814.504/8–447

Memorandum by the Chief of the Division of Central America and Panama Affairs (Newbegin)21

confidential

In accordance with instructions from the Department, I proceeded to Guatemala on July 29 and met with the Foreign Minister22 on July 30 to discuss the Guatemalan Labor Code and its effect on the United Fruit Company. A copy of the memorandum of that conversation is attached. It will be noted that it follows closely the Department’s stand, as agreed upon before my departure. It was unfortunate that the visit coincided with the resignation of the Foreign Minister who announced his action during the conversation itself. He did however bring the substance of the conversation to the attention of the President,23 and was himself in complete accord with the views of the Department.

In a conversation with President Arévalo on July 31 Ambassador Kyle was informed that the President would be pleased to receive the views of the company, in as much as certain changes in the code would have to be made at the September session of Congress. The company presented its views in a communication to the President dated August 1. It emphasized not only the two articles, 13, 243, which the Department viewed as discriminatory but mentioned a number of other articles which the company itself regarded as discriminatory. Unfortunately, the communication to the President was not presented in person by representatives of the company, although the latter expected to see him within a few days following the presentation.

Before my departure Mr. Corcoran of the United Fruit Company suggested that a formal protest be made. He was informed that in view of my comment to the Foreign Minister, and in as much as the company officials had not yet seen the President, this did not appear to be the appropriate time to make such a protest. Furthermore, clearance had not been obtained from the Department on this point.

In a conversation with Senator La Follette24 this morning, I informed him of my views in this regard. He said that while he had come to the Department prepared to urge that a protest be sent immediately, he felt it well to postpone this action until he had communicated again with his representatives in Guatemala.

It was most regrettable that my visit to Guatemala coincided with [Page 708] a cabinet crisis, the outcome of which is not yet clear. It appears, however, that President Arévalo has definitely decided to throw in his lot with PAR and the more radical Guatemalan groups. It is still too early to tell what the effect of this will be, or even whether any very useful purpose was served by my trip.

[Annex]

Memorandum of Conversation, by the Chief of the Division of Central America and Panama Affairs (Newbegin)

confidential
Present: Minister for Foreign Affairs
Ambassador Kyle
Mr. Donovan25
Mr. Newbegin

Accompanied by Ambassador Kyle and Mr. Donovan, I called on the Foreign Minister, Silva Peña, on July 30. I began the conversation by informing the Foreign Minister that the purpose of my trip was solely to discuss with him the Guatemalan Labor Code and its effect upon the United Fruit Company.

I explained that the United States Government was most seriously concerned, both with regard to certain discriminatory Articles of the Code and the over-all result as it related to the operations of the Company. I told him that I had not come prepared to present any formal protest, although we felt there were at least two provisions of the Code which would justify it. It was our hope that no formal protest would become necessary.

Reference was then made specifically to Articles 13 and 243 of the Code, relating to employment of aliens and the right to strike against agricultural enterprises respectively. The Foreign Minister stated that no reference had been made to Article 13 in the Department’s Memorandum of May 28, and that he himself, because of his many duties, had been unable to give the attention to the Code which it deserved. Upon reading Article 13 he expressed complete surprise and said that he had been unaware of the fact that employment of aliens could be limited to the extent set forth therein.

With regard to Article 243, he at first claimed that, since the products of the United Fruit Company were subject to deterioration during the harvest period in case of a strike, he felt that there was no danger involved. However, he subsequently admitted that the wording was ambiguous and that our cause for concern might well be justified. [Page 709] The Foreign Minister was then informed that there were various other articles in the Code which appeared discriminatory, but upon which we were not prepared at this time to determine whether they might serve as the basis for any formal protest. I then told the Foreign Minister that, aside from the question of discrimination, we were very much preoccupied lest the effect of the law be such as to seriously interfere with and possibly make impracticable the further operations of the company. I told him that I knew that the company officials were studying the matter with great care, taking into account the possibility that they might find it necessary to withdraw from Guatemala. I said that, whereas I could give no definite information as to whether they would do so or not, I believed the possibility should be taken into consideration. I said that I was mentioning this not by way of any threat of any sort, but merely because it was desirable to face the situation as it was. It was pointed out that any such development might well have a serious effect upon relations between the two countries; that, whereas the United Fruit Company might take a serious loss in any such move, the importance to Guatemala likewise would be paramount.

Reference was made to the many contributions which the United Fruit Company had made and was making to the economy of Guatemala, specifically with reference to the large amounts of money paid in salaries, the purchase of bananas from independent growers, the payment of taxes, and other contributions of a social nature. Reference was likewise made to the effect which the United Fruit Company withdrawal would have upon possible investors from the United States who would, of course, be ultra-cautious if it were felt that the United Fruit Company had been treated unfairly here. The point was made again that the United Fruit Company was entirely willing to meet any requirements of law which applied to all other enterprises but that the company felt that in adopting the Code, the Guatemalan Government had definitely had the Fruit Company in mind and had drafted its provisions accordingly. I expressed the hope that in its own interest as well as that of the Company and of the relations between our two countries the Guatemalan Government would find it possible to review the Code in an effort to amend it so that the Company could operate with sufficient guarantees and assurance. It was suggested that it would, of course, be preferable to make such an arrangement directly with the Company itself. The Ambassador pointed out that foreign investments at this stage of its development were particularly desirable for Guatemala. He said that in the early days of American history there were large-scale investments on the part of the British, particularly in railroads and in Texas ranches. He asserted that these investments [Page 710] had been particularly beneficial to us and had played a very important part in our development. He continued that the British no longer had holdings of such importance and that they had passed to American owners naturally and not as a result of pressure or legislation.

The Foreign Minister replied that he was in entire accord with our views set forth during the conversation, but that he thought that in all frankness he should inform us that he would probably no longer be a member of the Government after a day or so, and that he had already submitted his resignation to the President. He stated that his views on a number of subjects were not in accord with those of the administration and he did not feel that he could retain his present position when he foresaw certain obligations which other members of the Government were unwilling to meet. He said that he would in any case inform the President of our conversation. He was requested to do so, emphasizing:

1.
The existence of the two discriminatory Articles under reference;
2.
The existence of a number of other Articles which appeared discriminatory and would seriously affect the operations of the Company; and
3.
Notwithstanding 1 and 2, the desirability, in the interest of Guatemalan economy and of relations betwen the two countries, of reaching an arrangement which would not prejudice the Company’s operations.

  1. Addressed to the Director (Wright) and the Deputy Director (Woodward), Office of American Republic Affairs.
  2. Eugenio Silva Peña.
  3. Juan José Arévalo.
  4. Ex-Senator Robert M. La Follette.
  5. Andrew E. Donovan, 2d, First Secretary of Embassy in Guatemala.