It is important to underline that according to the peace agreement each side can retain the territory under its control until the formation of the National Coalition Government. The country remains then divided with two different administrative systems.
Likewise in conformity with the agreement the headquarters of the National Provisional Coalition Government was in Vientiane the capital of Laos and that of the National Political Coalition Council was in Luang Prabang, the royal city. This means that the Pathet Lao members of both entities were working and residing on the Royal Lao Government side. However, officials of the latter members of these two entities could not visit the Pathet Lao controlled area. In addition, the Pathet Lao had a delegation in Vientiane providing support to their members of the National Provisional Coalition Government. Indeed, a quagmire in which the newly opened UNICEF Office was called to operate and deliver. Quite a challenge!
It would not be wrong to say after carefully reading the peace agreement that it had favoured the Pathet Lao side, apparently the winner of the war.
Establishment of the UNICEF office
It was early July 1973 I was working as Programme Officer at the UNICEF Bogota Area Office, a telephone call from the Assistant to the Executive Director: Good morning Mr. Lherisson, Mr. Labouisse wants to talk to you. Please hold. Needless to say that I was both surprised and somewhat worried asking myself: did I do something wrong.After a warm salutation and a brief exchange about my work and my family Mr Labouisse said: I was thinking of appointing you as UNICEF Representative in Saigon, South Vietnam. However, with the signing of the peace agreement between the Royal Lao Government and the Pathet Lao we have decided to open an Office in Laos to work with the authorities on both sides and provide support to all children in the country. I am offering you the Representative post and want to know whether you accept it before seeking the agreement of the Government. In a happy state of mind, I replied thanking him for his confidence in me saying that I will be pleased to be the first UNICEF Representative in Laos. He then said: I am glad that you accept my offer. We will inform you when the agreement is received.
I should underline in passing an important trait very special of Mr Labouisse that he has made central in his stewardship of the organization: his human quality.
I was indeed elated by the good news and immediately informed the Representative Carlos Martinez Sotomayor of my conversation with Mr Labouisse and his offer. He was incredibly pleased congratulating me for the promotion.
My departure and briefing at Headquarters
The Royal Lao Government agreement having been received I left Bogota early September 1973 for briefing at Headquarters after six professionally rewarding years at the UNICEF Office. My family went back to Canada and joined me later in Laos.Given the importance and the politically sensitive nature of the UNICEF intervention in the three Indochina Peninsula countries: Cambodia, Laos and Vietnam, a separate Unit was established at Headquarters to provide oversight and support to the UNICEF operation in these countries. The Unit called Indochina Peninsula Liaison Group (IPLG) was headed by Martin Sandberg with Jacques Beaumont as Deputy. It reported directly to the Executive Director.
My briefing included meetings with Mr Labouisse and other Senior members of the Front Office, Heads of HQs Divisions, the Director of IPLG and other colleagues of the Unit. I was apprised of the political environment, the problems and difficulties in the implementation of the peace agreement and the UNICEF expectations. The message of Mr Labouisse, his Deputies and the Director of IPLG was clear: the newly opened Office needs to do its utmost to ensure that support is provided to children on both sides in accordance with the UNICEF mandate and as approved by the Executive Board. This was the marching order.
The perception of senior leadership was that no effort should be spared to achieve this objective. My last meeting with Mr Labouisse before my departure ended with this optimistic message: “I am confident that the UNICEF team in Laos will be able to fulfill our expectations. You will have my firm support in the pursuit of this objective”. His last words were indeed heartening and reassuring.
The Office had to find a way to get things done providing support to children on both sides. This appears to be an arduous task given the complex political environment. However, I was confident.
I departed New York four days after for Laos with a short stop over in Bangkok for further briefing at the Regional Office that had responsibility for the UNICEF cooperation with the Royal Lao Government. I had good meetings with the Regional Director Yahya Darwish, his Deputy Margaret Gaan, the Senior Adviser Planning Nailton Santos, the Programme and Supply Officer Roger de Bock who had responsibility for the UNICEF cooperative programme with RLG and other colleagues of the Office. The briefing was extremely useful. It provided me with a good insight of the political environment, the changes that were taking place in Laos and the players including information on the situation of children in the Royal Lao Government controlled area and the implementation of the UNICEF programme of cooperation.
Vientiane here we come
I landed in Vientiane three days later. I was warmly welcome at the airport by the Director of the National Planning Commission and other officials of the Royal Lao Government- the National Provisional Coalition Government was not yet in place- the UNDP Resident Representative and the UNICEF Supply Assistant a Lao national who was working at the UNDP Office in charge of the reception and delivery of the UNICEF provided supplies to the Ministries concerned. It was indeed a heart-warming welcome that made me feel at home.Having taken up my post I felt deeply the responsibility associated with my role as UNICEF Representative and the task on which the Office was embarking to ensure that support is provided to all children in Laos wherever they are. It was a complex and complicated environment where politics had the upper hand over everything else. A serious challenge indeed not to say a Sisyphean task, but I was confident.
With a small team of an Administrative and Finance Officer and the Supply Assistant that was reinforced some months after with a Programme Officer, a Social Planning Officer and a Supply Officer I addressed myself to the task at hand. We were all very much conscious of the tremendous responsibility and the risks associated with our mission for these two specific reasons: first, the high expectations of Senior leadership for a rapid UNICEF operation providing support to all children but in a country still divided; second, the slow implementation of the peace agreement with a long delay in the formation of the National Provisional Coalition Government and the National Political Coalition Council.
The environment in which the UNICEF Office was working was highly political with little attention being given to social development issues. In addition, we did not have a good overview of the situation of children in the entire country except for information on the problems and needs of children in the area under the control of the Royal Lao Government
Moreover, the Office was under great pressure from IPLG to submit an emergency proposal to meet the immediate needs of children on the Royal Lao Government side pending the development of a cooperative relationship with the Pathet Lao. However, the authorities of the former were not interested in a humanitarian relief operation but rather a development-oriented cooperation. For them, the word development was very important as it means hope and improvement of the quality of life of the Lao people after many years of war. They wanted UNICEF to participate in it. Based on our own analysis of the situation of children the Office was prepared to go along with this approach. But IPLG did not agree saying that the current environment required emergency relief assistance.
This standoff had led to a short visit to Laos by the Director of IPLG. After several meetings with the authorities concerned of the Royal Lao Government he agreed to our own assessment of the situation and our programming approach as well as our way of working with the Royal Lao Government authorities. We had not yet developed a working relationship with the Pathet Lao.
I seized the opportunity to tell him of our frustration, being on the ground that our opinion on how UNICEF should operate in this politically complex environment is being second guessed by IPLG and that we cannot perform well if doubt is cast on our judgement. We need to know that we have the confidence of IPLG. He was apologetic saying that I was too sensitive, IPLG is firmly behind you and you can count on its full support.
It was a good visit as it has helped relieve the pressure on the Office. Few days later we submitted a programme proposal along the basic services approach- a concept developed during Mr Labouisse tenure -to meet the needs of children in the area under the administration of the Royal Lao Government. The programme included a humanitarian intervention with the provision of drugs, vaccines, food supplements and also some urgent school materials for the displaced children and a development oriented component in the areas of health, water and sanitation, primary education, and technical support to the Children and Youth Planning Unit of the Planning Commission. The programme was approved by IPLG to the satisfaction of the Royal Lao Government authorities.
Working relations and cooperation with the Pathet Lao
The programme recommendation for the Indochina Peninsula that included Cambodia, Laos, North and South Vietnam was presented to the 1973 UNICEF Executive Board meeting. Colleagues who were there during the discussion of the programme will certainly remember Mr Labouisse intervention responding to the protest of the US delegate against UNICEF intervention in the Pathet Lao area and North Vietnam, stating that UNICEF will ensure that the US contribution is not used for the provision of support to children in North Vietnam and the area in Laos under the control of the Pathet Lao.A skillful and inspirational intervention that has helped appease the tension at the Board. The programme was approved with US abstaining. This was Mr Labouisse at his best showing his firm commitment and dedication to the cause of children and the UNICEF mandate as advocate for the well-being of children providing support to them wherever they are and whatever the political regime.
It was Mr Labouisse's firm conviction that UNICEF, based on its mandate and as agreed by the Executive Board, should provide support to all children in Laos. However, as the peace agreement has not led yet to the reunification of the country under one administration, the Office had to find a way to provide such assistance to children in the area under the administration of the Pathet Lao. We have then enlisted the support of some strategic allies.
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| Akram Piracha , Fritz with the President Prince Souphanouvong |
During my courtesy call to the Prime Minister of the Royal Lao Government Prince Souvanna Phouma, brother of the Pathet Lao leader Prince Souphanouvong, I informed him of the UNICEF mandate and the request of the UNICEF Executive Board that support is provided to all children of Laos wherever they are. I then seized the opportunity to ask for his views and his help in this endeavour. He replied commending UNICEF for its initiative that he firmly supports stating that he will help us achieve this objective and will contact Prince Souphanouvong regarding the support to children in their side.
I should mention that my first meeting with the French Ambassador seeking his views on the peace agreement and the UNICEF objective has convinced me that it was the best way to proceed. We both agreed that a careful reading of the peace agreement will lead to the conclusion that the Pathet Lao one day will take over the control of the entire country. I was then encouraged to proceed as planned and to find a way to work with the Pathet Lao.
I also met the Ambassadors of the so-called “brother countries” by the Pathet Lao having representations in Vientiane to inform them of the UNICEF objective namely China, Russia, North Vietnam, Sweden and Poland. They were all supportive..
Our first encounter with the Pathet Lao authorities
Few days after my courtesy call to the Prime Minister Souvanna Phouma I received a telephone call from the Head of the Pathet Lao delegation in Vientiane Mr. Soth Petrasi invited me to a meeting to discuss UNICEF support to the children in the area under their control.The meeting took place the next day in his office during which I informed him of the UNICEF mandate and its objective to provide support to meet the needs of all children in Laos wherever they are based on an assessment of their needs and in a cooperative way with the authorities. I went on delineating the areas that UNICEF assistance can cover, expressing our readiness to work with the Pathet Lao authorities to provide such support to children in the region under their administration. The exchange was very cordial. We agreed to meet again for further discussion on the situation of the children and the areas of support.
After several meetings with the Head of the delegation I was invited to a meeting with the Pathet Lao leader Prince Souphanouvong who was the Chairman of the National Political Coalition Council. Jacques Beaumont who was on an official visit to Laos accompanied me.
During the meeting we informed the Prince of the UNICEF mandate as a UN agency to provide assistance to children without discrimination because of race, nationality and political beliefs and how it works. We told him of the UNICEF Executive Board decision that support should be provided to all Lao children wherever they are and also the Executive Director directive that such assistance being now provided to children in the area administered by the Royal Lao Government is made available to children in the region under the control of the Pathet Lao. We also informed him of our various meetings with the Pathet Lao delegation in Vientiane expressing UNICEF readiness to work with the Pathet Lao authorities in order to define the areas of support needed based on an assessment of the situation of the children.
After listening to us he reacted by asking several questions namely the modality of the UNICEF cooperation, its structure, its financing and the largest contributor, the composition of the Executive Board and the location of UNICEF Headquarters. We were even asked for the nationality of the Executive Director and our own. Not a friendly wind was blowing during the meeting I should say. To our astonishment and concern Prince Souphanouvong expressed doubt about UNICEF neutrality as a UN agency largely supported by the US questioning its motive. He was suspicious of any support coming from entities other than the brother countries.
Jacques Beaumont and I unperturbed by his reaction, maintaining a stoical calm reacted with solid arguments trying to allay his concern mentioning the UNICEF cooperation since its creation with Governments all over the world including Laos underlining the Nobel Peace Prize received in 1965 for the promotion of brotherhood among nations. We went on explaining the UNICEF working methods and how it is financed indicating that its resources come from all governments including Laos referring to the substantial financial support of the Scandinavian countries that surpasses the US contribution. We also provided information on the composition of the Executive Board and how it works.
With this additional information we were able to dissipate his apparent concern and suspicion. However, on second thought I think that his mistrustful attitude was a stratagem. The meeting ended on a cordial note with a friendly toast to “our future collaboration for the benefit of the Lao children.” Jacques and I departed happily; now the door is wide open for a fruitful cooperation with the Pathet Lao.
The next day we received from the Pathet Lao delegation a shopping list of the support needed but no information on the situation of the children that we have been asking for. We could have as a gesture of good will proceeded to provide the supplies requested on a humanitarian basis. However, thinking of future cooperation with the Pathet Lao we wanted to start on the right footing. We have decided to wait until we receive the information requested.
Three days later we were happily surprised with a telephone call late at night from the Head of the Pathet Lao delegation inviting UNICEF to a three-day visit to Sam Neua the capital city of the area under the control of the Pathet Lao for an assessment and discussion with the authorities of the situation of the children and the support needed. The departure was scheduled for early morning the next day. Only three people were invited. Very much aware of the sensitivity of the Pathet Lao leader regarding the question of nationality, I was accompanied by the Programme Officer, a national of Belgium and the Supply Officer, a national of Scandinavia. We had a good discussion with the authorities concerned on the situation of the children and their needs, the areas of UNICEF support and the modality of the cooperation. We also visited some health centres, schools and a nutrition rehabilitation centre.
It was a successful mission that had allowed us to submit to IPLG a proposal in the areas of health, nutrition and education. It was approved and processed very rapidly. The needed support was received to the satisfaction of the Pathet Lao authorities. This UNICEF assistance was much appreciated. It had opened the door for a friendly and wider cooperation after the Pathet Lao had taken over as anticipated the control of the entire country in August 1975.
Working with the Pathet Lao authorities who were very suspicious of initiatives coming from entities others than “les pays amis” as they called them required these attributes among others: patience, perseverance, courage, confidence, prodding, caution, political savvy and a good diplomatic skill
Risks and threats
The road we had travelled I must say was not smooth all the way. It was scabrous and full of pitfalls. We were treading on a very slippery road especially when we started discussion with the Pathet Lao authorities regarding UNICEF support to children in the area under their control.The environment indeed was daunting given the heated political context. Such an initiative was not to the taste of the hardliners of the Royal Lao Government who, supported by the USAID, threatened to declare me persona non grata. The latter on several occasions had expressed to me USAID firm disagreement to UNICEF support to children in the Pathet Lao controlled area saying that his government is against it, reminding me of the US contribution to UNICEF. As one can imagine it was frightening, but I knew that I could count on the full support of the Executive Director, his Deputies and IPLG.
During a visit to the Regional Office in Bangkok around mid 1974 Mr Labouisse requested a meeting with the three UNICEF Representatives in the Indochina Peninsula: Ralph Eckert in South Vietnam, Paul Ignatieff in Cambodia and myself in Laos. He wanted to be informed of the evolution of the UNICEF cooperation in the three countries: progress being made, any impediment and how he could help.
This was indeed a god-send opportunity for me to apprise Mr Labouisse viva voce of the Office work to provide support to children on both sides of the conflict and the problems being encountered. I informed him of the assistance being provided to children in the Royal Lao Government controlled area, our negotiations with the Pathet Lao authorities regarding the provision of support to children in their own area and the challenges we faced in that pursuit. However, I assured him that we are optimistic that a proposal will be submitted soon to IPLG.
I apprised him of the threat of the hardliners of the Royal Lao Government supported by the USAID Director who are against the UNICEF support to children in the area under the control of the Pathet Lao. I was also informed of the various meetings I had with the USAID Director upon his request to discuss the UNICEF cooperation in Laos complaining of our initiative to develop a cooperative relationship with the Pathet Lao saying that he will report this to his superior in Washington.
Mr Labouisse was very firm, saying: “ you should proceed with the negotiations with the Pathet Lao and continue your work the way you are doing it. You should not be worried about the threats of the hardliners and the USAID Director. You have my firm support. I will back you up.”
Needless to say that these comforting words of the Executive Director that were reported to the UNICEF team in Vientiane have given us vigor and determination to pursue our work to provide support and a better future to children on both sides of the conflict pending the reunification of the country.
It is important to underline in passing Mr Labouisse high sense of the responsibility associated with his role as the Executive Director of UNICEF to get things done with good results for children, providing both the wherewithal and the support needed to the field offices. We have indeed enjoyed this kind of support to our work. This has helped the Office rise to the challenge to provide assistance to all children in Laos. It was a very difficult politically complex environment in which the priority of the leaders with few exceptions on the RLG side was not so much on children but rather on a political victory and the reunification of the country under the control of one political group.
The final act of the drama
After protracted negotiations one year after the signing of the peace agreement the Provisional National Coalition Government and the National Political Coalition Council were established around mid 1974. Each comprised members of both the Royal Lao Government and the Pathet Lao in equal proportions and a sprinkling of intellectuals to leaven the mixture. The first one with Prince Souvanna Phouma as Prime Minister and the second with Prince Souphanouvong the leader of the Pathet Lao as Chairman. However, both were short-lived.It was early August 1975 more than two years after the signing of the peace agreement and almost a year and a half after the formation of the Provisional National Coalition Government and the National Political Coalition Council the curtain opened with the fall of Vientiane the capital.The Pathet Lao forces after some skirmishes with the Royal Lao Government troops in some provinces have taken over the administration of the entire country; an action triggered by the fall of South Vietnam and Cambodia few weeks before, but without bloodshed like in these two countries. The domino theory has again proved its veracity.
The reunification of the country under a new name Lao People Democratic Republic has finally happened not as stipulated in the peace agreement but could be foreseen to occur this way by a perspicacious reader of the treaty. The Provisional National Coalition Government and the National Political Council were disbanded and the Monarchy abolished. A new Government was formed with Prince Souphanouvong the leader of the Pathet Lao as President.
This action has seen the departure in exile of the die-hard right-wing members of the Provisional National Coalition Government and the National Political Coalition Council and a mass exodus of Lao nationals to neighbouring Thailand. It has also led to the closure of the omnipresent USAID and the organizations connected to this agency and the American school.
In hindsight having been a witness of developments in Laos especially all the subterfuges during the negotiations for the composition of the Provisional National Coalition Government and the National Political Coalition Council and their functioning, it would not be wrong to say that the peace agreement had heavily favoured the Pathet Lao side. It was then clear that this warring faction was the winner of the war.
Implications on the UNICEF programme of cooperation
The working and cooperative relationship the UNICEF Office has previously developed with the Pathet Lao authorities has greatly facilitated the communication with the authorities of the new Government. I was told by the Prime Minister of the new Government during a meeting: UNICEF is our trustworthy partner. We appreciate its cooperation and would like it to continue.The UNICEF programme of cooperation previously agreed upon with the Royal Lao Government that covers the area under its administration was reviewed by the new authorities. The outcome of the review was positive. The programme was approved as it was found in accord with the policies and priorities of the new Government. It was however requested that its coverage be broadened to include all children in Laos merging it with the UNICEF supported project in the Pathet Lao previously occupied territory. With the support of IPLG necessary adjustments were made to the programme to the satisfaction of the new authorities who praised the UNICEF flexibility and its pragmatic approach.
The UN system in Laos
It must be underlined that among the UN agencies having representations in Vientiane, UNICEF was the only one that had developed a cooperative relationship with the Pathet Lao authorities before they had taken control of the entire country. No attempt was made by the other agencies to contact them. Perhaps by not having the mandate they were extremely cautious and had refrained from doing so.However, rather than supporting UNICEF courageous action providing support to children on both sides it was criticized as jeopardizing the work of the UN system with RLG. History has proved them wrong. They had all misread the peace agreement. One does not need to have an astute mind and be a political expert to think after observing the political developments and all the subterfuges regarding the formation of the Provisional National Coalition Government and the National Political Coalition Council that the Pathet Lao will one day take control of the entire country. That was what happened.
I must say however with humility that the working relationship previously developed by the UNICEF Office with the Pathet Lao authorities has somewhat paved the way and opened the door for the other UN agencies that were unknown to the new authorities, thus allowing them to develop a cooperative work with the new Government. I can say that UNICEF's previous work with the Pathet Lao was a pathfinder for a fruitful UN working relations with the new Government of the Lao People Democratic Republic.
Conclusion
My tenure as UNICEF Representative was not smooth sailing but highly interesting andrewarding given the results achieved in an extremely difficult political environment providing support to children on both sides of the conflict. Indeed, it was like walking in a landmine field.
What was accomplished by UNICEF was the result of these two specific elements:
i/ a high sense of duty and responsibility of the UNICEF team in Laos showing an uncompromising commitment and passion for the cause of children. They spared no effort in the difficult political environment to help achieve the UNICEF objective to provide support to all children in Laos wherever they are.
ii/ the firm support of the Executive Director, the advice and back up support of the IPLG team. We never felt alone. Mr Labouisse was very much conscious of the unprecedented responsibility entrusted to me as UNICEF Representative -my first posting- in a politically complex environment. He wanted us to succeed and had put his full weight behind our work.
All of us who have worked in Laos during this period has derived a great professional satisfaction of the work we have done as a team rising to the challenge to provide support to all children in Laos, thus responding to the UNICEF Executive Board mandate and the expectations of the Executive Director and other senior colleagues at Headquarters and IPLG. In addition, the recognition by the authorities of the new Government of the value of UNICEF cooperative work for the benefit of the Lao children-was another source of happiness.
Everything has an end
I left Laos in June 1976 after a week of briefing of the new Representative Akram Piracha. I also had the opportunity to introduce him to the President Prince Souphanouvong as can be seen in the photo attached, the Government Ministers concerned and the Heads of the UN agencies.The day I was leaving I was accompanied at the airport by the Minister of Health and other officials of the Government, members of the UNICEF team and colleagues of the UN agencies. The Minister walked with me to the stairway of the plane giving me a warm embrace of good-bye. It was a very emotional moment. I was in tears.
Those three years working with a passionate and committed team were challenging but interesting and rewarding. I really treasure them. I left with a great sense of personal satisfaction of the work done under difficult circumstances. I consider myself lucky that I was given the opportunity to serve the cause of children in such a politically complex and difficult environment. It was a wonderful experience that I will never forget. What a baptism of fire!
Yes, working in such a setting has created strong personal bonds that one never forgets. What was my great pleasure recently to establish contact with Martin Griffiths who joined us as UNV early 1974 and served for more than a year. He is now the UN Special Envoy for Yemen. We both reminisced of the old days in Laos and our work particularly with the Pathet Lao, the patience, perseverance and the diplomatic negotiations skill required that he said are of great help to him in his new challenging assignment.
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