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WEBMISTRESS speculates:
In the liner notes, Stevie writes: "There was something [Phoenix] was doing called 'Operation Desert Angel.' It meant that you could go down to the shopping centers or malls and get a little dog tag with the shape of an angel with the name of someone from Arizona who was in the Gulf [War]...all this time I was still trying to figure out what I could write [in a letter] to the ones in the Gulf who are alone and scared...and I also knew I would write a song called 'Desert Angel'...and I would send them my feeling of sanctuary.
"From the beginning, all the people around me really loved the song, because it meant so much more to all of us than it did just to me. We had lived through it, we had prayed, and my song would make at least all of us...never forget this war...I hope that for all of you that were there, it will always be a lullaby that will remind you that everything will be fine, it is over, you can sleep now. And for us here who felt helpless and scared, a lot of things really do work out for the best in the end." By the way, in the song, she refers to the Berlin Wall going down and how she wrote about it - I belive she is referring to her song Doing the Best I Can.