by Raymond Bonner; Raymond Bonner is a New York Times reporter who recently returned from a two-month assignment in El Salvador.
February 22, 1981
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A cherubic, 14-year-old boy in pressed shirt, clean pants and shined shoes led the way up a narrow, twisting mountain path. Behind him came a chunky woman in her early 20's, a rainbow sewn on the front of her maroon sweatshirt, carrying a new grenade launcher made in the United States and covered with protective grease. Another woman followed, the front pockets of her new olive green military jacket bulging with Soviet-made hand grenades; she led a horse burdened with burlap bags of corn in which the shapes of automatic rifles could just barely be seen.
At intervals that would minimize casualties in case of an ambush came an accountant, bank clerk, printer and college student, each taking a turn at shouldering heavy crates of grenades and ammunition. They hiked for two hours through tunnels of trees and beside fields of prickly hemp bushes, past clusters of mud huts where peasants offered them oranges and wished them ''Godspeed,'' until they reached their camp, hidden in a tropical forest on the side of a volcano. Only a few days before, an army search-and-destroy mission had passed within a few hundred yards of the site, but now, on this warm January evening, expectations were high among the guerrillas. They were making the final preparations for an attack on a nearby city, their mission in a long-awaited, nationwide offensive to overthrow El Salvador's junta.
Today, six weeks later, the Government remains in power. The guerrillas' call for a general strike and popular insurrection went largely unheeded, and they failed to gain control of an area where they could safely establish a provisional government. Yet the guerrillas have demonstrated that, after decades of political and economic repression, a revolutionary movement in El Salvador has achieved enough power and popular support to take on the army and survive. Until a couple of years ago, few North Americans knew whether San Salvador was the name of the capital or the country. The five million people of this Massachusetts-sized nation are jammed into a narrow, mountainous corridor hard to find on a map, shoved against the Pacific Ocean by neighboring Guatemala and Honduras and just across the bay from Nicaragua. It has no oil, virtually no minerals, an insignificant industrial base; the per-capita income is less than $700, one of the lowest in the Western hemisphere.
But tiny El Salvador has suddenly burst upon the world stage. In the fall of 1979, a coup by moderate army officers led to the establishment of a junta with both civilian and military representatives. Economic reforms, including a major redistribution of land, were undertaken, but they were accompanied by repression. According to El Salvador's Human Rights Commission, a private organization, 13,194 people have been killed in political violence in the last year, most of them by Government security forces and rightist paramilitary groups. (The death toll of a civil war of the same proportions in the United States would be almost 500,000 people - the population of a New Orleans.) The Marxist-led guerrillas, growing ever stronger and bolder, have kidnapped businessmen and bombed banks. Thousands of Salvadoran families have been forced by the escalating warfare to flee from their villages, settling in makeshift refugee centers in the cities and in camps across the border in Honduras.
The turmoil has forced a new international perception of El Salvador's geopolitical significance. The cold war could become hot here. Many in Washington worry about an updated version of the old domino theory, with the blocks falling much closer to home. Just 19 months ago, a socialist, pro-Cuban government took power in next-door Nicaragua. If El Salvador follows suit, can the right-wing regime in Guatemala, already under attack from its own impoverished peasants, be far beyond? Would that threaten the stability of the entire region, and the precious oil reserves of Mexico and Venezuela as well?
A raging controversy has developed over what policy the United States should pursue in El Salvador. The Carter Administration propped up what it considered to be a ''centrist,'' non-Marxist regime, supporting - in fact, pushing - the economic changes, in part as a means of diminishing the appeal of the leftists. That support continued despite the increasing violence of Government security forces against the political opposition. A few days before Mr. Reagan's inauguration, a United States ban on shipments of lethal weapons to El Salvador ended with the arrival there of helicopters, automatic rifles, grenade launchers and ammunition.
Some of President Reagan's advisers are urging him to increase political and military support. Alexander M. Haig Jr., the new Secretary of State, has charged the Soviet Union with ''unprecedented'' risk-taking in Latin America, and Administration aides charge that the guerrilla forces in El Salvador have received major political or military support from the Soviet Union, Cuba and Nicaragua. Just this month, documents allegedly captured from the insurgents were made public that described a guerrilla leader's shopping tour for weapons to the Soviet Union, Vietnam, Ethiopia and Eastern European capitals. When Mr. Reagan removed Ambassador Robert E. White, a career Foreign Service officer who had opposed United States military involvement, from his post in San Salvador, and this month made Frederic L. Chapin, a diplomat with extensive Defense Department experience, acting head of mission there, it was seen by many as a certification of a change in United States policy.
For all the concern about El Salvador's becoming ''another Cuba,'' there are other fears that it will become ''another Vietnam,'' that it will lead to the in-volvement of the United States on one side of another nation's revolution. Last month, for example, in Berkeley, Calif., several thousand people demonstrated against United States involvement in El Salvador. Teach-ins are being organized in Boston, New York and other cities. The United States Catholic Conference has urged that Washington not provide military aid to the junta. Thousands protested in Frankfurt, Germany. And in Mexico City, where high-ranking Government officials have been critical of this steppedup United States military activity, 25,000 people marched in a demonstration sponsored by unions and leftist groups; it was one of the largest anti-Yankee protests there in recent years.
The protestors scorn talk of an international Communist conspiracy in El Salvador. There is no evidence, they say, of any direct Soviet involvement: Some of the guerrilla field commanders have been trained in Cuba, and some of their arms were made in the Soviet Union and China and transhipped through Cuba, but the only foreign military advisers known to be in El Salvador are from the United States. And arms-shopping tours, they say, are not restricted to the guerrillas; an association of Salvadoran businessmen has hired a Washington lobbyist to help the junta get more military aid from the United States.
Moreover, as one insurgent leader said in an interview, the major guerrilla organizations ''are more anti-Soviet than your Mr. Haig.'' Whether or not that is true, it is likely that, as an American diplomat noted: ''Even if it were not for Cuba and the Soviet Union, we'd have a revolution here.'' Why? Here is the explanation of Jose Napoleon Duarte, the 55-yearold leader of El Salvador's staunchly anti-Communist Christian Democratic Party and President of the ruling junta:
''This is a history of people starving to death, living in misery. For 50 years, the same people had all the power, all the money, all the opportunities. Those who did not have anything tried to take it away from those who had everything. But there were no democratic systems available to them, so they have radicalized themselves, have resorted to violence. And of course this second group, the rich, do not want to give up anything, so they are fighting.''
A company president educated in the United States offered the same explanation in fewer words: ''It is a class war.'' Until recently, the top 5 percent of the population received 38 percent of the income. Fewer than 2 percent owned more than half of the viable farmland, which they planted with coffee, sugar cane and cotton for export. Malnutrition is endemic in El Salvador, and the infant mortality rate is twice that of Cuba, four times that of the United States. Functional illiteracy among the peasants approaches 95 percent.
And some 60 percent of El Salvador's population is rural, living in isolated valleys or mountain hamlets. Wooden-yoked oxen draw carts that ride on solid wooden wheels. Hundreds of thousands of peasants live in hovels made of packed mud; naked children with swollen bellies and open sores wander among the grunting pigs, garbage and flies. Their mothers and sisters trudge for an hour or more to the nearest well for water, carried in gourd-shaped plastic containers balanced on their heads.
Meanwhile, in San Salvador, at the foot of a forested volcano, brick walls hide $500,000 houses. Many of them are now abandoned, their owners off to what were once their second homes in Miami and Guatemala City.
There is also a middle class in this capital city of 500,000 people, a consumer class that has burgeoned within the last decade.Owners of Toyotas and Datsuns fill up at Esso and Shell stations before heading for a McDonald's or for the shopping center where they can buy Sears clothes at prices slightly higher than those in the United States or browse in reverberating record shops. But behind the middle-class neighborhoods of new, two-story houses on tree-lined, paved cul-de-sacs are the rutted dirt roads of the urban poor. Scruffy children play among the chickens and cows in front of tin shanties while their mothers warm tortillas over fires laid in stones.
There is comparable poverty in Mexico and India, comparable contrast between rich and poor, without violent class warfare. Why in El Salvador? Part of the answer can be found in the nation's failure to evolve even a flawed democratic process. That path to change has always been blocked - by the army.
In 1932, the military put down a rebellion of peasants and workers who were seeking a minimum wage and unemployment benefits; more than 30,000 people were slain. And ever since, El Salvador has been the fiefdom of an oligarchy consisting of wealthy landowners and the army, with a military leader in the presidency. By all objective accounts, the only honest election during this period was in 1972, when Mr. Duarte was chosen President, backed by a coalition that included Social Democrats and a Communist front as well as the Christian Democrats.
A short, stocky man with an engineering degree from the University of Notre Dame, Mr. Duarte was operating a construction firm when, in 1960, he attended a meeting of businessmen and other Salvadorans concerned that Communism seemed to be the only alternative to rule by the military. It was, he said, the start of his political career. He went on to become a founder of the Christian Democratic Party and, eventually, a three-term Mayor of San Salvador before his presidential victory in 1972. But the army voided the election, and Mr. Duarte was exiled before he could be sworn in.
Meanwhile, the guerrilla movement was growing: A Communist leader had resigned from the party to form the Popular Forces of Liberation; the People's Revolutionary Army was attracting disillusioned young Catholics. The roots of the movement were primarily among peasants and workers, with student support. It was a far cry from the leftist guerrilla movements the United States had opposed in the 1960's in Brazil and Uruguay, which had been manned largely by middle-class radicals.
There was internal conflict within the Salvadoran guerrilla groups over the means to accomplish their goals. But in 1977, after another election result favoring a moderate coalition was blocked by the army, the armed leftists began to cooperate in a campaign of ''destabilization'' that included strikes, street protests and kidnappings.
The process by which Mr. Duarte finally became President of the junta began on Oct. 15, 1979, when a group of young Army officers deposed the right-wing Government of Gen. Carlos Humberto Romero. The resulting junta, composed of three liberal civilians and two colonels, fell apart less than three months later; the civilians resigned after failing to oust the conservative Colonel Jose Guillermo Garcia as Minister of Defense. Three other civilians were named in their stead, but one of them quit 10 weeks later to protest the accelerating political repression. Mr. Duarte, who had returned from nearly eight years of exile in Venezuela, took his place on the junta. Violence precipitated another crisis last December when four American missionaries -three nuns and a lay worker -were murdered. The United States reacted by suspending military aid and demanding a restructuring of the Government that would guarantee enough civilian control of the armed forces to reduce the violence.
But negotiations between the colonels and Mr. Duarte's Christian Democrats moved the junta further right. Its most liberal member was forced out. Moreover, though the military agreed to Mr. Duarte's becoming President of the junta, Colonel Garcia again survived efforts to oust him as Minister of Defense, and another colonel became Vice President of the junta and Commander in Chief of the armed forces.
Said a Latin American diplomat at the time of the changes: ''If Garcia is minister of defense and Duarte is not commander in chief, then Mr. Duarte is an adornment.'' Privately, United States officials also had their doubts about whether Mr. Duarte and the reorganized junta had the power and resolve to control the Government's security forces by punishing officers and soldiers responsible for killing civilians. Last March, a few days after Mr. Duarte joined the junta, the Government announced one of the most sweeping land-redistribution programs ever attempted in Latin America. More than 250 estates larger than 1,235 acres became peasant cooperatives, the former owners to be compensated with long-term bonds. Other programs have been promised that will effectively transfer ownership of thousands of additional acres to the peasants.
Fifty-five-year-old Leonar Quirola stood in front of the small, packed-mud hut on the San Isidro plantation, 30 miles west of San Salvador. Barefoot, gesticulating with hands grown strong from days spent grinding corn for tortillas for her family of 14, she was complaining that her husband and sons work harder and earn less money harvesting coffee than they did while laboring in San Isidro's closed sugar refinery. But then she paused and added: ''Life is better now.'' She has a say in her future. According to the president of the cooperative that now owns the lush, 3,700-acre plantation, the members have voted to build a second water well and to construct new housing, rather than distribute any profits this year.
El Salvador's Institute for Agrarian Transformation has reported that 14.9 percent of the country's total farmland is now owned by cooperatives. Given the average family size of 6.6 persons, more than 386,000 Salvadorans have benefitted from the conversion of the largest estates. Another 200,000 families would be included in the cooperatives formed by the breakup of farms larger than 247 acres - the second, yet-to-be-implemented stage of the agrarian reforms. The final stage, known as the ''land-to-the-tiller'' program, would give an estimated 150,000 peasant families title to the thousands of separate plots, most of them no larger than two acres, which they now work as sharecroppers.
The chief motivation of most United States and Salvadoran officials in supporting these programs has been clearly political. ''The purpose of land reform was not to help the poorest because they were poor,'' said a Salvadoran who worked with the United States Agency for International Development, which has supplied economic and technical assistance to the El Salvador Government, ''but to keep them from joining the left.''
Roy L. Prosterman, a United States law professor who was an adviser on land reform in El Salvador as he had been in Vietnam in the 1960's, last spring told a hostile group of businessmen in San Salvador why they should support the program: ''The left fears land reform. It deprives them of their most valuable weapon in implementing revolution because they can no longer appeal to the landless.''
But a Marxist university professor in El Salvador offered a different reason for the left's opposition to the partially implemented tiller program. The goal of land reform, he argued, should not be the creation of more landowners, but a fairer distribution of the wealth - which is to say, food - and an increase in food production. He favors the integration of the tiny, inefficient plots into cooperatives.
The start of El Salvador's land distribution program last March was accompanied by the nationalization of the businesses exporting coffee, cotton and sugar cane; the three crops account for 75 percent of the country's foreign-exchange earnings. The Government also took control of 51 percent of the stock of all banks; 20 percent of what remained was made available to the employees and the rest to the public, with individual ownership limited to 2 percent.
Even while the initial agricultural and economic reforms were going forward, the junta's political repression continued, and the leftist groups moved toward unity. The various armed guerrilla groups joined forces in the Farabundo Marti National Liberation Front (F.M.L.N.), which takes its name from the leader of the 1932 peasant uprising. And the Democratic Revolutionary Front (F.D.R.) was organized to coordinate the efforts of more than 40 organizations, ranging from moderate priests and professional people to Social Democrats and dissident Christian Democrats and including the guerrillas.
The first president of the F.D.R. was Enrique Alvarez Cordova, a wealthy landowner who had resigned as Minister of Agriculture in the first junta in 1979 because of the military's domination of the Government. In November 1980, uniformed soldiers surrounded a Jesuit high school where leaders of the F.D.R. were meeting. A group of heavily armed men dressed in civilian clothes entered the building and brought out the front members; Mr. Alvarez and five others were later assassinated.
Mr. Alvarez's successor is 49-year-old Guillermo Manuel Ungo, whose reserved manner and measured speech reflect his career as a lawyer and professor at El Salvador's Jesuit-run Catholic University. Mr. Ungo has been threatened with death if he stays in El Salvador, and he travels around the world seeking international support for the leftist movement. As the president of the F.D.R., he is the leader of El Salvador's left, opposite number to Mr. Duarte, though once they were political partners.
A founder of El Salvador's Social Democratic Party, Mr. Ungo was Mr. Duarte's Vice Presidential running mate in 1972 and was appointed to the junta after the October 1979 coup. But he resigned and eventually allied his Social Democrats with the Marxist left because he felt the army high command was blocking promised change and because the violence was escalating. He now says of his one-time partner: ''Duarte's personal obsession for power and his primitive anti-Communism have all come out. He was willing to ally himself with the army and oligarchy.'' Mr. Duarte, in turn, charges that Mr. Ungo is being ''used by the Communists.''
In an interview last month, Mr. Ungo said, ''You can be a leftist and a socialist without necessarily being a Communist.'' He added: ''People generally believe that peaceful methods are synonymous with democracy, while an armed insurrection is undemocratic. But this is pure fiction in a country like ours that has lived in antidemocracy where 'peaceful methods' were instruments of domination, repression and control.''
He is believed to have had a moderating influence on the guerrillas, who now claim that they accept the need in any future regime for political pluralism, a private sector and international nonalignment. On one point, however, the guerrillas remain adamant: They want a thorough overhaul of the military and full civilian control.
A wide cross-section of Salvadorans agree. Even a Government minister recently commented privately, ''It would probably be a good idea.'' The military is routinely accused of being responsible for much of the violence. The bodies of the four American Roman Catholic missionaries, for example, were found in a crude grave along a dirt road near the El Salvador international airport. Peasants who live in the area say that the road was regularly patrolled by the National Guard, and United States diplomats have charged that Government security forces were involved in the slayings. A few weeks ago, an army truck dumped the bodies of 22 young men and women in a pile on the asphalt parking lot behind the modern multistory judicial center in the capital. The Government said they were ''subversives.'' According to a Government official, more than 200 leaders of the new farm cooperatives have been killed, and 80 cooperatives are now paying ''protection money'' to local military commanders.
Much of the killing is also done by quasi-independent right-wing organizations. The Government itself, for example, organized and armed the dreaded ORDEN (the acronym for the Democratic Nationalist Organization) in the 1970's to control the countryside. And separate death squads operate with impunity if not official immunity. One such, the Maximilio Hernandez Martinez Anti-Communist Brigade, is named after the general who suppressed the peasant rebellion in 1932.
The right-wing death squads are financed in part by wealthy families who have fled to Miami or Guatemala City. ''I know one man who has given more than $2 million,'' Mr. Duarte said. Government soldiers, he added, often moonlight for the paramilitary groups; they are paid $40 a month and given life insurance policies.
Leftist guerrillas, meanwhile, have kidnapped and killed businessmen, raided plantations, burned buses and bombed banks and department stores.
''The difference in the violence,'' said a conservative priest, ''is that the left kills selectively - members of ORDEN and Government security forces. Killing by the right and the army is more indiscriminate. When they sweep through a village looking for leaders and leftist sympathizers, they kill a lot of innocent peasants.''
Tens of thousands of Salvadorans have left their mountain villages to get out of the way of violence. Most have settled in towns, subsisting as best they can. Several hundred camped out in a school; more than a thousand live in a field behind the headquarters of the archbishop in San Salvador. Thousands more have fled the country to refugee camps in Honduras.
Though the Roman Catholic Church, like the rest of the nation, is divided in its political allegiances, the clergy have been hard hit. An archbishop, nine priests, a seminary student about to be ordained and the four missionaries from the United States have been murdered. According to Bishop Arturo Rivera Damas, the Apostolic Administrator who is the acting head of the church in El Salvador, ''Most of the persecution against the church is done by members of the Government security forces and right-wing paramilitary organizations.''
The first priest to die in the political violence was a Jesuit, the Rev. Rutilio Grande. As he once explained in a letter to his superiors, he had been preaching to the impoverished peasants that ''their hunger, their diseases, their infant mortality, their unemployment, their unpaid wages were not the will of God, but the result of the greed of a few Salvadorans and of their own passivism.'' On March 12, 1977, he was on his way to celebrate mass in the dusty rural village where he was born, when gunmen hiding in bushes on both sides of the road opened fire on his white Volkswagen. Most of the priests who have been killed or threatened were encouraging peasants to demand improvements in their lives or, like the American nuns, distributing food and clothing.
Priests say that Father Grande's assassination brought about the ''conversion'' of the Archbishop of San Salvador Oscar Arnulfo Romero, who became one of the country's most vocal human-rights advocates - until he was assassinated last March while celebrating mass.
''The situation demands a strong moral voice, a clear statement by the church,'' said a priest last month. ''But (acting Archbishop) Rivera Damas can't make it. He has no job security.'' Another priest suggested that Bishop Rivera Damas is influenced by El Salvador's four other bishops, who are ''still serving the oligarchy.'' The Vatican, he added, ''doesn't want another bishop speaking out like Romero did.'' ''The United States policy of supporting important political, social and economic changes has made a profound difference here - has given the people of this country an alternative to the MarxistLeninist program. This was one time we supported, with active diplomacy and an ample supply of economic assistance, a progressive reform Government in Latin America.''
Those were the comments, last December, of United States Ambassador Robert E. White. Two months later, following the Inauguration of President Reagan, he was relieved of his post.
Mr. White had represented a President who had taken a somewhat new approach to Latin America. In the past, when its economic and/or political interests were thought to be threatened, the United States often interfered forcefully on behalf of military dictatorships and right-wing governments - with the C.I.A. in Guatemala in 1954, for example, or with the Marines in the Dominican Republic in 1965. But Mr. Carter actually supported the ouster of Gen. Anastasio Somoza Debayle in Nicaragua in 1979. And when the civilian-military junta took over in neighboring El Salvador later that year, Mr. Carter came forward with economic aid. He hoped that the country would develop into a democratic, non-Communist alternative - a model for the rest of Latin America.
But as the Carter Administration came to a close, there was increasing concern over the growth of the guerrilla movement and over alleged shipments of weapons to the guerrillas from Nicaragua, Cuba and other leftist nations. Mr. Carter responded by sending in lethal weapons and military advisers. Mr. Reagan is expected to provide at least as much support; he may, in fact, go much further.
One option, of course, would be to send in United States troops to help subdue the guerrillas - the ''Vietnam'' scenario. El Salvador does have a mountainous terrain, but it is a much smaller nation than Vietnam. The United States military might be more successful there - assuming that the Salvadoran guerrillas were not reinforced by Cubans and other foreign troops. Intervention, however, would inevitably damage the image of the United States in the rest of the world while the Salvadoran left would gain new international support from democratic countries. Moreover, unless the causes of the current civil war are addressed, another guerrilla movement would most likely be fighting in El Salvador within a few years. Poverty and political repression, as Mao Zedong suggested, are the waters in which guerrillas swim.
Mr. Reagan has another option of a very different kind: to seek a negotiated settlement of the civil war. The political leaders of the left say they are prepared to talk. Their strength within the opposition front has been bolstered by the recent failure of their military counterparts to overthrow the junta. Mr. Ungo has even said, ''We want to talk to Washington,'' and overtures have been made to the Reagan Administration. Moreover, the guerrillas are under pressure from Nicaragua's Sandinist Government to look for a political settlement. In January, Washington suspended economic aid to Nicaragua after accusing the Nicaraguans of allowing their territory to be used for the shipment of Cuban weapons to El Salvador's guerrillas. The Nicaraguans have denied the charge, but the Sandinistas believe that their relations with Washington will be in turmoil unless the political situation in neighboring El Salvador is stabilized.
Meanwhile, Mr. Duarte and others in the junta have said that they are willing to negotiate with the leftists. Even before the United States election, Salvadoran Government and business leaders were openly expressing their preference for Mr. Reagan's views on Latin America over Mr. Carter's emphasis on human rights. Thus, the new President's encouragement of a settlement would carry great weight.
Mr. Duarte has announced plans for the drawing up of a constitution that would, he hopes, lead to elections in 1982. Diplomats and Government officials, including Mr. Duarte, acknowledge that a political party representing views to the left of the current junta would do well - particularly with Mr. Ungo on the ballot. Of course, the Government would have to end the repression that now accompanies its reforms before the leftists would participate in elections.
Most Salvadorans, exhausted after years of civil strife, are now troubled by the involvement of the major powers in their country. ''I fear we are becoming a pawn,'' a businessman said a few days after the increase in United States military aid was announced last month. ''We are capable of solving our own problems if only everyone would just leave us alone.''