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\ C^\ FOREIGN REUTIONS AUTHORIZATION ACT FOR nSCAL YEARS 1996 AND 1997 Y 4. IN 8/16; F 76/12 Foreign Relations Authorization ftct. . .J^JJ^Qg BEFORE THE SUBCOMMITTEE ON INTERNATIONAL OPERATIONS AND HUMAN RIGHTS OF THE COMMITTEE ON INTERNATIONAL RELATIONS HOUSE OF REPRESENTATIVES ONE HUNDRED FOURTH CONGRESS FIRST SESSION FEBRUARY 7, 8, 22, 23 AND MARCH 1, 1995 Printed for the use of the Committee on International Relations ommm NOV 7 1995 U.S. GOVERNMENT PRINTING OFFICE 93-701 WASHINGTON : 1995 ForsalebytheU.S.GovernmentPrintingOffice SuperintendentofDocuments,CongressionalSalesOffice,Washington,DC 20402 ISBN 0-16-047677-1 93-701 95-1 m 1 FORHGN RELATIONS AUTHORIZATION ACT FOR nSCAL YEARS 1996 AND 1997 Y 4. IN 8/16; F 76/12 Foreign Relations Authorization Act. . .J^JJ^Qg BEFORE THE SUBCOMMITTEE ON INTERNATIONAL OPERATIONS AND HUMAN RIGHTS OF THE COMMITTEE ON INTERNATIONAL RELATIONS HOUSE OF REPRESENTATIVES ONE HUNDRED FOURTH CONGRESS FIRST SESSION FEBRUARY 7, 8, 22, 23 AND MARCH 1, 1995 Printed for the use of the Committee on International Relations ommm NOV 7 1995 30STOIVPU8tir» U.S. GOVERNMENT PRINTING OFFICE 93-701 WASHINGTON : 1995 ForsalebytheU.S.GovernmentPrintingOffice SuperintendentofDocumenl.s,Congre.ssionalSalesOffice,Washington,DC 20402 ISBN 0-16-0A7677-1 93-701 95- COMMITTEE ON INTERNATIONAL RELATIONS BENJAMIN A. OILMAN, New York, Chairman WILLIAM F. GOODLING, Pennsylvania LEE H. HAMILTON, Indiana JAMES A. LEACH, Iowa SAM GEJDENSON, Connecticut TOBY ROTH, Wisconsin TOM LANTOS, California HENRYJ. HYDE, IlUnois ROBERT G. TORRICELLI, New Jersey DOUG BEREUTER, Nebraska HOWARD L. BERMAN, CaUfornia CHRISTOPHER H. SMITH, New Jersey GARY L. ACKERMAN, New York DAN BURTON, Indiana HARRYJOHNSTON, Florida JAlSf MEYERS, Kansas ELIOT L. ENGEL, New York ELTON GALLEGLY, California ENI F.H. FALEOMAVAEGA, American ILEANA ROS-LEHTINEN, Florida Samoa CASS BALLENGER, North Carolina MATTHEW G. MARTINEZ, CaUfornia DANA ROHRABACHER, California DONALD M. PAYNE, New Jersey DONALD A MANZULLO, Illinois ROBERT E. ANDREWS, New Jersey EDWARD R. ROYCE, California ROBERT MENENDEZ, New Jersey PETER T. KING, New York SHERROD BROWN, Ohio JAY KIM, California CYNTHIAA. McKINNEY, Georgia SAM BROWNBACK, Kansas ALCEE L. HASTINGS, Florida DAVID FUNDERBURK, North CaroUna ALBERT RUSSELL WYNN, Maryland STEVEN J. CHABOT, Ohio MICHAEL R. McNULTY, New York MARSHALL "MARK" SANFORD, South JAMES P. MORAN, Virginia Carolina VICTOR O. FRAZER, Virgin Islands (Ind.) MATT SALMON, Arizona AMO HOUGHTON, NewYork RichardJ. Gabon, ChiefofStaff MichaelH. Van Dusen,Democratic ChiefofStaff Subcommittee on International Operations and Human Rights CHRISTOPHER H. SMITH, NewJersey, Chairman BENJAMIN A. OILMAN, NewYork TOM LANTOS, CaUfornia WILLIAM F. GOODLING, Pennsylvania CYNTHL\ A. McKINNEY, Georgia HENRYJ. HYDE, IlUnois JAMES P. MORAN, Virginia PETER T. KING, New York HOWARD L. BERMAN, CaUfornia DAVID FUNDERBURK, North CaroUna ENI F.H. FALEOMAVAEGA, American MATT SALMON, Arizona Samoa EDWARD R. ROYCE, CaUfornia DONALD M. PAYNE, New Jersey Grover Joseph Rees, Subcommittee StaffDirectorand ChiefCounsel Robert R. King, Democratic Professional StaffMember David Wagner, Professional StaffMember Tatyana Schum, StaffAssociate (II) CONTENTS WITNESSES Tuesday, February 7, 1995: Page Hon. Richard M. Moose, Under Secretary ofState for Management, De- partmentofState 3 Wednesday, February 8, 1995: Hon. Madeleine K. Albright, Permanent Representative from the United States tothe UnitedNations 32 Hon. Douglas J. Bennet, Assistant Secretary of State for International Organization Affairs, DepartmentofState 56 Wednesday, February 22, 1995: Hon. Brunson McKinley, Acting Assistant Secretary, Bureau of Popu- lation, Refugees, andMigration 75 Thursday, February 23, 1995: Hon. John D. Holum, Director, Arms Control and DisarmamentAgency ... 105 Wednesday, March 1, 1995: Hon. Joseph Duffey, Director, U.S. InformationAgency 123 Mr. Carl Gershman, President, National EndowmentforDemocracy 142 APPENDIX Prepared statements: Hon. RichardM. Moose ;.. 157 Hon. Madeleine K. Albright 165 Hon. DouglasJ. Bennet 175 Hon. Donald M. Payne(Feb. 8, 1995) 186 Hon. BrunsonMcKinley 187 Hon. Donald M. Payne(Feb. 22, 1995) 193 Hon. John D. Holum 195 Hon. Joseph Duffey 204 Mr. Carl Gershman 208 Budget Summary, excerpt from U.S. Department of State "The Budget in Brief, Fiscalyear 1996" 218 Questions submitted for the record by the Subcommittee on International Operations and Human Rights to Hon. Richard M. Moose, and responses thereto 225 Questions submitted for the record by Chairman Oilman to Hon. Richard M. Moose, and responses thereto 233 Questions submitted for the record by Chairman Oilman to Hon. Madeleine Albright, and responses thereto 240 Questions submitted for the record by the Subcommittee on International Operations and Human Rights to Hon. Madeleine Albright, and responses thereto 247 Questions submitted for the record by the Subcommittee on International Operations and Human Rights to Hon. Douglas Bennett, and responses thereto 249 Letter to the editor of the Washington Post entitled, "The Changing U.N." byJoseph E. Connor 261 Questions submitted for the record by the Subcommittee on International Operations and Human Rights to Hon. Brunson McKinley, and responses thereto 262 Article from the Washington Post entitled, "Rwanda Attempts to Integrate Old Enemies IntoWinningArmy"byJonathan C. Randal 287 USIA Report, "Senator J. William Fulbright: One of the Most Influential Americansofthe Century" 288 (HI) IV Page Siirveys: RegularListenership andUSIAAudienceAnalysis 296 Questions submitted for the record by the Subcommittee on International Operations and Human Rights to Hon. Joseph Duffey, and responses there- 299 to Questions submitted for the record by the Subcommittee on International Operations and HumanRights to Mr. Carl Gershman, and responses there- ^22 to 1996-97 FOREIGN RELATIONS AUTHORIZA- TION: DEPARTMENT OF STATE MANAGE- MENT INITIATIVES TUESDAY, FEBRUARY 7, 1995 House of Representatives, Committee on International Relations, Subcommittee on International Operations and Human Rights, Washington, DC. The subcommittee met, pursuant to call, at 2:05 p.m. in room 2172, Rayburn House Office Building, Hon. Chris Smith (chairman ofthe subcommittee) presiding. Mr. Smith. I am pleased to convene this hearing of the Sub- committee on International Operations and Human Rights. This will be the first in a series of hearings devoted to the preparation and enactment of a Foreign Relations Authorization Act for fiscal years 1996 and 1997. I am also pleased to welcome our distinguished witness, Under Secretary for Management Richard Moose. In the course ofthese hearings the members ofthe subcommittee will have hundreds of specific questions for this witness and the others who will follow. Many of these questions will address a few central concerns which it may be helpful to state at the outset. First, there is a broad consensus among elected officials and the public at large that almost all departments and agencies of the Federal Government have gradually become too big and too expen- sive. At the same time, there is often an equally emphatic consensus among those who serve in each agency or department that the resources of their agency are already stretched to the breaking point, the employees overworked and underpaid for the important tasks they must perform. The question is how to reconcile these two conflicting views, or at least how to make sense of them. The administration's proposed budget for the State Department attempts to achieve a sort of compromise by essentially remaining "flat" from fiscal year 1995 to fiscal year 1996: No steep cuts but no dramatic increases either. It is our job to look carefully and ob- jectively at this budget, prepared to find some areas in which we may genuinely be stretched too thin and others in which existing resources are more than ample. Secretary Moose, you have stated that the Department is con- stantly on the lookout for functions that can be performed more ef- ficiently, or perhaps should not be performed at all. I know you will understand that Congress has a duty to join as a partner in this enterprise. (1) The second concern is that in analyzing documents that talk in dollars and cents, FTE's and capital—investments, we sometimes forget that what Government is about or at least why—most of us in Grovemment decided to spend part of our lives here is policies and people. The bricks and mortar and offices and programs we have been asked to authorize are worth our tax dollars if and only if they are used to promote policies that will serve the just inter- ests of the American people. I find it a little frustrating that the voluminous and informative documents submitted to us generally tell us everything except just what the people in the Department actually spend their time doing. How many person hours in the operating budget are spent promoting child survival, how many for counterterrorism, how many for international population control, how many for protecting refugees and other people whose human rig—hts have been denied? In my view, these are questions that matter and on which Congress may legitimately set policy in an authorization act. Finally, in an age of limited budgets and expanding responsibilities it is especially important for each Grovemment agency to re- member that its most important functions are those that matter most to the American people. These may or may not be the ones nearest and dearest to the hearts of those who work for and over- see the agency itself. The experience to date with downsizing and streamlining ofGrovemment agencies is that the programs that get cut are not always those which are least important. Mr. Under Secretary, I know you care about this problem and that you have asked your colleagues to address it as part of your strategic management initiative. Again, I hope you will understand that some of us in Congress feel that we have a responsibility to pursue this inquiry in the same helpful spirit. I now jdeld to my friend and colleague, Tom Lantos, for any opening remarks he may have. Mr. Lantos. Thank you, Mr. Chairman. Since this is our first hearing as the Subcommittee on Inter- national Operations, let me express my great pleasure at serving with you on this subcommittee. I know you have demonstrated a degree of commitment to our State Department Foreign Service, which was exemplary, £md I am sure in your role as chairman, you will continue this tradition. I also want to welcome our distinguished witness, Secretary Moose, who has served this country in such a distinguished man- ner. We are delighted to have him with us. I have no opening statement. Mr. Smith. The gentleman from Virginia, Mr. Moran. Mr. MORAN. Thank you, Mr. Chairman. I hope that we can discuss during the testimony on the actual operations of the Department of State some of the implications of the H.R. 7 which we will be debating on the floor next week. It seems to me that we are in a transitional period of time. I guess transformational would be what the Speaker would call it. But the world is changing very rapidly. It is all about us and if we don't keep our diplomatic efforts on a par in terms of the capability and quality of personnel, on an equal par with our defense and intelligence activities, then we will have missed the boat just as with the crime issues that we are debating on the floor of the House right now. Diplomacy is the pre- ventive aspect of war, really. It is far better to invest in a State Department that is able to communicate and to avert attention and ultimately conflict than to invest $300 billion, which is ultimately what I guess the defense budget would be if our colleagues on the other side have their way in military preparations. So, I would hope we would not overly emphasize defense at the expense of diplomacy, and Mr. Moose is going to talk to us about the nuts and bolts ofmaintaining the State Department, how many personnel are needed, what kinds of expenses related to their activities and I think we have very good people at the State Depart- ment and I hope that we will reflect a high level of confidence in them and appreciation for what they do. With that, I am anxious to hear from Under Secretary Moose. Thank you, Mr. Chairman. Mr. Smith. Thank you. Secretary Moose, you may proceed as you would like. Your full statement will be made a part of the record, without objection. STATEMENT OF HON. RICHARD M. MOOSE, UNDER SEC- RETARY OF STATE FOR MANAGEMENT, DEPARTMENT OF STATE Mr. Moose. Thank you very much, Mr. Chairman and members of the committee. I appreciate all of your remarks, Mr. Chairman, Mr. Lantos, and Mr. Moran. I am grateful to have this early opportunity to appear before you and make the case for the resources and authorities needed by the Department ofState to meet the challenges we face. Secretary Christopher recently appeared before your full committee and described the policies we are pursuing internationally to protect the national security and advance American economic well- being. My job, and why I am here today, has to do with what is required to translate our policy goals into actions: in order to engage and provide leadership around the world; to strengthen cooperative relations with powerful nations^ to build effective international in- stitutions; to promote democracy and to support human rights, we need people and infrastructure. I would like to use some of my time this afternoon to describe for you the basic elements of the institution which I am asking your committee to support. I will start with the people: The State Department has 25,180 funded full-time positions, 1,100 fewer than we did at the beginning of the Clinton administration. About 15,000 serve overseas, and some 9,000 work within the United States. After our people, the Department's most valuable asset is our overseas posts: they are our early warning system and our distribu- tion network. We now operate 266 diplomatic posts overseas in 163 different countries, and we pay their expenses in about 140 different currencies. In addition to supporting our own people and activities, the State Department's 266 overseas posts provide the operating platform for 4 38 other U.S. Grovemment£il departments and agencies, each with its own important mandate from the President, the Congress, and the public. These other agencies employ more than 22,000 full-time employees engaged in preventing international crime from reaching our streets, keeping pollution and disease from debasing the health of our citizens, and dismantling nuclear weapons which once were pointed at our cities. A recent General Accounting Office report notes the dilemma State faces overseas: our employees amount to around one-third of total U.S. Government staffing overseas, but the State Department shoulders two-thirds ofthe administrative costs. On behalf of all the agencies of the U.S. Government, the State Department owns or leases and maintains over 14,000 office and residential properties worth more than $10 billion. These buildings are used by all—of the agencies I mentio—ned above. But all mainte- nance, utilities ^when there are utilities and most guard costs are paid for out ofthe State Department's budget. The President has rightly drawn our attention to the "qusdity of life" of our military forces as one important component of "readi- ness." At any minute of the day or night, more than half of our missions around the world are "ready," they are open and working. Some of these posts are located in pleasant and interesting places, but many ofthe foot soldiers of diplomacy have a much different experience. In our Embassy in Mongolia, for example, the temperature inside the Embassy offices and apartments rarely rises above 45 degrees farenheit throughout the winter months. And in more posts than I care to think about our people live under constant threat ofterrorist attack. In Kobe, our "foot soldiers" were precisely that. My responsibility to the American people includes a commitment that al—l the men and women from all agen—cies who represent us abroad and their loved ones and families are treated with re- spect and have the wherewithal, infrastructure and support which they deserve. Before discussing the investment required to maintain our human and physical infrastructure, I would like to describe a grow- ing challenge posed to the Department of State in protecting the security of our borders, and how we are meeting that challenge more and more effectively every day at a minimal cost to American taxpayers. Among State's statutory responsibilities is the adjudication of over 7 million nonimmigrant visa applications annually, together with 700,000 immigrant visa applications. In close cooperation with the Immigration and Naturalization Service and the Department of Justice, consular staffabroad assure that nonimmigrant visa applicants meet the statutory criteria for admissability as temporary visitors and reject those who do not. An essential tool in State's border security role is the $20 fee paid by foreign applicants overseas where machine-readable visas, MRVs, are available. The MRV fee, which Congress approved in April 1994, is reinvested to expand the machine readable visa system and our automated name check system. Since January 1993, we have installed MRV systems at nearly 90 additional posts.