Foreign Relations of the United States, 1955–1957, American Republics: Multilateral; Mexico; Caribbean, Volume VI

353. Memorandum From the Acting Director of the Office of Inter-American Regional Political Affairs (Dreier) to the Assistant Secretary of State for Inter-American Affairs (Rubottom)¹

Washington, July 9, 1957.

SUBJECT

• Recognition of Haiti

I believe we are drifting into an unnecessarily difficult situation regarding the recognition of Haiti. The general tenor of Ambassador Drew’s telegram no. 6 of July 8² indicates that the Embassy is tending to judge the matter of recognition more on the basis of the future capabilities and performance of the government rather than whether it meets classical requirements of de facto control and willingness to abide by its international agreements.

In judging this question, there seem to be two basic aspects to consider: a) our obligations under inter-American agreements; and b) our national interest.

The basic inter-American agreement on this matter is Resolution XXXV of the Bogotá Conference³ which states as its main proposition that the maintenance of diplomatic relations among the American republics is desirable. It then goes on to state that such relations imply no judgment on the internal policies of a government, and that the establishment thereof should not be used to extort any special advantages. The resolution itself, and the background of it, both indicate that the basic policy incorporated therein is one of de-emphasizing the significance of recognition as opposed to the importance of maintaining relations among the members of the inter-American community. While this policy does not in any sense deprive any government of its sovereign right to extend or withhold recognition of another government, it does in a sense put the burden of proof on the government as to why it does not recognize another government which meets the two classical criteria mentioned above.

In the light of Resolution XXXV, it is my view that the time has come when we should proceed to recognize the existing government of Haiti.

Viewed from the point of view of national interest, there would seem to be no significant reason for departing from the above conclusion. It is in our interest to have a stable government in Haiti. While we cannot be sure that the Kebreau Government will continue in power, the only effect of recognition would be to make that more likely. There seems to be no other group capable of taking over and exercising authority more effectively, and it may well be that the fall of the Kebreau Government would produce the real chaos which we have feared.

There remains the question of whether the holding of elections should be made an implicit condition of our recognition. In my view, it is not in our interest to do so because this would involve intervention in Haitian affairs, involve a responsibility for the United States which we could not exercise because we could not in any sense guarantee the nature of the elections, and is unrealistic in the present chaotic state of Haitian politics.

I recommend that we consult with other governments that have not recognized, express the view that since the Kebreau Government has stayed in power for some time we are inclined to recognize it, “taking into account” (not “in accordance with”) Resolution XXXV of the Bogotá Conference and then proceed to do so. The longer we delay, the more importance there is attached to our action or inaction, and the further we drift away from the policy adopted at Bogotá, and the greater our responsibility in the eyes of others for what takes place in the future.

1. Source: Department of State, Central Files, 738.02/7–957. Confidential.
2. In telegram 6, Drew reported in part, “Have reluctantly reached conclusion tentative target date July 12 for recognition no longer realistic and am even beginning doubt Junta has sufficient internal strength and cohesiveness survive long enough hold elections.” Drew recommended that the Department make no decision on recognition for the time being. (Ibid., 738.02/7–857)
3. The Ninth International Conference of American States was held at Bogotá, Colombia, March 30–May 2, 1948. For documentation on U.S. participation in the conference, see Foreign Relations, 1948, vol. ix, pp. 1 ff. The Charter of the Organization of American States was signed at Bogotá on April 30, 1948. For text, see 2 UST (pt. 2) 2394.