412. Telegram From the Embassy in Laos to the Department of State1
1067. Department pass ICA, Defense, USIA. Joint Embassy/USOM/PEO/USIS message. Re Department’s 792.2 Following promulgation Prime Ministerial Decrees establishing civic action program representatives all United States agencies met January 4 to consider special United States support and to program and determine respective United States agency responsibilities. Representatives agreed RLG action most encouraging and timely in view rapidly changing political situation and need to start immediate internal program to check and remedy widespread subversive influence. Whether or not National Assembly accepts PL agreements PL political subversion and propaganda in provinces will continue and undoubtedly grow in intensity in months to come. This likely have net effect of steadily weakening already tenuous RLG control in provinces unless effective counter measures taken at once. To deal with situation RLG has agreed implement civic action program with priority attention probably to be given Sam Neua, Phong Saly provinces. Summary decree follows ….
Announced aims are to permit Office of Social and Political Action (SIDASP) obtain objectives defined in Article 4 of Prime Minister’s Decision Number 122 of 22 May, 1956; to study and put into action plans to remedy harmful subversive action; and to orient efforts of official, private, civil or military organs qualified to exert decisive action in such specific areas as information, education, social services, youth and groups organized for patriotic action. Commissariat for civic action created on parallel level with office of social and political action in SIDASP. Its organization includes Commissioner responsible to Chief of SIDASP, central administration, school for civic action, inspectors for coordinating program in provinces, two mobile teams for each province. All planning, coordination to be effected by National Council for Civic Action composed of Civic Action Commissioner and representatives of Ministries of Public Health and Urbanism, Public Works, National Education, Agriculture, Finance, National Defense and Interior (Security, Auto-defense, Social Services), Information. Commissioner is given tasks of (1) establishing civic action school and recruiting teacher specialist from [Page 874] interested ministries; (2) setting an order of priority among provinces for concentration civic action activity according to degree each is compromised by subversive activities, propaganda; (3) patterning programs in accordance differences, peculiarities between provinces, regions; (4) selecting and sending abroad officers for study of existing civic action programs; (5) naming provincial coordinating inspectors in cooperation with provincial governors; (6) liaison with friendly countries willing to offer financial and material support to program; (7) rendering progress reports to Prime Minister. All interested Ministries are called upon to implement decree according their respective capacities.
Basic concept of program (reference Vientiane Embassy telegram 7483) is one of selfhelp which designed stimulate local populace draw upon own resources, talents for basic improvements in health, education, public works, medicine, et cetera. Two key action elements are mobile teams and ANL. Teams be composed of technicians drawn various Ministries with mission put self-help program in motion through application technical skill. ANL commando-type units then take over to insure programs implemented, permitting mobile teams move on to other areas. Anticipated that ANL logistics and organizational facilities will provide basic framework for program.
US agencies regard promulgation of program as one of more reassuring signs indicated recent days of government recognition problem of outlying areas and desire cope with them. Also, program as contemplated one of first positive, imaginative approaches made by RLG and as such worthy our support. Because of scope of project and support required on immediate basis believe it necessary for program be treated on OCB level for authorization and allocation of additional funds to be earmarked to support it.
Inter-agency plan for rendering US assistance as follows: Implementation of program be in two stages (initial emergency period of three months commencing January 1957 immediately preceding supplementary elections and covering possible post-settlement developments) and longer range period to follow. All questions of interagency responsibilities and funding be categorized in terms of emergency versus long-term phase.
- (a)
- Emergency phase: … Also envisaged that during emergency phase certain conventional procedures such as standard project approval may have to be waived.
- (b)
- Long range period: Once program in being and emergency period over ICA to assume coordinating and planning responsibilities [Page 875] as action agency with ultimate aim of phasing entire project into already existing village development program. Other members country team to continue rendering their special support as long as required. It recognized that Defense (PEO) in view ANL participation may be required play especially active role conjunction ICA during longer term program. Conventional procedures for authorizations and support for program to prevail once emergency phase over.
- (c)
- Funding: Estimated 300,000 US be required for emergency [garble]. Prior ICA assumption role as action agency budget for long term program to be devised on basis experience during emergency period and submitted for approval and allocation as a part of expanded ICA community development program.
- (d)
- Aid channel: Emergency support funds to be channelled primarily to action element in RLG which is Commissioner for Civic Action and ANL as required. Contemplated Commissioner will authorize, allocate these funds in accordance advice, approval and agreement US program representatives.
- (e)
- General considerations: (1) Intensive effort to be made throughout duration of program to obtain as much support as possible from appropriate RLG Ministries especially those already pinpointed in Civic Action Decree. (2) View importance, key role of Civic Action Commissioner, effort to be made secure best qualified person. Leading candidate at present is ANL officer who if selected would be charged with bringing about coordination down line between ANL and civilian agencies. (3) Every opportunity to be utilized for exploiting activities such non-government and volunteer service groups as CARE, Operation Brotherhood, in support of program. (4) Envisaged that US area surplus stocks to be drawn upon where necessary.
As foreshadowed by Embassy as early as August, shift in Communist tactics from guerrilla action by plans Viet Minh in two provinces to overt and covert political warfare in all provinces has placed premium on RLG counter-action. In sharp contrast to softness of Souvanna and most of top entourage has been receptivity, eagerness in fact, of younger civil and military officials to meet challenge which they know lies ahead. I consider this relatively inexpensive program well suited to unique situation this undeveloped, poorly organized and now highly vulnerable country. So long as we believe it worthwhile support Laos at all we should in my view support this program vigorously. I … urge prompt OCB consideration to permit activation in advance if possible of proposed PL “settlement.” Further details of program, et cetera, will follow as feasible.
- Source: Department of State, Central Files, 751J.001/1–857. Secret.↩
- In telegram 792, December 31, the Department requested recommendations from the Embassy regarding the following aspects of the civic action program in Laos: U.S. agency responsibilities, funding, and Lao Government organization through which U.S. aid should be channeled. (Ibid., 751j.00/11–956)↩
- Dated November 9, not printed. (Department of State, Central Files, 751J.00/11–956)↩