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OF INTELLIGENCE
Haiti: Duvalier's Primitive Totalitarian State
Special Report
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SPECIAL REPORTS are supplements to tin* CurrentWeeklies issued by the Office ofrelJiD.uncv. flic Special Reports arc published separately lo permit more comprehensive treatmentubject. Tlicy ate prepared by the Oli'ivtf ol Current Intelligence, die Office of HconoiiiKthe Office of St ruicjnc Revaiclt. jnd the Directorate of Science and Technology. Special Reports arcppropriate .iinont: the Directorates of CIA bill, except for Ihe normal sulntantivcithncies at the working level, have not been coordinated outside CIA unless *pecifioIh indicated.
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HAITI: DUVALIER'S PRIMITIVE TOTALITARIAN STATE
For moreecade, President Francoishas exercised life and death control over Haiti. In spite of attempts to oust him and reports that his health is declining, Duvalier ats still the undisputed dictator. Within the past several months, he has given fresh evidence of his ability to retain control by repelling an attempted exileand by maintaining stability while removing key individuals in the power structure.
Nevertheless, there are numerous factors ofwhich may become more evident in the next few years. The only persons still activelyDuvalier are those who benefit from hisin power. Assassination isapid deterioration in his mental orpowers could inspire either his henchmen or his enemies to supplant him. The extent of the turmoil that follows his eventual disappearance from thescene will depend on whether he is removed by natural causes, coup, or assassination, and on the ability of his would-be heirs to consolidate powers.
Inears ofviolence and counter-violence with intermittentof silent oppression have been the pattern of political life. Personalities, rather than issues, have been the focal point of politics. With few exceptions those who have been successful in obtaining power have felt noas public servants but instead havo establishedand dictatorial regimes, have enriched themselves atexpense, and have attempted to remain in power permanently.
The government of Francois Duvalier is no exception. Since his accession to powere has been able to remain inby manipulating orexisting power forces. He has minimized any potential threat from the army by creating two coun-terforces, the civil militia and the secret police. All incidents of internal opposition have been crushed, mostly by theowerful group ofhenchmen known as the Ton Ton Macoutes. His concentration on political security, however, has leadteady deterioration in the standards of living of the
Haitian people, most of whom are illiterate, poverty stricken, and beset by disease and malnutrition.
The Political Situation
Prom the time Haiti gained its independence from France4 until Duvalier's olectionmall mulatto elite tended to dominate the vast Negro majority. The mulattoeswere better educated and predominated in the professions, commerce, and the importantjobs.
The emergence of Duvalier, however, brought toegro who was determined to end this tradition for his own political gains. Duvalier hasinculcated hatred of the mulatto elite in the minds of the predominant blacks. Although many mulattoes have retained their wealth and prestige,has effectively isolated them from the political process.
Duvalier also uses the race issue to explain the lack ofreform. He frequentlygrandiose plans for Haiti's economic future, states thataid is essential, and then claims that it is not forthcoming because foreign countries do not like Negroes.
The President capitalizes on the ignorance and superstition of the Haitians. Although heominal Catholic, he includes voodoo priests among his advisers
and celebrates events that happen to occur ond ofagic number in voodoo. He regularly compares himself to the ancient leaders of Haiti, often going so far as to imply that he is their reincarnation.
Duvalier has had to use strong-arm methods, however, to retainover the upper classes. He began his rule by taking measures to weaken the military leadership, which had figured prominently in almost every change of government since independence. Byremoving all competentwho might oppose him andthem with officers who owed him their allegiance, soon gained control of the
Civilian Militia Unit an Parade army. Although military commander Gerard Constant privately maintains that there are still somowithin the army, it appears that they wouldubversive threat only if their lives were directly threatened by Duvalier.
Duvalier's creation of two counterforces, the civil militia and the secret police "Servicehe* further undercutauthority. an militia is maintained in parallel but separate status fron thearmed forces and is directly responsive to Duvalier through his hand-picked leaders. Each of these leaders is responsible pecific geographical region and is required to report all unusual events in his areato Duvalier.
Almost all of the members of the militia are Negroes. igh
percentage of them areand many have criminal backgrounds. There is nodifference between the backgrounds of theand that of the rank and file. In fact, Duvalierreorganizes sections of the militia by promoting or denoting Its members. Two weeks ago he disarmed some militia units in the north and installed new leaders. This particular reorganization prob-ably reflects Duvalier'sabout the possibility of future invasion attempts and may indicate hiswith the militia's performance during the exile invasion in Hay..
The "Service Duvalier" is Duvalier's small personalunit, which is primarily responsible for dealing withcrimes such as throats to the President's safety. Its members are militiamen, most of whom also apparently belong to the Ton Ton Macoutes. The Ton Ton Macoutes, whose memberscabinet ministers as well as ordinary thugs, is the most feared group in Haiti and is the major factor in Duvalier'sto retain power.
The pressure groups found in most other countries cannot exist in the politically repressiveof Haiti. Laborare totally dominated by the government. The secret police network of informants has created fear and suspicion within the business community. Professional
organizations are under theof Duvalier, andprefer to endure the regime rather than assume the risks of actively opposing it. In fact, many Haitian businessmen owe their financial success to the governmentesult of monopoly concessions they have obtained.
Duvalier hasacade of legality around his regime. The legislature and the judiciary, however, like all otherand groups, are directly subservient to the President. All political parties except Duvalier's Party of National Unity (PUN) have been suppressed since he came to power. Although PUN was declared to be the only legal party in
Haiti itarty in name only and lacksaper organization.
Economic Conditions
The standard of living in Haiti, long the lowest in the Western Hemisphere, has become still worse under Duvalier. production is lower than in the, and the output Of the small manufacturing sector has increased only slightly Estimated per capita gross national product has declined from5 to, less thanercent of the Latin American average. it is said that Haiti's gross national product'is less now than itears ago.
The economic problems are too basic and severe for any quick solution. Yet Duvalier, instead of taking constructive measures to ameliorate them, has usually pursued policies having theeffect. His ineffectiveness in dealing with economic problems stems notack ofbut from his interest in instituting only programs that willavorable andpolitical effect.
He has consistently ignored the recommendations offinancial organizations to eliminate corruption andfiscal and administrative esult, Haiti has been denied the benefits of external assistance programs large enough to halt economic and social.
he US suspended most forms of direct aid because funds were being siphoned off by local politicians and projects were being manipulated to further the government's political control* External assistance from several countries and internationalfor humanitarianhowever, has continued to increase3 despite the donors' aversion to the Duvalier dictatorship. Haitiillion in private aid, most of which coroes from the US.
In recent years, the Haitian Government hasewinvestment projects, whichhas used as prestigeew jet airport was completed7ew miles of new high* way have been built. Thehas contracted with an Italian firm to install hydroelectricequipment at the Poligre Dam, which was recently renamed the "Francois DuvalierComplex.1' Now that the dam bears Duvalier's name, thefor completion are somewhat brighter than they were four years ago,imilar contract was negotiated with the same firm.
Subversion
verwhelming electoral victory7 was engineered by the army, ear, the repressive character of his regime became apparent, and political opponents began fleeing into exile. The fewminded people still in Haiti are probably opposed to Duvalier and his methods of rule, but most of these potentialare intimidated, nonvocal, and disorganised. The masses, who have displayed ancapacity for suffering, will not easily be shaken out of their apathy and malleability.
Peligre Dam on Artibonite River
The active opposition tois centeredumber of exile groups, both Communist and non-Communist, which arein the United States, Canada, Western Europe, theRepublic, the Bahamas, and Venezeula.
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enjoy almost no following within Haiti, with the possibleof former president Paulinancial mainstay of the Haitian Coalition, which hasembers in its New York headquarters. It is probably the largest and most active of the exile groups.
The exiles have undertaken several unsuccessful invasions of Haiti. The most recenton8man group flew from the Bahamas to Cap Haltien on the north coast but was routed by government troops.
Inside the country, only the Communists seem to have any potential for subversion. So far, however, their two largestthe United HaitianParty (PUDA) and the Party of Popular Accordogether have only They are weak andandenerally passive role designed toovernment crackdown. The PEP is oriented toward Moscow, while the PUDA is more militantlyand tends to favor Castro. They generally do not cooperate but are loosely alliedunited front,"
Communism is outlawed, but the ban has not been strictly Communists have not been singled out for control orprovided they do not engage in overt opposition activities. Recently, however, followingof small-scale terrorist
incidents instigated by the Party of Popular Accord, Duvalierhis military commanders to arrest Communists in areas where terrorist attacks occurred. This is the first time in the past few years that militant Communisthas been reported. further incidents may neither Communist partyto have the capability toerious threat to Duvalier.
The Soviet Union and Cuba provide what little outsidethe Haitian Communists obtain.
Radio Havana continues to broadcast in Creoleeek/ but there is no evidence that the programs--whichDuvalier and the support he is alleged to receive from the Unitedanyeffect on the Haitian people.
Haiti1 ternational
Foreign Relations
most important in-ties have been with
the United States, its major trading partner, the origin of most of its tourist revenues, and the traditional source of nearly
all of its foreign loans, grants, and technical assistance. has consistently taken US assistance for granted and has blamed the US diplomatic mission for the curtailment of USin
from the US. Itss more to the UN, however, both because of its cultural ties with Africa and because it views the OASuppet of the US.
relations with the neighboring Dominican Republic are also of importance. Amutual antagonism has existed between the twobut relations betweenand President Balaguer are "correct,"
Since the recent invasion in May, Duvalier has attempted to restrict the travel ofexiles in the Caribbean. The government has instructed its diplomatic representatives in Nassau and Miami to refuse visas and passports to exiles traveling to or from the Bahamas, vhich Duvalier has long accused ofden of Haitianexiles," He alsoleges that the US condonesexile activity. Recently, Duvalier has claimed to haveinformation that an exile force is en route to Venezuela to train for an invasion of Haiti through the Dominican
Haitiember of both the UN and the OAS, which it considers forums for attempting to extract financial assistance
The Haitian constitution makes no provision forsuccession, and Duvalier has not prepared anyone tohim. Since he personally handles all major administrative matters, no one with leadership experience will be available. Indeed, any potential leader in the past ten years would have to have kept his ambitions secret in order to survive.
When cone.
There is no indication that Duvalier will voluntarily leave the scene in the immediate future He made himself President-for-life4 and gives every sign of intending to serve out that term. His health isiabetic,eriousnd probablyfrom arteriosclerosisbut neither does it show signs of rapid deterioration. Recent rumors of cancer have not been substantiated. The possibility of assassination is alwaysbut Duvalier takes unusual precautions. He appears in pub* lie only on special occasions and then under extremely heavy guard.
the time Cor change it is possible that
the succession will Call to the traditional oppositionthe exiles, the mulatto elite, or theavailable evidence points in another The first to hear of any weakening in Duvalier'sfor whatever cause, will be his palace confidants. Of these, the ones in the strongest position to act will be members of one or more of the armed groups, either on their own or in concert with civilian
The actions of Luc Desir and Eloise Maitre, the two mostleaders of the Ton Ton Macoutes, would probably affect the outcome in the struggle for leadership.
The top military figure, Chief of the General StaffConstant, commands no troops and is generally consideredbut he could well serveront for some leader in the police, the secretor the Ton Ton Macoutes.
KODCMW (TO reHeTgW-
Original document.
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