Like most of Latin America, Paraguay is a nation whose history has been sadly tarnished by social inequities, reactionary politics and civil war, but also one where exceptional circumstances have resulted in the emergence of leaders with bold programmes of reform and the drive to carry them through to the bitter end. One such event was the February Revolution of 1936, which led to the coming to power of a reformer by the name of Rafael Franco.
Vittorio Trevitt explains.
Rafael Franco
This 1936 February Revolution, which saw the old establishment being overthrown and replaced by a military leader, was the culmination of a series of unfortunate events. From the time of its independence from Spain in 1811 Paraguay had been led by a mixture of dictators and civilian leaders who presided over a nation often racked by injustice and instability. In 1883, a law was passed under which land that had previously been universally accessible was enclosed and transformed into large private estates, with peasants, as noted by historian Peter Calvert, “either forced to leave or to work for a pittance.” A bloody war involving Brazil, Uruguay and Argentina lasting from 1864 to 1870 proved a traumatic one, with Paraguay losing an estimated 50% of its people not just through fighting, but also as a consequence of famine and disease. Nor would this usher in a brighter age. In the five decades following the war’s end 32 presidents assumed and were deposed from office in a series of revolts and coups, while the two parties that came to dominate politics for most of that period, the Colorados and Liberals, had little to distinguish themselves in their management of the country.
In 1932 a conflict between Paraguay and Bolivia erupted owing to a dispute over territory that ended in 1935 after much suffering. Criticism was levelled against the government for its handling of the war, with José Félix Estigarribia, a noted hero of that conflict, claiming that at the war’s first major battle his men fought without adequate arms, food, medical supplies or ammo. The authorities had aroused the ire of the army by refusing to provide pensions to disabled war veterans, with the country’s legislature (dominated by the Liberals, one of the main parties that had led Paraguay since independence) rejecting this proposed measure in a 1935 vote, “pleading an exhausted treasury,” as noted by one study. Economic difficulties led to thousands of troops being demobilized; a decision that resulted in many unemployed and disaffected former soldiers wandering aimlessly around the capital. The seeds of revolution were therefore sown long before Franco’s ascension.
The end
The end of the old establishment came in February 1936 when a coup (an event that became known as the February Revolution) brought to power a nationalist coalition. Rafael Franco, the man who headed this alliance, was a war hero and officer of the Chaco War whose fair treatment of soldiers had earned him their support. The social measures rolled out by the new administration seemed to indicate a clear break from the past. A public health ministry was inaugurated, along with the first labor code in Paraguayan history. A National Labor Department was set up to handle matters such as the regulation of women’s employment, and new labor rights were rolled out including a day off on Sundays, an 8-hour workday, bonuses and paid holidays.
Other spheres of life fell under the umbrella of the government’s radical agenda. Public works were introduced, together with a National Patronage of Indigenous People to improve conditions for the nation’s aborigines. To widen land tenure in a nation where only 5% of the people owned land, a law was passed under which the government was given authority to expropriate up to five million acres of uncultivated land and divide it into plots of 25 to 250 acres to sell on favourable terms to farmers without land. By December 1936, over 200,000 acres of land had been expropriated; benefitting thousands of families. Perhaps affirming the faith Franco’s men had in him during his time as a soldier, the revolutionary government devoted much of its time to helping former combatants. Pensions were awarded to Chaco War veterans unable to work due to service-related illness and injury, while those who were crippled were entitled to necessary orthopaedic parts. For a population long accustomed to war and injustice, Franco’s presidency appeared to mark a turning point for the better.
The Franco administration’s tenure was not an isolated incident. Instead, it was part of a trend in Latin America at that time that saw the coming to power of radical reformers committed to policies geared towards the masses instead of the elites. In Colombia, an election in 1930 saw a conservative party being voted out after 70 years in power and the election of a liberal administration that over the course of a decade would roll out a social and economic reform programme akin to the American New Deal. In neighbouring Chile, a similar agenda was pursued by a reform-minded Popular Front following elections in that country in 1938. Further north in Mexico, a populist socialist came to power in 1934 by the name of Lázaro Cárdenas, whose tenure would become legendary amongst the Mexican Left with his radical reforms in areas like land distribution that won the hearts and minds of many.
Short-lived
The administration Franco led, however, did not last as long as the aforementioned governments, with certain actions contributing to its downfall. The administration lacked, for instance, a commitment to democratic values, as demonstrated by decisions made to abolish all political parties and implement press censorship. Also, while the revolutionary period brought tangible gains to workers, the functioning of labor organizations was prohibited at the same time. Nor was the government an ideologically homogeneous one, with socialists, fascists, and individuals harbouring Nazi sympathies amongst its ranks; an attempt on Franco’s part to bring together the different factions within the revolution under one umbrella. This turbulent situation allowed a successful coup to take place in August 1937, one that enabled the Liberals to return to office once more.
Although the return of Paraguay’s traditional hegemonic party seemed to spell the end of a dream for a fairer Paraguay, Franco’s revolution had, in the words of historian Paul H. Lewis, “unleashed expectations of change that couldn’t be ignored.” Traditional Liberals were put to one side and in 1939 a former hero of the Chaco War, José Félix Estigarribia, assumed office. Reflecting the reform impulses of a generation of “New Liberals,” positive measures reminiscent of the Franco era such as agrarian reform were pursued. At the same time however, Esitgarribia responded to unrest (such as conspiracies among some military cliques) following his restoration of political freedoms by suppressing opposition after he declared himself a temporary dictator. Following his death and that of his wife in an airplane crash, his successor Higinio Morínigo clamped down on civil liberties while relying on the army to rule. Pressure from the United States to democratise Paraguay’s political system, however, resulted in Morínigo putting together a new cabinet including the Febreristas (followers of Franco), who during the Forties succeeded in accumulating a support base amongst labor unionists and students. It seemed that the Febreristas had an opportunity to replicate the social justice ethos of the Franco years, but this wasn’t to be. Protests against the president, combined with conflict between backers of the 3 main parties in the cabinet (the Colorados, Liberals and Febreristas), led to Morínigo removing the Febreristas from their posts and allying himself alone with the Colorados. Partly due to violence conducted by a Colorado group who sought to use force to return their party to power, numerous opposition groups rallied to support Franco, who instigated a revolt backed by the overwhelming majority of Paraguay’s army officers and enlisted men. The Colorados, however, mobilised a force strong enough to beat Franco, whose revolt ended in August 1947. In an ironic case of political intrigue, Morínigo would still end up being forced from office. Despite joining the Colorados and endorsing its victorious candidate in elections held the following year, Colorado-leaning officers uncertain of promises made by Morínigo giving up the presidency forced him to leave Paraguay. For the next 6 decades, Paraguay would know the rule of no party other than that of the Colorados.
Lugo
Paraguay would not again see a Franco-esque reformer come to power until 2008 when that year a priest by the name of Fernando Lugo, who headed a broad-based left-right alliance that included the Febreristas won the presidency; marking the end of Colorado hegemony. Despite divisions in his alliance (with echoes of Franco’s), Lugo was able to initiate bold reforms like free dental care, pensions for elderly persons on low incomes, and school snacks. His alliance however, lacked a majority in the legislature, plaguing Lugo’s ability to advance much in the way of meaningful reform. He was also plagued by scandals over paternity claims from his time as a bishop, and was eventually impeached in 2012 on numerous grounds, such as failure to tackle increased insecurity. Much controversy surrounded Lugo’s impeachment, but this failed to generate enough support for a leftist alternative to win the next election, which instead saw the return of the Colorados, who have remained in power to this day.
The Franco interlude provides two worthwhile lessons. The first is that when elites fail to meet the needs and aspirations of its citizenry certain individuals will take drastic measures such as attaining power by force. The second is that acquiring power in this way is doomed to failure, as authoritarian administrations are prone to corruption and, in the case of Franco’s government, badly divided. Achieving a peaceful revolution through the ballot box, with a leadership united with clear goals and progressive values, is the best chance Paraguay has of a brighter future.
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