tag:theconversation.com,2011:/us/topics/ambassador-16522/articlesAmbassador – The Conversation2019-11-18T14:00:17Ztag:theconversation.com,2011:article/1264252019-11-18T14:00:17Z2019-11-18T14:00:17ZHow rich people like Gordon Sondland buy their way to being US ambassadors – 4 questions answered<figure><img src="https://images.theconversation.com/files/301575/original/file-20191113-77300-ug6ngf.jpg?ixlib=rb-1.1.0&q=45&auto=format&w=496&fit=clip" /><figcaption><span class="caption">Some positions attract more political appointments -- like those in Western Europe.</span> <span class="attribution"><a class="source" href="https://www.shutterstock.com/image-photo/flags-102617819?src=768f3819-7eb9-4bd8-88da-94223623d10c-1-16">Markus Pfaff/Shutterstock.com</a></span></figcaption></figure><p>In every other developed democratic country, the role of ambassador, with only very rare exceptions, is given to career diplomats who have spent decades learning the art of international relations. </p>
<p>In the U.S., however, many ambassadors are untrained in diplomacy, and have simply bought their way into a prestigious post.</p>
<p>The involvement of the American ambassador to the European Union, <a href="https://www.washingtonpost.com/investigations/disruptive-diplomat-gordon-sondland-a-key-figure-in-trump-impeachment-furor-long-coveted-ambassadorship/2019/10/14/c5afb950-ec3f-11e9-9c6d-436a0df4f31d_story.html">Gordon Sondland</a>, in the Ukraine scandal has prompted interest in the media and Congress in the role of non-career ambassadors like him. </p>
<p>On Oct. 30, U.S. Rep. Ami Bera, a Democrat from California, <a href="https://bera.house.gov/media-center/press-releases/rep-bera-releases-legislation-to-strengthen-state-department-diplomacy">introduced legislation</a> that would require at least 70% of a president’s ambassadorial appointments to come from the ranks of career Foreign Service officers and civil servants.</p>
<p>Career appointees have to spend decades working their way up through the ranks in government before being nominated, <a href="https://history.state.gov/departmenthistory/people/jett-dennis-coleman">as I did</a> before becoming ambassador in Mozambique and later in Peru.</p>
<p>Bera’s bill likely does not have the support in Congress to ever be enacted. More importantly, it does not address what I think is the real problem with political appointee ambassadors. That is the selling of the title in exchange for campaign contributions to people who are clearly unqualified for the job. </p>
<p>While this is a time-honored practice used by presidents of both parties, it has arguably gotten worse under the Trump administration.</p>
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<a href="https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=45&auto=format&w=1000&fit=clip"><img alt="" src="https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=45&auto=format&w=754&fit=clip" srcset="https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=45&auto=format&w=600&h=400&fit=crop&dpr=1 600w, https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=30&auto=format&w=600&h=400&fit=crop&dpr=2 1200w, https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=15&auto=format&w=600&h=400&fit=crop&dpr=3 1800w, https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=45&auto=format&w=754&h=503&fit=crop&dpr=1 754w, https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=30&auto=format&w=754&h=503&fit=crop&dpr=2 1508w, https://images.theconversation.com/files/301846/original/file-20191114-26229-1g1rqdx.jpg?ixlib=rb-1.1.0&q=15&auto=format&w=754&h=503&fit=crop&dpr=3 2262w" sizes="(min-width: 1466px) 754px, (max-width: 599px) 100vw, (min-width: 600px) 600px, 237px"></a>
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<span class="caption">Gordon Sondland, left, walks to a secure area of the Capitol to testify as part of the House impeachment inquiry.</span>
<span class="attribution"><a class="source" href="http://www.apimages.com/metadata/Index/Trump-Impeachment/64cc5a35272c479da42bc760876722d0/6/0">AP Photo/Patrick Semansky</a></span>
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<h2>1. Who picks ambassadors?</h2>
<p><a href="https://constitution.findlaw.com/article2.html">The Constitution says</a> nothing about the qualifications required to be an ambassador. All it says is the president can appoint them with the advice and consent of the Senate. </p>
<p>In other words, a president can appoint whoever he wants for whatever reason he wants. </p>
<p>The Senate <a href="https://www.senate.gov/artandhistory/history/common/briefing/Nominations.htm">can refuse to confirm a nominee</a>, but that has not happened in over a century. Instead, occasionally the Senate will refuse to vote on the nomination and the nominee languishes until either the Senate does decide to act or the White House withdraws the nomination. </p>
<p>That kind of delay is not uncommon, but it is almost always due to policy disputes between the two branches, rather than anything to do with the qualifications of the person being proposed for an ambassadorship. </p>
<h2>2. Who’s qualified?</h2>
<p>Deciding what qualifies someone to be the personal representative of the president abroad is therefore almost entirely up to the president. </p>
<p>During the Nixon administration, the president’s personal lawyer asked the wife of a wealthy department store owner for a US$250,000 campaign contribution <a href="https://www.nytimes.com/1974/07/27/archives/kalmbach-told-panel-of-a-talk-with-dr-farkas-said-she-viewed-250000.html">in exchange for the ambassadorship to Costa Rica</a>. She famously replied, “That’s a lot to pay for Costa Rica, isn’t it?” She eventually <a href="https://www.nytimes.com/1996/10/22/nyregion/ruth-farkas-89-nixon-s-ambassador-to-luxembourg-dies.html">went to Luxembourg as ambassador</a>, and shortly thereafter wrote checks to the Nixon re-election campaign that added up to $300,000. </p>
<p>That overt quid pro quo prompted the passage of <a href="https://legcounsel.house.gov/Comps/Foreign%20Service%20Act%20Of%201980.pdf">the Foreign Service Act of 1980</a>. </p>
<p>The act states that those appointed to be an ambassador “should possess clearly demonstrated competence to perform the duties of a chief of mission,” including knowledge of the language, history and culture of the country.</p>
<p>It added that, given those requirements, such positions “should normally be accorded to career members of the Foreign Service, though circumstance will warrant appointments from time to time of qualified individuals who are not.” </p>
<p>It also stressed that “contributions to political campaigns should not be a factor in the appointment of an individual as a chief of mission.”</p>
<h2>3. How many ambassadors are career diplomats?</h2>
<p>Despite its intended purpose, the act did little to change how business was done in Washington.</p>
<p><a href="http://www.afsa.org/history-appointments-post">The percentage of political appointee ambassadors</a> only went down very slightly, hovering around 30% after the act was passed. </p>
<p>The one exception was the Reagan administration, which got the figure up to 38% by sending Reaganites to places like Rwanda and Malawi, where normally only career ambassadors would dare to tread. </p>
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<p>The question of percentages of political versus career ambassadors is one that sometimes attracts media interest, mainly because it is always higher than the usual 30% in the early part of any presidential term. That percentage cannot really be calculated in a meaningful way until the end of a term, because most political appointments are made in its first years. </p>
<p>For example, the percentage of political appointee ambassadors under Trump currently stands at about 45%. However, Trump has left 10 posts vacant that have always been filled by career ambassadors. </p>
<p>Another seven posts that would be career slots are in countries where relations have been downgraded or suspended, such as Venezuela and Bolivia. Most of those embassies will likely be filled by career people at some point. </p>
<p>In terms of posts that are normally held by career diplomats, there are only six – Croatia, Chile, Poland, Thailand, United Arab Emirates and Fiji – that currently have political appointee ambassadors. </p>
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<h2>4. How much does an ambassadorship cost?</h2>
<p>While some political appointees are political allies and friends of the president, for many postings – particularly in Western Europe and the Caribbean, where <a href="https://www.palgrave.com/us/book/9781137395665">80% of the ambassadors are political appointees</a> – who gets the job depends on money. </p>
<p>Even after the Foreign Service Act was passed, political contributions continued to play such a role that it was possible to estimate how much more London would cost than Lisbon. The larger a country’s economy and the number of tourists that visit it, <a href="https://doi.org/10.1111/gove.12254">the higher the price</a> of becoming ambassador. </p>
<p>And for those who want to add a fancy title to their resume and have the money, a six or even seven figure price is not too high.</p>
<p>For his first inauguration, <a href="https://www.nytimes.com/2009/01/06/us/politics/06donors.html">President Obama put a limit</a> of $50,000 on contributions. President George W. Bush capped his at $250,000. </p>
<p>For Trump, the sky was the limit and the floodgates were opened for those who wanted to buy access or influence. <a href="https://www.opensecrets.org/news/2017/04/250-donors-shelled-out-100k-or-more-for-trumps-inauguration/">More than 250 donors gave $100,000 or more</a>, which amounted to over 90% of the $107 million that was collected for the inaugural festivities. </p>
<p>Though Sondland had not backed Trump in his bid to be the Republican candidate, <a href="https://www.washingtonpost.com/nation/2019/10/04/gordon-sondland-ukraine-texts-ambassador/">he contributed</a> <a href="https://www.oregonlive.com/news/erry-2018/07/cdbfd3400b3583/portland-hotelier-who-gave-1-m.html">$1 million</a> after the election to Trump’s inaugural committee.</p>
<p>Under Trump, it’s not just the posts in rich countries and tropical paradises that are for sale. United Nations ambassador Kelly Craft and her husband <a href="https://www.nytimes.com/2019/07/31/us/kelly-craft-senate-confirmation.html">contributed over $2 million</a> to Trump’s election campaign and inauguration. She also <a href="https://www.politico.com/story/2019/03/24/trump-united-nations-gop-donations-1286440">gave generously</a> to over half the Repubican senators on the Foreign Relations Committee that had to approve her nomination.</p>
<p>So while the percentage of political-appointee ambassadors may not increase all that much by the end of Trump’s current term, the price for buying one certainly has. </p>
<p>I think this practice of selling ambassadorships is unlikely to change, despite the image it creates abroad when a person with no knowledge of a country is put in charge of the American embassy there.</p>
<p><a href="https://www.cnn.com/2019/06/28/politics/elizabeth-warren-new-plan/index.html">Democratic presidential candidate Sen. Elizabeth Warren has said</a> she will appoint no big donors as ambassadors - period. But when I have contacted the campaigns of every other person seeking the nomination to ask if they would make a similar pledge, I have been met with silence. That is because in Washington money does the talking.</p>
<p>[ <em>Like what you’ve read? Want more?</em> <a href="https://theconversation.com/us/newsletters?utm_source=TCUS&utm_medium=inline-link&utm_campaign=newsletter-text&utm_content=likethis">Sign up for The Conversation’s daily newsletter</a>. ]</p><img src="https://counter.theconversation.com/content/126425/count.gif" alt="The Conversation" width="1" height="1" />
<p class="fine-print"><em><span>Dennis Jett does not work for, consult, own shares in or receive funding from any company or organization that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.</span></em></p>The United States is the only developed, democratic country that has a political culture of selling ambassadorships.Dennis Jett, Professor of International Affairs, Penn StateLicensed as Creative Commons – attribution, no derivatives.tag:theconversation.com,2011:article/957112018-04-30T04:09:01Z2018-04-30T04:09:01ZThere is still no US ambassador to Australia, but it is neither an insult nor a concern<p>Last week’s <a href="https://www.nytimes.com/2018/04/24/world/asia/harry-harris-south-korea-envoy.html">sudden announcement</a> that the man assigned as the next United States ambassador to Australia will instead be posted to South Korea has generated <a href="https://edition.cnn.com/2018/04/25/asia/harry-harris-south-korea-australia-china-intl/index.html">concern among some commentators</a>. </p>
<p>US President Donald Trump nominated Admiral Harry Harris as <a href="https://www.whitehouse.gov/presidential-actions/president-donald-j-trump-announces-intent-nominate-harry-b-harris-jr-florida-ambassador-extraordinary-plenipotentiary-united-states-america-commonwealth/">ambassador to Canberra</a> in February. Former ambassador John Berry left his post in September 2016, meaning it has been vacant for 19 months.</p>
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<a href="https://theconversation.com/as-a-new-defence-chief-comes-in-australia-must-focus-its-attention-on-its-neighbours-95053">As a new defence chief comes in, Australia must focus its attention on its neighbours</a>
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<p>Former deputy prime minister Tim Fischer has described the delay in appointing a new ambassador as an “<a href="https://www.smh.com.au/politics/federal/bishop-insists-withdrawal-of-us-ambassador-pick-no-slap-in-the-face-for-australia-20180425-p4zbiw.html">insult and with impact</a>”, while former prime minister <a href="http://www.abc.net.au/news/2018-04-25/australia-a-second-class-ally-under-trump:-kevin-rudd/9696038">Kevin Rudd</a> has claimed that “Australia, from President Trump’s perspective, is a second-class ally”.</p>
<p>Prime Minister Malcolm Turnbull, though, has said he can “<a href="http://www.abc.net.au/news/2018-04-25/turnbull-disappointed-by-us-ambassador-switch/9696898">well understand</a>” the decision to reallocate Harris to South Korea, given the admiral’s expertise.</p>
<p>There is no need for overreaction, because US-Australia relations are in safe hands. Chargé d'affaires – the <a href="https://diplomacy.state.gov/discoverdiplomacy/references/169792.htm#C">official in charge of a diplomatic mission</a> when the ambassador is absent or the position is vacant – <a href="https://au.usembassy.gov/our-relationship/our-ambassador/">James Carouso</a> is the acting ambassador, pending another appointment.</p>
<h2>What does an ambassador do?</h2>
<p>The role of an ambassador is to represent the interests of a country. They are the highest-ranking representative of a state in the country or international organisation to which they have been appointed. In addition to representing the state at negotiations, state dinners, and events, the ambassador also manages the embassy staff. </p>
<p>Ambassadors are the heads of embassies. Their duties include protecting and defending the reputation and image of their country, assessing the effectiveness of its policies in the host state, reporting information, protecting the welfare of citizens, and promoting cooperation across business, education, science, technology, culture, and national security domains.</p>
<p>Specific to the <a href="https://diplomacy.state.gov/discoverdiplomacy/diplomacy101/people/170341.htm">United States</a>, the ambassador’s role also involves <a href="https://diplomacy.state.gov/discoverdiplomacy/docs/208086.htm">coordination of the various agencies</a> (for instance, coordinating between the departments of defence, commerce and treasury on sanctions) that may be represented in a given country, because the US typically has a larger footprint than other countries. The president appoints the US ambassador, who reports to the secretary of state.</p>
<p>Given the functional requirements of the position, ambassadors might be expected to possess serious foreign policy expertise and experience. However, this is not always the case. </p>
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Read more:
<a href="https://theconversation.com/how-do-you-become-an-ambassador-36934">How do you become an ambassador?</a>
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<p>Over the years, the US and other countries have appointed <a href="https://www.heritage.org/global-politics/commentary/how-become-us-ambassador-0">businessmen</a>, <a href="https://www.smh.com.au/politics/federal/coalition-quick-to-match-labor-in-making-politicians-diplomats-20150618-ghrgl2.html">ex-politicians</a>, <a href="http://www.slate.com/articles/news_and_politics/politics/2014/02/map_of_ambassador_posts_given_to_obama_s_top_fundraisers_noah_bryson_mamet.html">fundraisers</a> and other people from outside the diplomatic establishment to ambassadorial positions. </p>
<p>Arguably, such appointments reflect the <a href="http://foreignpolicy.com/2009/05/28/do-we-really-need-ambassadors/">diminished role of ambassadors</a>. The reality is that modern foreign policy work actually happens at home – in the external affairs departments of governments. In the US, foreign policy is the domain of the Department of State, which is typically headed by a powerful <a href="https://www.state.gov/secretary/2018/">secretary of state</a>. Ex-CIA director Mike Pompeo was confirmed as the new secretary of state on April 26 after Trump fired Rex Tillerson.</p>
<h2>Why the vacancy is not an insult</h2>
<p>The Trump administration has recently been preoccupied by a number of high-profile <a href="https://www.thedailybeast.com/trump-moves-to-remake-his-team-with-loyalists-cable-news-stars-and-killers">problems with executive appointments</a> and resignations. The withdrawal of Trump’s nominee to lead Veterans Affairs is just <a href="https://edition.cnn.com/politics/live-news/ronny-jackson-trump-va/index.html">one illustration</a>.</p>
<p>On the ambassadorial front, the Trump administration has been <a href="http://www.latimes.com/nation/la-fg-trump-ambassadors-20180328-story.html">particularly slow</a>. Of the 186 ambassadorial positions in global capitals, <a href="http://www.afsa.org/list-ambassadorial-appointments">62 are vacant</a>. About 17 of these are because the Senate has not yet confirmed the president’s nominee.</p>
<p>Another reason for delays in ambassadorial appointments may be <a href="https://www.vox.com/policy-and-politics/2018/2/12/17004372/trump-budget-state-department-defense-cuts">budget cuts</a> imposed on the State Department. These cuts have led former senior diplomats to accuse the administration of <a href="https://www.thehill.com/homenews/administration/341923-trumps-war-on-the-state-department">gutting America’s diplomatic capabilities</a>.</p>
<p>Moving Admiral Harris to Seoul is not an insult or reflection of Australia’s “second-class” status. It can be explained by the simple reality of the <a href="http://thehill.com/opinion/white-house/377651-add-north-koreas-human-rights-abuses-to-agenda-for-truly-momentous">heightened diplomatic activity in the Korean Peninsula</a>. </p>
<p>In fact, Harris’ appointment in the first place belies criticism that the US treats Australia as “second class”. Harris was previously commander of the US Pacific forces and was <a href="https://www.nytimes.com/2018/02/12/world/australia/harry-harris-us-ambassador.html">appointed because of his strong record on China</a> – indicating the importance of Australia in US strategy for the region.</p>
<p>Trump’s sudden <a href="https://www.whitehouse.gov/briefings-statements/remarks-republic-korea-national-security-advisor-chung-eui-yong/">announcement of a summit with North Korean leader Kim Jong-un</a> after a prolonged period of exchanging insults and escalating threat of war caught the foreign policy establishment by surprise. Harris’ changed appointment merely reflects the need for a diplomat with strong military experience in a high-risk arena. </p>
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<a href="https://theconversation.com/five-assumptions-we-make-about-north-korea-and-why-theyre-wrong-84771">Five assumptions we make about North Korea – and why they're wrong</a>
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<p>Equally, the transfer is a luxury afforded by the strong relationship between Australia and the US, where an urgent appointment may not be necessary. US-Australia relations have been resilient even without an ambassador in place.</p>
<p>To recollect, Trump’s now infamous phone call with Turnbull <a href="http://www.latimes.com/nation/la-fg-us-australia-20180222-story.html">did not adversely affect the relationship</a>, as evidenced by the <a href="https://www.msn.com/en-au/news/australia/donald-trump-rolls-out-red-carpet-for-malcolm-turnbull-at-white-house/ar-BBJvhzH">warmth both sides exhibited during Turnbull’s visit</a> to the White House in February.</p>
<p>Aside from the friendship at the highest level, ministerial and other contacts have sufficed to ensure cooperation on bilateral and multilateral matters.</p>
<p>At the same time, a quick appointment would be desirable. <a href="https://www.state.gov/r/pa/ei/bgn/2698.htm">Australia is a close ally</a> with a stable relationship, but sits in a region with escalating tensions.</p>
<p>Chinese navy vessels apparently “<a href="http://www.abc.net.au/news/2018-04-20/south-china-sea-australian-warships-challenged-by-chinese/9677908">challenged</a>” Australian warships in the South China Sea as they were en route to Ho Chi Minh City on April 15 this year. <a href="https://www.reuters.com/article/us-china-defence/exclusive-satellite-images-reveal-show-of-force-by-chinese-navy-in-south-china-sea-idUSKBN1H3135">China also conducted massive live-fire drills</a> in the South China Sea earlier this month, with at least 40 ships participating. </p>
<p>These incidents present a challenge to both Australia and <a href="https://edition.cnn.com/2018/03/28/asia/south-china-sea-drills-liaoning-intl/index.html">the US</a>. Tensions with Russia, Iran and North Korea, the Trans Pacific Partnership, <a href="https://www.businessinsider.com.au/trade-war-kpmg-modelling-recession-australia-jobs-2018-4">trade tariffs</a>, joint military engagements, and other matters of import would all benefit from the presence of a US ambassador.</p>
<p>The new ambassador’s immediate priority is likely to be to assuage wounded public sentiments and rebuild confidence in Australia’s status as a key Washington ally.</p>
<p>Then there are the more challenging tasks of responding to China, cyber and maritime security threats, trade conflicts and the diurnal consequences of unprecedented presidential foreign policy-making by tweet.</p><img src="https://counter.theconversation.com/content/95711/count.gif" alt="The Conversation" width="1" height="1" />
<p class="fine-print"><em><span>Sandeep Gopalan does not work for, consult, own shares in or receive funding from any company or organisation that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.</span></em></p>The US Ambassador to Australia post remains vacant after Admiral Harry Harris was reassigned to South Korea. But the diminished role of ambassadors means this is not cause for alarm.Sandeep Gopalan, Pro Vice-Chancellor (Academic Innovation) & Professor of Law, Deakin UniversityLicensed as Creative Commons – attribution, no derivatives.tag:theconversation.com,2011:article/409682015-04-30T00:36:20Z2015-04-30T00:36:20ZAustralia should send ambassador back to Indonesia immediately<p>My brother died in Indonesia last year – albeit in very different circumstances to <a href="http://www.abc.net.au/news/2015-04-29/andrew-chan-and-myuran-sukumaran-executed/6426654">Myuran Sukumaran and Andrew Chan</a>. I know what it is like to have to fly to Bali, grieve for a sibling, and then organise for them to be brought home. It is tough regardless of the circumstances of death. But it is members of the Australian diplomatic staff who make the difficult circumstances less hard deal with.</p>
<p>This is one of several reasons why Australia should reverse its decision to <a href="http://www.theguardian.com/world/2015/apr/29/bali-nine-executions-tony-abbott-to-recall-australias-ambassador-to-indonesia">withdraw</a> its ambassador to Indonesia, Paul Grigson, in response to Chan and Sukumaran’s executions. Harsh as it is to say, the Australia-Indonesian relationship is far more important than the protest over two dead drug traffickers. </p>
<p>On average, an Australian dies in Bali <a href="http://www.dailytelegraph.com.au/how-one-aussie-tourist-dies-every-nine-days-on-paradise-island-of-bali/story-e6freuy9-1226448671303">every nine days</a> – let alone the rest of Indonesia. Each nine days in Bali a family has to go through the grief of pain and suffering that accompanies losing a loved one. While the circumstances were different, Australia’s consul-general gave great support to our family when we needed it. It did the same for Chan and Sukumaran’s families.</p>
<p>Each time an Australian dies, members of the Australian diplomatic staff are on hand to help. The ambassador and <a href="http://www.9news.com.au/world/2015/04/28/11/44/bali-nine-pair-myuran-sukumaran-and-andrew-chan-in-execution-over-drug-smuggling-charges">consul-general</a> lead the staff who provide this support. Australians are the ones who suffer when this support is weakened.</p>
<h2>Other aspects of the relationship at stake</h2>
<p>Australia’s <a href="http://dfat.gov.au/trade/resources/trade-at-a-glance/Pages/top-goods-services.aspx">third-largest export</a> is international education, where <a href="http://dfat.gov.au/geo/indonesia/Pages/indonesia-country-brief.aspx">Indonesia</a> is one of the critical markets. Beef, resources, manufactured products and other goods are sold into that market. </p>
<p>Australian diplomatic staff assist, help and encourage our trade. Again, Australians suffer when the diplomatic post is weakened.</p>
<p>Australian <a href="http://www.liberal.org.au/latest-news/2014/06/05/joint-press-statement-president-yudhoyono-batam-island-indonesia">joint training</a> with Indonesian military forces has come a long way since the middle of last century. Many credit the joint training as assisting in the de-escalation of a number of tense moments in the <a href="https://www.polity.co.uk/up2/casestudy/INTERFET_case_study.pdf">INTERFET peacekeeping deployment</a> in East Timor. As such, weakening diplomatic ties harms Australia’s security.</p>
<p>Police co-operation in people and drug trafficking has helped reduce the flow of trafficked women, asylum seekers and drugs into Australia. While there are <a href="http://www.smh.com.au/federal-politics/political-news/bali-nine-executions-australian-federal-police-to-break-silence-on-bali-nine-20150429-1mvyex.html">legitimate questions</a> over the Australian Federal Police’s actions in the Bali Nine case, weakening Australia’s diplomatic mission makes Australia more vulnerable to people and drug smuggling.</p>
<h2>The doctrine of proximity</h2>
<p>Do Australians really want the country weakened in trade and security? Do we really want the ability of our diplomats to assist families in grief or businesses seeking to trade lessened?</p>
<p>If one bases protests over the executions on human rights, them Australia is on shaky ground. Human rights law is <a href="https://theconversation.com/hard-line-on-refugees-undermines-principled-opposition-to-execution-40953">said to be “universal”</a>. If this is the basis for being upset, then the protest should be equal regardless of who is executed and where the executions take place. The protest should be the same regardless of whether the execution takes place in the US or Indonesia, or if the person executed is Australian or of another nationality.</p>
<p>Australia did not withdraw its ambassador to Singapore in 2005 following the execution of one of its citizens, <a href="http://news.bbc.co.uk/2/hi/asia-pacific/4487366.stm">Van Tuong Nguyen</a>. Australia very rarely protests against US executions. Any Indonesian would have to query an apparent hypocrisy in the differing positions based on nationality.</p>
<p>Likewise, while most Australians can name the two Australians killed, can they name the others killed at the same time who do not share our passport? There is a “doctrine of proximity” in which people feel more strongly about events that are perceived closer to them. Killing one “of ours” will also mean more to Australians than killing someone else.</p>
<p>But if we are protesting based on proximity, let’s not hide behind the “universality” of human rights when really many only care about Australians killed.</p>
<h2>Relationship is already complicated</h2>
<p>Australia has a <a href="https://theconversation.com/bali-nine-poor-political-leadership-creates-lasting-bilateral-problems-37753">complicated relationship</a> with Indonesia. It is such a shame that it is not a relationship based as much on trust and collaboration as it could be. This is why the recall of the ambassador is an important step. But is it as big a deal as it has been said?</p>
<p>Prime Minister Tony Abbott claims the ambassador’s recall is an <a href="https://theconversation.com/australia-withdraws-its-indonesian-ambassador-in-execution-response-40951">“unprecedented step”</a> that makes Australia’s protest clear. This is simply not true.</p>
<p>Recalling ambassadors is quite common in diplomatic circles. It happens for all number of reasons and is one of the more mild levels of diplomatic protest. </p>
<p>The trick in an ambassadorial recall is not the withdrawal, but the timing of when to return the ambassador – especially if the circumstances that triggered the withdrawal do not change. The longer a country drags out the process, the harder it is to send them back.</p>
<p>The people who suffer in this withdrawal are Australians, more than Indonesians. Why make our own people suffer for a largely toothless protest?</p><img src="https://counter.theconversation.com/content/40968/count.gif" alt="The Conversation" width="1" height="1" />
<p class="fine-print"><em><span>Andrew MacLeod does not work for, consult, own shares in or receive funding from any company or organisation that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.</span></em></p>Australians are the ones who suffer when consular support is weakened overseas.Andrew MacLeod, Visiting Professor, Public Policy, King's College LondonLicensed as Creative Commons – attribution, no derivatives.