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Joseph Maxwell Cleland (August 24, 1942 – November 9, 2021) was an American politician from Georgia. A member of the Democratic Party, he was a disabled U.S. Army veteran of the Vietnam War, a recipient of the Silver Star and the Bronze Star for valorous actions in combat, as well as a United States senator (1997–2003).

Key Information

After returning from the Vietnam War having lost three limbs, he entered politics soon after recovering from his injuries. From 1971 to 1975, he served as a Georgia state senator. He also served as Administrator of Veterans Affairs under President Jimmy Carter from 1977 to 1981 and as Georgia Secretary of State from 1982 to 1996 before being elected to a single term in the United States Senate. After leaving the Senate in 2003, he served on the board of directors of the Export-Import Bank of the United States from 2003 to 2007, a presidentially appointed position.[1][2] From 2009 to 2017, he served as Secretary of the American Battle Monuments Commission.

Early life and military service

[edit]

Cleland was born on August 24, 1942, in Atlanta, the son of Juanita Wilda (Kesler) and Joseph Hughie Cleland.[3] He grew up in Lithonia, Georgia, and graduated from Lithonia High School and then from Stetson University in the class of 1964, where he was a member of the Lambda Chi Alpha fraternity. Cleland was named outstanding senior in high school.[4] He went on to receive a master's degree from Emory University.[5]

Cleland then served in the United States Army during the Vietnam War, attaining the rank of captain. He was awarded the Silver Star and the Bronze Star for valorous action in combat, including during the Battle of Khe Sanh on April 4, 1968.[5]

Injury at Khe Sanh

[edit]

In 1968, Captain Cleland was the Battalion Signal Officer serving with the 2nd Battalion, 12th Cavalry Regiment, 1st Cavalry Division during the Battle of Khe Sanh.[6] On April 8, with a month left in his tour, Cleland was ordered to set up a radio relay station on a nearby hill. A helicopter flew him and two soldiers to the treeless top of Hill 471, east of Khe Sanh. When the helicopter landed, Cleland jumped out, followed by the two soldiers. They ducked because of the rotor wash and turned to watch the liftoff. Cleland reached down to pick up a grenade he believed had dropped off his flak jacket. It then exploded, the blast slamming him backward, shredding both his legs and one arm.[5]

David Lloyd, a U.S. Marine in a nearby mortar bunker, rushed to the scene, took off his web belt and tied it around one of Cleland's legs to control bleeding.[7]

Lloyd said the unnamed soldier was crying. "It was mine," he said, "it was my grenade." According to Lloyd, the private had failed to take the extra precaution experienced soldiers did when they grabbed M26 grenades from the ammo box: bend the pins, or tape them in place, so they couldn't accidentally dislodge. This soldier had a flak jacket full of grenades with straight pins. "He was a walking death trap."[8]

Due to the severity of his wounds, doctors amputated both of Cleland's legs above the knee, and his right forearm. He was 25 years old.[9]

Georgia state politics

[edit]
Max Cleland with President Jimmy Carter, c. 1978

Cleland served from 1971 to 1975 in the Georgia Senate, and became an advocate for affairs relating to veterans. He was the administrator of the United States Veterans Administration under President Jimmy Carter from 1977 to 1981 (Carter himself was Governor of Georgia at the time Cleland was a member of the State Senate). He then served 14 years as Secretary of State of Georgia from 1982 to 1996, working closely with his future Senate colleague, Zell Miller. During this period, Cleland promoted a penny stock law in Georgia which would become the template for national regulations to curb stock manipulation abuses.[10] In the 1992 Democratic presidential primaries, Cleland supported fellow Vietnam veteran Bob Kerrey.[11]

According to an interview featurette with Jon Voight on the DVD of Coming Home (1978), Cleland also served during this time as a consultant on the Academy Award-winning drama set in a VA hospital in 1968.[12]

In 1977, Cleland received the Samuel S. Beard Award for Greatest Public Service by an Individual 35 Years or Under, an award given out annually by Jefferson Awards.[13]

United States Senator (1997–2003)

[edit]

Following the retirement of Sam Nunn, Cleland ran for the United States Senate in 1996 and won by 30,024 votes over Republican Guy Millner.

Tenure

[edit]

Cleland was viewed as a moderate in the Senate. Though he supported some Republican budgetary measures, and voted in favor of George W. Bush's 2001 tax-cut package, he was staunchly pro-choice and pro-environment. He voted against drilling in Arctic National Wildlife Refuge, and opposed Gale Norton's nomination as Secretary of the Interior in 2001. His record on national defense and homeland security was more centrist. He voted to federalize airport security after 9/11, and supported the war on terror. Cleland was strongly for free trade, voting to normalize trade relations with Vietnam, to make China's NTR status permanent, and to extend free trade to Andean nations.[14]

Cleland was among 29 Senate Democrats who backed the authorization to go to war in Iraq. He later stated he had misgivings about the Bush administration's stance, but said he felt pressure in his tight Senate race to go along with it. In 2005, he said "it was obvious that if I voted against the resolution that I would be dead meat in the race, just handing them in a victory." He characterized his vote for war as "the worst vote I cast."[15]

2002 election

[edit]
Main article: 2002 United States Senate election in Georgia

In 2002 Cleland faced Saxby Chambliss for the Georgia Senate seat. Cleland enjoyed a comfortable lead in the polls early in the race but lost much ground in the weeks running up to the election. In May 2002 Chambliss was trailing Cleland by 22 percentage points. Chambliss issued a press release decrying Senator Cleland for "breaking his oath to protect and defend the Constitution," because Cleland had voted for an amendment to the Chemical Weapons Treaty that would allow individuals from "terrorist nations" to be on United Nations weapons inspection teams in Iraq. The vote passed by a majority, 56 to 44. Fifty-five other senators also voted for the amendment, including Bill Frist, the head of the Republican Senate committee, who picked Chambliss to run against Cleland.[16]

A week before the voting, an Atlanta Journal-Constitution poll showed Cleland ahead by five points, 49% to 44%. By Saturday before the race, a poll by the Atlanta Journal-Constitution the lead had shrunk to 48% to 45% which was within the poll's margin of error.[17] On election day, Cleland lost to Chambliss by 139,296 votes. Some supporters blamed a Chambliss television ad created by consultant Rick Wilson featuring the likenesses of Osama bin Laden and Saddam Hussein while criticizing Cleland's votes against homeland security measures.[18] This was based on the fact that Cleland had voted against legislation enabling the creation of the Department of Homeland Security on the basis that a provision limiting the rights of unionized labor had been inserted into the bill.[19] Cleland supporters claimed the ad questioned the senator's patriotism,[19] while Chambliss supporters claimed it simply questioned his judgment.[19][20] The ad was removed after protests from prominent politicians, including Republicans such as John McCain and Chuck Hagel, both of whom were also veterans of the war in Vietnam.[21][22]

Post-Senate career

[edit]
Cleland at the 2008 Georgia Jefferson-Jackson Dinner

Cleland was originally appointed to serve on the 9/11 Commission but resigned shortly after, having been appointed to the board of directors of the Export-Import Bank of the United States. Before his resignation, he said that the Bush administration was "stonewalling" and blocking the committee's access to key documents and witnesses.[23] A key figure in the widespread criticism of governmental opacity regarding 9/11, he was quoted as saying in November 2003: "I... cannot look any American in the eye, especially family members of victims, and say the commission had full access. This investigation is now compromised."[24]

In 2003, Cleland began working for the 2004 presidential campaign of Massachusetts senator John Kerry, also a Vietnam veteran; Kerry went on to win the Democratic nomination. Cleland often appeared at campaign events with Kerry and was considered by many to be one of his most important surrogates, partly as a symbol of the sacrifices made by soldiers for wars.[25] On July 29, 2004, Cleland introduced Kerry with a speech at the Democratic National Convention.[26]

Cleland's official Senatorial papers are held by the University of Georgia's Richard B. Russell Library for Political Research and Studies. His Veterans Administration papers are held in the Jimmy Carter Presidential Library. In 2007, Max Cleland donated a large collection of Vietnam and personal political memorabilia to the library of his alma mater, Stetson University. The Cleland Collection includes more than 800 memorabilia items, more than 5,000 photos, and hundreds of CDs, DVDs, videos, and films.[27]

On May 21, 2009, President Barack Obama nominated Cleland to serve as the next Secretary of the American Battle Monuments Commission.[28] He was appointed Secretary on June 3,[29] and served in the position until the end of Obama's second term as president. Retired Major General William M. Matz Jr., was appointed as his successor almost a year after he left the ABMC.[30]

Cleland died as a result of heart failure at his home in Atlanta, on November 9, 2021, at age 79.[31]

Awards

[edit]

Cleland received an honorary degree in 2001 from Oglethorpe University as a Doctor of Laws.[32]

Works

[edit]
  • Heart of a Patriot: How I Found The Courage To Survive Vietnam, Walter Reed, and Karl Rove by Max Cleland, with Ben Raines (Simon and Schuster, 2009). ISBN 978-1-4391-2605-9.
  • Odysseus in America by Jonathan Shay, Max Cleland, and John McCain (Scribner, November 2002). ISBN 0-7432-1156-1.
  • Strong at the Broken Places by Max Cleland (Longstreet Press, updated edition, October 2000). ISBN 1-56352-633-6.
  • Going for the Max!: 12 Principles for Living Life to the Fullest by Max Cleland (Broadman & Holman, September 2000). ISBN 0-8054-2021-5.
  • Controlled Substances Laws of Georgia: Code Title 16-13 by Max Cleland (State Examining Boards, Georgia State Board of Pharmacy, 1992). OCLC 36381622.

Electoral history

[edit]
Georgia Senator (Class II): Results 1996–2002[33]
Year Democrat Votes Pct Republican Votes Pct 3rd Party Party Votes Pct
1996 Max Cleland 1,103,993 49% Guy W. Millner 1,073,969 48% John Gregory Cashin Libertarian 81,262 4%
2002 Max Cleland (incumbent) 932,422 46% Saxby Chambliss 1,071,352 53% Claude Sandy Thomas Libertarian 27,830 1%

See also

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References

[edit]
[edit]
Revisions and contributorsEdit on WikipediaRead on Wikipedia

Max Cleland

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from Grokipedia
Joseph Maxwell Cleland (August 24, 1942 – November 9, 2021) was an American politician and veteran who served as a Democratic U.S. from Georgia from 1997 to 2003, after earlier roles as Georgia state (1971–1975), Administrator of (1977–1981), and (1983–1996). In 1968, while serving as a in , Cleland suffered the loss of both legs and his right arm when a exploded as he reached for it during a resupply operation, earning him the and Bronze Star for valor despite the severe injuries that left him a triple amputee. As the youngest administrator and the first veteran in that position under President , he established the Vet Center program to provide counseling for returning veterans struggling with readjustment. Cleland's tenure focused on , , and homeland security, including service on the , but ended in defeat during the 2002 elections when opponent Saxby Chambliss's campaign ads linked Cleland's vote against a Department of bill to images of and , prompting widespread criticism for questioning the patriotism of a gravely wounded veteran. He died in from congestive at age 79.

Early life and education

Joseph Maxwell Cleland was born on August 24, 1942, in , Georgia, as the only child of a working-class family. His father, Hugh Cleland, relocated the family to Lithonia following . Cleland grew up in Lithonia, a east of , during the mid-20th century Southern context marked by post-war economic shifts and emerging civil rights tensions. He graduated from Lithonia High School in 1960, earning the Atlanta Journal Cup as the class's most outstanding graduate. Cleland pursued higher education at in , where he majored in history and participated in the ROTC program. He earned a B.A. in history in 1964 and was commissioned as a U.S. Army upon graduation.

Military service

Vietnam War deployment and valor

Cleland volunteered for combat duty in Vietnam in the spring of 1967, deploying on May 31 as a in the U.S. Army Signal Corps with the 1st Cavalry Division (Airmobile). He served as a and communications officer in Headquarters and Headquarters Company, 2nd Battalion, 12th Cavalry Regiment, responsible for coordinating logistics communications and supporting battalion operations in . Promoted to captain during his tour, Cleland led his unit through intense ground engagements amid the escalating North Vietnamese Army offensive near the Demilitarized Zone. In early April 1968, during operations northwest of , Cleland's encountered a heavily entrenched enemy force that pinned down the unit with sustained automatic weapons and mortar fire. As communications , Cleland voluntarily exposed himself to direct hostile fire on multiple occasions to reposition his men and direct their , enabling the to maneuver into effective assault positions and neutralize the threat. His actions on exemplified leadership under fire, preventing greater casualties and restoring momentum to the American advance. For these specific acts of gallantry, Cleland was awarded the , recognizing his exceptional valor in close combat. He also earned the with "V" device for valorous achievement in ground combat operations prior to his injury, highlighting his repeated initiative in sustaining communications and supporting maneuvers against superior enemy positions. These decorations underscored Cleland's role in maintaining during high-stakes firefights in contested terrain.

Grenade injury at Khe Sanh

On April 4, 1968, during a resupply operation under fire near , Vietnam, Cleland, serving as a and battalion signal officer with the 1st Division's 2nd Battalion, 12th Regiment, spotted a hand on the ground as a lifted off. Believing it to be his own that had fallen from his web gear, he reached down to retrieve it without first checking the safety, causing it to detonate in his hand. The blast resulted in the immediate loss of his right hand and right leg, with his left leg amputated above the knee within the hour due to irreparable damage. Cleland was medevaced to a in a , where he underwent five hours of emergency surgery and received over 40 pints of blood transfusions to stabilize him amid massive blood loss and shock. He was subsequently evacuated to for further treatment before transfer to hospitals in the United States, including extended care at in , . In the years following, Cleland shifted his public account of the incident, initially attributing the grenade to enemy action but later acknowledging it as his own accidentally dislodged during the chaotic resupply, emphasizing the high-stress conditions rather than enemy intent. This self-inflicted nature, confirmed through personal reflection and lack of evidence for adversarial origin, underscored the inherent risks of handling explosives in without verification protocols. The injuries necessitated lifelong prosthetic use for mobility and functionality, following eight months of intensive rehabilitation in veterans' hospitals focused on physical adaptation, , and psychological adjustment to triple . Cleland adapted to battery-powered wheelchairs and advanced prosthetics, enabling eventual return to active public life despite persistent challenges like pain and limited dexterity.

Georgia state politics

Service in the Georgia Senate

Cleland was elected to the in November 1970, representing District 28 in portions of Clayton, Coweta, Fayette, Henry, Spalding, and other counties, becoming the youngest member of the body at age 28 and its only veteran. He secured the Democratic before defeating the Republican incumbent in the general by less than 1 percent of the votes cast. Serving from 1971 to 1975, Cleland advocated for veterans' issues, drawing on his experience and injuries to highlight the challenges of readjustment. As a freshman legislator in a chamber with few peers sharing his background, he prioritized and support for disabled individuals, authoring and enacting the state's first laws requiring public facilities to accommodate the elderly and handicapped. He also sponsored expanding provisions for the mentally ill, addressing gaps in care during an era of increasing awareness of from military service. Cleland won re-election in 1972, continuing his focus on pragmatic state-level reforms as a moderate Democrat navigating Georgia's transition from Democratic dominance amid national shifts in Southern politics. His legislative record emphasized concrete policy changes over partisan divides, positioning him as an emerging voice for veteran welfare and disability rights in the .

Involvement in Jimmy Carter's administration

Cleland developed a close working relationship with during Carter's governorship of Georgia (1971–1975), collaborating on veterans' initiatives. In 1972, Governor Carter appointed Cleland to chair a special commission studying problems faced by returning veterans, which informed state policies on veteran support. This partnership positioned Cleland as a key ally when Carter sought the Democratic presidential nomination in 1976. As a decorated and Georgia , Cleland endorsed and assisted Carter's 1976 presidential campaign, emphasizing shared commitments to veterans' welfare to mobilize support among military communities in Georgia and beyond. His advocacy helped underscore Carter's understanding of post-war challenges, contributing to the campaign's outreach in a race decided by narrow margins, with Carter securing Georgia's electoral votes on November 2, 1976. Post-election, prior to formal executive roles, Cleland served as a consultant to the U.S. Committee on from 1975 to 1977, advising on federal policies for veteran reintegration and benefits. This advisory position bridged his state-level experience with emerging national responsibilities in the incoming Carter administration, focusing on empirical needs like and healthcare for disabled veterans without delving into administrative leadership.

Leadership of the Veterans Administration

Appointment and key initiatives

President Jimmy Carter nominated Max Cleland to serve as Administrator of Veterans Affairs on February 18, 1977, and he was confirmed by the Senate and sworn into office on March 2, 1977. At age 34, Cleland became the youngest person ever appointed to lead the Veterans Administration and the first Vietnam War veteran to head the agency, which at the time managed the largest health care system in the United States and provided benefits to millions of veterans. Cleland served in the role until January 1981, overseeing operations during a period of economic strain including inflation and budget constraints under the Carter administration. A primary focus of Cleland's tenure was addressing the needs of Vietnam-era veterans, who often faced societal stigma and inadequate support for readjustment challenges. Drawing from his own experiences as a triple amputee and decorated , Cleland prioritized outreach and counseling services tailored to this cohort. In , he launched Operation Outreach, an initiative to establish community-based Vet Centers providing accessible readjustment counseling, which capped a decade-long effort to secure support for returning service members amid limited prior recognition of war-related trauma. These centers aimed to combat isolation and stigma by offering non-medical, peer-oriented services, marking a shift toward proactive engagement outside traditional settings. Cleland also advocated for enhancements in prosthetic and rehabilitative services, leveraging his personal insights as an amputee to push for better integration of advanced technologies and patient-centered care within VA facilities. While specific funding battles persisted amid fiscal pressures, his administration emphasized modernizing hospital infrastructure and expanding counseling resources to meet growing demands from veterans. President Carter later credited Cleland's leadership with advancing overdue acknowledgments and support for veterans in the 1981 address.

Criticisms and challenges

Cleland's leadership encountered significant bureaucratic resistance within the VA, an agency he himself described as plagued by inefficiency and staffed by "indifferent time-servers" upon his 1977 appointment. A June 1977 report by the criticized the VA's medical program for wastefulness, excess acute-care beds, and budgetary practices that occasionally jeopardized patient lives, issues Cleland inherited but struggled to fully resolve amid entrenched operations. Claims processing delays persisted, with veterans facing extended wait times for benefits approvals, exacerbating frustrations during the late 1970s economic inflation that strained federal budgets and limited resources for systemic overhauls. Conservative critics faulted Cleland's expansions of federal benefits, including enhanced education and compensation programs under the Carter administration, as overly generous and disconnected from service-connected needs, arguing they subsidized non-veterans and contributed to fiscal bloat. These initiatives, while aimed at addressing Vietnam-era gaps, faced backlash for perceived overreach, particularly as Reagan's incoming team in scrutinized VA expenditures amid broader calls for entitlement reforms. Internal pushback also hampered rapid implementation of PTSD protocols; although Cleland advocated for dedicated Vet Centers in 1979 to provide counseling outside the main VA bureaucracy, veteran mental health outcomes remained mixed, with persistent high suicide rates reflecting the nascent stage of trauma recognition and treatment efficacy data. As a Carter appointee, Cleland's tenure ended with the 1981 administration transition, amid accusations of lingering inefficiency that fueled Reagan-era pledges to streamline the VA, including temporary leadership changes and budget reevaluations. These challenges underscored the political vulnerabilities of expanding services in an era of , though Cleland's prior criticisms of the agency highlighted his reform intent rather than entrenchment.

U.S. Senate career

1996 election victory

Cleland secured the Democratic nomination for the open U.S. Senate seat vacated by retiring incumbent in the July 9, 1996, primary election, facing no opposition and receiving 517,697 votes. As a triple amputee and former head of the Veterans Administration under President , Cleland positioned himself as a centrist Democrat emphasizing fiscal discipline, support for veterans' benefits, and pragmatic approaches to trade expansion and welfare restructuring, which aligned with national debates on balancing budget deficits while reforming entitlement programs. In the general election on November 5, 1996, Cleland faced Republican nominee Guy Millner, a self-funded businessman who emerged from a contentious GOP primary runoff against . Cleland's strategy leveraged his long public service record, including 13 years as , to appeal to independent voters and suburban moderates wary of partisan extremes following the 1994 Republican congressional gains led by Georgia's . His military sacrifice and advocacy for veterans' rights drew strong backing from Georgia's veteran population, contributing to turnout dynamics that favored experienced, non-ideological candidates in a state where Republican carried the presidential race. Cleland prevailed by a slim margin of 30,024 votes, capturing 1,103,993 ballots (48.9 percent) to Millner's 1,073,969 (47.5 percent), with Libertarian Jack Cashin accounting for the remaining 3.6 percent and preventing a outcome. This narrow triumph, achieved despite Georgia's rightward shift in midterm elections two years prior, underscored Cleland's ability to consolidate Democratic base support in urban areas while attracting crossover votes from moderates disillusioned with aggressive partisanship.

Legislative tenure and voting record

Cleland assumed office as a U.S. Senator from Georgia on , 1997, following his election victory, and served through , 2003, during the 105th through 107th . Assigned to the Committees on Armed Services, , , and Transportation, and Small Business, his legislative focus included defense, veterans' affairs, transportation security, and fiscal policy. He earned a reputation for bipartisanship on military matters affecting Georgia, while adhering more closely to Democratic positions on social issues. On fiscal matters, Cleland voted in favor of the conference report on July 31, 1997, which passed the 85–15 and aimed to achieve a balanced federal budget by 2002 through spending restraints and Medicare reforms. This aligned with his support for elements of 1996 welfare reforms, including work requirements and time limits, reflecting a conservative stance on entitlement spending despite his Democratic affiliation. However, he opposed certain Republican tax cut proposals, such as aspects of the 2001 and Tax Relief Reconciliation Act, prioritizing deficit reduction over broad reductions. His overall voting record received liberal ratings from groups like the Americans for Democratic Action (ADA), averaging approximately 80% alignment with progressive positions across his tenure, though conservative analysts noted his fiscal moderation. Cleland prioritized veterans' healthcare, sponsoring and advocating for expansions in VA funding and access, including initiatives to modernize facilities and extend benefits amid growing post-Vietnam demands. Following the , 2001, attacks, he supported the Aviation and Transportation Security Act, which passed the unanimously on October 11, 2001, establishing the and federalizing airport screening to enhance . On defense, as a member of the Armed Services Committee, he collaborated on base realignment and closure (BRAC) processes, securing protections and investments for Georgia installations like Fort Benning and to preserve jobs and readiness. In contrast, Cleland voted along party lines on gun control, switching to support the 1999 amendment closing the gun show loophole and mandating background checks after the Columbine shooting, contributing to its 51–50 passage on May 20, 1999. On environmental regulations, his record showed mixed but generally pro-regulatory leanings, earning a 74% lifetime score from the League of Conservation Voters (LCV); he opposed Arctic National Wildlife Refuge (ANWR) drilling on national security grounds but supported terminating certain Corporate Average Fuel Economy (CAFE) standards. These positions highlighted tensions between his Georgia constituency's interests and broader Democratic priorities.

Notable positions and controversies

Cleland opposed bundling the creation of the Department of Homeland Security with provisions that would exempt its employees from standard protections, voting against such measures 11 times between July and October 2002 to advocate for a standalone bill focused purely on organizational restructuring for . He argued that these riders, pushed by the Bush administration, undermined worker safeguards without enhancing security efficacy, a position that drew Republican accusations of obstructing antiterrorism efforts despite his consistent support for the department's establishment. In foreign policy, Cleland initially aligned with interventionist stances, endorsing NATO's expansion and the 1999 Kosovo air campaign as necessary to address ethnic violence and stabilize the Balkans through multilateral alliance action. He voted to authorize the Iraq War resolution on October 11, 2002, citing intelligence on weapons threats, but expressed subsequent reservations after evidence of such weapons failed to materialize, marking a shift from his earlier hawkish positions toward greater skepticism of preemptive unilateralism. Georgia conservatives criticized Cleland's Senate record as overly liberal on social issues, particularly his support for abortion rights and programs, which they viewed as misaligned with the state's predominantly traditional values and contributing to perceptions of him as out of touch with rural voters. These stances, including opposition to restrictions on federal funding for procedures and backing policies favoring race-based preferences in hiring and , fueled debates over his claims despite bipartisan votes on fiscal matters like Bush's 2001 tax cuts.

2002 Senate election defeat

Campaign context and issues

The 2002 U.S. election in Georgia took place amid a national political landscape reshaped by the , 2001, attacks, which prioritized national security and enhanced Republican electoral advantages. President George W. Bush's approval ratings exceeded 65% throughout much of the campaign, enabling Republicans to gain two seats nationwide in the midterms, bucking historical trends where the president's party typically lost ground. In Georgia, a state undergoing a partisan realignment toward Republicans—as demonstrated by the concurrent ouster of Democratic Roy —incumbent Democrat Max Cleland confronted challenger Saxby , who leveraged Bush's popularity through multiple presidential campaign appearances, including visits to Savannah on November 4 and earlier stops. Cleland's status as a decorated offered limited insulation against perceptions of vulnerability on defense matters in this increasingly conservative electorate. Central to the contest were policy divergences on , where Chambliss criticized Cleland's repeated opposition to Bush's proposed Department of framework, including votes against on H.R. 5005 in October 2002 that Republicans portrayed as obstructing urgent reforms by preserving federal employee rights. Cleland supported alternative Democratic measures maintaining union protections, which Chambliss and national Republicans framed as prioritizing labor interests over post-9/11 imperatives. Economic recovery from the 2001 recession also featured, with Chambliss advocating extension of Bush's tax cuts amid lingering unemployment concerns, while Cleland emphasized job preservation, particularly around military installations like , amid apprehensions over potential future federal base realignments. Polling dynamics shifted against Cleland, who led narrowly in early summer but saw the gap narrow to a toss-up by late October, exacerbated by Bush's interventions and limited enthusiastic backing from fellow Georgia Democrat Zell Miller, reflecting intra-party tensions in a state trending rightward.

Saxby Chambliss advertisement and responses

In the 2002 U.S. Senate campaign in Georgia, Republican candidate 's campaign aired a that featured split-screen images of and alongside Cleland's face, accompanied by a stating: "As seeks weapons of mass destruction, bin Laden's terrorist network remains a threat, and Cleland's votes help them." The ad specifically accused Cleland of casting 11 votes against creating the Department of Homeland Security (DHS), warning that such positions risked by prioritizing "special interests" over protections against in the post-9/11 environment. Cleland condemned the advertisement as "vicious" and an attack on his patriotism, arguing that the juxtaposition of his image with America's enemies equated opposition to specific legislative language with sympathy for terrorists, akin to later Swift Boat Veterans for Truth tactics questioning military service. He emphasized his record as a triple amputee and his support for , stating the ad exploited 9/11 fears to smear a wounded veteran without addressing substantive policy differences. Fact-checking revealed that while Cleland voted against 11 procedural motions or amendments related to the DHS bill—primarily Democratic opposition to Republican provisions limiting federal employee union bargaining rights and other riders—he supported the core creation of the department and voted for the final (H.R. 5005), which passed the 90-9 on November 19, 2002. Chambliss's campaign maintained the ad focused solely on these votes, which they argued delayed DHS formation amid urgent post-9/11 threats, without referencing Cleland's military service; a campaign spokesperson clarified: "This ad is not about Max Cleland's service... It's about his 11 votes against ." Critics on the left, including Democratic leaders, viewed the ad as an exploitative tactic that blurred policy critique with visual innuendo to erode Cleland's credibility in a security-focused , contributing to perceptions of Republican fearmongering. Defenders on the right countered that the votes legitimately demonstrated Cleland's alignment with union interests over rapid DHS implementation, a politically vulnerable stance after September 11, 2001, and that Cleland's interpretation injected personal service into a about legislative records. The controversy intensified the race's negativity, with Chambliss securing victory by approximately 7 percentage points (53% to 46%) in the , , .

Post-Senate roles and legacy

9/11 Commission participation

Cleland was appointed in December 2002 to the National Commission on Terrorist Attacks Upon the United States (commonly known as the 9/11 Commission) as one of five Democratic members, nominated by Senate Minority Leader Tom Daschle and House Minority Leader Dick Gephardt to provide bipartisan oversight of the investigation into the September 11, 2001, terrorist attacks. The commission, established by Congress on November 27, 2002, aimed to examine intelligence failures, policy shortcomings, and preventive measures against future threats. Cleland's selection drew on his background as a decorated Vietnam War veteran and former U.S. senator with committee experience in veterans' affairs and national security, positioning him to contribute insights on military preparedness and interagency coordination. During his approximately one-year tenure, Cleland participated in commission hearings and internal deliberations, notably voicing frustration over delays in providing access to documents and witnesses, which he described as obstructive tactics hindering the probe's progress. His veteran status informed discussions on systemic intelligence lapses, emphasizing parallels to post-Vietnam reforms in emphasizing and inter-service cooperation, though his direct influence was constrained by the commission's evolving structure under Chairman and Vice Chairman . Cleland attended public sessions, including those in May 2003 scrutinizing aviation security and counterterrorism policies prior to the attacks. Cleland resigned from the commission in November 2003 upon his nomination by President to the board of the Export-Import Bank of the United States, a move that created potential conflicts with the panel's independence requirements under federal ethics rules. Although he had begun advising Senator John Kerry's 2004 presidential campaign in spring 2003—leveraging shared experiences to bolster Kerry's military credentials—the resignation was formally tied to the Ex-Im Bank role rather than campaign activities, which he maintained did not compromise his commission work. Cleland expressed continued support for the commission's mandate, stating it remained essential for uncovering truths about pre-9/11 vulnerabilities despite political pressures.

Later public service and writings

In 2009, President appointed Cleland as Secretary of the (ABMC), a role he served in until 2017, overseeing the care of 25 U.S. military cemeteries and more than 130 memorials at sites across 24 countries, honoring over 200,000 American service members . In this capacity, Cleland dedicated expansions such as the Courts of the Missing at the Memorial and participated in commemorations including the 70th anniversary of D-Day at American . Cleland authored books reflecting on personal resilience and , including Strong at the Broken Places (1986), which chronicled his recovery from injuries and emphasized turning trauma into strength, and Heart of a Patriot: How I Found the Courage to Survive , , and (2009), detailing his military experiences, political setbacks, and battles with (PTSD). He advocated for enhanced services for veterans, arguing in a opinion piece that providing timely, effective care represented a given the prevalence of PTSD and among post-9/11 service members. Cleland drew from his own PTSD struggles, which intensified after his 2002 Senate loss, to press for reduced wait times and better integration of psychiatric support within the Department of . Cleland voiced regret over his 2002 vote authorizing the and criticized its execution as a "war of attrition" marred by inadequate troop support, flawed intelligence, and overreliance on oil interests, likening it to a "no-win, no-end" conflict that echoed Vietnam's quagmire. He urged either full resourcing for victory or orderly withdrawal to avoid prolonged attrition, while supporting bipartisan efforts for reforms informed by post-9/11 lessons.

Death and tributes

Max Cleland died on November 9, 2021, at his home in , Georgia, at the age of 79. The cause was congestive heart failure, following decades of health complications stemming from the 1968 grenade explosion in that resulted in the of both legs and his right arm. Upon announcement of his death, tributes highlighted Cleland's military service and resilience, with bipartisan acknowledgments from figures across the political spectrum. President described him as a "genuine American hero" who "served his country with valor and distinction." Former President , a fellow Georgian, praised Cleland's "unwavering commitment to public service" despite personal sacrifices. These reactions underscored his status, though his tenure reflected partisan divides, including his 2002 defeat amid debates post-9/11. Cleland received full military honors at his burial in Georgia National Cemetery, where he was interred alongside his parents. A delayed public memorial service in May 2022, postponed due to the , featured speeches from Biden and former presidents, emphasizing his improbable rise from accidental injury to national prominence.

Awards and honors

Cleland received the for gallantry in action during his Vietnam service. He was also awarded the with "V" device for valor in combat. Additionally, he earned the . In recognition of his civilian contributions, Cleland received the Georgia Easter Seal Society Award of Gallantry in 1973. The Institute for Public Service awarded him the Thomas Jefferson Award in 1977 for distinguished public service by an American under age 35. Stetson University, his alma mater, conferred an Honorary Doctor of Humanities degree and a second honorary degree upon him. The U.S. Army inducted Cleland into the Order of Saint Maurice, one of its highest honors for contributions to the .

Electoral history

Cleland was elected to the in 1970, becoming the youngest member of that body and the only veteran serving at the time. He was re-elected in 1972. In the 1996 U.S. Senate election in Georgia, held on November 5, Cleland defeated Republican Guy Millner.
PartyCandidateVotesPercentage
DemocraticMax Cleland1,103,99348.9%
RepublicanGuy Millner1,073,96947.5%
OtherVarious98,6703.6%
Total2,276,632100%
In the 2002 U.S. election in Georgia, held on , Cleland lost to Republican .
PartyCandidateVotesPercentage
Republican1,071,59252.8%
DemocraticMax Cleland931,85745.9%
LibertarianClaude "Sandy" Thomas27,8301.4%
Total2,031,279100%

References

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  94. https://www.fox5atlanta.com/news/former-georgia-senator-vietnam-veteran-max-cleland-dies-at-79
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