Three months after the United States successfully pressed the
United Nations to impose strict sanctions on North Korea because
of the country’s nuclear test, Bush administration officials
allowed Ethiopia to complete a secret arms purchase from the North,
in what appears to be a violation of the restrictions, according
to senior American officials.
The United States allowed the arms delivery to go through in
January in part because Ethiopia was in the midst of a military
offensive against Islamic militias inside Somalia, a campaign
that aided the American policy of combating religious extremists
in the Horn of Africa.
American officials said that they were still encouraging Ethiopia
to wean itself from its longstanding reliance on North Korea for
cheap Soviet-era military equipment to supply its armed forces
and that Ethiopian officials appeared receptive. But the arms
deal is an example of the compromises that result from the clash
of two foreign policy absolutes: the Bush administration’s
commitment to fighting Islamic radicalism and its effort to starve
the North Korean government of money it could use to build up
its nuclear weapons program.
Since the Sept. 11 attacks, as the administration has made counterterrorism
its top foreign policy concern, the White House has sometimes
shown a willingness to tolerate misconduct by allies that it might
otherwise criticize, like human rights violations in Central Asia
and antidemocratic crackdowns in a number of Arab nations.
It is also not the first time that the Bush administration has
made an exception for allies in their dealings with North Korea.
In 2002, Spain intercepted a ship carrying Scud missiles from
North Korea to Yemen. At the time, Yemen was working with the
United States to hunt members of Al Qaeda operating within its
borders, and after its government protested, the United States
asked that the freighter be released. Yemen said at the time that
it was the last shipment from an earlier missile purchase and
would not be repeated.
American officials from a number of agencies described details
of the Ethiopian episode on the condition of anonymity because
they were discussing internal Bush administration deliberations.
Several officials said they first learned that Ethiopia planned
to receive a delivery of military cargo from North Korea when
the country’s government alerted the American Embassy in
Addis Ababa, Ethiopia’s capital, after the adoption on Oct.
14 of the United Nations Security Council measure imposing sanctions.
“The Ethiopians came back to us and said, ‘Look,
we know we need to transition to different customers, but we just
can’t do that overnight,’ ” said one American
official, who added that the issue had been handled properly.
“They pledged to work with us at the most senior levels.”
American intelligence agencies reported in late January that
an Ethiopian cargo ship that was probably carrying tank parts
and other military equipment had left a North Korean port.
The value of the shipment is unclear, but Ethiopia purchased
$20 million worth of arms from North Korea in 2001, according
to American estimates, a pattern that officials said had continued.
The United States gives Ethiopia millions of dollars of foreign
aid and some nonlethal military equipment.
After a brief debate in Washington, the decision was made not
to block the arms deal and to press Ethiopia not to make future
purchases.
John R. Bolton, who helped to push the resolution imposing sanctions
on North Korea through the Security Council in October, before
stepping down as United Nations ambassador, said that the Ethiopians
had long known that Washington was concerned about their arms
purchases from North Korea and that the Bush administration should
not have tolerated the January shipment.
“To make it clear to everyone how strongly we feel on this
issue we should have gone to the Ethiopians and said they should
send it back,” said Mr. Bolton, who added that he had been
unaware of the deal before being contacted for this article. “I
know they have been helpful in Somalia, but there is a nuclear
weapons program in North Korea that is unhelpful for everybody
worldwide.
“Never underestimate the strength of ‘clientitis’
at the State Department,” said Mr. Bolton, using Washington
jargon for a situation in which State Department officials are
deemed to be overly sympathetic to the countries they conduct
diplomacy with.
Sean McCormack, the State Department spokesman, declined to comment
on the specifics of the arms shipment but said the United States
was “deeply committed to upholding and enforcing U.N. Security
Council resolutions.” Repeated efforts to contact the Ethiopian
Embassy were unsuccessful.
In other cases, the United States has been strict in enforcing
the Security Council resolution. For instance, late last year,
American intelligence agencies tracked a North Korean freighter
suspected of carrying illicit weapons and pressed several nations
to refuse to allow the ship to dock. Myanmar, formerly Burma,
allowed it to anchor and insisted that there was no violation.
North Korea conducted its first nuclear test on Oct. 9, and the
Security Council resolution, adopted less than a week later, was
hailed by President Bush as “swift and tough,” and
a “clear message to the leader of North Korea regarding
his weapons programs.”
Among the biggest sticking points during the negotiations over
the resolution were Chinese and Russian objections to language
requiring inspections of ships leaving North Korea. The United
States repeatedly pressed China and Russia to agree to the inspections,
saying they were essential to enforcing the resolution’s
embargo on North Korea’s sale of dangerous weapons, like
ballistic missiles. In addition to the ban on the purchase of
weapons from North Korea, the resolution also called for a ban
on the sale of luxury goods to it and the freezing of its financial
assets in banks worldwide.
The measure had special relevance for several African states
that have long purchased low-cost military equipment from North
Korea. Ethiopia has an arsenal of T-55 tanks that it acquired
years ago from the Soviet Union and Eastern European nations.
For years, it has turned to North Korea for tank parts and other
equipment to keep its military running.
The Ethiopians bought the equipment at a bargain price; the North
Koreans received some badly needed cash. In 2005, the Bush administration
told Ethiopia and other African nations that it wanted them to
phase out their purchases from North Korea. But the Security Council
resolution put an international imprimatur on the earlier American
request, and the administration sought to reinforce the message.
“They really are one of the larger conventional arms purchasers
from North Korea, and we’re pressing them hard and saying,
‘Let’s get you out of that business,’ ”
said the American official.
Another American official, who is involved in Africa policy,
said: “These are cash on the barrel transactions. The Ethiopians
know that they can get the best deal in Pyongyang,” a reference
to North Korea’s capital.
In late January, the Central Intelligence Agency reported that
an Ethiopian-flagged vessel had left a North Korean port and that
its cargo probably included “tank parts,” among other
military equipment.
American officials said that the ship, the Tekeze, a modern vessel
bought from a company in Montenegro and named after an Ethiopian
river, unloaded its cargo in Djibouti, a former French colony
where the United States has based Special Operations troops and
other military forces. From there, the cargo was transported overland
to Ethiopia.
The Security Council resolution’s list of prohibited items
included spare parts. Because the cargo was never inspected, some
administration officials say the United States cannot say for
certain that the shipment violated the resolution.
It is not clear if the United States ever reported the arms shipment
to the Security Council. But because the intelligence reports
indicated that the cargo was likely to have included tank parts,
some Pentagon officials described the shipment as an unambiguous
Security Council violation.
American officials said the Ethiopians acknowledged that the
ship was en route and said that they needed the equipment to sustain
their Soviet-era military. Ethiopia has a longstanding border
dispute with Eritrea, but of more concern to Washington, Ethiopia
was also focused on neighboring Somalia, where Islamic forces
that had taken over Mogadishu, Somalia’s capital, six months
earlier and were attacking Baidoa, the seat of a relatively powerless
transitional government that was formed with the support of the
United Nations.
The timing of the shipment was extremely awkward, as the Ethiopian
military was preoccupied with Somalia and also quietly cooperating
with the United States. Ethiopia began an offensive in Somalia
to drive back the Islamic forces and install the transitional
government in Mogadishu late last year. The United States was
providing it with detailed intelligence about the locations of
the Islamic forces and was positioning Navy ships off Somalia’s
coast to capture fighters trying to escape the battlefield by
sea.
On Jan. 7, American AC-130 gunships launched two strikes on terrorist
targets from an airstrip inside Ethiopia, though it did not appear
that the casualties included any of the few top operatives of
Al Qaeda American officials suspected were hiding in Somalia.
After some internal debate, the Bush administration decided not
to make an issue of the cargo ship.
American officials insist that they are keeping up the pressure
on Ethiopia. While Ethiopia has not provided an ironclad assurance
that it will accept no more arms shipments from North Korea, it
has told the United States that it will look for other weapons
suppliers.
“There was a lot going on at that particular moment in
time,” said the senior American official. “They seem
to have the readiness to do the right thing.”