In the aftermath of the Geneva agreement, the North Vietnamese, rather than reducing their forces in Laos, continued to increase their manpower on the ground. With the Viet Minh denying the existence of the Ho Chi Minh Trail, while at the same time enlarging it, Kennedy dispatched an undercover force of CIA men, green berets and US-trained Thai mercenaries to command 9000 Lao soldiers. By 1963, these American forces had grown to 30,000 men. Historian Roger Warner believes that by 1965 “word spread among a select circle of congressmen and senators about this exotic program run by Lone Star rednecks and Asian hillbillies that was better and cheaper than anything the Pentagon was doing in South Vietnam.” To the north, the US also supplied Vang Pao’s force of Hmong guerrillas, dubbed ‘Mobile Strike Forces’. With the cooperation of Prince Souvanna Phouma, the CIA’s commercial airline, Air America, ferried men and equipment into Laos from Thailand (and opium out, it is believed). Caught between Cold War antagonisms it was impossible to maintain a modicum of neutrality as even the most staunch neutralist, Souvanna Phouma, began to become entangled. As Robbins argues, by the early 1960s, Sovanna Phouma – trying to reinforce the middle way – had given permission “for every clandestine manoeuvre the United States made to match the North Vietnamese. In turn Souvanna demanded that his complicity in such arrangements be kept secret, lest his position in the country become untenable.” Owing to the clandestine nature of the military intervention in Laos, the rest of the world – believing that the Geneva settlement had solved the foreign interventionist problem – was oblivious as to what was happening on the ground. Right up until 1970, Washington never admitted to any activity in Laos beyond ‘armed reconnaissance’ flights over northern provinces.
Meanwhile the North Vietnamese were fulfilling their two major strategic priorities in the country: continued use of the Ho Chi Minh trail (by this stage the majority of North Vietnamese munitions and personnel for the Viet Cong was being shuffled along the trail) and ensuring that the Plain of Jars did not fall under the control of the right, where the US could launch attacks on North Vietnam. This latter goal amounted to supporting the Pathet Lao in their aim to hold onto as much territory as possible in the north. The Pathet Lao, in turn, were dependent on the North Vietnamese for supplies – both material and manpower. With both the US bankrolling the Royalist right and the Vietnamese puppeteering the Pathet Lao, within the country any pretence of maintaining a balance in the face of Cold War hostilities was shattered for neutralists like Souvanna Phouma.
Souvanna Phouma appropriately referred to it as ‘the forgotten war’ and it is often termed now the ‘non-attributable war’. The willingness on the part of the Americans to dump millions of tonnes of ordnance on a country which was ostensibly neutral may have been made easier by the fact that some people in the administration did not believe Laos to be a country at all. Bernard Fall wrote that Laos at the time was “neither a geographical nor an ethnic or social entity, but merely a political convenience”, while a Rand Corporation report written in 1970 described Laos as “hardly a country except in the legal sense”. More colourfully, Secretary of State Dean Rusk described it as a “wart on the hog of Vietnam”. Perhaps those in Washington could feel a touch better about bombing the hell out of a country which, in their view, occupied a sort of political never never land – or which they could liken to an unfortunate skin complaint.
Not everyone agrees with this view that Laos never existed until the French wished it into existence. Scholar of Laos Arthur Dommen, for example, traces a true and coherent Lao identity back to Fa Ngum and his creation of the kingdom of Lane Xang in 1353, writing that it was “a state in the true sense of the term, delineated by borders clearly defined and consecrated by treaty” for 350 years. He goes on:
“Lao historians see a positive proof of the existence of a distinct Lao race (sua sat Lao), a Lao nation (sat Lao), a Lao country (muong Lao) and a Lao state (pathet Lao). In view of these facts, we may safely reject the notion, fashionable among apologists for a colonial enterprise of a later day, that Laos was a creation of French colonial policy and administration”.
American bombing of the North Vietnamese Army’s supply lines through Laos to South Vietnam along the Ho Chi Minh Trail in East Laos started in 1964 and fuelled the conflict between the Royalist Vientiane government and the Pathet Lao. The neutralists had been forced into alliance with the Royalists to avoid defeat in Xieng Kouang province. US bombers crossed Laos on bombing runs to Hanoi from air bases in Thailand and gradually the war in Laos escalated.
America’s side of the secret war was conducted from a one-room shack at the US base in Udon Thani, ‘across the fence’ in Thailand. This was the CIA’s Air America operations room and in the same compound was stationed the 4802 Joint Liaison Detachment – or the CIA logistics office. In Vientiane, US pilots supporting Hmong General Vang Pao’s rag-tag army, were given a new identity as rangers for the US Agency for International Development; they reported directly to the air attaché at the US embassy. In his book The Ravens (1987), Christopher Robbins writes that they “were military men, but flew into battle in civilian clothes – denim cut-offs, T-shirts, cowboy hats and dark glasses ... Their job was to fly as the winged artillery of some fearsome warlord, who led an army of stone age mercenaries in the pay of the CIA and they operated out of a secret city hidden in the mountains of a jungle kingdom ...”
The most notorious of the CIA’s unsavoury operatives was Anthony Posepny – known as Tony Poe, on whom the character of Kurtz, the crazy colonel played by Marlon Brando in the film Apocalypse Now, was based. Originally, Poe had worked as Vang Pao’s case officer; he then moved to North Laos and operated for years, on his own, in Burmese and Chinese border territories, offering his tribal recruits one US dollar for each set of Communist ears they brought back. Many of the spies and pilots of this secret war have re-emerged in recent years in covert and illegal arms-smuggling rackets to Libya, Iran and the Nicaraguan Contras.
By contrast, the Royalist forces were reluctant warriors: despite the fact that civil war was a deeply ingrained tradition in Laos, the Lao themselves would go to great lengths to avoid fighting each other. One foreign journalist, reporting from Luang Prabang in the latter stages of the war, related how Royalist and Pathet Lao troops, encamped on opposite banks of the Nam Ou, agreed an informal ceasefire over Pi Mai (Lao New Year), to jointly celebrate the king’s annual visit to the sacred Pak Ou Caves . Most Lao did not want to fight. Correspondents who covered the war noted that without the constant goading of their respective US and North Vietnamese masters, many Lao soldiers would have happily gone home. Prior to the war, one military strategist described the Lao forces as one of the worst armies ever seen, adding that they made the [poorly regarded] “South Vietnamese Army look like Storm Troopers”. “The troops lack the basic will to fight. They do not take initiative. A typical characteristic of the Laotian Army is to leave an escape route. US technicians attached to the various training institutions have not been able to overcome Lao apathy”. (Ratnam, P, Laos and the Superpowers, 1980).
Air Force planes were often used to carry passengers for money – or to smuggle opium out of the Golden Triangle. In the field, soldiers of the Royal Lao Army regularly fled when faced with a frontal assault by the Vietnam People’s Army (NVA). The officer corps was uncommitted, lazy and corrupt; many ran opium-smuggling rackets and saw the war as a ticket to get rich quick. In the south, the Americans considered Royal Lao Air Force pilots unreliable because they were loath to bomb their own people and cultural heritage.