "looking at the possibility of the collapse of the Soviet Union and what we do." This was rejected by the higher-ups, however. Robert Gates's views on Russia had not changed. A month before the collapse of the Berlin wall, Vice President Dan Quayle publicly referred to Gorbachev as a "master of public relations" and called perestroika a "form of Leninism."
Gates was consistent to the end. When on August 19, 1991, Kremlin hard-liners mounted a coup attempt against Gorbachev, Kolt called President Bush's National Security Adviser, Brent Scowcroft, saying the coup might not succeed and implicitly suggesting that the White House condemn the coup leaders. Gates saw no reason to hope the coup would fail, and President Bush's initial pronouncements were noncommittal. As Gates explained later, "Based on all prior experience in Russian and Soviet history, when you know at the outset that you've got the KGB and the army and the party all together in a coup attempt, the chances of it not succeeding...are near zero."
Something is obviously wrong with what Bamford calls the largest, best-funded, and "most advanced spy organization on the planet." The entire intelligence community has grown lazy and fat over the years. In the case of the NSA, there is a cozy relationship between it and parts of private industry: Former top NSA officials often end up working for TRW, Honeywell, E-Systems or Booz-Allen & Hamilton. Eavesdropping equipment alone is a $2 billion-a-year market.
Is our money being spent wisely? A former intelligence analyst, Robert Steel, who now runs a private intelligence firm called Open Source Solutions, recently demonstrated to the Presidential Foreign Intelligence Advisory Board that he could produce more usable information more quickly by using open sources and the Internet than the intelligence community could get from its secret work (his demonstration included satellite photography and military orders of battle).
I'm not suggesting outsourcing here. But what is the point of having a powerful spy agency in the sky--eavesdropping on friend and foe alike--when we are caught by surprise by India's nuclear tests in 1998? Or when, as during the Gulf War, we are unable to locate Saddam Hussein's Scuds?
Not so long ago, the United States declared war on terrorism. Yet there are only two references to Osama bin Laden in this book (one of them being that the NSA, "to impress cleared visitors," occasionally plays audiotapes of bin Laden talking to his mom), and other well-known groups suspected of international terrorism are not even mentioned. Perhaps there is a great deal of information about them in 50-100 million documents that the NSA classifies each year--more than all other agencies of the US government combined. But I wonder who reads these documents and evaluates their content. As someone who is bilingual, I seriously question the quality of work of the NSA computers said to translate up to 750 pages of Russian text per hour. NSA language training itself sounds pretty skimpy: Chinese and Japanese take "two years," Bamford reports, but this reads as more than presumptuous to anyone even remotely familiar with Chinese (a literate Chinese uses between 20,000 and 40,000 individual characters, which take many years to learn). Michael Hayden, the current NSA director, does assure us that "There is a whole other addition there [in training] to turn someone who has working knowledge of the popular language into a cryptolingist." Good Lord! Is Hayden kidding us or does he believe this? I hope it is the former.
"That NSA has the technical capability to intercept and store enough information to wallpaper much of the planet is unquestionable," Bamford writes. "What is in doubt, however, is the agency's ability to make sense of most of it."
In the acknowledgments to Body of Secrets, Hayden is the first person on the author's list of thank-yous. Which is an important clue. The NSA is an agency in search of a new mission. Some of its work remains invaluable, especially tactical intelligence needed by the Pentagon. But sigint now has far less strategic value. Moreover, digital communications, fiber-optic cables and powerful encryption software make it nearly impossible for the NSA to dominate the ether the way it did a decade ago. There is also a growing realization in Congress that something is wrong. In 1998 the House Intelligence Committee threatened to withhold funding unless the agency made "very large changes" in its "culture and methods of operation." For several years auditors found that the NSA had ignored laws and regulations, that its financial statements were not in order and that it had mismanaged its expensive high-tech systems. Hayden's attempt at candor may be a way to rally support.
Judging by the book's last chapter, NSA leaders hope that new scientific breakthroughs--fabricating computing devices out of biological entities, using biological processes to manufacture nonbiological devices--will solve their problems. The computer of the future, we are told, is going to be constructed from both mechanical and living parts. It will be 100 billion times faster than the fastest PC today. What that means when it comes to problems of terrorism, international organized crime, arms proliferation, narcotics trafficking, illicit trade and such issues is a mystery.
Just think, though, how impressive it will be!