Last Wednesday,
French President
Emmanuel Macron delivered a speech in front of a
joint meeting of US Congress. He spoke in fluent English, fully engaged the crowd of politicians, and also managed to make pointed policy remarks. Overall, his speech can be counted as a great success for him individually and for France’s overall
diplomatic standing.
As I watched Macron receive multiple standing ovations in his widely lauded and reported speech, however, I began to think more broadly about the role of foreign presidential speeches in front of Congress. After all, not all foreign leaders are given this platform. Under president
Barack Obama, for example, 17 foreign heads of state received state dinners at the White House (including the five Nordic states at the same dinner), though only 13 spoke before Congress. Some of these, like
Pope Francis, spoke to Congress but did not have a state dinner.
The dinners and speeches, one representing the executive and the other the legislative branch, have their own distinct purpose and meaning. In my nearly seven decades of observing the dinners and listening to the speeches, the difference I have noticed between them is that state dinners are a sign of goodwill between the White House and the visiting leader; they are a diplomatic formality symbolising American hospitality and respect for the visiting dignitary. The speeches, on the other hand, extend a different type of respect. They indicate that the Congress and, by extension, the American people hold that leader in high esteem and are interested in hearing what they have to say.
In other words, state dinners are an internationally recognised diplomatic practice with set guidelines and etiquette. Speaking before Congress, on the other hand, is a much more uniquely American way to show our regard for a leader. What does it say, then, that a country as large and influential as
China has never had one of its paramount leaders address Congress?
In looking at which countries have addressed Congress, there are some patterns. US neighbours,
Canada and
Mexico, and close allies like the
United Kingdom are obvious candidates for speeches.
Israel, too, has unsurprisingly been granted this honour on multiple occasions. Beyond the clear choices, however, how are the speakers decided? And, more to the point, why are certain countries excluded?
