Bystanders to Genocide

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

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 yesterdayGenocide 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.

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