Foreign Relations of the United States, 1958–1960, Volume V, Microfiche Supplement, American Republics

HA–20. Memorandum from the Assistant Secretary of State for Inter-American Affairs (Rubottom) to the Secretary of State¹

Washington, May 31, 1960

SUBJECT

• Suggested Letter from President Eisenhower to Haitian President Duvalier concerning Consultation on Cooperative Development Program.

Discussion

A special mission is being sent to Haiti about June 2 to consult with Ambassador Drew and President Duvalier on problems affecting the economic development program there. It would contribute to the success of this special mission if President Eisenhower would send a letter to President Duvalier on this occasion. The suggested text of such a letter and a memorandum concerning this proposal are attached for your review and forwarding to the President, if you approve.² If the message is approved, it is recommended that it be released only on the initiative of President Duvalier.

Serious problems have disrupted our cooperative development program in Haiti in recent months, culminating on May 25 in “popular” demonstrations apparently inspired by the Haitian Government to force the resignation of key Haitian administrators and technicians engaged in the “Poté Colé” regional development project in northern Haiti. In scope and cost, this is the most important component of the grant-financed cooperative program. The Haitian Government has not yet supplied us with a report as to the circumstances of these demonstrations (although this was immediately requested) or expressed regrets or official concern over the incident as would be normal if it had been contrary to the Government’s desires. Meanwhile the absence of these key Haitian employees has brought a number of the “Poté Colé” activities to a temporary halt and jeopardized the entire project.

The most important loan-financed component of the development program (the Artibonite Valley irrigation project) came to a stop in early March following unilateral action by the Haitian Government in dismissing one of the project’s top Haitian employees, an engineer, and installing as his replacement a discredited former Public Works Minister who had been fired for malfeasance. Persistent but inconclusive efforts have been made since March to arrive at satisfactory personnel and administrative rules to govern the project, with further disbursements from the Development Loan Fund suspended pending the outcome. On April 20 President Duvalier ordered the project shutdown temporarily; early in May the Haitian Director of the project was forced to resign; a now Haitian Director was then appointed and accepted by us but President Duvalier still has not indicated when he plans to resume work on the project. On May 20, President Duvalier indicated his displeasure over what he considered improper conduct by the senior ICA technical advisor on this project. We plan to withdraw this man from Haiti if the President confirms that he has lost confidence in him; we acknowledged that this technician was indiscreet but we also recognize that his abrupt removal will create serious practical problems in trying to resume work on the project. This man was so well qualified technically and by previous service in Haiti that President Duvalier had specifically requested his return to Haiti as advisor on the Artibonite project.

We are deeply disturbed over various abrupt, unilateral and seemingly irresponsible actions taken by the Haitian Government with respect to these economic development projects which seem vital to the Haitian economy. A variety of motives has been suggested to explain such actions, ranging from a desire for political patronage and personal enrichment through venal appointees to ultra-nationalist impatience over outside “interference” in the Haitian development program. There may have been a few instances of personal friction between American technicians and their Haitian colleagues although working relations have been generally good. We also know that the Haitian Government has become more and more impatient over what it feels are excessive delays in getting action on requests for United States assistance. These have included applications to the Development Loan Fund, a request for grant military assistance, and recently a request to negotiate an air transport agreement. Haiti may believe that the best way to stimulate more urgent and sympathetic United States action is to make an open show of discontent with the present program.

Despite the difficulties posed by the present situation, we believe every effort must be made to salvage the development program and restore a satisfactory working relationship. Economically, Haiti has more problems and poorer prospects than any other Western Hemisphere republic. Financially, Haiti faces another critical shortfall in foreign exchange receipts in 1961 due to rain damage to next fall’s coffee crop during the recent flowering stage. Fiscally, a serious shortfall in government revenues will accompany reduced coffee exports next winter and spring. Politically, the Duvalier administration would be severely strained by a reduction in United States assistance. From the United States point of view continued economic progress and political stability in Haiti are of special importance at this time due to mounting political tension else where in the Caribbean.

In order to probe the Haitian Government’s attitude more deeply and determine the outlook for carrying on an effective assistance program, we plan to send a special mission to Port-au-Prince about June 2 to consult with Ambassador Drew and to hold frank discussions with President Duvalier on the development program—its objectives, problems, and ways and means of enhancing its effectiveness.

Ambassador Harry R. Turkel³ will head the special mission, accompanied by Mr. Rollin S. Atwood, Regional Director for Latin American Operations of the International Cooperation Administration.⁴

Recommendation:

That you sign the attached memorandum to the President recommending that he send a letter to President Duvalier concerning the forthcoming visit of a special mission to consult on the cooperative development program in Haiti.⁵

1. Source: Department of State, Rubottom-Mann Files, Lot 62 D 418, “Haiti 1960.” Confidential; Limit Distribution. Drafted by Warner.
2. Neither printed. The memorandum for the President, dated June 1 and signed by Herter, is in the Eisenhower Library, Whitman File, International File.
3. Turkel was the United States representative on the Inter-American Economic and Social Council of the Organization of American States, with the personal rank of ambassador.
4. Edmund Hutchinson of the Development Loan Fund also accompanied the mission.
5. Turkel, Atwood, Hutchinson, and Drew participated in conversations with President Duvalier on June 3 and 4. Eisenhower’s letter, which introduced Ambassador Turkel and requested President Duvalier’s cooperation in frank discussion, was delivered at the June 3 meeting. As a result of these discussions, on June 7 Rollin Atwood and Haitian Secretary of State Gerald Philippeaux signed an agreement providing for the resumption of work on the Poté Colé project and joint administration of personnel matters. The Embassy at Port-au-Prince transmitted the text of the agreement to the Department of State in telegram 294, June 8. (738.5–MSP/6–860)