The Foreign Service Journal, September 2004

S E P T E M B E R 2 0 0 4 / F O R E I G N S E R V I C E J O U R N A L 3 T HE M AGAZINE F OR F OREIGN A FFAIRS P ROFESSIONALS Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published monthly with a combined July/August issue by the American Foreign Service Association, a private, non-profit organization. Material appearing herein represents the opinions of the writers and does not necessarily represent the views of the Journal, the Editorial Board or AFSA. Writer queries and submissions are invited, preferably by e-mail. Journal subscription: AFSAMembers - $13 included in annual dues; others - $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Washington, D.C., and at additional mail- ing offices. Postmaster: Send address changes to Foreign Service Journal , 2101 E Street N.W., Washington, D.C. 20037-2990. Indexed by Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of advertisements herein does not imply the endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E- MAIL: journal@afsa.org. W EB: www.afsa.org. TE LEPHONE: (202) 338-4045. © American Foreign Service Association, 2004. Printed in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., Washington, D.C. 20037-2990. Printed on 50 percent recycled paper, of which 10 percent is post-consumer waste. J O U R N A L OREIGN ERVICE S F Editor S TEVEN A LAN H ONLEY Senior Editor S USAN B. M AITRA Associate Editor S HAWN D ORMAN Ad & Circulation Manager E D M ILTENBERGER Business Manager M IKKELA V. T HOMPSON Art Director C ARYN S UKO S MITH Editorial Intern K RISTOFER L OFGREN Advertising Interns E VAN W ESTRUP T INA O’H ARA Editorial Board J UDITH B AROODY , C HAIRMAN M ARK W. B OCCHETTI S TEPHEN W. B UCK P ATI C HAPLIN T ATIANA C. G FOELLER C AROL A. G IACOMO W ILLIAM W. J ORDAN L AURIE K ASSMAN H OLLIS S UMMERS B ILL W ANLUND T ED W ILKINSON F O C U S O N C O U N T E R T E R R O R I S M 23 / T HE B RAVE N EW W ORLD OF V ISA P ROCESSING The events of 9/11 and State’s new partnership with the Department of Homeland Security have forever altered consular work. By Shawn Zeller 30 / A RE W E L OSING THE W AR ON T ERRORISM ? Three years after the 9/11 attacks, the threat from terrorism is growing, not receding. It is time for a reappraisal of our strategy. By Philip C. Wilcox Jr. 36 / F IGHTING T ERRORISM IN E AST A FRICA AND THE H ORN Six years after the bombings of our embassies in Nairobi and Dar es Salaam, U.S. counterterrorism efforts in the region do not yet measure up to the threat. By David Shinn 43 / T HE A NATOMY OF T ERRORISM Terrorism is an instrument or tactic — a weapon, not an enemy. Thus, a “war” on terrorism makes no more sense than a “war” on war. By Ron Spiers 51 / K AMIKAZES : P RECURSORS OF 9/11? Today, 60 years later, the story of the kamikazes echoes eerily in the phenomenon of suicide bombing in the Middle East and the 9/11 attacks. By Jose Armilla 58 / H UMANITARIAN M ERCENARIES In the tense days following 9/11, the small U.S. embassies in Central Asia suddenly found themselves on the front lines of the war on terrorism. By John W. Kropf C ONTENTS S e p t emb e r 2 0 0 4 Vo l ume 8 1 , No . 9 R EMEMBERING 9/11 IN M ANHATTAN / 63 An eyewitness account of what Sept. 11, 2001, was like in New York City. By David Casavis F E A T U R E S A PPRECIATION : H UME A LEXANDER H ORAN , 1934–2004 / 68 By Susan Maitra A FRICAN -A MERICAN C ONSULS A BROAD , 1897-1909 / 72 At least 20 black consuls served during the Republican administrations of William McKinley and Theodore Roosevelt. Here are their stories. By Benjamin R. Justesen P ROMOTING D EMOCRACY / 77 Can a foreign policy apparatus configured to fight the Cold War implement the Bush administration’s new democracy-led U.S. foreign policy? By Aaron M. Chassy T ELLING O UR S TORY : T HE N ATIONAL M USEUM OF A MERICAN D IPLOMACY / 82 The Foreign Affairs Museum Council is working to establish the Department of State Visitor Center and National Museum of American Diplomacy. By Stephen Low Cover and inside illustrations by Phil Foster C O L U M N S P RESIDENT ’ S V IEWS / 5 Get Smart By John Limbert S PEAKING O UT / 17 A Cry for Justice By Larry W. Roeder Jr. R EFLECTIONS / 96 By John D. Boyll D E P A R T M E N T S L ETTERS / 7 C YBERNOTES / 14 B OOKS / 87 I NDEX TO A DVERTISERS / 94 AFSA N EWS / C ENTER I NSERT