Posted: 2:09 am EDT
The Office of the Inspector General inspected the U.S. Embassy in Tallinn, Estonia from October 3–22, 2014. It released its inspection report on June 18, 2015.
Inspection of Embassy Tallinn, Estonia
Posted On: June 18, 2015 Report Date: June 2015
Report Number: ISP-I-15-23A
Quick look at post fro the IG report:
Missionwide staffing is 42 U.S. direct-hire employees, including 27 Department U.S. direct-hire employees. The FY 2014 missionwide budget was $8.9 million. Other agencies represented at the mission include elements of the U.S. Departments of Defense, Justice, and Homeland Security. A small number of U.S. military personnel on rotation to Estonia fall under chief of mission authority. The mission has no consulates. The mission’s FY 2015 request for foreign assistance funds totaled $3.6 million for Estonian military stabilization operations and security sector reform ($2.4 million for foreign military funding and $1.2 million for international military education and training). Embassy Tallinn’s missionwide budget for FY 2014 was approximately $8.9 million. Department staffing was 27 U.S. direct-hire employees and 85 locally employed (LE) staff members.
Excerpt from key findings:
- The Ambassador and the deputy chief of mission provide appropriate oversight to the country team, and U.S. Department of State sections, in accordance with Section 207(a) of the Foreign Service Act of 1980. However, stronger leadership from the Ambassador and his greater adherence to Department of State rules and regulations are necessary.
- The political/economic section is staffed adequately to carry out its policy advocacy and reporting responsibilities but needs to adjust local staff portfolios and the language requirements of its U.S. officers to maximize resources.
- The public affairs section is central to mission efforts to carry out Integrated Country Strategy objectives, using traditional public diplomacy tools, media engagement, social media, and regional outreach to amplify policy messages.
- The embassy’s consular warden system has not been reviewed, activated, or tested since at least 2011. Worldwide tensions increase the need for an effective warden system with the flexibility to meet multiple contingencies, including the potential interruption of electronic messaging capability.
- The aging chancery does not meet—and cannot be retrofitted to meet—even the most basic security standards, and numerous infrastructure deficiencies need to be addressed if the embassy is to remain at its present location.
- The telecommunications and power cabling infrastructure throughout the chancery is disorganized and largely undocumented, which limits the ability of information management staff to carry out their duties.
- The embassy needs a comprehensive training plan for locally employed staff that reflects priority training needs.
- Internal management controls need to be strengthened, with particular attention to separation of duties, documenting processes and standard operating procedures, clarifying backup duties, and reassessing organization structure.
Here is what Section 207(a) of the Foreign Service Act of 1980 says:
Quite impressive, yo!
The ambassador is popular with the Estonian public, helped sold Javelin missiles worth $50–$60 million, met so infrequently with senior Estonian Government officials but succeeded, nonetheless, to get Estonia to accept one Gitmo detainee. This report reminds us of those evaluation reports where the drafter attempts walking on water. Excerpts:
- The Ambassador’s interpersonal skills have enabled him to participate effectively in public affairs and other programing in several parts of the country and have garnered him personal popularity with the Estonian public.
- His support for the military includes advocacy for U.S. military sales. His efforts have helped secure a sale to the Estonian Government of U.S. Javelin missiles worth $50–$60 million.
- The Ambassador, however, has not established strong relationships at the Government of Estonia’s ministerial level. In his 2 years as Chief of Mission, he has met infrequently with the Prime Minister or other ministers in the cabinet (less than 12 times during his 24 months in the embassy, in addition to initial courtesy calls or accompanying visitors and at public events). … Despite the infrequency of his meetings with senior Estonian Government officials, the Ambassador successfully led the effort to obtain the government’s acceptance of a Guantanamo detainee—an impressive achievement given the small size of the country and the government’s reluctance.
On getting the Estonians to “yes,” how did he do it? The IG report did not say, which would have been really helpful given how many Gitmo detainees we still need to place elsewhere.
On leadership, the IG report says:
The most significant findings concern the need for stronger leadership from the Ambassador and his greater adherence to ethics principles, Equal Employment Opportunity (EEO) guidelines, and security policies.
Buried in the report is this:
[T]he embassy staff rated the Ambassador below average in leadership categories, including vision, engagement, fairness, and ethics. Segments of the mission community, including some U.S. direct-hire and LE female employees told the OIG team that they feel undervalued. .. Some American and LE staff members gave examples of preferential treatment that the Ambassador afforded to specific employees and interns. It is imperative that the Ambassador reverse these perceptions; he indicated that he is willing to work hard to do so, and he began the process by apologizing to his staff before the inspection team’s departure.
On the EEO program, the report says, “The EEO program at Embassy Tallinn requires attention by embassy leadership.” Oy! What happened?
Non-review of visa issuances/refusals:
The DCM has not met requirements in 9 FAM 41.113 and 9 FAM 41.121 to review nonimmigrant visa issuances and refusals. The most recent regional consular officer report for Tallinn, dated January 2014, states that “[t]he DCM did not meet adjudication review standards…since the last regional officer report visit [in May 2013].” A Bureau of Consular Affairs preinspection report found that standards had also not been met between May 1 and July 30, 2014. The DCM’s review of visa adjudications at single officer embassies is especially important, as no other person provides required oversight and quality control.
Things that happen just before the OIG starts work, or leave post:
- The Ambassador’s efforts to establish an overall strategic vision, in accordance with 3 Foreign Affairs Manual (FAM) 1214, have not been successful. Few of Embassy Tallinn’s senior leaders can articulate the Ambassador’s overall strategic vision or identify the top priorities contained therein, despite an off-site planning session held just days before the start of the inspection. The Ambassador held the previous planning off site almost 2 years earlier—too long ago to enable employees to have a lasting awareness of his goals and direction. A clear shared vision—key to coordinated team work and productivity—is missing. Greater communication is needed. No structured effort exists to inform the mission employees, including LE staff members, of the outcome of the planning session, which has left a large part of the embassy team uninformed.
- At the start of the inspection no program was in place for mentoring the mission’s two first- and second-tour (FAST) employees, and some mid-level officers stated that they would welcome mentoring on career development issues. The DCM structured a FAST program and scheduled initial mentoring sessions prior to the inspection team’s departure.
Counsel from EUR/Office of the Legal Adviser?
Elsewhere on the report, it says that “the OIG team identified instances in which the Ambassador did not appear to adhere to established Department rules and regulations. Each instance was small, but collectively they suggest his disregard for adherence to the rules.” It recommends that EUR, in coordination with the Office of the Legal Adviser, should counsel the Embassy Tallinn Ambassador concerning ways to avoid breaches of Department of State rules and regulations.
What the hey?
[T] he Ambassador has been involved only marginally in efforts that would identify potential opportunities in Estonia for U.S. businesses, as outlined in 18 FAM 015. He agreed to increase efforts in that area, as well as not to pursue Estonian export interests that would not directly result in U.S. jobs.
The IG inspectors cited Section 207(a) of the Foreign Service Act of 1980 on its key findings but forgot Section 207 (c) of the Act?
Oh darn, we almost forgot — whatabout curtailments?
Read more about that in U.S. Embassy of Curtailments.
Embassy Tallinn’s chief of mission is Jeffrey Levine. Prior to his appointment as ambassador to Estonia, he was the State Department’s director of Recruitment, Examination and Employment from 2010-2012 (HR/REE).
The OIG team who inspected the mission was headed by Marianne Myles who was previously Ambassador to Cape Verde (2008-2010). Prior to her appointment to Cape Verde, she, too was the director of the State Department’s Office of Recruitment, Examination and Employment (HR/REE). She was also Director of Policy Coordination for the Foreign Service’s Director General (DG/HR).
A side note here, HR/REE had three directors spanning at least six years who went directly from HR to an ambassadorship. (Luis Arreaga, the HR/REE director from 2008-2010 was appointed Ambassador to Iceland from 2010-2013). This is an extremely small club to belong to.
So we asked Mr. Linick’s office about its recusal policy. Wasn’t IG Linick concerned about potential conflict of interest in this instance? We also asked if there has ever been an instance when OIG inspectors who are/were FS members recused themselves when there is potential or appearance of conflict of interest?
Over the weekend, we received the OIG’s response to our inquiry. Repeated below in its entirety:
OIG strictly follows the independence standards established by the Council of the Inspectors General on Integrity and Efficiency (CIGIE). In order to ensure each inspector is free, both in fact and appearance, from personal, external, and organizational impairments to independence, OIG has a rigorous conflict review within the Office of Inspections (ISP).
Pursuant to this policy, prior to an inspection, every member of the inspection team must review a staffing chart with every employee of the inspected entity, and report, in writing, all prior professional and personal relationships with any such individual. ISP management and the Office of General Counsel carefully review this information to ensure that all ISP teams’ members are independent and free from real or apparent conflicts of interest. This process happens early in the inspection process as ISP assigns staff to individual teams. If any such conflicts are identified, ISP takes action to mitigate the conflict, which could include removing a team member from a team. OIG provides training to all inspectors on CIGIE independence standards and how to avoid conflicts of interest.
Regarding the Tallin inspection, OIG followed its standard procedure in reviewing input from Ambassador Myles regarding any relationships with employees in Embassy Tallinn and concluded her participation in the inspection was appropriate under CIGIE standards and OIG policy.
So there you go.
We must note that for years, the names of the OIG inspection team members were redacted from these publicly released OIG reports. We have railed about those redactions for various reasons. In 2013, when Steve Linick assumed charge of the OIG — the first Senate-confirmed IG since the 2007 resignation of Howard J. Krongard — one of his first actions was to release the names of the inspectors with the publicly available reports. We have not forgotten that.