415. Memorandum from Coffin to the Special Group (CI), July 181
SUBJECT
- A.I.D. Supported Counter-Insurgency Activities
The long-term aim in the planning and programming of economic assistance administered by the Agency for International Development over the period since January 1961 has been to create economic and social conditions of sufficient vitality to eliminate the causes of discontent and to sustain representative government and institutions. In this broad general sense a wide-ranging program has been developed and implemented to strengthen internal defense capabilities. To identify each one of these without giving a full listing of a large part of the whole program would not be practical. This summary report is therefore confined to a description of the specific major measures taken to enhance local counter-insurgency efforts and to the adjustment of internal procedural arrangements in support of these efforts.
BROAD PROGRAM TARGETS
The extent of the threat in the various regions has dictated, in most instances, the character of the programs planned and executed in the [Typeset Page 1684] period under discussion. The actions taken in each of the areas can be highlighted as follows:
A. The Far East including Southeast Asia
A substantial part of A.I.D. resources in this area were used to support efforts to counter active insurgency and direct aggression, U.S. economic aid resources were used for military and civil budget support in Vietnam and Laos. Funds were used for military construction, alarm systems, communications and transport, education, health and community development throughout the whole area of Southeast Asia. Anti-communist minority groups fighting communist-led guerrillas received a variety of basic assistance necessary for their subsistence. Programs in other countries of the area were developed to improve the economic and social conditions of groups potentially exploitable by communists.
[Facsimile Page 2]B. Africa
The program in this area has been developed to assist governments to realize an accelerating pace for economic and social development. Through the Food for Peace program significant projects to create employment through land clearance, reforestation and road construction were initiated, technical assistance and other resources were provided to expand education, health facilities and communications.
C. The Near East and South Asia
Throughout the region there were extensive development loan programs, and development grant programs in human resource development, vocational training, community development and public administration.
D. Latin America
Throughout fiscal year 1962 over $65 million was earmarked for economic and social development programs through the Alliance for Progress. This program will reach the hundred million level in this fiscal year in such fields as agriculture, education, health, labor affairs, community development, communications and transportation. These projects are of an impact nature and contribute to the greater stability of the area.
SPECIFIC COUNTER-INSURGENCY PROGRAMS
A. Civic Action
Over the years the U.S. has supported a number of Civic Action Programs and these are continuing. In early 1962 in conjunction with the Department of Defense new emphasis was given to Civic Action and the highlights of this expanded effort are reflected in the programs recently initiated.
1. The Far East
A larger program for Korea was initiated in the spring of 1962. This program is an expansion of the large construction program involving [Typeset Page 1685] 13 engineer construction units. A new program was [Facsimile Page 3] initiated in Burma under the auspices of the Burmese Army to open up an area for land settlement and colonization. Other Civic Action programs in Thailand and Cambodia are under consideration and a major program is being supported in South Vietnam.
2. Africa
The military forces in Senegal are receiving MAP support and will soon become involved in economic development projects with A.I.D. materiel support. A project for the Cameroon is now under consideration and as additional forces acquire a Civic Action capability additional programs will be developed.
3. The Near East
The military forces of Turkey and Greece have had for a number of years a U.S. supported Civic Action program and these are continuing. A new program to develop water resources in Jordan was approved in fiscal year 1962 at a cost of $135,000, and a substantial Civic Action program for Iran is in the process of development to be funded in fiscal year 1963.
4. Latin America
The Civic Action program in this area was expanded significantly in 1962, reaching a level of almost $2 million by the end of the year. Programs are underway in Honduras, Paraguay, Bolivia, Peru, Ecuador and Chile. Guatemala and Brazil have had programs for a number of years without the need for U.S. assistance.
Civic Action for fiscal year 1963 is projected at twice the level for this present fiscal year and it is anticipated that a larger number of countries and military units will participate in a wide variety of projects.
B. Public Safety
1. Far East
Since 1961 the police support program has been expanded in the Far East to cope with the increased threat. The program in South Vietnam is being increased 100% and the support level for the [Facsimile Page 4] Thai Border Police for equipment and training has been increased by $2.7 million. Arms and equipment have been provided to the Cambodian police and the Mobile Brigade in Indonesia will receive $6.1 million over the next three years for communications, transportation and training. All of these programs provide for an increased internal defense role.
2. Africa
In Africa new programs to support the police in the Ivory Coast, Upper Volta, Niger, Dahomy, Togo, Central African Republic, Malagasy Republic and Ethiopia were initiated. Programs were continued in the Somali Republic, Libya, Tunisia, and Liberia and a police acad [Typeset Page 1686] emy was opened in Liberia in the spring of 1962 which should train a minimum of 1,000 police officials each year.
3. Near East
New programs in Cyprus and Egypt are under consideration and an expanded program for Iran to improve riot control has been approved. In October 1961 over $4 million in excess equipment was made available to the Indian police.
4. Latin America
The Public Safety Program in Latin America has been increased over the FY 1960 level. The number of technicians assigned almost doubled in 1962 and will further increase in 1963. The number of police officials trained at U.S. expense increased by 100 in 1962 over the 1961 level. By far the most significant development during the last eighteen months was the establishment of an Inter-American Police Academy in Panama. This school was opened in July 1962.
The entire thrust of the Public Safety Program is now under inter-agency review to develop new concepts, techniques and organizational responsibilities. The recommendations stemming from this review will further strengthen the U.S. supported police program.
ADMINISTRATIVE MEASURES
A.I.D. has made specific assignments of personnel in the counter-insurgency effort both at the coordinating and the regional [Facsimile Page 5] levels. Qualified personnel have been given new responsibilities for developing plans and programs and to assure their effective execution. Listing of the A.I.D. training programs were outlined in response to NSAMs 131 and 162 and have been expanded to familiarize personnel with the new emphasis in U.S. supported counter-insurgency efforts. Six training programs are already underway including a police program which in 1961 trained 360 officials. A.I.D. is now studying methods to develop a reservoir of qualified personnel to be sent to crisis areas on short notice.
FUTURE MEASURES
The major measures planned for the future fall into the following broad general categories:
A. Coordination
The A.I.D. Administrator has submitted to the President on May 25 his plan to strengthen the coordinating function of all U.S. aid efforts. This proposal was accepted and circulated to the field as a forerunner to specific guidance on procedures for the submission of future country programs. Planning in future years is to be on a five year basis and will include both military and economic proposals. (Economic planning was previously on a one year basis.)
[Typeset Page 1687]B. Guidance
The economic guidance for the next fiscal year will reflect the new emphasis to be given to counter-insurgency programs. This guidance will serve as the basis for fiscal 1964 programs and calls for a thorough analysis of internal defense programs and resources required for their greater effectiveness.
C. Planning
1. Greater emphasis in the planning process is to be placed on the side-effects of all aid components.
2. A.I.D. is participating in the inter-agency program to develop internal defense plans for all friendly countries threatened by subversion.
[Facsimile Page 6]D. Personnel and Staffing
A.I.D. is continuing to recruit experienced personnel to staff key positions in the field and in Washington for positions in the counter-insurgency field. Some 25 positions in the Public Safety field are to be filled as quickly as qualified personnel become available. Additional positions in Washington are also in the process of being established. All personnel scheduled for counter-insurgency positions will receive specialized training. A.I.D. will also participate in the inter-agency committee recently established to evaluate the adequacy of this training.
Much of the A.I.D. effort in the field of counter-insurgency was concentrated in the last half of the period under discussion. Problems of reorganization, new program direction, earlier commitments and program emphasis required review and evaluation. A new momentum has been started in the direction of improving the stability of areas threatened by subversion and more flexibility in programming development has been established.
- “AID Supported Counter-Insurgency Activities.” Secret. 6 pp. Kennedy Library, National Security Files, Departments and Agencies Series, AID, 1962, Box 268.↩