interview
Ambassador Mike Raynor joined the State Department in 1988, and is a career member of the Senior Foreign Service with the rank of Minister Counselor. He has been Director of the Bureau of Human Resources’ Office of Career Development and Assignments since September 2016. From August 2015 to August 2016, he served as Assistant Chief of Mission in Kabul, with responsibility for the embassy’s foreign assistance, counter-narcotics, and law enforcement portfolios as well as its consular, management, and security functions. He served as the U.S. Ambassador to Benin from 2012 to 2015.
From 2010 to 2012, he served as Executive Director of the Bureau of African Affairs, following two years as the Deputy Executive Director. He has spent much of his career in Africa, including as management officer in Harare, Windhoek, Conakry, and Djibouti, and as General Services Officer in Brazzaville. He also served as Zimbabwe desk officer in the Bureau of African Affairs, Special Assistant and Legislative Management Officer in the Bureau of Legislative Affairs, and Consular Officer in Luxembourg. Ambassador Raynor arrived in Ethiopia to assume his role in September 2017.
Addis Standard’s Ephream Seleshi sat down with Ambassador Raynor for this exclusive interview, only the second Ambassador Raynor has given to media since he moved to Ethiopia. Excerpts:
[Given how things have changed within the last three months] do you think Ethiopia has avoided danger or just delayed it?
Ambassador Raynor: I wouldn’t have really characterized it that way. What I would say is that Ethiopia has created amazing opportunities. I think I understand your question and if I take us back to when former prime minister Hailemariam [Desalegn] announced his resignation and, by the way, I just want to say that that was an extraordinary moment in Ethiopian history and, frankly, in world history, that he took that moment to articulate a vision that governance is not about having power or holding onto power but to do what you think is right for your country and people; and at that moment he decided that the right thing to do was to step back in a way that he thought would accelerate reforms and I thought that was an amazing gesture and I thought it created amazing opportunities and that’s what I mean when I say that it seems to be a moment of opportunity. After that resignation we watched how the EPRDF decided what to do with that opportunity, watched the people of Ethiopia debate what to do with that opportunity and to us it has created a moment of great opportunity and real change and that’s something we find very exciting.
[The release of thousands of prisoners is one of the changes EPRDF is conducting since the resignation of former Prime Minister Hailemariam. But the issue of justice to those wronged by the same government is missing from the reformed EPRDF.] Will your country put efforts to help or even pressure the Ethiopian government to give justice for these prisoners?
One of the most consequential things that has happened in recent months has been the release of so many prisoners, I mean thousands of prisoners. That there were thousands of prisoners to be released is, of course, an extraordinary thing in its own right. But I’ll say that I have met with a number of them and it’s been a really inspirational thing. And what I have found consistently with the ones I’ve met, and obviously I’ve only met a small subset but it included some very prominent thinkers in terms of the political opposition and as you said people who paid an extraordinary price for the courage of their convictions, and the thing that struck me about them is that they were looking ahead. They were looking to where they wanted this country to go. They were talking to us about what they thought we might be able to do to support that and they were talking about what they themselves were planning to do. Issues of justice for them, you know, that’s a difficult issue. I feel I’d be a little presumptuous to say exactly how that should play out and that’s something that I think is very specific to individual cultures, individual people, individual histories. I think it is something that needs to be discussed openly and I think it is something that the Ethiopian people and the government need to think about and figure out the right way forward. Where on the spectrum Ethiopia falls in terms of justice, in terms of reconciliation, I think these are very specific questions that only Ethiopians can answer.
How did the protests of the past four years affect the US’ engagement with Ethiopia both diplomatically and in terms of development projects that are funded by the US?
I can probably speak best about the nine months I’ve been here. And so if I may, I’ll just constrain my answer to my own personal experience. I arrived at a moment when the previous state of emergency had just been lifted. It was the aftermath of a period of great unrest in the country. And I found the country to be rather pessimistic, the people to be rather pessimistic, rather shaken by what they had been going through over the previous months. As a representative of the US government, I had to figure out what to do with that reality.
We decided a couple of things. One is that we decided that we’d reinforce the fact that we’re friends with this country and we are friends with the people of this country. And we want what’s best for this country as a partner. We want it for the sake of Ethiopia, but we also want it for the sake of the US. We have very strong areas of collaboration; the development of this country, the economic growth of this country, the education, the food security also our partnership in helping to create political and peace-keeping solutions to some of the strains the region faces as well. It’s been a long standing partnership and a longstanding and important relationship. But we felt that it was being undercut by the fact that the Ethiopian people were growing increasingly dissatisfied with their own governments. So, these were conversations we had very frankly with the government of Ethiopia.
You’ll have seen that the day after Prime Minister Hailemariam resigned and the re-imposition of the state of emergency, the day after that we put out a public statement that was quite forceful in expressing concern, because we felt Ethiopia had reached a moment of opportunity and we wanted to express our hope that Ethiopia would benefit from that opportunity. So in the context of a longstanding and important relationship and a true friendship with this country we were doing what we could to encourage what we felt was necessary for this country to be stable and prosperous going forward which was greater political freedoms.
Fast forward to the past three months, many are convinced that the US was one of those countries that have unambiguously supported the nomination of Dr. Abiy Ahmed to the position of prime minister of Ethiopia. Why was that?
Let me say that we didn’t exactly do that. One of the things we have to do is respect the fact that it is up to Ethiopians to decide what their leadership is going to be. What we did was articulate a vision for the kind of outcome we wished for Ethiopia which was an outcome that felt credible to the people that felt inclusive to the fullest extent that current political realities would have allowed. So that was the context within which we watched, with great interest, the EPRDF choose Dr. Abiy as the new prime minister and we regarded that as an expression of the Ethiopian people through their own engagement but also the EPRDF in its selection process as an expression of the desire for change and we welcomed that.
So, in a way, your country believed all of these, the desire for change, the opening up of new opportunities and the people’s will was encapsulated by the nomination of Dr. Abiy Ahmed as the Prime Minister of Ethiopia?
I think that is very, very well put. We spend a lot of our time dealing with the government and other partners, but we also spend a lot of our time talking to Ethiopians. Ultimately, as much as anything, my job here is to build those connections, to build those bridges between the American people and the Ethiopian people and in doing so we felt and we perceived the desire for change. And I think in the aftermath of the selection of Prime Minister Abiy, we’ve seen what felt like a fundamental reset in the atmosphere of this country, one of more optimism and hope and one of more enthusiasm. To us, once again, this seems to be an expression, to some extent, the desire of the people for change being perceived to be becoming a reality.
But there were [still are] many who were discontented at the nomination and selection of Prime Minister Abiy. It is believed that most of these people are wither members of the TPLF or its sympathizers; in fact there were rumors that some have written to the US government opposing this. Can you confirm and if so, what was your reaction?
First I have to say I did not receive any communications from the TPLF of any kind, much less one expressing any particular opinion about that. I think the question sort of suggests a greater role of the United States in this process than we would have played. Again, we were observing this process play out. We articulated a general vision of our desire or improved governance, for improved rights, for improved inclusiveness and then we stepped back and we watched that process play out. You mentioned that certain elements of Ethiopian governance and society are less comfortable with changes than others. I think that’s fair and that’s natural. Change is stressful. Even positive change can require adjustment from people. And people who are uncomfortable with this change, I think that’s part of human nature and I think what’s happening and what’s important to be happening is that that’s provoking dialogue, that’s provoking discussions within the EPRDF, within the society more broadly about where this change is going to take people and for us that feels healthy, that feels democratic. So, it’s something we welcome.
But given the entrenched interest of those who are discontent with the change many express concern that it could pose a danger to the opportunities that we now see. Do you share this concern?
I don’t perceive danger. As I said I perceive dialogue and discussion and I perceive people working through how they feel about what’s happening in this country. To be honest with you, the winds of change in this country, the dynamism and the momentum that [Prime Minister] Abiy has already created seem quite strong. We are not perceiving any efforts or anything we regard as fundamentally putting this trajectory at risk. That said, obviously there are going to be different views, and there are going to be people who are going to embrace this change and people who are going to resist it. I think part of the democratic process is to discuss all of these things, work through them, try to get as much buy in as the government can for the changes they are pursuing. I think [what is] an important element of democracy is the winners win but they still represent everyone in the country, even people who might feel like they lost. So everything the government can do to embrace the totality of what’s happening in this country and to be as responsive and representative of as many people as possible, I think would be a healthy thing. But again, we see that happening in the context of the trajectory of very positive and very dynamic change.
Do you believe elections are due then?
Well, they’re due on their schedule. I think we are due municipal elections some time fairly soon in the next year or so and certainly we are due the general elections in 2020. One of the things we’ve seen with Prime Minister Abiy is that he has set a tone of political inclusiveness. He’s reaching out to the diaspora, he’s reaching out to the opposition, he’s reaching out to people that had previously been branded as terrorists many of whom had taken up residence in the United States. So, how that plays out between now and 2020 is something, I think, we’ll be very interested to watch. But we very much welcome the tone of political inclusiveness, the notion that the political opposition isn’t the enemy- they’re the competition. I think that is a very healthy construct and I think it’s something that creates real possibility for more inclusive political process leading up to the 2020 elections.
Currently the Ethiopian parliament is 100% controlled by the ruling EPRDF and there are sweeping changes being approved by the same parliament. Don’t you think that puts the Ethiopian people at a major disadvantage, that they might not have a voice in some of these changes being undertaken by the parliament?
I think it remains to be seen how it plays out. But, I have to say that although I understand that there is a lot of Ethiopians who feel any solution that is within the EPRDF is suspicious, I have to say that we are seeing enormous change within the ERPDF. Prime Minister Abiy is within the EPRDF and he’s articulating a vision of reform and political inclusiveness that, I think, really creates opportunities that can go well beyond EPRDF. And so I think, change is a process. I think change need not be destabilizing or disruptive. I think it can sometimes take time and I think it can sometimes take more time than some people would like. But I think we have to acknowledge that we have seen enormous change in a very brief amount of time since Prime Minister Abiy was selected. That, to me, creates possibilities for further political reform to come.
How will these changes or reforms affect the US’ involvement particularly in supporting the civil society, human rights organizations and media freedom in the country?
Well, we have long had the position that we wished for greater freedom for civil society. An engaged, dynamic civil society informs governance as well or better than any other single element of society. We feel that by cutting itself off from as dynamic a civil society as possible, through the CSO law for example, the Ethiopian government has robbed itself of resources that could have informed and improved governance decisions. We very much would welcome in the coming days efforts to address the constrains on civil society. We have many civil society partners here but I’ll tell you that relative to other countries where I have served we have fewer and they are less empowered than we would like to see. We are hoping that changes in the days ahead.
Tensions are flaring up in many parts of Ethiopia; the inter-ethnic dynamics is experiencing strains. What would you say should be done to avert the kinds of violence we saw in recent weeks in places like Hawassa and Sodo in the south?
Thank you, it’s a really important question and it’s a central question. Frankly it is one we are grappling with trying to get our own understanding of. We are outsiders and what we are seeing are dynamics that have existed in some form or another for centuries in some cases. We are very saddened by the ethnic unrest that has flared in numerous areas of Ethiopia. It’s not new, unfortunately, but it seems to persist and there has been a flare up of late. Anytime we see Ethiopians against Ethiopians causing destruction, causing harm, causing death, it feels like a very sad thing and it feels like it’s not taking the country forward. I think it is something that the government has to engage on, it is engaging on.
My only thought is that perhaps civil society, community leaders, religious leaders can encourage a bit of patience, can encourage a bit of hope, can encourage a bit of pride, if I may put it, in the fact that Ethiopia is an amazing country and the Ethiopian people are amazing people. And if they can accentuate the strength that Ethiopia has and the strength and the bonds that Ethiopians have and perhaps they can say “this is not a great time to be tearing the country or each other apart. This is a time to be coming together. This is a time to be supporting the change underway. This is a time to be supporting each other.” I don’t have the standing to give that message in the way that Ethiopian civil society and leaders do. But I think it is an important aspect of what’s going on now to encourage that sort of frame of mind.
Lets move to recent developments between Eritrea and Ethiopia. How does your country view Ethiopia’s willingness to fully implement the Algiers agreement and the EEBC’s ruling?
Well, it was yet another extraordinary thing that Prime Minister Abiy has done. It was a fundamental reset, as, again, he has done in many other aspects of his announcements on political, economic areas as well. It created, again, opportunity where it seemed like it might not exist and people wondered when it might happen. So it was an enormously important gesture.
Both his initial speech when he was sworn in at parliament when he expressed in general terms his desire for reconciliation with Eritrea and more recently his announcement of respect for the Algiers Agreement, a really consequential development which has since been reciprocated by the government of Eritrea’s decision to send a delegation to Ethiopia for talks. The United States has put out a public statement from the White House embracing this development and encouraging next steps. It is a really consequential issue. This disagreement, this problem between these two countries has been good for neither of these countries, it has not been good for the region. If these countries can get past it, it’ll be good for their economies, it’ll be good for their societies, it’ll be good for the stability of the region. So if we can get there, it’ll be hugely consequential and we strongly encourage both governments to persist in trying to reach that outcome.
Obviously, there will be a lot of diplomatic shuttle to further consolidate these changes. Is the US planning to be a part of it?
Well, we have said to both parties, and publicly, and continue to say that we are available to play that role. Back in the day of the Algiers Agreement the United States was formally a guarantor; we had a structural role established at the point that the agreement was made. We have encouraged this outcome for sometime with both governments and in doing so we have said ‘If you collaboratively feel there is a role that the US can constructively play, we’ll do everything we can to support that’. We have not been asked in any form or way to play any sort of role in that process. But if we are, we would look very strongly at doing everything we can to respond favorably.
Do you think there should be further measures the Ethiopian government could take in order to avoid the odds against any conflict between the two countries during this period of transition?
I think at this point the two parties need to sit down. If such steps are identified then we would hope that both countries would do what they could to build confidence and to do so in a way that seems responsive to the other party’s concerns. In terms of what those specific steps might be, it would be premature and presumptuous for me to suggest anything. I think that has to be an outcome of discussions between the two governments.
AMany analysts are asserting that the increase in pressure from the US played a role in pressuring Ethiopia to make this decision. What are your comments about that?
While that might seem flattering in a way, I think it overstates things. I think we’ve played a constructive role. As I said, we’ve had engagements with both countries for a number of months now encouraging this outcome. That predates Prime Minister Abiy, but certainly includes the time and period he came to power. But, I think Dr. Abiy came to power with very clear ideas of what he wanted to do and what his priorities would be. From the moment he addressed the parliament upon being sworn in, he had articulated reconciliation with Eritrea as being among those priorities. What you’re seeing here is the Ethiopian government driving this process and deciding to make it a priority.
Your top Africa diplomat, Ambassador Donald Yamamoto, has been to Eritrea and discussed with the Eritrean government and did the same here in Ethiopia. What was the immediate purpose of his visit?
Exactly what I said-encouraging both sides to look for possible ways to come together. Pure and simple.
Is the US engaged with Eritrea in trying to bring about democratic change in the country?
We are very much interested in having Eritrea become a constructive actor in the region and a good neighbor. We are very hopeful that this can be an outcome of this process. We are looking very much to encourage both sides to find common ground to move to a place where both countries are engaging with each other and with the region in ways that build up the region and themselves. That, I think, is a really possible outcome thanks to these recent developments.
In his speech on Eritrean Martyr’s day on June 20 President Isaias Afeworki placed a lot of the blame for the acrimony between Ethiopia and Eritrea on, among others, the ‘defunct policies’ of the US government. What’s your reaction to that?
I am really not going to react to that. The president of Eritrea is, certainly, free to speak his mind. He did so in the context of expressing a desire to come together with Ethiopia to find a way forward. To us that’s the important part of his message and the important part of where we are right now.
Does that mean the US sees a democratic Eritrea with Isaias Afeworki at its helm?
At this point I’d have to refer you to my counterpart in Eritrea if you’d like the conversation to be about US policy towards Eritrea. I represent our government in Ethiopia and I don’t really have a whole lot to add to what we’ve already been discussing in that regard. I am not going to talk about bilateral relations between the US and a country I’m not accredited to. But I’ll say, once again, that we are extremely encouraged to see these two parties talking to each other and planning to get together. That is really the main takeaway and an exciting one.
What kind of Ethiopian influence does the US want to see in East Africa?
I think we see it. We see in Ethiopia as a country that engages in multiple ways to try to bring stability and harmony and commonality of purpose to a really volatile and troubled region. It’s an important role that Ethiopia plays politically and it’s an important role that Ethiopia plays in terms of its peace-keeping engagements. We are proud to support Ethiopia in those efforts. We confer with them frequently on next steps. But in terms of the broad desire the US has with regards of the Ethiopian region, it is to find ways to support what Ethiopia already does, which is try to be a very constructive actor in a challenging area.
Ethiopia recently signed an agreement with DP World and Somaliland to acquire 19% of the port of Berbera. How does the US see that?
We don’t really have a view on that. Ethiopia has to figure out what makes sense for its own interests and for the relationships it maintains in the region. But it is not the sort of thing that the US government would stake out a particular position on.
How does the US react to the recent geopolitical shifts in alliances happening in the Horn of Africa due to the Qatar crisis?
Again, it is something that goes a little bit beyond my direct engagement. But I think as with all engagement between nations, everyone benefits when that engagement is transparent and when it reflects mutual interest. And I hope that as the countries of the Horn including Ethiopia engage with Gulf States as any other states that’ll play out in a way that helps bring about a region that is harmonious, stable, prosperous and has as much of a commonality of purpose as possible. How that plays out in terms of the Gulf States in the region is something I really can’t speak to in much more detail.
There are many military outposts in the Horn of Africa, especially in Djibouti. Do you think Ethiopia should have a say in the decisions to establish military installations in its vicinity?
I think any neighbors need to be in a position they can talk to each other about developments in the countries that might impact each other. I think that happens. I think Ethiopia has frank and ongoing relationships with all of its neighbors and I imagine that part of those discussions touch on the area you are referring to.
Lets’ get back to Ethiopian politics. How does the US view the struggle by the Ethiopian youth, especially the youth in Oromia and Amhara regional states, that brought in the new administration and the political change we are witnessing today?
I think we are not the first to figure out that one of the biggest challenges and one of the biggest opportunities in front of Ethiopia right now is a very large, very dynamic, very motivated youth population. Depending on how you define youth, doesn’t matter, we’re still talking about tens of millions of people. And I think you’re right. I think that one of the reasons that Prime Minister Abiy is in power today is because he was listening to the youth and he was learning from the youth and he was thinking about how to be responsive to the youth. So, I think it is one of the biggest challenges Ethiopia faces right now. You’ve got a young population that wants to be politically empowered, that wants to be economically empowered. But I think if you unleash the potential of Ethiopia’s youth, you’ll strengthen this country immeasurably.
There are many Ethiopian activists in the United States such as Jawar Mohammed, who actively affected many of the outcomes that we’re seeing now. First, what do you think of the roles played by these activists? And because many of these activists have been a thorn in the side of previous Ethiopian administrations, has there ever been a request for any one of them to be deported to Ethiopia, as some people in Ethiopia have publicly suggested?
Again this is one of the areas where what Prime Minister Abiy is doing is extraordinary in its vision and its potential for impact. I grew up in the Washington DC. area and I know that the Ethiopian population in the United States is extremely smart, dynamic, thoughtful, successful and interested and committed to the welfare of Ethiopia. So, what we have here, again I’m gonna get back to it, is opportunity. Dr. Abiy is reaching out to these people. He’s encouraging them to bring their expertise, their resources, the values they have developed both as Ethiopians and as Americans to bear on this country’s development. It’s a really exciting possibility and it’s a really an aspect of the Ethiopian strength that, I think, can be tapped more fully. So, it’s another aspect of everything going on today that we are encouraged by.
Finally, what message would you pass to the people of Ethiopia?
Thank you. I guess I’d say a couple of things. First I’d say that myself as a person and the country I represent, the United States, feel really excited and hopeful right now about Ethiopia. We are really inspired by the pace of change and by the scope of change. They’re going to face a lot of challenges, the Ethiopian people and the Ethiopian government.
This is a very big, very rich, very complicated, very dynamic country. It’s not going to be easy to address some of the political challenges, some of the economic challenges, some of the security challenges, some of the justice challenges that we have been talking about throughout this. But, I guess I’d say a couple of things. For everything that we, as Americans, worry about Ethiopia’s future, we’ve heard Dr. Abiy articulate a vision and a path toward resolution. And that, I think, is important. I think we feel that we’re hearing in Ethiopian leadership a government that understands the will of the people, understand the needs of its people and is working to address those.
That’s encouraging from where we sit. I guess the last thing I’d say is that I’d ask the Ethiopian people to think about what they might be able to do to support. Back in the 1960s we had a president named John F. Kennedy and he had a very famous quote: ‘Ask not what your country can do for you, ask what you can do for your country’. That’s a quote that Americans love because it talks about the shared responsibility, the reciprocal relationship between the governed and the governing. I think this is an interesting moment for Ethiopians to think about things in terms like that. To think about not just the grievances they might have, the frustrations they might have, the historical divisions they might feel and want to express but to put all of that aside and say ‘this is an amazing moment of opportunity, that I don’t think any Ethiopians saw six months ago!’. And to think about how they can contribute to this opportunity and to move their country forward. AS