Foreign Relations of the United States, 1964–1968, Volume XXXII, Dominican Republic; Cuba; Haiti; Guyana

183. Memorandum From the Representative to the Organization of American States (Bunker) to President Johnson¹

Washington, September 9, 1966.

SUBJECT

• Present Situation in the Dominican Republic

1. During the period September 6ߝ8, I had an opportunity to review the situation in the Dominican Republic with President Balaguer, ex-President Garcia Godoy and Professor Bosch as well as with Ambassador Crimmins, the United States MAAG and AID officials, Generals Braga and Linvill of the IAPF, and Dominican civilians.

2. I have come away with the impression that despite a situation which presented many difficulties of a political, economic and social nature, the new administration of President Balaguer has made commendable progress. Political compromises, not always desirable, had to be made in an effort to overcome and heal old hatreds and bring into the Government as wide a spectrum as possible. Strenuous efforts had to be made to set in motion a stagnant economy. While austerity measures had to be applied to the economic situation, at the same time account had to be taken of the dangerous and explosive situation arising from widespread unemployment, and measures to increase job opportunities had to be planned and implemented. The loyalty and cooperation of the Armed Forces, historically a question mark in the Dominican political situation, had to be secured.

3. I believe the new Administration has made considerable progress in working toward the solution of these difficult and complex problems. Despite a few initial missteps and an early tendency on the part of the Reformista congressional majority to ride roughshod over the opposition, President Balaguer has made serious efforts to obtain the cooperation of Professor Bosch and the PRD. Professor Bosch for his part has expressed his personal friendliness for President Balaguer and has endeavored to carry out his role and that of his party as a constructive opposition. I mentioned to both President Balaguer and Professor Bosch that it seemed to me essential, if the country were to pull through the difficult situation it faced, that both the leaders and their parties should endeavor to cooperate and work together. Both expressed themselves as being in full agreement.

4. On the economic side President Balaguer is holding weekly meetings with Ambassador Crimmins, top members of our AID staff and Dominican officials concerned with economic problems. Both President Balaguer and Ambassador Crimmins stated that they felt very satisfactory progress was being made in implementing the AID programs. The Government is also beginning to grapple with the difficult problem of reorganization of the Sugar Corporation. Dr. Balaguer wished me to express to you his very deep appreciation for the allocation to the Dominican Republic of additional sugar quota and for the support and assistance he had received. While other problems have been encountered, as, for example, the present depressed tobacco market and some additional unemployment brought about by austerity measures, on the part of the business community there appears to be increasing confidence in the ability of the Government to survive the present difficulties.

5. In response to my question about the attitude of the Armed Forces, President Balaguer replied that he considered that his relations with the Minister of the Armed Forces, the Chiefs of Staff and other leaders were excellent, that he held weekly luncheon meetings with them, that they accepted the fact that the military establishment was in need of reorganization, including a reduction in numbers. He has already taken steps to reduce its size by attrition and begun to dismantle the power base of a troublesome group at the San Isidro air base near Santo Domingo. He said that in some elements, particularly in the Air Force, changes would have to be made but that in general he was well satisfied that a proper relationship existed between the Government and the Armed Forces. He also expressed himself as pleased by the plans for reorganization submitted by the MAAG and proposed to go ahead with them although they would have to be put into effect gradually.

6. I reminded the President that as of September 1 there were 2700 troops of the IAPF in the Dominican Republic and that according to the present schedule the last contingent would leave on September 20. The President replied that this schedule was entirely satisfactory to him but then inquired whether it would be possible to retain, for psychological purposes, a small group until the end of September or perhaps even for a week or two in October without any formal request from him. I replied that while this might be possible any substantial extension would require a new resolution by the OAS following a formal request from him. Dr. Balaguer stated categorically that he did not wish to make such a request and my own view is that little is to be gained by an extension of the kind he has suggested; and that on the other hand perhaps a good deal of criticism of the OAS, the IAPF, and especially the U.S. might result. Both General Braga and General Linvill feel that an extension such as suggested by Dr. Balaguer would be unwise.

7. Dr. Garcia Godoy expressed considerable optimism over the results of the Governmentʼs efforts during the first two months in office. In spite of some initial errors he felt that Dr. Balaguer was gaining experience and confidence and that there was a widespread feeling in the country that this administration must be kept in power for its full four year term. Dr. Garcia Godoy, who expects to arrive in Washington September 18 as the Dominican Ambassador, has been performing a very useful role in an advisory capacity to both President Balaguer and Professor Bosch and as intermediary with them.

8. The one exception to the generally favorable view which I received was that of Professor Bosch. While he reiterated his determination to work with President Balaguer, for whom he expressed personal friendship, he said that plotting was continuing and that the only way to put an end to it was to “dismantle the terrorist apparatus” led mainly by extreme right-wing civilians. He added that General Imbert was always the center of these plots but that if the eight or ten leaders were given overseas diplomatic assignments the backbone of the plotting would be broken and Imbert would quiet down. Professor Bosch said that he felt his own presence in the Dominican Republic was vital since he was in a position to exercise restraint on the masses. He expressed great concern over the economic and social problems that beset the country and felt that President Balaguer should exercise care in applying his austerity program not to aggravate further the unemployment problem. He estimated that there were between 80 or 90 thousand unemployed in Santo Domingo alone.

9. With the exception of Professor Bosch, I could find no one who felt that there were signs of any widespread plotting or any likelihood that efforts would be made to overthrow the government. While some irreconcilable elements of the extreme Left and Right stand ready to oppose President Balaguer, these have no significant popular following. While they still possess a significant quantity of arms, considerable progress has been made in collecting heavy weapons and President Balaguer is of the opinion that considerably more progress will be made in this respect. I believe that the Dominican military is loyal to Balaguer and is capable of putting down any uprising that might be foreseeable in present circumstances. The major opposition parties, Boschʼs PRD and the Social Christian PRSC, in assuming the role of constructive opposition give the government their support. I came away, therefore, with a feeling that very considerable progress had been made, that the country was calmer than I had ever seen it and that President Balaguer was acting with determination and a good deal of courage in tackling the many difficult problems with which he is faced.

10. In Senator Fulbrightʼs absence this week from Washington I talked with his Executive Assistant, Mr. Williams, before leaving for Santo Domingo about reports the Senator had received regarding a plot to overthrow President Balaguer. I informed Mr. Williams that while rumors were always circulating in the Dominican Republic, I knew of no serious or significant plotting against the Government; that I expected to investigate these reports when I was in Santo Domingo; and that I should be glad to inform Senator Fulbright of my views when he returned next week to Washington. Mr. Williams expressed his appreciation and undertook to inform Senator Fulbright.

Ellsworth Bunker

1. Source: Johnson Library, National Security File, Country File, Dominican Republic, Vol. XVI. Confidential. Transmitted under a September 9 covering memorandum from Rostow who informed the President that Bunker returned to Washington from Santo Domingo the evening of September 8, and that he planned to meet with Fulbright the following week to discuss his trip. President Johnson wrote a note at the bottom of Rostowʼs memorandum requesting that Rostow report to him after Bunkerʼs meeting with Fulbright.