Sumner Welles: Vai trò của Ủy viên Hoa Kỳ tại Cộng hòa Dominica và Chính sách Vùng Caribe

SUMNER WELLES: COMMISSIONER TO THE DOMINICAN REPUBLIC By GERALD FRANK DUERR II Bachelor of Science The Citadel Charleston, South Carolina 1966 Submitted to the Faculty of the Graduate College of the Oklahoma State University in partial fulfillment of the requirements for the Degree of Master of Arts December, 1976 SUMNER WELLES: COMMISSIONER TO THE DOMINICAN REPUBLIC Thesis Approved: Thesis Advisor ____:lt_\b(J~- L. ~ Dean of Graduate College 96'/697 PREFACE This study examines the role of Swnner Helles in the termination of the United States occupation of the Dominican Republic. The primary objective is to inquire into Welles' involvement with and mission to the Dominican Republic to determine his concept of United States Caribbean policy. In negotiating the termination of the Dominican occupation, \\Telles led the United States away from a policy of imperialism and toward a policy which stressed friendly cooperation with the Caribbean nations.

The author wishes to express his appreciation to his major advisor, Dr. Smith, for his guidance and assistance in this study. Appreciation is also expressed to the other committee members, Dr. von Sauer and Dr., for their invaluable assistance in the preparation of the final manuscript.

I wish to thank the staff of the Oklahoma State University Library and the staff of the Diplomatic Records Branch, National Archives for their research assistance. Thanks also to Ms. Kathleen Allen for her assistance in typing earlier drafts of part of this study. In addition, I extend my appreciation to the United States Air Force for the opportunity to pursue this educational goal and to the Air Force Institute of Technology for its aid and assistance.

Fina~ly, to my wife, Angela, a very special thanks for her under- standing, encouragement, andmany sacrifices. iii TABLE OF CONTENTS Chapter Page I. INTRODUCTION AND LITERATURE. UNITED STATES RELATIONS WITH THE DOMINICAN REPUBLIC, 1900-1920 • • • • • •.

THE SEARCH FOR A PLAN OF WITHDRAWAL • • • • • 41 IV. SUMNER WELLES: COMMISSIONER TO THE DOl.fi l\li CAN REPUBUC • • • • • • • • • 78 V. SUMMARY AND CONCIDSIONS 110 A SELECTED BIBUOGRAPHY • • • • • 124 iv CHAPTER I INTRODUCTION AND LITERATURE The resignation of Sumner Welles as Under-Secretary of State on September 30, 1943, ended a diplomatic career that had contributed much to the realization of the goals of international good neighbor- liness and Hestern Hemispheric solidarity. During the twenty years Welles was associated with the State Department of the United States, he struggled to remove the notion of imperialism and ndollar diplomacy" from United States relations Hith other nations.

Roosevelt's statement in his first inaugural address that in the field of foreign affairs the United States would adopt the attitude of a Good Neighbor is primarily attributable to Welles' influence. Roosevelt and Welles had discussed United States foreign policy and, in particular, hemispheric policy, on numerous occasions during the months preceding the inauguration, and some of Welles' ideas were expressed by Roosevelt in his first major address on. f orelgn re 1 atlons. 1 Over the next ten years the men selected to fill the more important State Department posts sought to follow a Latin American policy based on the Good Neighbor philosophy.

Roosevelt's choice for Assistant Secretary of State with responsibility over Latin American affairs was Sumner Welles. In the only scholarly work devoted to Sumner Welles and his role i.n the Good Neighbor Policy, the author states, "Sumner Welles, hard- 1 2 working career diplomat, worked out and detailed the program of the Good Neighbor for Franklin Roosevelt." 2 Bryce Wood observes that during the development of the Good Neighbor Policy, "Welles dominated the day-to-day decisions relating to Latin America. 3 President Roosevelt was not the only person influenced by 11 • one of the wisest of American diplomats. Harry Williams, Richard N.

Current and Frank Freidel conclude in their work, !2_ History E_f the United States, that former Secretary of State Charles Evans Hughes, who tried to establish a new policy of extending American good will toward Latin America, was decided1y influenced by Sumner Welles during his first few months in office. 5 The New York Times, in praising Welles' appointment as }.JTibassador to Cuba in 1933, commented that "Secretary Hughes never hesitated to employ Sumner Welles when dif- ficult and responsible work was to be done." 6 Statements such as these indicate that a complete examination of United States policies toward Latin America during the 1920s and 1930s must take into acccunt the role of Sumner welles. Although Helles is acknmvledged as having played a major part in the development of the Good Neighbor Policy, few historians have examined his ideas concerning foreign policy or their development. This is especially interesting since autobiographies, biographies, and other studies discuss nearly all of the important men, including some \vorks on men who served in positions farther removed from the center of decision-making than was Welles, who served during the Roosevelt years.

Welles did not write an autobiography, and his biography is yet to be written. That historians have paid little attention to Welles is partly attributable to the fact that Welles' 3 personal papers have not been released for study. I In addition, Welles did not attract much public attention as a diplomat or State Department official until after 1933. As a result, he was over- shadowed by Roosevelt, Cordell Hull, and the events that erupted into '1-Jorld War II.

Historians who have inquired into American diplomatic history for the years between 1920 and 1943 generally give Welles only passing attention, choosing instead to identify presidents and secretaries of state with particular foreign policies and policy decisions. Perhaps this is as it should be, since presidents and secretaries of state do have the re5ponsibility and authority to make policy and render the major practical decisions in line with that policy. This practice, however, does not give credit to the lower level officials fer their day-to-day decisions that breathe life into the policy and decisions that others make. In Welles' case, he not only made real and tangible the Latin American policies of Presidents Harding and Roosevelt and Secretaries of State Hug~es and Hull, but he convinced these men that these were the policies that they should.

The most readily available and authoritative source of informa- tion relating to Helles' role in United States-Latin American relations are the appropriate volumes of The Papers Relating ~ the Foreign Relations~ the United States. 7 In this essentially official record of American foreign relations, the student finds the final versions of signed treaties as well as many of the letters, telegrams, and memoranda that were sent and received by the State Department. The attitudes and ideas of individual diplomats, such as Welles, are evident in many of these documents; in Welles' case, however, these 4 volumes do not contain the complete record of his involvement. In order to examine fully Welles' influence on Latin American-United States relations, especially his role in terminating the United States occupation of the Dominican Republic, it is also necessary to review the letters and memoranda that were not published in the Foreign Relations volumes.

These documents are among the public records preserved in the National Archives. Welles' speeches, delivered during his tenure as Assistant and later Under-Secretary of State, are also available for examination. Although Welles presented these speeches on behalf of the Roosevelt administration, they still reflect his own opinions and ideas. Welles had a reputation for being honest and direct, and in the area of inter-American relations his vie"lvs closely paralleled those of the administration he served.

8 Welles was the author of six books. One can find the clearest statement of his philosophy and ideas in these works. Five of the books were written after 1942 and concern the war and post-war era. 9 These vmrks do not constitute welles' memoirs; rather, he recalls the diplomatic decisions that W2re made and the effect of the policies that were adopted.

Welles minimizes his own involvement in those decisions in which he played a part, except to respond occasionally to the criticism of others and to clarify his position where disputes occurred. Written as they were at the end of his State Department career, these five books are the end result of Welles' diplomatic experiences. Welles' first book, Naboth's Vineyard: The Dominican Republic 184·~-1924, a two-volume history of that Caribbean nation published in 1928, is an early statement of his conception of what a Good Neighbor Policy should entai1. 10 Naboth's Vineyard followed 5 Welles' first major effort to end United States imperialism and re- verse the policy of intervention.

It also predates Welles' appoint- ment as Ambassador to Cuba in 1933, the first major test of the Good Neighbor Policy. The concluding chapter of Naboth's Vineyard reveals that Welles had, by 1928, formulated the basic concepts of the Good Neighbor Policy. A diplomatic biography of Welles covering the period betHeen 1933 and 1943 states that VJelles ". learned by his mistakes that the United States should not presume to dictate internal policies of independent American nations.

1111 If this was true of VJelles during the development of the Good Neighbor Policy, then the conclusions expressed in Naboth's Vineyard reveal what he learned from his ex- periences in ending the United States occupation of the Dominican Republic. In writing Naboth' s Vineyard, VJelles did not detail his mvn important activities which helped restore the Dominican Republic's sovereignty. The most complete and accurate account of VJelles' role in ending the occupation of that nation is contained in the tnird chapter of Dana G. Munro's book;·The United States and the Caribbean Republics, 1921-33.

12 Hm·Jever, Munro, who was a contemporary of Welles in the State Department in the early 1920s, did not make Welles the subject of his chapter; rather, he provided an in-depth look at the issues and problems with which Welles had dealt. The purpose of this study is to test the hypothesis that Welles' involvement with and mission to the Dominican Republic from 1920-25 were important to the development of his ideas on United States-Latin American relations. Welles' official mission to the Dominican Republic provided him an opportunity to accomplish a specific personal 6 objective and to initiate a new concept in foreign policy. His attitude and methods reflected his concept of what United States foreign policy should be and how it should be carried out.

It seems likely that Welles' experience in the Dominican Republic may have altered or at least refined his thinking in regard to the policy he believed the United States should adopt and follow. Before discussing Welles' role in ending American military intervention in the Dominican Republic, it would be of value to trace briefly his career up to 1922. Sumner Helles, a member of a prominent New York family, was born on October 14, 1892. He was named for his great-uncle, Senator Charles Sumner of Hassachusetts, and he seemed to inherit the distinguished senator's interest Jn foreign affairs.

Like his childhood acquaintance, Franklin Roosevelt, Helles attended Groton School and Harvard University, graduating from the latter in 1914 with a Bachelor of Arts degree. He joined the Department of State in July, 1915, and received a secretarial post in the Tokyo embassy. Franklin Roosevelt, who at that time was Assistant Secretary of the Navy, aided his entry into the State Department. Welles spent t~vo years in Tokyo; his efficient and precise work favorably impressed his superiors.

In August, 1917, his desire for an assignment in Latin America was realized when he assumed the post of second secretary at the embassy in Buenos Aires, Argentina. In this position Helles perfected his fluency in the Spanish language and became acquainted with the Latin American view of political affairs. Hhile in Buenos Aires Welles' ideas concerning inter- national good neighborliness and Hestern Hemispheric solidarity began to germinate.