The Peculiar World
Of Washington Diplomacy
Complexity of System, Pressure on Diplomats Create Intense Mix
by John Shaw
Itís indisputable that diplomacy is practiced differently in Washington, D.C., from any other city in the world.
Participants and observers agree that Washington diplomacy is a free-wheeling, informal, highly complex scramble to shape the American debate on international affairs and to influence U.S. policies that often have global consequences.
In Washington, timeless traditions and long established rules that are scrupulously adhered to in other capitals are often turned on their heads or reformulated in ways that make them unrecognizable.
It has been said that if diplomats acted in other capitals as they do in Washington they would be declared persona non grata. But if they donít follow these practices here they would be rebuked for not doing their jobs.
Analysts agree that diplomats in Washington are expe
cted to be more public, more aggressive and more willing to jump into certain policy debates than in other capitals.
Ambassador of Egypt Nabil Fahmy said that in Washington the stakes are high, and forceful diplomacy is essential.
ìGiven the U.S.ís stature in the world, almost everything an ambassador does here is important. Diplomacy in Washington is interesting and challenging, partly because of the U.S.ís unique role in the world,î he said.
ìWashington is the capital of the world for public policy,î said Ambassador of Iceland Jon Baldvin Hannibalsson. ìVirtually all important public policy issues pass through Washington in one form or another. The discussions and debates you have in this city are very wide ranging and cover every conceivable topic. For example, with all the conferences that are held here you can learn as much about what is going on in Russia in Washington as in Moscow,î he said.
One of the most distinctive features of Washington diplomacy is its sheer size and complexity. About 170 nations have embassies here and virtually all countries are represented by the most capable envoys they have. Senior diplomats, former prime ministers, foreign ministers and finance ministers are dispatched to Washington. This gives the city an unusually deep pool of diplomatic talent and political clout, analysts agree.
Additionally, there are a number of prominent international institutions that are either based in Washington or have a significant presence here, such as the World Bank, the International Monetary Fund, the Organization of American States and the Inter-American Development Bank.
There are also dozens of think tanks, non-governmental organizations and lobbying groups based in Washington that shape policy and are part of the larger diplomatic community. And then there are hundreds of news organizations that cover international affairs and influence the cityís diplomatic life.
Washingtonís large, complex diplomatic community is also characterized by constantly evolving power configurations. Diplomats from NATO, Group of Seven, European Union and U.N. Security Council nations have special access in Washington as do countries with ethnic ties to large or influential domestic groups. But creative, aggressive diplomats from other nations also drive the policy debate in important and unexpected ways.
Analysts agree that Washington diplomacy takes on a special complexity given that it is the capital of a large, powerful, and diverse nation in which interest groups help shape domestic and international policy.
ìA good ambassador in Washington has to be seriously engagedónot superficially engaged, but seriously engagedówith a much wider range of actors in this country than in other countries,î said professor Lou Goodman, a dean at American University and an international affairs expert. ìThere is a very broad and very deep set of constituencies that have to be dealt with directly and constructively for a diplomat to be successful in Washington. This is different than in other capitals.î
Another feature of Washington diplomacy is the challenge created by the diffusion of power. In the U.S government both the executive and legislative branches play significant roles in international policy. While other nations also share power between the executive and legislative branches, few do so as widelyóand confusinglyóas does the American system.
Most diplomats in Washington need to deal, at a minimum, with the White House, the National
Security Council, the departments of Agriculture, Commerce, Defense, Justice, State, Treasury and Transportation and the U.S. Trade Office.
The complexity of the executive branch is replicated on Capitol Hill where a bewildering number of committees and subcommittees have important jurisdictions and influence. Then there is a robust and influential private sector and the non-governmental organization community that often have considerable impact on policy makingóas do state and local governments.
ìIn Washington, there are 1,000 points of decision-making,î said Walter Cutler, a former American ambassador who is now president of the Meridian International Center.
ìThere is a diffusion of decision-making power and because of this ambassadors here are stretched so thin because they have to touch so many bases. They have to cover Washington, both the executive and legislative branches. And they have to go out to the Dulles corridor, to Silicon Valley and many, many other places that have an impact on policy and on the economy. Diplomats have to be aware of the views and influence of dozens of interest groups that have a real impact,î Cutler added.
Egyptian Ambassador Fahmy said that for diplomats to be successful in Washington they have to be willing to discuss and debate policy issues with key government actors and private interest groups.
ìThe United States is a country of advocacy. To be successful here, you have to engage with all the people, not just with the government. In no other place that Iím aware of does domestic politics meet with foreign policy at such an intense level,î he said.
ìOne learns here not to be offended easily. Americans like you to say what you really think. The level of debate is very candid, very frank. In a more formal system an ambassador might have to make arguments differently, less directly and less frankly. But here, candor and directness are expected and appreciated,î he added.
Icelandic Ambassador Hannibalsson said he has been struck by the informality of Washington diplomacy.
ìIn European capitals, things are much more formal. Here it is quite open. People often come up to you, and they donít even ask where you are from. They ask: ëWhat do you have to say. What are your arguments?í There is more equality of opportunity here than in more formal systems,î he said.
Hannibalsson said that diplomacy in Washington is also much more public than in other capitals.
ìIn most European capitals it is considered rule number one to keep a low profile. Here weíre expected to speak, to talk, to peddle our case and to attract attention,î he said.
Diplomats say the scramble to shape or even nudge the debate in Washington is difficult, complicated and highly competitive.
ìOf course itís very competitive here,î said Edith Ssempala, Ugandaís ambassador. ìBut I donít mind the competitiveness. What I do mind is the competition for my time. There are so many issues to deal with. And for small nations, the biggest challenges are in resources. There are so many issues and so many demands on your time. You have to focus, to target. And to be truly effective here, itís important to travel, to get outside of Washington. And this is such a big country,î she added.
Ssempala noted that small nations can have greater weight if they for
m coalitions, and she cited as an example the two-year effort of the 48 ambassadors from the nations of sub-Saharan Africa to back an African trade and investment bill that was finally passed by the U.S. Congress and signed by President Clinton.
Ambassador of Malta George Saliba said this sort of broad transnational collaboration is more the exception than the rule in Washington.
ìEveryone here is working on their own. There are no teams. Everybody is so busy and they are working by themselves. We donít see much of our colleagues except at receptions,î he said.
Saliba said that small nations face unique challenges in Washington as they seek to deal with Congress and work through the thicket of agencies and interest groups.
ìItís not easy to make contact with members in Congress,î he said, adding that diplomats must learn how to work with top staffers on Capitol Hill and also to work with groups and individuals outside of Washington to press their agenda.
As an example, Saliba has identified individuals across the country who are eager to promote investment and trade between the United States and Malta. These individuals manage ìhonorary consulatesî to represent Malta in communities outside of Washington.
Saliba said other nations do this as well but added that he is always looking for new strategies that will advance his nationís agenda in a difficult diplomatic environment.
Cutler said that diplomats in Washington, more than in other capitals, need to constantly adjust and refine their strategies.
ìThis is a very fast-moving society and diplomacy is changing rapidly. Diplomats have to take off their pinstripes, roll up their sleeves, and go out and meet and engage with all kinds of people. To be effective, an ambassador canít just sit in his office and make formal calls on other diplomats. That just doesnít work in this city. Diplomacy doesnít work like that anymoreóespecially in Washington,î he said.
John Shaw is a contributing writer for The Washington Diplomat |
