DECOLONIZATION AND THE BORDER DISPUTE WITH GUATEMALA

British Honduras faced two obstacles to independence: British reluctance until the early 1960s to allow citizens to govern themselves, and Guatemala's complete intransigence over its long- standing claim to the entire territory (Guatemala had repeatedly threatened to use force to take over British Honduras). By 1961, Britain was willing to let the colony become independent. From 1964 Britain controlled only defense, foreign affairs, internal security, and the terms and conditions of the public service. On June 1, 1973, the colony's name was changed to Belize in anticipation of independence. After 1975 Britain allowed the colonial government to internationalize its case for independence, so Belizeans participated in international diplomacy even before the area became a sovereign nation. The stalemate in the protracted negotiations between Britain and Guatemala over the future status of Belize led Belizeans to seek the international community's assistance in resolving issues associated with independence. Even after Belize became independent in 1981, however, the territorial dispute remained unsettled.

The territorial dispute's origins lay in the eighteenth-century treaties in which Britain acceded to Spain's assertion of sovereignty while British settlers continued to occupy the sparsely settled and ill-defined area. The 1786 Convention of London, which affirmed Spanish sovereignty was never renegotiated, but Spain never attempted to reclaim the area after 1798. Subsequent treaties between Britain and Spain failed to mention the British settlement. By the time Spain lost control of Mexico and Central America in 1821, Britain had extended its control over the area, albeit informally and unsystematically. By the 1830s, Britain regarded the entire territory between the Hondo River and Sarstoon River as British.

The independent republics that emerged from the disintegrating Spanish Empire in the 1820s claimed that they had inherited Spain's sovereign rights in the area. Britain, however, never accepted such a doctrine. Based on this doctrine of inheritance, Mexico and Guatemala asserted claims to Belize. Mexico once claimed the portion of British Honduras north of the Sibun River but dropped the claim in a treaty with Britain in 1893. Since then, Mexico has stated that it would revive the claim only if Guatemala were successful in obtaining all or part of the nation. Still, Mexico was the first nation to recognize Belize as an independent country.

At the center of Guatemala's claim was the 1859 treaty between Britain and Guatemala. From Britain's viewpoint, this treaty merely settled the boundaries of an area already under British dominion. But Guatemala later developed the view that this agreement was a treaty of cession through which Guatemala would give up its territorial claims only under certain conditions, including the construction of a road from Guatemala to the Caribbean coast. Guatemala said it would repudiate the treaty in 1884 but never followed up on the threat. The dispute appeared to have been forgotten until the 1930s, when the government of General Jorge Ubico claimed that the treaty was invalid because the road had not been constructed. Britain argued that because neither the short- lived Central American Federation (1821-39) nor Guatemala had ever exercised any authority in the area or even protested the British presence in the nineteenth century, British Honduras was clearly under British sovereignty. In its constitution of 1945, however, Guatemala stated that British Honduras was the twenty-third department of Guatemala. Since 1954 a succession of military and right-wing governments in Guatemala frequently whipped up nationalist sentiment, generally to divert attention from domestic problems. Guatemala has also periodically massed troops on the border with the country in a threatening posture.

Negotiations between Britain and Guatemala began again in 1961, but the elected representatives of British Honduras had no voice in these talks. George Price refused an invitation from Guatemalan President Ydígoras Fuentes to make British Honduras an "associated state" of Guatemala. Price reiterated his goal of leading the colony to independence. In 1963 Guatemala broke off talks and ended diplomatic relations with Britain. In 1965 Britain and Guatemala agreed to have a United States lawyer, appointed by President Lyndon Johnson, mediate the dispute. The lawyer's draft treaty proposed giving Guatemala so much control over the newly independent country, including internal security, defense, and external affairs, that Belize would have become more dependent on Guatemala than it was already on Britain. The United States supported the proposals. All parties in British Honduras, however, denounced the proposals, and Price seized the initiative by demanding independence from Britain with appropriate defense guarantees.

A series of meetings, begun in 1969, ended abruptly in 1972 when Britain announced it was sending an aircraft carrier and 8,000 troops to Belize to conduct amphibious exercises. Guatemala then massed troops on the border. Talks resumed between 1973 and 1975 but again broke off as tensions flared. At this point, the Belizean and British governments, frustrated at dealing with the military- dominated regimes in Guatemala, agreed on a new strategy that would take the case for self-determination to various international forums. The Belize government felt that by gaining international support, it could strengthen its position, weaken Guatemala's claims, and make it harder for Britain to make any concessions.

Belize argued that Guatemala frustrated the country's legitimate aspirations to independence and that Guatemala was pushing an irrelevant claim and disguising its own colonial ambitions by trying to present the dispute as an effort to recover territory lost to a colonial power. Between 1975 and 1981, Belizean leaders stated their case for self-determination at a meeting of the heads of Commonwealth of Nations governments in Jamaica, the conference of ministers of the Nonaligned Movement in Peru, and at meetings of the United Nations (UN). The support of the Nonaligned Movement proved crucial and assured success at the UN.

Latin American governments initially supported Guatemala. Cuba, however, was the first Latin country, in December 1975, to support Belize in a UN vote that affirmed Belize's right to self- determination, independence, and territorial integrity. The outgoing Mexican president, Luis Echeverría Alvarez, indicated that Mexico would appeal to the Security Council to prevent Guatemala's designs on Belize from threatening peace in the area. In 1976 President Omar Torrijos of Panama began campaigning for Belize's cause, and in 1979 the Sandinista government in Nicaragua declared unequivocal support for an independent Belize.

In each of the annual votes on this issue in the UN, the United States abstained, thereby giving the Guatemalan government some hope that it would retain United States backing. Finally, in November 1980, with Guatemala completely isolated, the UN passed a resolution that demanded the independence of Belize, with all its territory intact, before the next session of the UN in 1981. The UN called on Britain to continue defending the new nation of Belize. It also called on all member countries to offer their assistance.

A last attempt was made to reach an agreement with Guatemala prior to the independence of Belize. The Belizean representatives to the talks made no concessions, and a proposal, called the Heads of Agreement, was initialed on March 11, 1981. However, when ultraright political forces in Guatemala labeled the proposals as a sellout, the Guatemalan government refused to ratify the agreement and withdrew from the negotiations. Meanwhile, the opposition in Belize engaged in violent demonstrations against the Heads of Agreement. The demonstrations resulted in four deaths, many injuries, and damage to the property of PUP leaders and their families. A state of emergency was declared. However, the opposition could offer no real alternatives. With the prospect of independence celebrations in the offing, the opposition's morale fell. Independence came to Belize on September 21, 1981, without reaching an agreement with Guatemala.