Posted By Stephen Johnson

On Dec. 15, Secretary of State Hillary Clinton rolled out the State Department's first ever Quadrennial Diplomacy and Development Review (QDDR) at an internal town hall meeting -- a year behind schedule. No surprise, it turns out to be more of a public relations document than a disciplined strategic review. Yet if it doesn't score a bull-eye, the QDDR at least hits an outer ring by describing an ambitious and needed reform agenda.

Quadrennial reviews -- used by the Department of Defense since 1993 and also adopted by the Intelligence Community and Department of Homeland Security -- are supposed to evaluate an institution's fitness for accomplishing expected missions and responding to crises. As guides for decision-makers, they should assess the continuing applicability of the agency's charter, the global operating environment, institutional strengths and weaknesses, and options prioritized by resources available.

I may have missed something in my speed read through the QDDR's 242 pages. But it seemed less an analytical assessment than a justification for steps the secretary had already taken. State's desire to coordinate a growing menagerie of interagency actors in its embassies got coverage, but its evolving relationship with them was brief. The operating environment lacked details on forecast challenges and regional goals. Moreover, the authors pulled punches on institutional strengths and weaknesses, shed little light on budgetary realities, and established no discernible priorities among a long list of to-do's.

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Posted By Michael J. Green

After rumors that the Obama administration might back down in the face of Chinese pressure, the Pentagon confirmed on July 14 that the United States and the Republic of Korea would in fact go ahead with joint naval exercises off both coasts of the Korean peninsula in response to North Korea's March 26 sinking of the South Korean Navy corvette Cheonan. Time will tell, but this could be the moment that Barack Obama finally found his inner realist when it comes to China strategy. 

From the beginning, the Obama administration has had a schizophrenic view of China's growing power and influence. On the one hand, realists in the administration continued the prevailing "Armitage-Nye" strategy (named after former Bush administration Deputy Secretary of State Rich Armitage and former Clinton Defense official Joe Nye) of engaging China while maintaining a favorable balance of power in the region through tighter relations with U.S. allies. Consistent with that strategy, Obama made a point of inviting Japanese Premier Taro Aso for the first bilateral summit in the Oval Office and Secretary of State Clinton made Japan her first overseas stop last March.   

At the same time, however, other senior members of the Obama administration argued that balance-of-power logic was inimical to the kind of accommodation the United States would have to make towards China in order to deal with new transnational challenges such as climate change. They argued in a formula that undermined the realists' approach that no major international challenge could be resolved without China's cooperation -- a message that was internalized in Beijing as meaning that China had earned a veto on all major international issues from the Obama administration. When Obama and Chinese President Hu Jintao issued a joint statement last November in Beijing, the two leaders acknowledged each others' "core interests." Since then, the Chinese side has steadily expanded the list of Chinese "core interests" to include U.S. arms sales to Taiwan and suzerainty over the South China Sea while yielding virtually nothing in terms of military transparency, human rights or curbing North Korea's nuclear program. 

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Posted By Stephen Johnson

Secretary of State Hillary Clinton isn't known for gaffes, but when she announced from foreign shores that the U.S. government will sue a state for helping to enforce federal laws, it was kind of a biggie. 

The state is Arizona, of course. And at issue is the law it passed in April allowing police to query the immigration status of individuals following a lawful stop, detention, or arrest. As amended, it prohibits consideration of race, color, or national origin and specifies that those suspected of unlawful entry be turned over to federal authorities to determine their status. The bill was a response to Washington's paralysis in enacting meaningful migration reform.

In its response, the administration opted for a political brawl over the more difficult course of pursuing national reforms. On May 19, President Barack Obama stood next to visiting President Felipe Calderón of Mexico when he called for the law to be struck down. Soon after, U.S. Immigration and Customs Enforcement chief John Morton said his agency would not necessarily process individuals referred by Arizona authorities.

Hillary's pronouncement came during the course of a TV interview in Quito, Ecuador following her appearance at the Organization of American States General Assembly in Lima, Peru. On June 8, she told interviewer Andrea Bernal that President Obama feels the federal government should be determining immigration policy, and that the Justice Department will bring a lawsuit against the act. Sounds reasonable enough, you say. 

Yet as gaffes go, this is a three-fer. First, while most American citizens know it is the federal government's responsibility to determine and enforce immigration policy, no public servant should fan the flames of internal controversy from a foreign pulpit. If Arizonans are going to get sued by the feds, best they learn about it from officials closer to home. 

Second, the Clinton got out ahead of the issue owner-the attorney general. In response, the Justice Department said it was still reviewing the law. Then administration sources scrambled to tell reporters that a decision had in fact been made, but the department needed time to build its case. The facts remain cloudy. 

Third, there could have been a teachable moment here. Bad living conditions and porous borders are problems in various parts of the Americas. Just as desperate Ecuadorans seeking employment have found their way illegally to the United States through Central America and Mexico, Ecuador has felt the impact of Colombians fleeing drug violence and guerrilla bands from their native land.

Clinton could have discussed how the United States and its neighbors might benefit from multilateral cooperation to reduce illegal migrant flows, crack down on attendant trafficking, and attack the root problems that make people want to leave home, such as weak rule of law and rigged economies that make life difficult for job-supplying small businesses. 

For now, it's hard to tell where Obama's migration policy will end up. It may be that he is developing a reasoned course. But you would never know by remarks that seemed to be mostly about U.S. politics, another agency's authorities, and little about the broader issues in which our neighbors play a major part. 

RODRIGO BUENDIA/AFP/Getty Images

Posted By Jean M. Geran

Through her bloody death on June 20, 2009, Neda Agha-Soltan, 26, galvanized the Iranian opposition protests. But she was not the first woman to play an important role in promoting freedom, democracy, and equality in Iran. The Iranian women's movement has a proud history of fighting for women's rights and has been a driving force behind the green movement's push for reform. Nobel Laureate, Shirin Ebadi, a prominent human rights lawyer and activist of many years, has represented many other women fighting for justice. Women's groups like Mothers for Peace and the One Million Signatures Campaign are grassroots Iranian women's organizations promoting peace and gender equality in law and practice. For years now, members have been beaten, harassed, arrested, and imprisoned for their work. 

Authorities have systematically denied women permits to hold peaceful protests and while pressure on women leaders was increasing even before the broader protests began in June 2009 things have deteriorated further since. Women human rights defenders like Shadi Sadr, a lawyer who has campaigned against stoning and Shiva Nazar Ahari, a member of the Committee of Human Rights Reporters, as well as journalists and bloggers like Hengemeh Shahidi, Zhila Bani Yaghoub and a pregnant Mahsa Amr-Abadi were all arrested and imprisoned after the post-election protests began last June. Many other women from ethnic and religious minority groups have been detained and persecuted across the country after joining forces across ethnic and religious divides to stand for freedom. 

My post here last month appealed to Secretary Clinton to emphasize human rights and freedom of expression in her speech on Internet freedom. She did and Iran was even highlighted. It was a good speech that also included the importance of online interaction for religious freedom. Secretary Clinton's longstanding support for women's issues is also well known. Iranian authorities censor dozens of websites and blogs, especially those covering women's issues, are disrupting communication technology today as protests mount, and have banned Google. They also severely persecute religious minorities, especially the Baha'i. Iran thus poses a diplomatic challenge as all the themes of the Secretary's speech come together there. But as protests are invigorated today, the United States must throw its support squarely behind the Iranian people, especially women seeking peaceful democratic change. This could be by making a strong and clear Presidential statement (or better yet an Obama webcast in Farsi), by naming and shaming perpetrators of the arrests, rape, and execution of political prisoners, or by turning some U.S. government websites green. Whatever is done, it's time to choose sides. One thing is certain. I'm voting green.

Follow Jean M. Geran on Twitter.

DOMINIQUE FAGET/AFP/Getty Images

By Jean M. Geran

On Jan. 21, Secretary Clinton is scheduled to make an important speech on new technology and 21st-century statecraft. After a year of weak U.S. leadership on human rights and democracy issues, this speech is an important opportunity to reiterate a strong U.S. commitment to freedom across the board. The latest Freedom in the World 2010 survey results from Freedom House highlight an overall decline in global freedom for the fourth consecutive year. Now is the time to redouble our support for human rights and democracy, not cut back as the Obama administration has done. As my colleague David Kramer pointed out, the Secretary began digging the Administration out of the human rights hole it was in last December with her speech at Georgetown University. She has a lot more digging to do. But the inherent link between new technology and freedom of expression, assembly, and association makes her upcoming speech an ideal tool. 

There are promising signs that this will be a good speech thanks to some creative stars on her policy planning staff and others peppered around the administration. State has commendably been leading the use of new technology for the Haiti response with several initiatives. Mobile text giving, crisis mapping and database innovation have contributed to a transformation in how the international community is responding to a horrible natural disaster. I hope the administration continues to think big and in a bipartisan fashion on Haiti. They should do the same on human rights.

Creating innovative partnerships and delegations to Iraq and Afghanistan with leaders in the technology industry and asking Twitter to delay maintenance while protests were underway in Iran have been examples of creative diplomacy in the midst of an otherwise flawed foreign policy. But Iran also illustrates the limits of this kind of diplomacy when it is not backed by a robust commitment to human rights in U.S. policy. 

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Posted By David J. Kramer

By David J. Kramer

Secretary of State Hillary Clinton came away from her visit to Moscow this week with mixed results. The two big ticket items involved Iran and the human rights situation inside Russia.

By all appearances, Clinton struck out on moving Russia closer to supporting sanctions against Iran should current negotiation efforts fail. "We did not ask for anything today," she said, in a rather stunning admission. "We reviewed the situation and where it stood, which I think was the appropriate timing for what this process entails."

That she would not try to push Russia toward supporting sanctions is hard to believe -- and, if true, frankly irresponsible. More likely, she tried and failed but was putting the best spin on it. Russian Foreign Minister Sergei Lavrov's comments after his meeting with Clinton clearly indicated continued Russian resistance to any sanctions push. Prime Minister Vladimir Putin, never a supporter of getting tougher toward Iran, reinforced this position in comments from Beijing on Wednesday when he argued that discussing sanctions now against Iran would be "premature."

This contrasts with comments Russian President Dmitry Medvedev made in New York last month and that he reportedly reiterated in his private meeting with Clinton on Tuesday. The Kremlin, however, has not publicly challenged either the foreign minister's or prime minister's contradictory comments, even though the president is ultimately in charge of Russian foreign policy (the idea that Medvedev would slap down Putin is rather laughable). Yet these conflicting messages cause confusion about who calls the shots in Moscow. Then again, perhaps the situation is very clear: it is Putin and not Medvedev (more on this in a future blog entry). What a shame, then, that Putin was in Beijing, not Moscow, during Clinton's visit. All this is not a surprise to those of us who have been saying that Russia is unlikely at the end of the day to support tough sanctions against Iran -- even in exchange for the Obama administration's regrettable decision September 17 on missile defense (which, by the way, was handled abysmally).

In contrast to the bad news on Iran, Clinton's comments on the human rights situation inside Russia were a pleasant surprise. In spite of her short shrift of human rights concerns in the past (recall her comments on the way to Beijing in February when she said she didn't want those issues to "interfere" with other pressing matters), Clinton made clear the concerns of the Obama administration about the deteriorating situation inside Russia.  Her meeting with human rights and civil society activists was a very good follow-up to President Obama's similar meeting in July. Her interview with independent radio station Ekho Moskvy and her remarks to students at Moscow State University (MGU) also touched on these issues in a strong way.

"I think all of these issues -- imprisonments, detentions, beatings, killings - it is something that is hurtful to see from the outside," Clinton said at MGU. "Every country has criminal elements, every country has people who try to abuse power, but in the last 18 months ... there have been too many of the incidents," adding that not enough was being done to "ensure no one had impunity from prosecution ... I said that this is a matter of grave concern not just for the United States but for the Russian people, and not just for activists but people who worry that unsolved killings are a very serious challenge to order and the fair functioning of society," Clinton said. In an innovative society, she observed, "people must be free to take unpopular decisions, disagree with conventional wisdom, know they are safe to peacefully challenge accepted practice and authority."

In her interview with Ekho Mskvy, she highlighted the attacks on journalists and human rights defenders, noting they are "of such great concern. ... in the last 18 months ... there have been many of these incidents. ... I think we want the government to stand up and say this is wrong."

Her strong statements on these issues were especially important given an unnecessary and unfortunate situation caused by an article in the Russian newspaper Kommersant earlier in the week based on comments made by NSC Senior Director Michael McFaul suggesting that human rights concerns would receive less attention from the Obama administration. The thrust of the Kommersant article seemed out of synch with Obama's handling of the issue in July, with Clinton's comments this week, and with McFaul's own passion for human rights over his career (and I've known him for some 16 years). Clinton stepped into the fray and allayed the concerns, at least for the time being, of those who were worry that human rights issues will fall down the list of priorities in the interest of the Obama Administration's overall "reset" policy with Moscow. 

ALEXANDER NEMENOV/AFP/Getty Images

Posted By Peter Feaver

By Peter Feaver

Catching up on some reading after multiple trips, I have just waded through Secretary Clinton's Big Speech -- capital letters are warranted because of the breathless promotion that attended it before, during and after.

I found the speech more familiar than newsworthy. The section on priorities read like the table of contents to President Bush's 2006 National Security Strategy: terrorism, regional peace efforts, trade, development, energy, supporting and encouraging democracy, etc. Even the caveats were familiar: democracy is more than elections (check), foreign policy must reflect the world as it is, not as it used to be (check), no nation can meet the world's challenges alone (check), no challenge can be met without America (check). Her Five Pillars are also remarkably evocative of the goals laid out by both of the administrations immediately preceding Obama's.

This is not a criticism of the speech. Indeed, as anyone who has worked on a top-level speech or document will understand, it is rather like pop music: there is a basic I-IV-V chord progression that is detectable in almost every "new" effort. Some do it better than others, to be sure, but it can't really be hidden from the attuned ear.

It would be unfair to label Clinton's speech a  "Heart and Soul" effort, but it would be a reach to credit it as transformative.

To me the best part was its frank acknowledgement that the core of the challenge of achieving better multilateralism was in overcoming collective action problems -- a familiar insight to anyone who has taken an introductory international relations course, but one that is all-too-often ignored in the partisan commentary on foreign policy. While there were the now-ritualistic swipes at those boors in the Bush administration, the Secretary did not, in fact, pretend that the problem was simply Bush (or even American) arrogance. I would have liked to see more discussion of how, in fact, she will overcome those collective action problems, especially in achieving a global architecture that met these desiderata, which she summarized so pithily: "one in which states have clear incentives to cooperate and live up to their responsibilities, as well as strong disincentives to sit on the sidelines or sow discord and division."

This has been a priority challenge since before the 9/11 attacks. Indeed, a colleague of mine at Duke, Bruce Jentleson, has repeatedly talked about the "September 10th agenda," and uppermost on that was the mismatch between what the world asked of international institutions and what those  international institutions were capable of doing.

Coincidentally -- or perhaps not -- Bruce Jentleson is coming on board the State Department to serve as a senior advisor to Anne-Marie Slaughter, the Director of Policy Planning. With Slaughter, her deputy Derek Chollet, and now Bruce Jentleson, Secretary Clinton will have at her disposal an impressive cadre of experts who have thought long and hard about this mismatch. I am hoping that the Secretary's speech was just the opening salvo and that in the coming months we will learn more about what her brain trust has in mind for addressing this serious problem. 

PRAKASH SINGH/AFP/Getty Images

Shadow Government is a blog about U.S. foreign policy under the Obama administration, written by experienced policy makers from the loyal opposition and curated by Peter D. Feaver and William Inboden.

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