Who gets out when a U.S. embassy closes, and who gets left behind?

February 12, 2015
Police troopers secure the entrance of the U.S. embassy in Sanaa

Police troopers secure the entrance of the U.S. Embassy in Sanaa, Yemen, Feb. 11, 2015. REUTERS/Khaled Abdullah

The American Embassy in Yemen closed its doors and evacuated its American staff on Tuesday. U.S officials say security concerns brought on by the advancing Houthi rebel group caused the closure. The Houthis say the evacuation was unnecessary, a political act seeking to undermine their legitimacy, and grabbed embassy vehicles on Wednesday. Closing an embassy can often be as much about strategic political aims, as it is about security concerns, but how hard is it to execute?

The decision to close an embassy is made by the secretary of state. It’s a decision that can have lasting consequences. For example, in a coup attempt, if the United States closes the embassy, it can be seen as a lack of support for the government and embolden the rebels. It can also signal the U.S. no longer thinks the government can maintain order, precipitating chaos. It may even encourage rebels to attack private American citizens, now seen as less-protected. Even in cases where the United States wants to be supportive of the host government, closing the embassy cuts off most forms of communication and puts an end to on-the-ground reporting by diplomatic staff.

The mechanics of closing an embassy follow an established process; the only variable is the speed of the evacuation. Sometimes it happens with weeks of preparation, sometimes with just hours.

Every American embassy has standing evacuation procedures, or an Emergency Action Plan. In each embassy’s emergency plan are built-in, highly classified “trip wires,” or specific thresholds that trigger scripted responses. For example, if the rebels advance past the river, take steps “A through C.” Or if the host government’s military is deserting, implement steps “D through E,” and so forth, until the evacuation is complete.

Early steps include moving embassy dependents, such as spouses and children, out of the country on commercial flights. Next is the evacuation of non-essential personnel, like the trade attaché, who won’t be doing much business if a coup is underway. While these departures are underway, the State Department issues a public advisory notifying private American citizens of the threat. The public alert is required by the U.S.’s “No Double Standard” rule, which grew out of the 1988 Lockerbie bombing of a Pan Am flight. In that case, threat info was made available to embassy families, but kept from the general public.

These embassy drawdown steps are seen as low-cost moves, both because they use commercial transportation, and because they usually attract minimal public attention.

Next is the destruction of classified materials. Mountains of paper need to be shredded, pulped, or burnt; electronics, weapons, and hard drives must be physically destroyed. Embassies measure how many linear feet of paper to calculate how long the process of destroying documents will take. Say there are 3 feet of paper in a file drawer, how many hours of shredding would it take for 500 drawers?

Embassies are typically guarded by a small, lightly-armed team of Marines. The Marines are trained to assist in reinforcing and evacuating embassies, and additional fully combat-equipped Marines can be brought into the embassy, either stealthily to avoid inflaming a tense situation on the ground, or overtly to send a message to troublemakers to back off.

Embassy support for private American citizens depends on the situation. At the State Department, planning and providing support for U.S. citizens was my job. At times, Americans are simply told to “shelter in place” and ride out a crisis and the State Department will ask a neutral embassy in-country, such as the Swiss, to look after its citizens. As a rule of thumb, if a commercial means of departure exists, private citizens must take it. Sometimes, the embassy will help with emergency loans to buy plane tickets or convoys to the airport. In cases where major airlines have suspended flights, but the local airport is still operating, the State Department can arrange charters. In extreme cases, (Yemen is not such a case) the Marines conduct a Noncombatant Evacuation Order (NEO) to pull citizens out of the country using military assets.

Local staff are rarely evacuated. The embassy’s cooks, drivers, and translators are usually left to make their own way in what can be a very dangerous environment for someone seen as an American collaborator.

At the very end, physical control of the embassy compound is handed over to a locally contracted security force, or perhaps the host country police, if possible. Some American is then literally is the last one out, shutting off the lights and locking the front door.

237 comments

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