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[ Samantha Power shows in the article below that "the U.S. government knew enough about the genocide early on to save lives, but passed up countless opportunities to intervene." Romeo Dallaire, the Canadian commander of the UN Assistance Mission in Rwanda, says that after the U.S. had effectively lobbied to reduce the peacekeeping forces from 2,500 to just a few hundred,
My force was standing knee-deep in mutilated bodies, surrounded by the guttural moans of dying people, looking into the eyes of children bleeding to death with their wounds burning in the sun and being invaded by maggots and flies.
(A Ted Koppel interview with Dallaire is available here.) The article concludes with an assessment of the policy paths not taken, and haunting accounts of the aftermath for the officials involved. Power is the author of A Problem From Hell, which explores U.S. failures to stop the genocides of the 20th century. –doclalor ]
The Atlantic Monthly | September 2001
Bystanders to Genocide: Why the United States Let the Rwandan Tragedy Happen
The author's exclusive interviews with scores of the participants in the decision-making, together with her analysis of newly declassified documents, yield a chilling narrative of self-serving caution and flaccid will — and countless missed opportunities to mitigate a colossal crime by Samantha Power
I. People Sitting in Offices
In the course of a hundred days in 1994 the Hutu government of Rwanda and its extremist allies very nearly succeeded in exterminating the country's Tutsi minority. Using firearms, machetes, and a variety of garden implements, Hutu militiamen, soldiers, and ordinary citizens murdered some 800,000 Tutsi and politically moderate Hutu. It was the fastest, most efficient killing spree of the twentieth century.
A few years later, in a series in The New Yorker, Philip Gourevitch recounted in horrific detail the story of the genocide and the world's failure to stop it. President Bill Clinton, a famously avid reader, expressed shock. He sent copies of Gourevitch's articles to his second-term national-security adviser, Sandy Berger. The articles bore confused, angry, searching queries in the margins. "Is what he's saying true?" Clinton wrote with a thick black felt-tip pen beside heavily underlined paragraphs. "How did this happen?" he asked, adding, "I want to get to the bottom of this." The President's urgency and outrage were oddly timed. As the terror in Rwanda had unfolded, Clinton had shown virtually no interest in stopping the genocide, and his Administration had stood by as the death toll rose into the hundreds of thousands.
Why did the United States not do more for the Rwandans at the time of the killings? Did the President really not know about the genocide, as his marginalia suggested? Who were the people in his Administration who made the life-and-death decisions that dictated U.S. policy? Why did they decide (or decide not to decide) as they did? Were any voices inside or outside the U.S. government demanding that the United States do more? If so, why weren't they heeded? And most crucial, what could the United States have done to save lives?
So far people have explained the U.S. failure to respond to the Rwandan genocide by claiming that the United States didn't know what was happening, that it knew but didn't care, or that regardless of what it knew there was nothing useful to be done. The account that follows is based on a three-year investigation involving sixty interviews with senior, mid-level, and junior State Department, Defense Department, and National Security Council officials who helped to shape or inform U.S. policy. It also reflects dozens of interviews with Rwandan, European, and United Nations officials and with peacekeepers, journalists, and nongovernmental workers in Rwanda. Thanks to the National Security Archive (www.nsarchive.org), a nonprofit organization that uses the Freedom of Information Act to secure the release of classified U.S. documents, this account also draws on hundreds of pages of newly available government records. This material provides a clearer picture than was previously possible of the interplay among people, motives, and events. It reveals that the U.S. government knew enough about the genocide early on to save lives, but passed up countless opportunities to intervene.
In March of 1998, on a visit to Rwanda, President Clinton issued what would later be known as the "Clinton apology," which was actually a carefully hedged acknowledgment. He spoke to the crowd assembled on the tarmac at Kigali Airport: "We come here today partly in recognition of the fact that we in the United States and the world community did not do as much as we could have and should have done to try to limit what occurred" in Rwanda.
This implied that the United States had done a good deal but not quite enough. In reality the United States did much more than fail to send troops. It led a successful effort to remove most of the UN peacekeepers who were already in Rwanda. It aggressively worked to block the subsequent authorization of UN reinforcements. It refused to use its technology to jam radio broadcasts that were a crucial instrument in the coordination and perpetuation of the genocide. And even as, on average, 8,000 Rwandans were being butchered each day, U.S. officials shunned the term "genocide," for fear of being obliged to act. The United States in fact did virtually nothing "to try to limit what occurred." Indeed, staying out of Rwanda was an explicit U.S. policy objective.
With the grace of one grown practiced at public remorse, the President gripped the lectern with both hands and looked across the dais at the Rwandan officials and survivors who surrounded him. Making eye contact and shaking his head, he explained, "It may seem strange to you here, especially the many of you who lost members of your family, but all over the world there were people like me sitting in offices, day after day after day, who did not fully appreciate [pause] the depth [pause] and the speed [pause] with which you were being engulfed by this unimaginable terror."
Clinton chose his words with characteristic care. It was true that although top U.S. officials could not help knowing the basic facts — thousands of Rwandans were dying every day — that were being reported in the morning papers, many did not "fully appreciate" the meaning. In the first three weeks of the genocide the most influential American policymakers portrayed (and, they insist, perceived) the deaths not as atrocities or the components and symptoms of genocide but as wartime "casualties" — the deaths of combatants or those caught between them in a civil war.
Yet this formulation avoids the critical issue of whether Clinton and his close advisers might reasonably have been expected to "fully appreciate" the true dimensions and nature of the massacres. During the first three days of the killings U.S. diplomats in Rwanda reported back to Washington that well-armed extremists were intent on eliminating the Tutsi. And the American press spoke of the door-to-door hunting of unarmed civilians. By the end of the second week informed nongovernmental groups had already begun to call on the Administration to use the term "genocide," causing diplomats and lawyers at the State Department to begin debating the word's applicability soon thereafter. In order not to appreciate that genocide or something close to it was under way, U.S. officials had to ignore public reports and internal intelligence and debate.
The story of U.S. policy during the genocide in Rwanda is not a story of willful complicity with evil. U.S. officials did not sit around and conspire to allow genocide to happen. But whatever their convictions about "never again," many of them did sit around, and they most certainly did allow genocide to happen. In examining how and why the United States failed Rwanda, we see that without strong leadership the system will incline toward risk-averse policy choices. We also see that with the possibility of deploying U.S. troops to Rwanda taken off the table early on — and with crises elsewhere in the world unfolding — the slaughter never received the top-level attention it deserved. Domestic political forces that might have pressed for action were absent. And most U.S. officials opposed to American involvement in Rwanda were firmly convinced that they were doing all they could — and, most important, all they should — in light of competing American interests and a highly circumscribed understanding of what was "possible" for the United States to do.
One of the most thoughtful analyses of how the American system can remain predicated on the noblest of values while allowing the vilest of crimes was offered in 1971 by a brilliant and earnest young foreign-service officer who had just resigned from the National Security Council to protest the 1970 U.S. invasion of Cambodia. In an article in Foreign Policy, "The Human Reality of Realpolitik," he and a colleague analyzed the process whereby American policymakers with moral sensibilities could have waged a war of such immoral consequence as the one in Vietnam. They wrote,
The answer to that question begins with a basic intellectual approach which views foreign policy as a lifeless, bloodless set of abstractions. "Nations," "interests," "influence," "prestige" — all are disembodied and dehumanized terms which encourage easy inattention to the real people whose lives our decisions affect or even end.
Policy analysis excluded discussion of human consequences. "It simply is not done," the authors wrote. "Policy — good, steady policy — is made by the 'tough-minded.' To talk of suffering is to lose 'effectiveness,' almost to lose one's grip. It is seen as a sign that one's 'rational' arguments are weak."
In 1994, fifty years after the Holocaust and twenty years after America's retreat from Vietnam, it was possible to believe that the system had changed and that talk of human consequences had become admissible. Indeed, when the machetes were raised in Central Africa, the White House official primarily responsible for the shaping of U.S. foreign policy was one of the authors of that 1971 critique: Anthony Lake, President Clinton's first-term national-security adviser. The genocide in Rwanda presented Lake and the rest of the Clinton team with an opportunity to prove that "good, steady policy" could be made in the interest of saving lives.
II. The Peacekeepers
Rwanda was a test for another man as well: Romeo Dallaire, then a major general in the Canadian army who at the time of the genocide was the commander of the UN Assistance Mission in Rwanda. If ever there was a peacekeeper who believed wholeheartedly in the promise of humanitarian action, it was Dallaire. A broad-shouldered French-Canadian with deep-set sky-blue eyes, Dallaire has the thick, calloused hands of one brought up in a culture that prizes soldiering, service, and sacrifice. He saw the United Nations as the embodiment of all three.
Before his posting to Rwanda Dallaire had served as the commandant of an army brigade that sent peacekeeping battalions to Cambodia and Bosnia, but he had never seen actual combat himself. "I was like a fireman who has never been to a fire, but has dreamed for years about how he would fare when the fire came," the fifty-five-year-old Dallaire recalls. When, in the summer of 1993, he received the phone call from UN headquarters offering him the Rwanda posting, he was ecstatic. "It was answering the aim of my life," he says. "It's all you've been waiting for."
Dallaire was sent to command a UN force that would help to keep the peace in Rwanda, a nation the size of Vermont, which was known as "the land of a thousand hills" for its rolling terrain. Before Rwanda achieved independence from Belgium, in 1962, the Tutsi, who made up 15 percent of the populace, had enjoyed a privileged status. But independence ushered in three decades of Hutu rule, under which Tutsi were systematically discriminated against and periodically subjected to waves of killing and ethnic cleansing. In 1990 a group of armed exiles, mainly Tutsi, who had been clustered on the Ugandan border, invaded Rwanda. Over the next several years the rebels, known as the Rwandan Patriotic Front, gained ground against Hutu government forces. In 1993 Tanzania brokered peace talks, which resulted in a power-sharing agreement known as the Arusha Accords. Under its terms the Rwandan government agreed to share power with Hutu opposition parties and the Tutsi minority. UN peacekeepers would be deployed to patrol a cease-fire and assist in demilitarization and demobilization as well as to help provide a secure environment, so that exiled Tutsi could return. The hope among moderate Rwandans and Western observers was that Hutu and Tutsi would at last be able to coexist in harmony.
Hutu extremists rejected these terms and set out to terrorize Tutsi and also those Hutu politicians supportive of the peace process. In 1993 several thousand Rwandans were killed, and some 9,000 were detained. Guns, grenades, and machetes began arriving by the planeload. A pair of international commissions — one sent by the United Nations, the other by an independent collection of human-rights organizations — warned explicitly of a possible genocide.
But Dallaire knew nothing of the precariousness of the Arusha Accords. When he made a preliminary reconnaissance trip to Rwanda, in August of 1993, he was told that the country was committed to peace and that a UN presence was essential. A visit with extremists, who preferred to eradicate Tutsi rather than cede power, was not on Dallaire's itinerary. Remarkably, no UN officials in New York thought to give Dallaire copies of the alarming reports from the international investigators.
The sum total of Dallaire's intelligence data before that first trip to Rwanda consisted of one encyclopedia's summary of Rwandan history, which Major Brent Beardsley, Dallaire's executive assistant, had snatched at the last minute from his local public library. Beardsley says, "We flew to Rwanda with a Michelin road map, a copy of the Arusha agreement, and that was it. We were under the impression that the situation was quite straightforward: there was one cohesive government side and one cohesive rebel side, and they had come together to sign the peace agreement and had then requested that we come in to help them implement it."
Though Dallaire gravely underestimated the tensions brewing in Rwanda, he still felt that he would need a force of 5,000 to help the parties implement the terms of the Arusha Accords. But when his superiors warned him that the United States would never agree to pay for such a large deployment, Dallaire reluctantly trimmed his written request to 2,500. He remembers, "I was told, 'Don't ask for a brigade, because it ain't there.'"
Once he was actually posted to Rwanda, in October of 1993, Dallaire lacked not merely intelligence data and manpower but also institutional support. The small Department of Peacekeeping Operations in New York, run by the Ghanaian diplomat Kofi Annan, now the UN secretary general, was overwhelmed. Madeleine Albright, then the U.S. ambassador to the UN, recalls, "The global nine-one-one was always either busy or nobody was there." At the time of the Rwanda deployment, with a staff of a few hundred, the UN was posting 70,000 peacekeepers on seventeen missions around the world. Amid these widespread crises and logistical headaches the Rwanda mission had a very low status.
Life was not made easier for Dallaire or the UN peacekeeping office by the fact that American patience for peacekeeping was thinning. Congress owed half a billion dollars in UN dues and peacekeeping costs. It had tired of its obligation to foot a third of the bill for what had come to feel like an insatiable global appetite for mischief and an equally insatiable UN appetite for missions. The Clinton Administration had taken office better disposed toward peacekeeping than any other Administration in U.S. history. But it felt that the Department of Peacekeeping Operations needed fixing and demanded that the UN "learn to say no" to chancy or costly missions.
Every aspect of the UN Assistance Mission in Rwanda was run on a shoestring. UNAMIR (the acronym by which it was known) was equipped with hand-me-down vehicles from the UN's Cambodia mission, and only eighty of the 300 that turned up were usable. When the medical supplies ran out, in March of 1994, New York said there was no cash for resupply. Very little could be procured locally, given that Rwanda was one of Africa's poorest nations. Replacement spare parts, batteries, and even ammunition could rarely be found. Dallaire spent some 70 percent of his time battling UN logistics.
Dallaire had major problems with his personnel, as well. He commanded troops, military observers, and civilian personnel from twenty-six countries. Though multinationality is meant to be a virtue of UN missions, the diversity yielded grave discrepancies in resources. Whereas Belgian troops turned up well armed and ready to perform the tasks assigned to them, the poorer contingents showed up "bare-assed," in Dallaire's words, and demanded that the United Nations suit them up. "Since nobody else was offering to send troops, we had to take what we could get," he says. When Dallaire expressed concern, he was instructed by a senior UN official to lower his expectations. He recalls, "I was told, 'Listen, General, you are NATO-trained. This is not NATO.'" Although some 2,500 UNAMIR personnel had arrived by early April of 1994, few of the soldiers had the kit they needed to perform even basic tasks.
The signs of militarization in Rwanda were so widespread that even without much of an intelligence-gathering capacity, Dallaire was able to learn of the extremists' sinister intentions. In January of 1994 an anonymous Hutu informant, said to be high up in the inner circles of the Rwandan government, had come forward to describe the rapid arming and training of local militias. In what is now referred to as the "Dallaire fax," Dallaire relayed to New York the informant's claim that Hutu extremists "had been ordered to register all the Tutsi in Kigali." "He suspects it is for their extermination," Dallaire wrote. "Example he gave was that in 20 minutes his personnel could kill up to 1000 Tutsis." "Jean-Pierre," as the informant became known, had said that the militia planned first to provoke and murder a number of Belgian peacekeepers, to "thus guarantee Belgian withdrawal from Rwanda." When Dallaire notified Kofi Annan's office that UNAMIR was poised to raid Hutu arms caches, Annan's deputy forbade him to do so. Instead Dallaire was instructed to notify the Rwandan President, Juvenile Habyarimana, and the Western ambassadors of the informant's claims. Though Dallaire battled by phone with New York, and confirmed the reliability of the informant, his political masters told him plainly and consistently that the United States in particular would not support aggressive peacekeeping. (A request by the Belgians for reinforcements was also turned down.) In Washington, Dallaire's alarm was discounted. Lieutenant Colonel Tony Marley, the U.S. military liaison to the Arusha process, respected Dallaire but knew he was operating in Africa for the first time. "I thought that the neophyte meant well, but I questioned whether he knew what he was talking about," Marley recalls.
III. The Early Killings
On the evening of April 6, 1994, Romeo Dallaire was sitting on the couch in his bungalow residence in Kigali, watching CNN with Brent Beardsley. Beardsley was preparing plans for a national Sports Day that would match Tutsi rebel soldiers against Hutu government soldiers in a soccer game. Dallaire said, "You know, Brent, if the shit ever hit the fan here, none of this stuff would really matter, would it?" The next instant the phone rang. Rwandan President Habyarimana's Mystère Falcon jet, a gift from French President François Mitterrand, had just been shot down, with Habyarimana and Burundian President Cyprien Ntaryamira aboard. Dallaire and Beardsley raced in their UN jeep to Rwandan army headquarters, where a crisis meeting was under way.
Back in Washington, Kevin Aiston, the Rwanda desk officer, knocked on the door of Deputy Assistant Secretary of State Prudence Bushnell and told her that the Presidents of Rwanda and Burundi had gone down in a plane crash. "Oh, shit," she said. "Are you sure?" In fact nobody was sure at first, but Dallaire's forces supplied confirmation within the hour. The Rwandan authorities quickly announced a curfew, and Hutu militias and government soldiers erected roadblocks around the capital.
Bushnell drafted an urgent memo to Secretary of State Warren Christopher. She was concerned about a probable outbreak of killing in both Rwanda and its neighbor Burundi. The memo read,
If, as it appears, both Presidents have been killed, there is a strong likelihood that widespread violence could break out in either or both countries, particularly if it is confirmed that the plane was shot down. Our strategy is to appeal for calm in both countries, both through public statements and in other ways.
A few public statements proved to be virtually the only strategy that Washington would muster in the weeks ahead.
Lieutenant General Wesley Clark, who later commanded the NATO air war in Kosovo, was the director of strategic plans and policy for the Joint Chiefs of Staff at the Pentagon. On learning of the crash, Clark remembers, staff officers asked, "Is it Hutu and Tutsi or Tutu and Hutsi?" He frantically called for insight into the ethnic dimension of events in Rwanda. Unfortunately, Rwanda had never been of more than marginal concern to Washington's most influential planners.
America's best-informed Rwanda observer was not a government official but a private citizen, Alison Des Forges, a historian and a board member of Human Rights Watch, who lived in Buffalo, New York. Des Forges had been visiting Rwanda since 1963. She had received a Ph.D. from Yale in African history, specializing in Rwanda, and she could speak the Rwandan language, Kinyarwanda. Half an hour after the plane crash Des Forges got a phone call from a close friend in Kigali, the human-rights activist Monique Mujawamariya. Des Forges had been worried about Mujawamariya for weeks, because the Hutu extremist radio station, Radio Mille Collines, had branded her "a bad patriot who deserves to die." Mujawamariya had sent Human Rights Watch a chilling warning a week earlier: "For the last two weeks, all of Kigali has lived under the threat of an instantaneous, carefully prepared operation to eliminate all those who give trouble to President Habyarimana."
Now Habyarimana was dead, and Mujawamariya knew instantly that the hard-line Hutu would use the crash as a pretext to begin mass killing. "This is it," she told Des Forges on the phone. For the next twenty-four hours Des Forges called her friend's home every half hour. With each conversation Des Forges could hear the gunfire grow louder as the militia drew closer. Finally the gunmen entered Mujawamariya's home. "I don't want you to hear this," Mujawamariya said softly. "Take care of my children." She hung up the phone.
Mujawamariya's instincts were correct. Within hours of the plane crash Hutu militiamen took command of the streets of Kigali. Dallaire quickly grasped that supporters of the Arusha peace process were being targeted. His phone at UNAMIR headquarters rang constantly as Rwandans around the capital pleaded for help. Dallaire was especially concerned about Prime Minister Agathe Uwilingiyimana, a reformer who with the President's death had become the titular head of state. Just after dawn on April 7 five Ghanaian and ten Belgian peacekeepers arrived at the Prime Minister's home in order to deliver her to Radio Rwanda, so that she could broadcast an emergency appeal for calm.
Joyce Leader, the second-in-command at the U.S. embassy, lived next door to Uwilingiyimana. She spent the early hours of the morning behind the steel-barred gates of her embassy-owned house as Hutu killers hunted and dispatched their first victims. Leader's phone rang. Uwilingiyimana was on the other end. "Please hide me," she begged.
Minutes after the phone call a UN peacekeeper attempted to hike the Prime Minister over the wall separating their compounds. When Leader heard shots fired, she urged the peacekeeper to abandon the effort. "They can see you!" she shouted. Uwilingiyimana managed to slip with her husband and children into another compound, which was occupied by the UN Development Program. But the militiamen hunted them down in the yard, where the couple surrendered. There were more shots. Leader recalls, "We heard her screaming and then, suddenly, after the gunfire the screaming stopped, and we heard people cheering." Hutu gunmen in the Presidential Guard that day systematically tracked down and eliminated Rwanda's moderate leadership.
The raid on Uwilingiyimana's compound not only cost Rwanda a prominent supporter of the Arusha Accords; it also triggered the collapse of Dallaire's mission. In keeping with the plan to target the Belgians which the informant Jean-Pierre had relayed to UNAMIR in January, Hutu soldiers rounded up the peacekeepers at Uwilingiyimana's home, took them to a military camp, led the Ghanaians to safety, and then killed and savagely mutilated the ten Belgians. In Belgium the cry for either expanding UNAMIR's mandate or immediately withdrawing was prompt and loud.
In response to the initial killings by the Hutu government, Tutsi rebels of the Rwandan Patriotic Front — stationed in Kigali under the terms of the Arusha Accords — surged out of their barracks and resumed their civil war against the Hutu regime. But under the cover of that war were early and strong indications that systematic genocide was taking place. From April 7 onward the Hutu-controlled army, the gendarmerie, and the militias worked together to wipe out Rwanda's Tutsi. Many of the early Tutsi victims found themselves specifically, not spontaneously, pursued: lists of targets had been prepared in advance, and Radio Mille Collines broadcast names, addresses, and even license-plate numbers. Killers often carried a machete in one hand and a transistor radio in the other. Tens of thousands of Tutsi fled their homes in panic and were snared and butchered at checkpoints. Little care was given to their disposal. Some were shoveled into landfills. Human flesh rotted in the sunshine. In churches bodies mingled with scattered hosts. If the killers had taken the time to tend to sanitation, it would have slowed their "sanitization" campaign.
IV. The "Last War"
The two tracks of events in Rwanda — simultaneous war and genocide — confused policymakers who had scant prior understanding of the country. Atrocities are often carried out in places that are not commonly visited, where outside expertise is limited. When country-specific knowledge is lacking, foreign governments become all the more likely to employ faulty analogies and to "fight the last war." The analogy employed by many of those who confronted the outbreak of killing in Rwanda was a peacekeeping intervention that had gone horribly wrong in Somalia.
On October 3, 1993, ten months after President Bush had sent U.S. troops to Somalia as part of what had seemed a low-risk humanitarian mission, U.S. Army Rangers and Delta special forces in Somalia attempted to seize several top advisers to the warlord Mohammed Farah Aideed. Aideed's faction had ambushed and killed two dozen Pakistani peacekeepers, and the United States was striking back. But in the firefight that ensued the Somali militia killed eighteen Americans, wounded seventy-three, and captured one Black Hawk helicopter pilot. Somali television broadcast both a video interview with the trembling, disoriented pilot and a gory procession in which the corpse of a U.S. Ranger was dragged through a Mogadishu street.
On receiving word of these events, President Clinton cut short a trip to California and convened an urgent crisis-management meeting at the White House. When an aide began recapping the situation, an angry President interrupted him. "Cut the bullshit," Clinton snapped. "Let's work this out." "Work it out" meant walk out. Republican Congressional pressure was intense. Clinton appeared on American television the next day, called off the manhunt for Aideed, temporarily reinforced the troop presence, and announced that all U.S. forces would be home within six months. The Pentagon leadership concluded that peacekeeping in Africa meant trouble and that neither the White House nor Congress would stand by it when the chips were down.
Even before the deadly blowup in Somalia the United States had resisted deploying a UN mission to Rwanda. "Anytime you mentioned peacekeeping in Africa," one U.S. official remembers, "the crucifixes and garlic would come up on every door." Having lost much of its early enthusiasm for peacekeeping and for the United Nations itself, Washington was nervous that the Rwanda mission would sour like so many others. But President Habyarimana had traveled to Washington in 1993 to offer assurances that his government was committed to carrying out the terms of the Arusha Accords. In the end, after strenuous lobbying by France (Rwanda's chief diplomatic and military patron), U.S. officials accepted the proposition that UNAMIR could be the rare "UN winner." On October 5, 1993, two days after the Somalia firefight, the United States reluctantly voted in the Security Council to authorize Dallaire's mission. Even so, U.S. officials made it clear that Washington would give no consideration to sending U.S. troops to Rwanda. Somalia and another recent embarrassment in Haiti indicated that multilateral initiatives for humanitarian purposes would likely bring the United States all loss and no gain.
Against this backdrop, and under the leadership of Anthony Lake, the national-security adviser, the Clinton Administration accelerated the development of a formal U.S. peacekeeping doctrine. The job was given to Richard Clarke, of the National Security Council, a special assistant to the President who was known as one of the most effective bureaucrats in Washington. In an interagency process that lasted more than a year, Clarke managed the production of a presidential decision directive, PDD-25, which listed sixteen factors that policymakers needed to consider when deciding whether to support peacekeeping activities: seven factors if the United States was to vote in the UN Security Council on peace operations carried out by non-American soldiers, six additional and more stringent factors if U.S. forces were to participate in UN peacekeeping missions, and three final factors if U.S. troops were likely to engage in actual combat. In the words of Representative David Obey, of Wisconsin, the restrictive checklist tried to satisfy the American desire for "zero degree of involvement, and zero degree of risk, and zero degree of pain and confusion." The architects of the doctrine remain its strongest defenders. "Many say PDD-25 was some evil thing designed to kill peacekeeping, when in fact it was there to save peacekeeping," Clarke says. "Peacekeeping was almost dead. There was no support for it in the U.S. government, and the peacekeepers were not effective in the field." Although the directive was not publicly released until May 3, 1994, a month into the genocide, the considerations encapsulated in the doctrine and the Administration's frustration with peacekeeping greatly influenced the thinking of U.S. officials involved in shaping Rwanda policy.
V. The Peace Processors
Each of the American actors dealing with Rwanda brought particular institutional interests and biases to his or her handling of the crisis. Secretary of State Warren Christopher knew little about Africa. At one meeting with his top advisers, several weeks after the plane crash, he pulled an atlas off his shelf to help him locate the country. Belgian Foreign Minister Willie Claes recalls trying to discuss Rwanda with his American counterpart and being told, "I have other responsibilities." Officials in the State Department's Africa Bureau were, of course, better informed. Prudence Bushnell, the deputy assistant secretary, was one of them. The daughter of a diplomat, Bushnell had joined the foreign service in 1981, at the age of thirty-five. With her agile mind and sharp tongue, she had earned the attention of George Moose when she served under him at the U.S. embassy in Senegal. When Moose was named the assistant secretary of state for African affairs, in 1993, he made Bushnell his deputy. Just two weeks before the plane crash the State Department had dispatched Bushnell and a colleague to Rwanda in an effort to contain the escalating violence and to spur the stalled peace process.
Unfortunately, for all the concern of the Americans familiar with Rwanda, their diplomacy suffered from three weaknesses. First, ahead of the plane crash diplomats had repeatedly threatened to pull out UN peacekeepers in retaliation for the parties' failure to implement Arusha. These threats were of course counterproductive, because the very Hutu who opposed power-sharing wanted nothing more than a UN withdrawal. One senior U.S. official remembers, "The first response to trouble is 'Let's yank the peacekeepers.' But that is like believing that when children are misbehaving, the proper response is 'Let's send the baby-sitter home.'"
Second, before and during the massacres U.S. diplomacy revealed its natural bias toward states and toward negotiations. Because most official contact occurs between representatives of states, U.S. officials were predisposed to trust the assurances of Rwandan officials, several of whom were plotting genocide behind the scenes. Those in the U.S. government who knew Rwanda best viewed the escalating violence with a diplomatic prejudice that left them both institutionally oriented toward the Rwandan government and reluctant to do anything to disrupt the peace process. An examination of the cable traffic from the U.S. embassy in Kigali to Washington between the signing of the Arusha agreement and the downing of the presidential plane reveals that setbacks were perceived as "dangers to the peace process" more than as "dangers to Rwandans." American criticisms were deliberately and steadfastly leveled at "both sides," though Hutu government and militia forces were usually responsible.
The U.S. ambassador in Kigali, David Rawson, proved especially vulnerable to such bias. Rawson had grown up in Burundi, where his father, an American missionary, had set up a Quaker hospital. He entered the foreign service in 1971. When, in 1993, at age fifty-two, he was given the embassy in Rwanda, his first, he could not have been more intimate with the region, the culture, or the peril. He spoke the local language — almost unprecedented for an ambassador in Central Africa. But Rawson found it difficult to imagine the Rwandans who surrounded the President as conspirators in genocide. He issued pro forma demarches over Habyarimana's obstruction of power-sharing, but the cable traffic shows that he accepted the President's assurances that he was doing all he could. The U.S. investment in the peace process gave rise to a wishful tendency to see peace "around the corner." Rawson remembers, "We were naive policy optimists, I suppose. The fact that negotiations can't work is almost not one of the options open to people who care about peace. We were looking for the hopeful signs, not the dark signs. In fact, we were looking away from the dark signs … One of the things I learned and should have already known is that once you launch a process, it takes on its own momentum. I had said, 'Let's try this, and then if it doesn't work, we can back away.' But bureaucracies don't allow that. Once the Washington side buys into a process, it gets pursued, almost blindly." Even after the Hutu government began exterminating Tutsi, U.S. diplomats focused most of their efforts on "re-establishing a cease-fire" and "getting Arusha back on track."
The third problematic feature of U.S. diplomacy before and during the genocide was a tendency toward blindness bred by familiarity: the few people in Washington who were paying attention to Rwanda before Habyarimana's plane was shot down were those who had been tracking Rwanda for some time and had thus come to expect a certain level of ethnic violence from the region. And because the U.S. government had done little when some 40,000 people had been killed in Hutu-Tutsi violence in Burundi in October of 1993, these officials also knew that Washington was prepared to tolerate substantial bloodshed. When the massacres began in April, some U.S. regional specialists initially suspected that Rwanda was undergoing "another flare-up" that would involve another "acceptable" (if tragic) round of ethnic murder.
Rawson had read up on genocide before his posting to Rwanda, surveying what had become a relatively extensive scholarly literature on its causes. But although he expected internecine killing, he did not anticipate the scale at which it occurred. "Nothing in Rwandan culture or history could have led a person to that forecast," he says. "Most of us thought that if a war broke out, it would be quick, that these poor people didn't have the resources, the means, to fight a sophisticated war. I couldn't have known that they would do each other in with the most economic means." George Moose agrees: "We were psychologically and imaginatively too limited."
VI. Foreigners First
David Rawson was sitting with his wife in their residence watching a taped broadcast of The MacNeil/Lehrer NewsHour when he heard the back-to-back explosions that signaled the destruction of President Habyarimana's plane. As the American ambassador, he was concerned primarily for American citizens, who, he feared, could be killed or injured in any outbreak of fighting. The United States made the decision to withdraw its personnel and nationals on April 7. Penned into his house, Rawson did not feel that his presence was of any use. Looking back, he says, "Did we have a moral responsibility to stay there? Would it have made a difference? I don't know, but the killings were taking place in broad daylight while we were there. I didn't feel that we were achieving much."
Still, about 300 Rwandans from the neighborhood had gathered at Rawson's residence seeking refuge, and when the Americans cleared out, the local people were left to their fates. Rawson recalls, "I told the people who were there that we were leaving and the flag was coming down, and they would have to make their own choice about what to do … Nobody really asked us to take them with us." Rawson says he could not help even those who worked closest to him. His chief steward, who served dinner and washed dishes at the house, called the ambassador from his home and pleaded, "We're in terrible danger. Please come and get us." Rawson says, "I had to tell him, 'We can't move. We can't come.'" The steward and his wife were killed.
Assistant Secretary Moose was away from Washington, so Prudence Bushnell, the acting assistant secretary, was made the director of the task force that managed the Rwanda evacuation. Her focus, like Rawson's, was on the fate of U.S. citizens. "I felt very strongly that my first obligation was to the Americans," she recalls. "I was sorry about the Rwandans, of course, but my job was to get our folks out … Then again, people didn't know that it was a genocide. What I was told was 'Look, Pru, these people do this from time to time.' We thought we'd be right back."
At a State Department press conference on April 8 Bushnell made an appearance and spoke gravely about the mounting violence in Rwanda and the status of Americans there. After she left the podium, Michael McCurry, the department spokesman, took her place and criticized foreign governments for preventing the screening of the Steven Spielberg film Schindler's List. "This film movingly portrays … the twentieth century's most horrible catastrophe," he said. "And it shows that even in the midst of genocide, one individual can make a difference." No one made any connection between Bushnell's remarks and McCurry's. Neither journalists nor officials in the United States were focused on the Tutsi.
On April 9 and 10, in five different convoys, Ambassador Rawson and 250 Americans were evacuated from Kigali and other points. "When we left, the cars were stopped and searched," Rawson says. "It would have been impossible to get Tutsi through." All told, thirty-five local employees of the embassy were killed in the genocide.
Warren Christopher appeared on the NBC news program Meet the Press the morning the evacuation was completed. "In the great tradition, the ambassador was in the last car," Christopher said proudly. "So that evacuation has gone very well." Christopher stressed that although U.S. Marines had been dispatched to Burundi, there were no plans to send them into Rwanda to restore order: they were in the region as a safety net, in case they were needed to assist in the evacuation. "It's always a sad moment when the Americans have to leave," he said, "but it was the prudent thing to do." The Republican Senate minority leader, Bob Dole, a spirited defender of Bosnia's besieged Muslims at the time, agreed. "I don't think we have any national interest there," Dole said on April 10. "The Americans are out, and as far as I'm concerned, in Rwanda, that ought to be the end of it."
Dallaire, too, had been ordered to make the evacuation of foreigners his priority. The UN Department of Peacekeeping Operations, which had rejected the field commander's proposed raid on arms caches in January, sent an explicit cable: "You should make every effort not to compromise your impartiality or to act beyond your mandate, but [you] may exercise your discretion to do [so] should this be essential for the evacuation of foreign nationals. This should not, repeat not, extend to participating in possible combat except in self-defense." Neutrality was essential. Avoiding combat was paramount, but Dallaire could make an exception for non-Rwandans.
While the United States evacuated overland without an American military escort, the Europeans sent troops to Rwanda so that their personnel could exit by air. On April 9 Dallaire watched covetously as just over a thousand French, Belgian, and Italian soldiers descended on Kigali Airport to begin evacuating their expatriates. These commandos were clean-shaven, well fed, and heavily armed, in marked contrast to Dallaire's exhausted, hungry, ragtag peacekeeping force. Within three days of the plane crash estimates of the number of dead in the capital already exceeded 10,000.
If the soldiers ferried in for the evacuation had teamed up with UNAMIR, Dallaire would have had a sizable deterrent force. At that point he commanded 440 Belgians, 942 Bangladeshis, 843 Ghanaians, 60 Tunisians, and 255 others from twenty countries. He could also call on a reserve of 800 Belgians in Nairobi. If the major powers had reconfigured the thousand-man European evacuation force and the U.S. Marines on standby in Burundi — who numbered 300 — and contributed them to his mission, he would finally have had the numbers on his side. "Mass slaughter was happening, and suddenly there in Kigali we had the forces we needed to contain it, and maybe even to stop it," he recalls. "Yet they picked up their people and turned and walked away."
The consequences of the exclusive attention to foreigners were felt immediately. In the days after the plane crash some 2,000 Rwandans, including 400 children, had grouped at the Ecole Technique Officielle, under the protection of about ninety Belgian soldiers. Many of them were already suffering from machete wounds. They gathered in the classrooms and on the playing field outside the school. Rwandan government and militia forces lay in wait nearby, drinking beer and chanting, "Pawa, pawa," for "Hutu power." On April 11 the Belgians were ordered to regroup at the airport to aid the evacuation of European civilians. Knowing they were trapped, several Rwandans pursued the jeeps, shouting, "Do not abandon us!" The UN soldiers shooed them away from their vehicles and fired warning shots over their heads. When the peacekeepers had gone out through one gate, Hutu militiamen entered through another, firing machine guns and throwing grenades. Most of the 2,000 gathered there were killed.
In the three days during which some 4,000 foreigners were evacuated, about 20,000 Rwandans were killed. After the American evacuees were safely out and the U.S. embassy had been closed, Bill and Hillary Clinton visited the people who had manned the emergency-operations room at the State Department and offered congratulations on a "job well done."
VII. Genocide? What Genocide?
Just when did Washington know of the sinister Hutu designs on Rwanda's Tutsi? Writing in Foreign Affairs last year, Alan Kuperman argued that President Clinton "could not have known that a nationwide genocide was under way" until about two weeks into the killing. It is true that the precise nature and extent of the slaughter was obscured by the civil war, the withdrawal of U.S. diplomatic sources, some confused press reporting, and the lies of the Rwandan government. Nonetheless, both the testimony of U.S. officials who worked the issue day to day and the declassified documents indicate that plenty was known about the killers' intentions.
A determination of genocide turns not on the numbers killed, which is always difficult to ascertain at a time of crisis, but on the perpetrators' intent: Were Hutu forces attempting to destroy Rwanda's Tutsi? The answer to this question was available early on. "By eight A.M. the morning after the plane crash we knew what was happening, that there was systematic killing of Tutsi," Joyce Leader recalls. "People were calling me and telling me who was getting killed. I knew they were going door to door." Back at the State Department she explained to her colleagues that three kinds of killing were going on: war, politically motivated murder, and genocide. Dallaire's early cables to New York likewise described the armed conflict that had resumed between rebels and government forces, and also stated plainly that savage "ethnic cleansing" of Tutsi was occurring. U.S. analysts warned that mass killings would increase. In an April 11 memo prepared for Frank Wisner, the undersecretary of defense for policy, in advance of a dinner with Henry Kissinger, a key talking point was "Unless both sides can be convinced to return to the peace process, a massive (hundreds of thousands of deaths) bloodbath will ensue."
Whatever the inevitable imperfections of U.S. intelligence early on, the reports from Rwanda were severe enough to distinguish Hutu killers from ordinary combatants in civil war. And they certainly warranted directing additional U.S. intelligence assets toward the region — to snap satellite photos of large gatherings of Rwandan civilians or of mass graves, to intercept military communications, or to infiltrate the country in person. Though there is no evidence that senior policymakers deployed such assets, routine intelligence continued to pour in. On April 26 an unattributed intelligence memo titled "Responsibility for Massacres in Rwanda" reported that the ringleaders of the genocide, Colonel Théoneste Bagosora and his crisis committee, were determined to liquidate their opposition and exterminate the Tutsi populace. A May 9 Defense Intelligence Agency report stated plainly that the Rwandan violence was not spontaneous but was directed by the government, with lists of victims prepared well in advance. The DIA observed that an "organized parallel effort of genocide [was] being implemented by the army to destroy the leadership of the Tutsi community."
From April 8 onward media coverage featured eyewitness accounts describing the widespread targeting of Tutsi and the corpses piling up on Kigali's streets. American reporters relayed stories of missionaries and embassy officials who had been unable to save their Rwandan friends and neighbors from death. On April 9 a front-page Washington Post story quoted reports that the Rwandan employees of the major international relief agencies had been executed "in front of horrified expatriate staffers." On April 10 a New York Times front-page article quoted the Red Cross claim that "tens of thousands" were dead, 8,000 in Kigali alone, and that corpses were "in the houses, in the streets, everywhere." The Post the same day led its front-page story with a description of "a pile of corpses six feet high" outside the main hospital. On April 14 The New York Times reported the shooting and hacking to death of nearly 1,200 men, women, and children in the church where they had sought refuge. On April 19 Human Rights Watch, which had excellent sources on the ground in Rwanda, estimated the number of dead at 100,000 and called for use of the term "genocide." The 100,000 figure (which proved to be a gross underestimate) was picked up immediately by the Western media, endorsed by the Red Cross, and featured on the front page of The Washington Post. On April 24 the Post reported how "the heads and limbs of victims were sorted and piled neatly, a bone-chilling order in the midst of chaos that harked back to the Holocaust." President Clinton certainly could have known that a genocide was under way, if he had wanted to know.
Even after the reality of genocide in Rwanda had become irrefutable, when bodies were shown choking the Kagera River on the nightly news, the brute fact of the slaughter failed to influence U.S. policy except in a negative way. American officials, for a variety of reasons, shunned the use of what became known as "the g-word." They felt that using it would have obliged the United States to act, under the terms of the 1948 Genocide Convention. They also believed, understandably, that it would harm U.S. credibility to name the crime and then do nothing to stop it. A discussion paper on Rwanda, prepared by an official in the Office of the Secretary of Defense and dated May 1, testifies to the nature of official thinking. Regarding issues that might be brought up at the next interagency working group, it stated,
1. Genocide Investigation: Language that calls for an international investigation of human rights abuses and possible violations of the genocide convention. Be Careful. Legal at State was worried about this yesterday — Genocide finding could commit [the U.S. government] to actually "do something." [Emphasis added.]
At an interagency teleconference in late April, Susan Rice, a rising star on the NSC who worked under Richard Clarke, stunned a few of the officials present when she asked, "If we use the word 'genocide' and are seen as doing nothing, what will be the effect on the November [congressional] election?" Lieutenant Colonel Tony Marley remembers the incredulity of his colleagues at the State Department. "We could believe that people would wonder that," he says, "but not that they would actually voice it." Rice does not recall the incident but concedes, "If I said it, it was completely inappropriate, as well as irrelevant."
The genocide debate in U.S. government circles began the last week of April, but it was not until May 21, six weeks after the killing began, that Secretary Christopher gave his diplomats permission to use the term "genocide" — sort of. The UN Human Rights Commission was about to meet in special session, and the U.S. representative, Geraldine Ferraro, needed guidance on whether to join a resolution stating that genocide had occurred. The stubborn U.S. stand had become untenable internationally.
The case for a label of genocide was straightforward, according to a May 18 confidential analysis prepared by the State Department's assistant secretary for intelligence and research, Toby Gati: lists of Tutsi victims' names and addresses had reportedly been prepared; Rwandan government troops and Hutu militia and youth squads were the main perpetrators; massacres were reported all over the country; humanitarian agencies were now "claiming from 200,000 to 500,000 lives" lost. Gati offered the intelligence bureau's view: "We believe 500,000 may be an exaggerated estimate, but no accurate figures are available. Systematic killings began within hours of Habyarimana's death. Most of those killed have been Tutsi civilians, including women and children." The terms of the Genocide Convention had been met. "We weren't quibbling about these numbers," Gati says. "We can never know precise figures, but our analysts had been reporting huge numbers of deaths for weeks. We were basically saying, 'A rose by any other name …'"
Despite this straightforward assessment, Christopher remained reluctant to speak the obvious truth. When he issued his guidance, on May 21, fully a month after Human Rights Watch had put a name to the tragedy, Christopher's instructions were hopelessly muddied.
The delegation is authorized to agree to a resolution that states that "acts of genocide" have occurred in Rwanda or that "genocide has occurred in Rwanda." Other formulations that suggest that some, but not all of the killings in Rwanda are genocide … e.g. "genocide is taking place in Rwanda" — are authorized. Delegation is not authorized to agree to the characterization of any specific incident as genocide or to agree to any formulation that indicates that all killings in Rwanda are genocide.
Notably, Christopher confined permission to acknowledge full-fledged genocide to the upcoming session of the Human Rights Commission. Outside that venue State Department officials were authorized to state publicly only that acts of genocide had occurred.
Christine Shelly, a State Department spokesperson, had long been charged with publicly articulating the U.S. position on whether events in Rwanda counted as genocide. For two months she had avoided the term, and as her June 10 exchange with the Reuters correspondent Alan Elsner reveals, her semantic dance continued.
Elsner: How would you describe the events taking place in Rwanda?
Shelly: Based on the evidence we have seen from observations on the ground, we have every reason to believe that acts of genocide have occurred in Rwanda.
Elsner: What's the difference between "acts of genocide" and "genocide"?
Shelly: Well, I think the — as you know, there's a legal definition of this … clearly not all of the killings that have taken place in Rwanda are killings to which you might apply that label … But as to the distinctions between the words, we're trying to call what we have seen so far as best as we can; and based, again, on the evidence, we have every reason to believe that acts of genocide have occurred.
Elsner: How many acts of genocide does it take to make genocide?
Shelly: Alan, that's just not a question that I'm in a position to answer.
The same day, in Istanbul, Warren Christopher, by then under severe internal and external pressure, relented: "If there is any particular magic in calling it genocide, I have no hesitancy in saying that."
VIII. "Not Even a Sideshow"
Once the Americans had been evacuated, Rwanda largely dropped off the radar of most senior Clinton Administration officials. In the situation room on the seventh floor of the State Department a map of Rwanda had been hurriedly pinned to the wall in the aftermath of the plane crash, and eight banks of phones had rung off the hook. Now, with U.S. citizens safely home, the State Department chaired a daily interagency meeting, often by teleconference, designed to coordinate mid-level diplomatic and humanitarian responses. Cabinet-level officials focused on crises elsewhere. Anthony Lake recalls, "I was obsessed with Haiti and Bosnia during that period, so Rwanda was, in William Shawcross's words, a 'sideshow,' but not even a sideshow — a no-show." At the NSC the person who managed Rwanda policy was not Lake, the national-security adviser, who happened to know Africa, but Richard Clarke, who oversaw peacekeeping policy, and for whom the news from Rwanda only confirmed a deep skepticism about the viability of UN deployments. Clarke believed that another UN failure could doom relations between Congress and the United Nations. He also sought to shield the President from congressional and public criticism. Donald Steinberg managed the Africa portfolio at the NSC and tried to look out for the dying Rwandans, but he was not an experienced infighter and, colleagues say, he "never won a single argument" with Clarke.
The Americans who wanted the United States to do the most were those who knew Rwanda best. Joyce Leader, Rawson's deputy in Rwanda, had been the one to close and lock the doors to the U.S. embassy. When she returned to Washington, she was given a small room in a back office and told to prepare the State Department's daily Rwanda summaries, drawing on press and U.S. intelligence reports. Incredibly, despite her expertise and her contacts in Rwanda, she was rarely consulted and was instructed not to deal directly with her sources in Kigali. Once, an NSC staffer did call to ask, "Short of sending in the troops, what is to be done?" Leader's response, unwelcome, was "Send in the troops." Throughout the U.S. government Africa specialists had the least clout of all regional specialists and the smallest chance of effecting policy outcomes. In contrast, those with the most pull in the bureaucracy had never visited Rwanda or met any Rwandans. They spoke analytically of "national interests" or even "humanitarian consequences" without appearing gripped by the unfolding human tragedy. The dearth of country or regional expertise in the senior circles of government not only reduces the capacity of officers to assess the "news." It also increases the likelihood — a dynamic identified by Lake in his 1971 Foreign Policy article — that killings will become abstractions. "Ethnic bloodshed" in Africa was thought to be regrettable but not particularly unusual.
As it happened, when the crisis began, President Clinton himself had a coincidental and personal connection with the country. At a coffee at the White House in December of 1993 Clinton had met Monique Mujawamariya, the Rwandan human-rights activist. He had been struck by the courage of a woman who still bore facial scars from an automobile accident that had been arranged to curb her activities. Clinton had singled her out, saying, "Your courage is an inspiration to all of us." On April 8, two days after the onset of the killing, The Washington Post published a letter that Alison Des Forges had sent to Human Rights Watch after Mujawamariya had hung up the phone to face her fate. "I believe Monique was killed at 6:30 this morning," Des Forges had written. "I have virtually no hope that she is still alive, but will continue to try for more information. In the meantime … please inform everyone who will care." Word of Mujawamariya's disappearance got the President's attention, and he inquired about her whereabouts repeatedly. "I can't tell you how much time we spent trying to find Monique," one U.S. official remembers. "Sometimes it felt as though she was the only Rwandan in danger." Miraculously, Mujawamariya had not been killed — she had hidden in the rafters of her home after hanging up with Des Forges, and eventually managed to talk and bribe her way to safety. She was evacuated to Belgium, and on April 18 she joined Des Forges in the United States, where the pair began lobbying the Clinton Administration on behalf of those left behind. With Mujawamariya's rescue, reported in detail in the Post and The New York Times, the President apparently lost his personal interest in events in Rwanda.
During the entire three months of the genocide Clinton never assembled his top policy advisers to discuss the killings. Anthony Lake likewise never gathered the "principals" — the Cabinet-level members of the foreign-policy team. Rwanda was never thought to warrant its own top-level meeting. When the subject came up, it did so along with, and subordinate to, discussions of Somalia, Haiti, and Bosnia. Whereas these crises involved U.S. personnel and stirred some public interest, Rwanda generated no sense of urgency and could safely be avoided by Clinton at no political cost. The editorial boards of the major American newspapers discouraged U.S. intervention during the genocide. They, like the Administration, lamented the killings but believed, in the words of an April 17 Washington Post editorial, "The United States has no recognizable national interest in taking a role, certainly not a leading role." Capitol Hill was quiet. Some in Congress were glad to be free of the expense of another flawed UN mission. Others, including a few members of the Africa subcommittees and the Congressional Black Caucus, eventually appealed tamely for the United States to play a role in ending the violence — but again, they did not dare urge U.S. involvement on the ground, and they did not kick up a public fuss. Members of Congress weren't hearing from their constituents. Pat Schroeder, of Colorado, said on April 30, "There are some groups terribly concerned about the gorillas … But — it sounds terrible — people just don't know what can be done about the people." Randall Robinson, of the nongovernmental organization TransAfrica, was preoccupied, staging a hunger strike to protest the U.S. repatriation of Haitian refugees. Human Rights Watch supplied exemplary intelligence and established important one-on-one contacts in the Administration, but the organization lacks a grassroots base from which to mobilize a broader segment of American society.
IX. The UN Withdrawal
When the killing began, Romeo Dallaire expected and appealed for reinforcements. Within hours of the plane crash he had cabled UN headquarters in New York: "Give me the means and I can do more." He was sending peacekeepers on rescue missions around the city, and he felt it was essential to increase the size and improve the quality of the UN's presence. But the United States opposed the idea of sending reinforcements, no matter where they were from. The fear, articulated mainly at the Pentagon but felt throughout the bureaucracy, was that what would start as a small engagement by foreign troops would end as a large and costly one by Americans. This was the lesson of Somalia, where U.S. troops had gotten into trouble in an effort to bail out the beleaguered Pakistanis. The logical outgrowth of this fear was an effort to steer clear of Rwanda entirely and be sure others did the same. Only by yanking Dallaire's entire peacekeeping force could the United States protect itself from involvement down the road.
One senior U.S. official remembers, "When the reports of the deaths of the ten Belgians came in, it was clear that it was Somalia redux, and the sense was that there would be an expectation everywhere that the U.S. would get involved. We thought leaving the peacekeepers in Rwanda and having them confront the violence would take us where we'd been before. It was a foregone conclusion that the United States wouldn't intervene and that the concept of UN peacekeeping could not be sacrificed again."
A foregone conclusion. What is most remarkable about the American response to the Rwandan genocide is not so much the absence of U.S. military action as that during the entire genocide the possibility of U.S. military intervention was never even debated. Indeed, the United States resisted intervention of any kind.
The bodies of the slain Belgian soldiers were returned to Brussels on April 14. One of the pivotal conversations in the course of the genocide took place around that time, when Willie Claes, the Belgian Foreign Minister, called the State Department to request "cover." "We are pulling out, but we don't want to be seen to be doing it alone," Claes said, asking the Americans to support a full UN withdrawal. Dallaire had not anticipated that Belgium would extract its soldiers, removing the backbone of his mission and stranding Rwandans in their hour of greatest need. "I expected the ex-colonial white countries would stick it out even if they took casualties," he remembers. "I thought their pride would have led them to stay to try to sort the place out. The Belgian decision caught me totally off guard. I was truly stunned."
Belgium did not want to leave ignominiously, by itself. Warren Christopher agreed to back Belgian requests for a full UN exit. Policy over the next month or so can be described simply: no U.S. military intervention, robust demands for a withdrawal of all of Dallaire's forces, and no support for a new UN mission that would challenge the killers. Belgium had the cover it needed.
On April 15 Christopher sent one of the most forceful documents to be produced in the entire three months of the genocide to Madeleine Albright at the UN — a cable instructing her to demand a full UN withdrawal. The cable, which was heavily influenced by Richard Clarke at the NSC, and which bypassed Donald Steinberg and was never seen by Anthony Lake, was unequivocal about the next steps. Saying that he had "fully" taken into account the "humanitarian reasons put forth for retention of UNAMIR elements in Rwanda," Christopher wrote that there was "insufficient justification" to retain a UN presence.
The international community must give highest priority to full, orderly withdrawal of all UNAMIR personnel as soon as possible … We will oppose any effort at this time to preserve a UNAMIR presence in Rwanda … Our opposition to retaining a UNAMIR presence in Rwanda is firm. It is based on our conviction that the Security Council has an obligation to ensure that peacekeeping operations are viable, that they are capable of fulfilling their mandates, and that UN peacekeeping personnel are not placed or retained, knowingly, in an untenable situation.
"Once we knew the Belgians were leaving, we were left with a rump mission incapable of doing anything to help people," Clarke remembers. "They were doing nothing to stop the killings."
But Clarke underestimated the deterrent effect that Dallaire's very few peacekeepers were having. Although some soldiers hunkered down, terrified, others scoured Kigali, rescuing Tutsi, and later established defensive positions in the city, opening their doors to the fortunate Tutsi who made it through roadblocks to reach them. One Senegalese captain saved a hundred or so lives single-handedly. Some 25,000 Rwandans eventually assembled at positions manned by UNAMIR personnel. The Hutu were generally reluctant to massacre large groups of Tutsi if foreigners (armed or unarmed) were present. It did not take many UN soldiers to dissuade the Hutu from attacking. At the Hotel des Mille Collines ten peacekeepers and four UN military observers helped to protect the several hundred civilians sheltered there for the duration of the crisis. About 10,000 Rwandans gathered at the Amohoro Stadium under light UN cover. Brent Beardsley, Dallaire's executive assistant, remembers, "If there was any determined resistance at close quarters, the government guys tended to back off." Kevin Aiston, the Rwanda desk officer at the State Department, was keeping track of Rwandan civilians under UN protection. When Prudence Bushnell told him of the U.S. decision to demand a UNAMIR withdrawal, he turned pale. "We can't," he said. Bushnell replied, "The train has already left the station."
On April 19 the Belgian Colonel Luc Marchal delivered his final salute and departed with the last of his soldiers. The Belgian withdrawal reduced Dallaire's troop strength to 2,100. More crucially, he lost his best troops. Command and control among Dallaire's remaining forces became tenuous. Dallaire soon lost every line of communication to the countryside. He had only a single satellite phone link to the outside world.
The UN Security Council now made a decision that sealed the Tutsi's fate and signaled the militia that it would have free rein. The U.S. demand for a full UN withdrawal had been opposed by some African nations, and even by Madeleine Albright; so the United States lobbied instead for a dramatic drawdown in troop strength. On April 21, amid press reports of some 100,000 dead in Rwanda, the Security Council voted to slash UNAMIR's forces to 270 men. Albright went along, publicly declaring that a "small, skeletal" operation would be left in Kigali to "show the will of the international community."
After the UN vote Clarke sent a memorandum to Lake reporting that language about "the safety and security of Rwandans under UN protection had been inserted by US/UN at the end of the day to prevent an otherwise unanimous UNSC from walking away from the at-risk Rwandans under UN protection as the peacekeepers drew down to 270." In other words, the memorandum suggested that the United States was leading efforts to ensure that the Rwandans under UN protection were not abandoned. The opposite was true.
Most of Dallaire's troops were evacuated by April 25. Though he was supposed to reduce the size of his force to 270, he ended up keeping 503 peacekeepers. By this time Dallaire was trying to deal with a bloody frenzy. "My force was standing knee-deep in mutilated bodies, surrounded by the guttural moans of dying people, looking into the eyes of children bleeding to death with their wounds burning in the sun and being invaded by maggots and flies," he later wrote. "I found myself walking through villages where the only sign of life was a goat, or a chicken, or a songbird, as all the people were dead, their bodies being eaten by voracious packs of wild dogs."
Dallaire had to work within narrow limits. He attempted simply to keep the positions he held and to protect the 25,000 Rwandans under UN supervision while hoping that the member states on the Security Council would change their minds and send him some help while it still mattered.
By coincidence Rwanda held one of the rotating seats on the Security Council at the time of the genocide. Neither the United States nor any other UN member state ever suggested that the representative of the genocidal government be expelled from the council. Nor did any Security Council country offer to provide safe haven to Rwandan refugees who escaped the carnage. In one instance Dallaire's forces succeeded in evacuating a group of Rwandans by plane to Kenya. The Nairobi authorities allowed the plane to land, sequestered it in a hangar, and, echoing the American decision to turn back the S.S. St. Louis during the Holocaust, then forced the plane to return to Rwanda. The fate of the passengers is unknown.
Throughout this period the Clinton Administration was largely silent. The closest it came to a public denunciation of the Rwandan government occurred after personal lobbying by Human Rights Watch, when Anthony Lake issued a statement calling on Rwandan military leaders by name to "do everything in their power to end the violence immediately." When I spoke with Lake six years later, and informed him that human-rights groups and U.S. officials point to this statement as the sum total of official public attempts to shame the Rwandan government in this period, he seemed stunned. "You're kidding," he said. "That's truly pathetic."
At the State Department the diplomacy was conducted privately, by telephone. Prudence Bushnell regularly set her alarm for 2:00 A.M. and phoned Rwandan government officials. She spoke several times with Augustin Bizimungu, the Rwandan military chief of staff. "These were the most bizarre phone calls," she says. "He spoke in perfectly charming French. 'Oh, it's so nice to hear from you,' he said. I told him, 'I am calling to tell you President Clinton is going to hold you accountable for the killings.' He said, 'Oh, how nice it is that your President is thinking of me.'"
X. The Pentagon "Chop"
The daily meeting of the Rwanda interagency working group was attended, either in person or by teleconference, by representatives from the various State Department bureaus, the Pentagon, the National Security Council, and the intelligence community. Any proposal that originated in the working group had to survive the Pentagon "chop." "Hard intervention," meaning U.S. military action, was obviously out of the question. But Pentagon officials routinely stymied initiatives for "soft intervention" as well.
The Pentagon discussion paper on Rwanda, referred to earlier, ran down a list of the working group's six short-term policy objectives and carped at most of them. The fear of a slippery slope was persuasive. Next to the seemingly innocuous suggestion that the United States "support the UN and others in attempts to achieve a cease-fire" the Pentagon official responded, "Need to change 'attempts' to 'political efforts' — without 'political' there is a danger of signing up to troop contributions."
The one policy move the Defense Department supported was a U.S. effort to achieve an arms embargo. But the same discussion paper acknowledged the ineffectiveness of this step: "We do not envision it will have a significant impact on the killings because machetes, knives and other hand implements have been the most common weapons."
Dallaire never spoke to Bushnell or to Tony Marley, the U.S. military liaison to the Arusha process, during the genocide, but they all reached the same conclusions. Seeing that no troops were forthcoming, they turned their attention to measures short of full-scale deployment which might alleviate the suffering. Dallaire pleaded with New York, and Bushnell and her team recommended in Washington, that something be done to "neutralize" Radio Mille Collines.
The country best equipped to prevent the genocide planners from broadcasting murderous instructions directly to the population was the United States. Marley offered three possibilities. The United States could destroy the antenna. It could transmit "counter-broadcasts" urging perpetrators to stop the genocide. Or it could jam the hate radio station's broadcasts. This could have been done from an airborne platform such as the Air Force's Commando Solo airplane. Anthony Lake raised the matter with Secretary of Defense William Perry at the end of April. Pentagon officials considered all the proposals non-starters. On May 5 Frank Wisner, the undersecretary of defense for policy, prepared a memo for Sandy Berger, then the deputy national-security adviser. Wisner's memo testifies to the unwillingness of the U.S. government to make even financial sacrifices to diminish the killing.
We have looked at options to stop the broadcasts within the Pentagon, discussed them interagency and concluded jamming is an ineffective and expensive mechanism that will not accomplish the objective the NSC Advisor seeks.
International legal conventions complicate airborne or ground based jamming and the mountainous terrain reduces the effectiveness of either option. Commando Solo, an Air National Guard asset, is the only suitable DOD jamming platform. It costs approximately $8500 per flight hour and requires a semi-secure area of operations due to its vulnerability and limited self-protection.
I believe it would be wiser to use air to assist in Rwanda in the [food] relief effort …
The plane would have needed to remain in Rwandan airspace while it waited for radio transmissions to begin. "First we would have had to figure out whether it made sense to use Commando Solo," Wisner recalls. "Then we had to get it from where it was already and be sure it could be moved. Then we would have needed flight clearance from all the countries nearby. And then we would need the political go-ahead. By the time we got all this, weeks would have passed. And it was not going to solve the fundamental problem, which was one that needed to be addressed militarily." Pentagon planners understood that stopping the genocide required a military solution. Neither they nor the White House wanted any part in a military solution. Yet instead of undertaking other forms of intervention that might have at least saved some lives, they justified inaction by arguing that a military solution was required.
Whatever the limitations of radio jamming, which clearly would have been no panacea, most of the delays Wisner cites could have been avoided if senior Administration officials had followed through. But Rwanda was not their problem. Instead justifications for standing by abounded. In early May the State Department Legal Advisor's Office issued a finding against radio jamming, citing international broadcasting agreements and the American commitment to free speech. When Bushnell raised radio jamming yet again at a meeting, one Pentagon official chided her for naiveté: "Pru, radios don't kill people. People kill people!"
The Defense Department was disdainful both of the policy ideas being circulated at the working-group meetings and, memos indicate, of the people circulating them. A memo by one Defense Department aide observed that the State Department's Africa bureau had received a phone call from a Kigali hotel owner who said that his hotel and the civilians inside were about to be attacked. The memo snidely reported that the Africa bureau's proposed "solution" was "Pru Bushnell will call the [Rwandan] military and tell them we will hold them personally responsible if anything happens (!)." (In fact the hotel owner, who survived the genocide, later acknowledged that phone calls from Washington played a key role in dissuading the killers from massacring the inhabitants of the hotel.)
However significant and obstructionist the role of the Pentagon in April and May, Defense Department officials were stepping into a vacuum. As one U.S. official put it, "Look, nobody senior was paying any attention to this mess. And in the absence of any political leadership from the top, when you have one group that feels pretty strongly about what shouldn't be done, it is extremely likely they are going to end up shaping U.S. policy." Lieutenant General Wesley Clark looked to the White House for leadership. "The Pentagon is always going to be the last to want to intervene," he says. "It is up to the civilians to tell us they want to do something and we'll figure out how to do it."
But with no powerful personalities or high-ranking officials arguing forcefully for meaningful action, mid-level Pentagon officials held sway, vetoing or stalling on hesitant proposals put forward by mid-level State Department or NSC officials. If Pentagon objections were to be overcome, the President, Secretary Christopher, Secretary Perry, or Anthony Lake would have to step forward to "own" the problem, which did not happen.
The deck was stacked against Rwandans who were hiding wherever they could and praying for rescue. The American public expressed no interest in Rwanda, and the crisis was treated as a civil war requiring a cease-fire or as a "peacekeeping problem" requiring a UN withdrawal. It was not treated as a genocide demanding instant action. The top policymakers trusted that their subordinates were doing all they could do, while the subordinates worked with an extremely narrow understanding of what the United States would do.
XI. PDD-25 in Action
No sooner had most of Dallaire's forces been withdrawn, in late April, than a handful of nonpermanent members of the Security Council, aghast at the scale of the slaughter, pressed the major powers to send a new, beefed-up force (UNAMIR II) to Rwanda.
When Dallaire's troops had first arrived, in the fall of 1993, they had done so under a fairly traditional peacekeeping mandate known as a Chapter VI deployment — a mission that assumes a cease-fire and a desire on both sides to comply with a peace accord. The Security Council now had to decide whether it was prepared to move from peacekeeping to peace enforcement — that is, to a Chapter VII mission in a hostile environment. This would demand more peacekeepers with far greater resources, more-aggressive rules of engagement, and an explicit recognition that the UN soldiers were there to protect civilians.
Two proposals emerged. Dallaire submitted a plan that called for joining his remaining peacekeepers with about 5,000 well-armed soldiers he hoped could be gathered quickly by the Security Council. He wanted to secure Kigali and then fan outward to create safe havens for Rwandans who had gathered in large numbers at churches and schools and on hillsides around the country. The United States was one of the few countries that could supply the rapid airlift and logistic support needed to move reinforcements to the region. In a meeting with UN Secretary General Boutros Boutros-Ghali on May 10, Vice President Al Gore pledged U.S. help with transport.
Richard Clarke, at the NSC, and representatives of the Joint Chiefs challenged Dallaire's plan. "How do you plan to take control of the airport in Kigali so that the reinforcements will be able to land?" Clarke asked. He argued instead for an "outside-in" strategy, as opposed to Dallaire's "inside-out" approach. The U.S. proposal would have created protected zones for refugees at Rwanda's borders. It would have kept any U.S. pilots involved in airlifting the peacekeepers safely out of Rwanda. "Our proposal was the most feasible, doable thing that could have been done in the short term," Clarke insists. Dallaire's proposal, in contrast, "could not be done in the short term and could not attract peacekeepers." The U.S. plan — which was modeled on Operation Provide Comfort, for the Kurds of northern Iraq — seemed to assume that the people in need were refugees fleeing to the border, but most endangered Tutsi could not make it to the border. The most vulnerable Rwandans were those clustered together, awaiting salvation, deep inside Rwanda. Dallaire's plan would have had UN soldiers move to the Tutsi in hiding. The U.S. plan would have required civilians to move to the safe zones, negotiating murderous roadblocks on the way. "The two plans had very different objectives," Dallaire says. "My mission was to save Rwandans. Their mission was to put on a show at no risk."
America's new peacekeeping doctrine, of which Clarke was the primary architect, was unveiled on May 3, and U.S. officials applied its criteria zealously. PDD-25 did not merely circumscribe U.S. participation in UN missions; it also limited U.S. support for other states that hoped to carry out UN missions. Before such missions could garner U.S. approval, policymakers had to answer certain questions: Were U.S. interests at stake? Was there a threat to world peace? A clear mission goal? Acceptable costs? Congressional, public, and allied support? A working cease-fire? A clear command-and-control arrangement? And, finally, what was the exit strategy?
The United States haggled at the Security Council and with the UN Department of Peacekeeping Operations for the first two weeks of May. U.S. officials pointed to the flaws in Dallaire's proposal without offering the resources that would have helped him to overcome them. On May 13 Deputy Secretary of State Strobe Talbott sent Madeleine Albright instructions on how the United States should respond to Dallaire's plan. Noting the logistic hazards of airlifting troops into the capital, Talbott wrote, "The U.S. is not prepared at this point to lift heavy equipment and troops into Kigali." The "more manageable" operation would be to create the protected zones at the border, secure humanitarian-aid deliveries, and "promot[e] restoration of a ceasefire and return to the Arusha Peace Process." Talbott acknowledged that even the minimalist American proposal contained "many unanswered questions":
Where will the needed forces come from; how will they be transported … where precisely should these safe zones be created; … would UN forces be authorized to move out of the zones to assist affected populations not in the zones … will the fighting parties in Rwanda agree to this arrangement … what conditions would need to obtain for the operation to end successfully?
Nonetheless, Talbott concluded, "We would urge the UN to explore and refine this alternative and present the Council with a menu of at least two options in a formal report from the [Secretary General] along with cost estimates before the Security Council votes on changing UNAMIR's mandate." U.S. policymakers were asking valid questions. Dallaire's plan certainly would have required the intervening troops to take risks in an effort to reach the targeted Rwandans or to confront the Hutu militia and government forces. But the business-as-usual tone of the American inquiry did not seem appropriate to the unprecedented and utterly unconventional crisis that was under way.
On May 17, by which time most of the Tutsi victims of the genocide were already dead, the United States finally acceded to a version of Dallaire's plan. However, few African countries stepped forward to offer troops. Even if troops had been immediately available, the lethargy of the major powers would have hindered their use. Though the Administration had committed the United States to provide armored support if the African nations provided soldiers, Pentagon stalling resumed. On May 19 the UN formally requested fifty American armored personnel carriers. On May 31 the United States agreed to send the APCs from Germany to Entebbe, Uganda. But squabbles between the Pentagon and UN planners arose. Who would pay for the vehicles? Should the vehicles be tracked or wheeled? Would the UN buy them or simply lease them? And who would pay the shipping costs? Compounding the disputes was the fact that Department of Defense regulations prevented the U.S. Army from preparing the vehicles for transport until contracts had been signed. The Defense Department demanded that it be reimbursed $15 million for shipping spare parts and equipment to and from Rwanda. In mid-June the White House finally intervened. On June 19, a month after the UN request, the United States began transporting the APCs, but they were missing the radios and heavy machine guns that would be needed if UN troops came under fire. By the time the APCs arrived, the genocide was over — halted by Rwandan Patriotic Front forces under the command of the Tutsi leader, Paul Kagame.
XII. The Stories We Tell
It is not hard to conceive of how the United States might have done things differently. Ahead of the plane crash, as violence escalated, it could have agreed to Belgian pleas for UN reinforcements. Once the killing of thousands of Rwandans a day had begun, the President could have deployed U.S. troops to Rwanda. The United States could have joined Dallaire's beleaguered UNAMIR forces or, if it feared associating with shoddy UN peacekeeping, it could have intervened unilaterally with the Security Council's backing, as France eventually did in late June. The United States could also have acted without the UN's blessing, as it did five years later in Kosovo. Securing congressional support for U.S. intervention would have been extremely difficult, but by the second week of the killing Clinton could have made the case that something approximating genocide was under way, that a supreme American value was imperiled by its occurrence, and that U.S. contingents at relatively low risk could stop the extermination of a people.
Alan Kuperman wrote in Foreign Affairs that President Clinton was in the dark for two weeks; by the time a large U.S. force could deploy, it would not have saved "even half of the ultimate victims." The evidence indicates that the killers' intentions were known by mid-level officials and knowable by their bosses within a week of the plane crash. Any failure to fully appreciate the genocide stemmed from political, moral, and imaginative weaknesses, not informational ones. As for what force could have accomplished, Kuperman's claims are purely speculative. We cannot know how the announcement of a robust or even a limited U.S. deployment would have affected the perpetrators' behavior. It is worth noting that even Kuperman concedes that belated intervention would have saved 75,000 to 125,000 — no small achievement. A more serious challenge comes from the U.S. officials who argue that no amount of leadership from the White House would have overcome congressional opposition to sending U.S. troops to Africa. But even if that highly debatable point was true, the United States still had a variety of options. Instead of leaving it to mid-level officials to communicate with the Rwandan leadership behind the scenes, senior officials in the Administration could have taken control of the process. They could have publicly and frequently denounced the slaughter. They could have branded the crimes "genocide" at a far earlier stage. They could have called for the expulsion of the Rwandan delegation from the Security Council. On the telephone, at the UN, and on the Voice of America they could have threatened to prosecute those complicit in the genocide, naming names when possible. They could have deployed Pentagon assets to jam — even temporarily — the crucial, deadly radio broadcasts.
Instead of demanding a UN withdrawal, quibbling over costs, and coming forward (belatedly) with a plan better suited to caring for refugees than to stopping massacres, U.S. officials could have worked to make UNAMIR a force to contend with. They could have urged their Belgian allies to stay and protect Rwandan civilians. If the Belgians insisted on withdrawing, the White House could have done everything within its power to make sure that Dallaire was immediately reinforced. Senior officials could have spent U.S. political capital rallying troops from other nations and could have supplied strategic airlift and logistic support to a coalition that it had helped to create. In short, the United States could have led the world.
Why did none of these things happen? One reason is that all possible sources of pressure — U.S. allies, Congress, editorial boards, and the American people — were mute when it mattered for Rwanda. American leaders have a circular and deliberate relationship to public opinion. It is circular because public opinion is rarely if ever aroused by foreign crises, even genocidal ones, in the absence of political leadership, and yet at the same time, American leaders continually cite the absence of public support as grounds for inaction. The relationship is deliberate because American leadership is not absent in such circumstances: it was present regarding Rwanda, but devoted mainly to suppressing public outrage and thwarting UN initiatives so as to avoid acting.
Strikingly, most officials involved in shaping U.S. policy were able to define the decision not to stop genocide as ethical and moral. The Administration employed several devices to keep down enthusiasm for action and to preserve the public's sense — and, more important, its own — that U.S. policy choices were not merely politically astute but also morally acceptable. First, Administration officials exaggerated the extremity of the possible responses. Time and again U.S. leaders posed the choice as between staying out of Rwanda and "getting involved everywhere." In addition, they often presented the choice as one between doing nothing and sending in the Marines. On May 25, at the Naval Academy graduation ceremony, Clinton described America's relationship to ethnic trouble spots: "We cannot turn away from them, but our interests are not sufficiently at stake in so many of them to justify a commitment of our folks."
Second, Administration policymakers appealed to notions of the greater good. They did not simply frame U.S. policy as one contrived in order to advance the national interest or avoid U.S. casualties. Rather, they often argued against intervention from the standpoint of people committed to protecting human life. Owing to recent failures in UN peacekeeping, many humanitarian interventionists in the U.S. government were concerned about the future of America's relationship with the United Nations generally and peacekeeping specifically. They believed that the UN and humanitarianism could not afford another Somalia. Many internalized the belief that the UN had more to lose by sending reinforcements and failing than by allowing the killings to proceed. Their chief priority, after the evacuation of the Americans, was looking after UN peacekeepers, and they justified the withdrawal of the peacekeepers on the grounds that it would ensure a future for humanitarian intervention. In other words, Dallaire's peacekeeping mission in Rwanda had to be destroyed so that peacekeeping might be saved for use elsewhere.
A third feature of the response that helped to console U.S. officials at the time was the sheer flurry of Rwanda-related activity. U.S. officials with a special concern for Rwanda took their solace from mini-victories — working on behalf of specific individuals or groups (Monique Mujawamariya; the Rwandans gathered at the hotel). Government officials involved in policy met constantly and remained "seized of the matter"; they neither appeared nor felt indifferent. Although little in the way of effective intervention emerged from mid-level meetings in Washington or New York, an abundance of memoranda and other documents did.
Finally, the almost willful delusion that what was happening in Rwanda did not amount to genocide created a nurturing ethical framework for inaction. "War" was "tragic" but created no moral imperative.
What is most frightening about this story is that it testifies to a system that in effect worked. President Clinton and his advisers had several aims. First, they wanted to avoid engagement in a conflict that posed little threat to American interests, narrowly defined. Second, they sought to appease a restless Congress by showing that they were cautious in their approach to peacekeeping. And third, they hoped to contain the political costs and avoid the moral stigma associated with allowing genocide. By and large, they achieved all three objectives. The normal operations of the foreign-policy bureaucracy and the international community permitted an illusion of continual deliberation, complex activity, and intense concern, even as Rwandans were left to die.
One U.S. official kept a journal during the crisis. In late May, exasperated by the obstructionism pervading the bureaucracy, the official dashed off this lament:
A military that wants to go nowhere to do anything — or let go of their toys so someone else can do it. A White House cowed by the brass (and we are to give lessons on how the armed forces take orders from civilians?). An NSC that does peacekeeping by the book — the accounting book, that is. And an assistance program that prefers whites (Europe) to blacks. When it comes to human rights we have no problem drawing the line in the sand of the dark continent (just don't ask us to do anything — agonizing is our specialty), but not China or anyplace else business looks good.
We have a foreign policy based on our amoral economic interests run by amateurs who want to stand for something — hence the agony — but ultimately don't want to exercise any leadership that has a cost.
They say there may be as many as a million massacred in Rwanda. The militias continue to slay the innocent and the educated … Has it really cost the United States nothing?
XIII. A Continuum of Guilt
Because this is a story of nondecisions and bureaucratic business as usual, few Americans are haunted by the memory of what they did in response to genocide in Rwanda. Most senior officials remember only fleeting encounters with the topic while the killings were taking place. The more reflective among them puzzle occasionally over how developments that cast the darkest shadow over the Clinton Administration's foreign-policy record could have barely registered at the time. But most say they have not talked in any detail among themselves about the events or about the system's weaknesses (and perverse strengths). Requests for a congressional investigation have gone ignored.
According to several advisers, toward the end of his term of office Clinton himself snapped at members of his foreign-policy team, angry with them for not steering him toward a moral course. He is said to have convinced himself that if he had known more, he would have done more. In his 1998 remarks in Kigali he pledged to "strengthen our ability to prevent, and if necessary to stop, genocide." "Never again," he declared, "must we be shy in the face of evidence." But the incentive structures within the U.S. government have not changed. Officials will still suffer no sanction if they do nothing to curb atrocities. The national interest remains narrowly constructed to exclude stopping genocide. Indeed, George W. Bush has been open about his intention to keep U.S. troops away from any future Rwandas. "I don't like genocide," Bush said in January of 2000. "But I would not commit our troops." Officials in the Bush Administration say the United States is as unprepared and unwilling to stop genocide today as it was seven years ago. "Genocide could happen again tomorrow," one said, "and we wouldn't respond any differently."
Anthony Lake, who used to call himself "the national-security adviser to the free world," today teaches international relations at Georgetown University. He wonders, as he should, how he and his colleagues could have done so little at the time of the Rwandan genocide. Much of Lake's identity remains entwined with the ideas in his 1971 Foreign Policy article. He cannot quite understand how a White House that, he insists, was finally sensitive to the "human reality of realpolitik" could have stood by during one of the gravest crimes of the twentieth century. "One scenario is that I knew what was going on and I blocked it out in order to not deal with the human consequences," he says. "Here I'm absolutely convinced that I didn't do that, but maybe I did and it was so deep that I didn't realize it. Another scenario is that I didn't give it enough time because I didn't give a damn about Africa, which I don't believe because I know I do. My sin must have been in a third scenario. I didn't own it because I was busy with Bosnia and Haiti, or because I thought we were doing all we could …"
Lake is further confounded by his slow processing of the moral stakes of the genocide. After the Rwandan Patriotic Front seized control, in July, several million Hutu refugees, including many of those responsible for the genocide, fled to Zaire and Tanzania. With a humanitarian crisis looming, Lake took control, spearheading a multilateral aid effort. "There are people dying," his colleagues remember his saying. "The President wants to do this, and we don't care what it takes." In December of 1994 Lake visited putrid mass graves in Rwanda. He does not understand how, after 800,000 people were killed, he could have felt angry but not at all responsible. "What's so strange is that this didn't become a 'how did we screw this up?' issue until a couple years later," he says. "The humanitarian-aid mission did not feel like a guilt mission."
Since senior officials in the U.S. government hadn't felt responsible when the killings were actually happening, it should not be altogether surprising that most didn't feel responsible after the fact. With the potential for an American military presence dismissed out of hand, Rwanda policy was formulated and debated heatedly by U.S. officials further down the chain. Because Lake never took control of the policy, the sense of responsibility he eventually acquired, although genuine, seems superimposed. He has an academic understanding that under the principle of command responsibility, those at the top must answer even for policies they do not remember consciously crafting. But lurking at the margins of Lake's consciousness seems to be an awareness that in light of press coverage at the time, he must have simply chosen to look away. And as disengaged as he was from the policy, he probably qualifies as the most engaged U.S. official in the Clinton Cabinet. "I'm not going to wallow," he says, "because if you blew it you should not wallow or ask for public forgiveness. But in a way I'm as guilty as anybody else, because to the degree that I didn't care about Africa, it would be understandable, but since I was more inclined to care, I don't know why I didn't."
Lake's guilt is of a second order — guilt over an absence of guilt. What about the other officials involved in Washington's Rwanda policy — how do they view their performance in retrospect? Today they have three main options.
They can defend the U.S. policy. This is the position of Richard Clarke, who believes, all things considered, that he and his colleagues did everything they could and should have done. "Would I have done the same thing again?" Clarke asks. "Absolutely. What we offered was a peacekeeping force that would have been effective. What [the UN] offered was exactly what we said it would be — a force that would take months to get there. If the UN had adopted the U.S. [outside-in] proposal, we might have saved some lives … The U.S. record, as compared to everyone else's record, is not something we should run away from … I don't think we should be embarrassed. I think everyone else should be embarrassed by what they did, or did not do."
Another position holds that no matter what any one person did at the time, there were larger forces at work: genocide would have consumed Rwanda no matter what, and American decision-makers in the White House or on Capitol Hill would never have countenanced the risks required to make a real difference. Radio jamming and other technical fixes were merely palliatives aimed at soothing guilty consciences. This is the view adopted by many Pentagon officials who worked on the issue day-to-day.
The least-inviting option leaves those involved questioning their performances and wondering what they should have done differently: Saved even one life by pushing harder? Chosen a telling moment for a high-profile resignation? "Maybe the only way to draw attention to this was to run naked through the building," Prudence Bushnell says. "I'm not sure anybody would have noticed, but I wish I had tried."
Africa specialists are the ones most affected by the Rwandan genocide. David Rawson, the former ambassador to Rwanda, retired in 1999. He lives with his wife in Michigan and has begun to write about his experiences. He still believes that efforts to pursue a cease-fire were worthwhile, and that "both sides" have a lot to answer for. But he acknowledges, "In retrospect, perhaps we were — as diplomats always are, I suppose — so focused on trying to find some agreement that we didn't look hard enough at the darker side." Predisposed toward state actors, trusting of negotiation and diplomacy, and courtly toward his interlocutors, Rawson, the diplomat, was outmatched.
Donald Steinberg, the NSC staffer who managed the NSC's Africa directorate, felt a deep emotional attachment to the continent. He had tacked the photos of two six-year-old African girls he had sponsored above his desk at the White House. But when he began seeing the bodies clogging the Kagera River, he had to take the photos down, unable to bear the reminder of innocent lives being extinguished every minute. The directorate, which was tiny, had little influence on policy. It was, in the parlance, "rolled" by Richard Clarke. "Dick was a thinker," one colleague says. "Don was a feeler. They represented the duality of Bill Clinton and his presidency, which was torn between the thinkers, who looked out for interests, and the feelers, who were moved by values. As we all know, in the end it was always going to be the thinkers who won out." After the genocide, according to friends and colleagues, Steinberg threw himself into the humanitarian relief effort, where at last he might make a difference. But eventually he plummeted into depression. He asked himself again and again, if only he had been at the White House longer … if only he had known how to pull the right levers at the right time … if only he had … — Now deputy director of policy planning at the State Department, Steinberg has told friends that his work from here on out is "repayment for a very large bill that I owe."
Susan Rice, Clarke's co-worker on peacekeeping at the NSC, also feels that she has a debt to repay. "There was such a huge disconnect between the logic of each of the decisions we took along the way during the genocide and the moral consequences of the decisions taken collectively," Rice says. "I swore to myself that if I ever faced such a crisis again, I would come down on the side of dramatic action, going down in flames if that was required." Rice was subsequently appointed NSC Africa director and, later, assistant secretary of state for African affairs; she visited Rwanda several times and helped to launch a small program geared to train selected African armies so that they might be available to respond to the continent's next genocide. The American appetite for troop deployments in Africa had not improved.
Prudence Bushnell will carry Rwanda with her permanently. During the genocide, when she went walking in the woods near her home in Reston, Virginia, she would see Rwandan mothers cowering with their children behind the trees, or stacked in neat piles along the bike path. After the genocide, when the new President of Rwanda visited Washington and met Bushnell and others, he leaned across the table toward her, eyes blazing, and said, "You, madame, are partially responsible for the genocide, because we told you what was going to happen and you did nothing." Haunted by these memories and admonitions, when Bushnell was later appointed ambassador to Kenya and saw that her embassy was insecure, she was much more assertive, and pleaded repeatedly with Washington for security to be upgraded — requests that were, notoriously, ignored. The bombing of the U.S. embassy in Kenya will forever be encapsulated in American minds by the image of a bloodied Bushnell staggering away from the explosion with a towel pressed to her wounds.
Currently serving as ambassador to Guatemala, Bushnell can muster a black humor about the way death and killing keep hounding her. Like Steinberg, she is trying to make peace with her inability to have secured even the tamest commitments from her colleagues in the bureaucracy. "For a long time I couldn't live with it, but now I think I can look back and say, 'I knew what was happening, I tried to stop what was happening, and I failed.' That is not a source of guilt, but it is a tremendous source of shame and sadness."
And then, finally, there is Romeo Dallaire. It is both paradoxical and natural that the man who probably did the most to save Rwandans feels the worst. When he returned to Canada, in August of 1994, he behaved initially as if he had just completed a routine mission. As the days passed, though, he began to show signs of distress. He carried a machete around and lectured cadets on post-traumatic stress disorder; he slept sparingly; and he found himself nearly retching in the supermarket, transported back to Rwandan markets and the bodies strewn within them. When the international war-crimes tribunal called him to testify, he plunged back into the memories and his mental health worsened. Dallaire was told by his superiors that he would have to choose between leaving the "Rwanda business" behind him or leaving his beloved armed forces. For Dallaire only one answer was possible: "I told them I would never give up Rwanda," he says. "I was the force commander and I would complete my duty, testifying and doing whatever it takes to bring these guys to justice." In April of 2000 Dallaire was forced out of the Canadian armed services and given a medical discharge.
Dallaire had always said, "The day I take my uniform off will be the day that I will also respond to my soul." But since becoming a civilian he has realized that his soul is not readily retrievable. "My soul is in Rwanda," he says. "It has never, ever come back, and I'm not sure it ever will." He carries the guilt of the genocide with him, and he feels that the eyes and the spirits of those killed are constantly watching him. He says he can barely stand living and has attempted suicide.
In June of last year a brief Canadian news-wire story reported that Dallaire had been found unconscious on a park bench in Hull, Quebec, drunk and alone. He had consumed a bottle of scotch on top of his daily dose of pills for post-traumatic stress disorder. He was on a death mission. Dallaire sent a letter to the Canadian Broadcast Corporation thanking them for their sensitive coverage of this episode. On July 3, 2000, the letter was read on the air.
Thank you for the very kind thoughts and wishes.
There are times when the best medication and therapist simply can't help a soldier suffering from this new generation of peacekeeping injury. The anger, the rage, the hurt, and the cold loneliness that separates you from your family, friends, and society's normal daily routine are so powerful that the option of destroying yourself is both real and attractive. That is what happened last Monday night. It appears, it grows, it invades, and it overpowers you.
In my current state of therapy, which continues to show very positive results, control mechanisms have not yet matured to always be on top of this battle. My doctors and I are still [working to] establish the level of serenity and productivity that I yearn so much for. The therapists agree that the battle I waged that night was a solid example of the human trying to come out from behind the military leader's ethos of "My mission first, my personnel, then myself." Obviously the venue I used last Monday night left a lot to be desired and will be the subject of a lot of work over the next while.
Dallaire remained a true believer in Canada, in peacekeeping, in human rights. The letter went on:
This nation, without any hesitation nor doubt, is capable and even expected by the less fortunate of this globe to lead the developed countries beyond self-interest, strategic advantages, and isolationism, and raise their sights to the realm of the pre-eminence of humanism and freedom … Where humanitarianism is being destroyed and the innocent are being literally trampled into the ground … the soldiers, sailors, and airpersons … supported by fellow countrymen who recognize the cost in human sacrifice and in resources will forge in concert with our politicians … a most unique and exemplary place for Canada in the league of nations, united under the United Nations Charter.
I hope this is okay.
Thanks for the opportunity.
Warmest regards,