U.S. Diplomats Tiptoe Back Into Ukraine—Weeks After Their European CounterpartsBy Robbie Gramer - May 9, 2022
U.S.
diplomats are slowly returning to Ukraine more than two months after
Russia invaded the country and weeks after many European nations
reopened their embassies and dispatched their ambassadors back to Kyiv,
Ukraine’s capital.
Unlike their European counterparts, however,
U.S. diplomats are still based in Poland and making day trips into
Ukraine before returning across the border. The top U.S. diplomat for
Ukraine, Kristina Kvien, and others made a brief visit to Kyiv on Sunday
to commemorate the anniversary of victory in World War II, marking the
latest incremental step toward Washington’s planned move to fully reopen
the U.S. Embassy there. The trip by U.S. diplomats follows a series of
high-profile visits by senior U.S. dignitaries to demonstrate U.S.
support for Ukraine in the war against Moscow and confidence in the
Ukrainian government’s ability to beat back their Russian invaders.
The
slow and incremental transition back to reopening the embassy, however,
also sheds light on a broader debate in Washington over how to wrest
the U.S. State Department out of its “bunker mentality,” where diplomats
have long raised concerns that security restrictions obstruct the
ability to do their jobs in unstable countries or conflict zones. Over
the course of decades, U.S. embassies in unstable countries have slowly
transformed into secured compounds, surrounded by heavily guarded
checkpoints that critics say build up literal and metaphorical walls
between U.S. diplomats and the host governments and populations they are
meant to engage with.
In places such as Iraq, Pakistan, and
(until recently) Afghanistan, U.S. government personnel were often
restricted in when and how they could leave the embassy compound due to
security threats, protecting diplomats while at the same time
hamstringing their ability to effectively do their jobs. The trend
accelerated after the 2012 attacks on a U.S. diplomatic compound in
Benghazi, Libya, which led to the deaths of four U.S. government
personnel, including ambassador J. Christopher Stevens, and sparked a
political firestorm in Washington.
Since then, top U.S. diplomats
as well as lawmakers have argued the State Department needs to ease
some security restrictions that are seen as overly cautious and onerous
regarding how U.S. diplomats can operate in potentially dangerous
environments.
Although this debate has centered on U.S.
diplomatic outposts in the Middle East and Africa for decades, the war
in Ukraine has shifted it to Europe. In the early weeks of the conflict,
when Washington was unsure whether Ukraine could hold out against the
massive Russian onslaught, U.S. diplomats operated out of temporary
facilities in eastern Poland, near its border with Ukraine. Notably, the
State Department left behind hundreds of local Ukrainian staff who
worked at the U.S. Embassy there, drawing the ire of both the local
staff and U.S. diplomats who worked alongside them.
After
Ukrainian forces beat back a Russian offensive that rendered Kyiv
relatively safe, many Western countries began reopening their embassies
and sending their ambassadors back into the Ukrainian capital. France,
Italy, Turkey, the European Union, Portugal, Austria, Lithuania, and
Slovakia quickly sent their diplomats back to Kyiv last month, but the
United States was conspicuously absent. (A few plucky ambassadors from
Eastern European countries never left Kyiv.)
Some senior U.S.
diplomats quietly pressured the White House to quickly follow suit,
according to two U.S. officials familiar with the matter but
unauthorized to speak on the record. The senior diplomats argued it was
critical that the United States sends its diplomats to Kyiv to
coordinate more readily with the Ukrainian government, gain a better
understanding of the conflict from the ground, and send a symbol to both
Kyiv and Moscow of the United States’ support for Ukraine in the war.
But security concerns won the day, at least temporarily.
The
State Department said it plans to open the U.S. Embassy as soon as
possible once it is deemed safe and consistent with the department’s
security priorities.
“The purpose of Charge d’Affaires Kvien’s
travel is to conduct diplomatic engagement in Kyiv in advance of the
planned resumption of Embassy Kyiv operations,” a State Department
spokesperson said. “We look forward to announcing the resumption of
Embassy Kyiv operations once all necessary steps have been taken, and as
security conditions permit.”
U.S. lawmakers jumped into the fray
of the debate, publicly pushing the administration to get diplomatic
boots back on the ground in Kyiv. “It is imperative for the State
Department to reopen our embassy in Kyiv to better support Ukraine and
send a strong message that the U.S. government stands with the Ukrainian
people,” Sen. James Risch, the top Republican on the Senate Foreign
Relations Committee, told a top State Department official, Brian McKeon,
at a congressional hearing on May 3.
A 2021 study from the
American Academy of Diplomacy on the “risk paradigm” for U.S. diplomats
assessed that the “State Department’s current risk aversion at
higher-threat posts obstructs the performance of the most basic
functions of a diplomat abroad.”
“U.S. diplomatic and [U.S.
Agency for International Development] officers are rarely allowed to
travel to meet sources, colleagues, or counterparts in less than fully
secured areas or make unscheduled moves,” the report added. “Requests by
Foreign Service Officers to discreetly meet with subjects and sources
or to review remote programs are too often denied, and the ability to
observe and report on a country they are expected to know with a high
level of expertise is severely limited.”
The matter, however, is
far from simple for the State Department when it comes to Ukraine, an
active war zone, where Russia’s offensives have been characterized by
indiscriminate bombing of civilian targets. Any Russian strike that
would harm U.S. diplomats, whether intentional or not, could drastically
escalate tensions between Moscow and Washington, the world’s two
leading nuclear powers. An additional complicating factor is the sheer
size of the U.S. Embassy in Ukraine, which dwarfed most other embassies
in Kyiv. In its prewar operations, the U.S. Embassy in Kyiv had a staff
of roughly 800 people, two U.S. officials said, including around 600
local Ukrainian employees. Reopening an embassy of that size while Kyiv
is still under threat of long-range strikes by Russian forces is
significantly more logistically complicated than a smaller European
country reopening its embassy that may only have around a dozen staff
members.
The redeployment of U.S. diplomats to Ukraine mirrors
another debate in Washington over when—or whether—U.S. President Joe
Biden should visit Ukraine. A series of senior U.S. dignitaries have
taken turns visiting Kyiv in recent weeks, including Defense Secretary
Lloyd Austin and Secretary of State Antony Blinken; U.S. Speaker of the
House Rep. Nancy Pelosi; and, most recently, First Lady Jill Biden. But
as more heads of government visit Ukraine, including British Prime
Minister Boris Johnson in April and Canadian Prime Minister Justin
Trudeau on Sunday, Biden is facing more pressure to follow suit.
During
his visit to Kyiv on April 24, Blinken vowed to reopen the embassy soon
but did not give a specific timetable—to the frustration of some
lawmakers.
Even before the war in Ukraine laid bare the problems
of the State Department’s risk aversion, a bipartisan group of lawmakers
began introducing legislation in what they characterized as an effort
to correct course. Democratic Sen. Chris Murphy, a member of the Senate
Foreign Relations Committee, introduced a bill in 2021 to tackle the
State Department’s “bunker mentality” by easing the department’s
security reporting requirements to Congress and transforming how the
State Department conducts investigations after security breaches, which
some diplomats view as an exercise in finding scapegoats.
Murphy’s
bill was later partly incorporated into a bill that Risch introduced,
the Diplomatic Support and Security Act. That bill passed the Senate
Foreign Relations Committee in March and is awaiting a vote by the full
Senate.
“In attempting to achieve complete security and eliminate
risk, the department routinely stifles the ability of our diplomats to
get outside of embassy walls and meet face-to-face with local leaders
and communities,” Risch said at the time of the bill’s passage. “Our
adversaries do not place such burdens on their diplomats.”