THE KHMER PEOPLE were among the first in Southeast Asia to adopt religious ideas and political institutions from India and to establish centralized kingdoms encompassing large territories. The earliest known kingdom in the area, Funan, flourished from around the first to the sixth century A.D. It was succeeded by Chenla, which controlled large areas of modern Cambodia, Vietnam, Laos, and Thailand (known as Siam until 1939). The golden age of Khmer civilization, however, was the period from the ninth to the thirteenth century, when the kingdom of Kambuja, which gave Kampuchea, or Cambodia, its name, ruled large territories from its capital in the region of Angkor in western Cambodia.
Under Jayavarman VII (1181-ca. 1218), Kambuja reached its zenith of political power and cultural creativity. Following Jayavarman VII's death, Kambuja experienced gradual decline. Important factors were the aggressiveness of neighboring peoples (especially the Thai, or Siamese), chronic interdynastic strife, and the gradual deterioration of the complex irrigation system that had ensured rice surpluses. The Angkorian monarchy survived until 1431, when the Thai captured Angkor Thom and the Cambodian king fled to the southern part of his country.
The fifteenth to the nineteenth century was a period of continued decline and territorial loss. Cambodia enjoyed a brief period of prosperity during the sixteenth century because its kings, who built their capitals in the region southeast of the Tonle Sap (Great Lake) along the Mekong River, promoted trade with other parts of Asia. This was the period when Spanish and Portuguese adventurers and missionaries first visited the country. But the Thai conquest of the new capital at Lovek in 1594 marked a downturn in the country's fortunes and Cambodia became a pawn in power struggles between its two increasingly powerful neighbors, Siam and Vietnam. Vietnam's settlement of the Mekong Delta led to its annexation of that area at the end of the seventeenth century. Cambodia thereby lost some of its richest territory and was cut off from the sea. Such foreign encroachments continued through the first half of the nineteenth century because Vietnam was determined to absorb Khmer land and to force the inhabitants to accept Vietnamese culture. Such imperialistic policies created in the Khmer an abiding suspicion of their eastern neighbors that flared into violent confrontation after the Khmer Rouge established its regime in 1975.
In 1863 King Norodom signed an agreement with the French to establish a protectorate over his kingdom. The country gradually came under French colonial domination. During World War II, the Japanese allowed the French government (based at Vichy) that collaborated with the Nazis the Vichy French to continue administering Cambodia and the other Indochinese territories, but they also fostered Khmer nationalism. Cambodia enjoyed a brief period of independence in 1945 before Allied troops restored French control. King Norodom Sihanouk, who had been chosen by France to succeed King Monivong in 1941, rapidly assumed a central political role as he sought to neutralize leftist and republican opponents and attempted to negotiate acceptable terms for independence from the French. Sihanouk's "royal crusade for independence" resulted in grudging French acquiescence to his demands for a transfer of sovereignty. A partial agreement was struck in October 1953. Sihanouk then declared that independence had been achieved and returned in triumph to Phnom Penh. The following year, as a result of the Geneva Conference on Indochina, Cambodia was able to bring about the withdrawal of the Viet Minh troops from its territory and to withstand any residual impingement upon its sovereignty by external powers.
In order to play a more active role in national politics, Sihanouk abdicated in 1955 and placed his father, Norodom Suramarit, on the throne. Now only a prince, Sihanouk organized his own political movement, the Popular Socialist Community, (Sangkum Reastr Niyum, or Sangkum), which won all the seats in the National Assembly in the 1955 election. The Sangkum dominated the political scene until the late 1960s. Sihanouk's highly personal ruling style made him immensely popular with the people, especially in rural villages. Although the Sangkum was backed by conservative interests, Sihanouk included leftists in his government, three of whom--Khieu Samphan, Hou Yuon, and Hu Nim--later became leaders of the Khmer Rouge. In 1963 he announced the nationalization of banking, foreign trade, and insurance in a socialist experiment that dried up foreign investment and alienated the right wing. In foreign relations, Sihanouk pursued a policy of neutrality and nonalignment. He accepted United States economic and military aid, but he also promoted close relations with China and attempted to keep on good terms with the Democratic Republic of Vietnam (North Vietnam). The principal objectives of his foreign policy were to preserve Cambodia's independence and to keep the country out of the widening conflict in neighboring Vietnam. Relations with Washington grew stormy in the early 1960s. In 1963 the prince rejected further United States aid, and, two years later, he severed diplomatic relations.
Both the domestic and the international situations had deteriorated by the late 1960s. The increasingly powerful right wing challenged Sihanouk's control of the political system. Peasant resentment over harsh tax collection measures and the expropriation of land to build a sugar refinery led to a violent revolt in 1967 in the northwestern province of Batdambang (Battambang). The armed forces, commanded by General Lon Nol (who was also prime minister), quelled the revolt, but a communist-led insurgency spread throughout the country. The spillover of the Second Indochina War (or Vietnam War) into the Cambodian border areas also was becoming a serious problem. Apparently one factor in Sihanouk's decision to reestablish relations with Washington in 1969 was his fear of further incursions by the North Vietnamese and the Viet Cong. In March 1970, however, he was overthrown by General Lon Nol and other right-wing leaders, who seven months later abolished the monarchy and established the Khmer Republic.
The Khmer Republic faced not only North Vietnamese and Viet Cong combat units but also an effective, homegrown communist movement that grew more lethal as time went on. The Cambodian communists, whom Sihanouk had labeled Khmer Rouge, traced their movement back to the struggle for independence and the creation in 1951, under Vietnamese auspices, of the Kampuchean (or Khmer) People's Revolutionary Party (KPRP). During the early 1960s, however, a group of Paris-trained communist intellectuals, of whom the most important were Saloth Sar (known as Pol Pot after 1976), Khieu Samphan, and Ieng Sary, seized control of the party. They gradually purged or neutralized rivals whom they considered too subservient to Vietnam. After the March 1970 coup d'état that toppled Sihanouk, the Khmer Rouge formed a united front with the ousted leader, a move that won them the goodwill of peasants who were still loyal to the prince.
Despite massive United States aid to the newly proclaimed Khmer Republic and the bombing of North Vietnamese and Khmer Rouge installations and troop concentrations in the countryside, the Phnom Penh regime rapidly lost most of the country's territory to the communists. In January 1975 communist forces laid siege to Phnom Penh, and in succeeding months they tightened the noose around the capital. On April 1, 1975, President Lon Nol left the country. Sixteen days later Khmer Rouge troops entered the city.
The forty-four months the Khmer Rouge were in power was a period of unmitigated suffering for the Khmer people. Although the severity of revolutionary policies varied from region to region because of ideological differences and the personal inclinations of local leaders, hundreds of thousands of people starved, died from disease, or were executed. "New people" (the intelligentsia and those from the cities--those new to the rural areas), being considered politically unreliable, were special targets of terror and of a harsh, unremitting regime of forced labor. In 1977 Pol Pot launched a bloody purge within the communist ranks that accounted for many deaths. The slaughter of the Vietnamese minority living in Cambodia and the Khmer Rouge's aggressive incursions into Vietnam led to fighting with Vietnam in 1977 and 1978. In December 1978, Vietnamese forces invaded the country. On January 7, 1979, they captured Phnom Penh and began to establish the People's Republic of Kampuchea (PRK). The Khmer Rouge fled to isolated corners of the country and resumed their guerrilla struggle, which continued in the late 1980s.
Archaeological evidence indicates that parts of the region now called Cambodia were inhabited during the first and second millennia B.C. by peoples having a Neolithic culture. By the first century A.D., the inhabitants had developed relatively stable, organized societies, which had far surpassed the primitive stage in culture and technical skills. The most advanced groups lived along the coast and in the lower Mekong River valley and delta regions, where they cultivated irrigated rice and kept domesticated animals.
Scholars believe that these people may have been Austroasiatic in origin and related to the ancestors of the groups who now inhabit insular Southeast Asia and many of the islands of the Pacific Ocean. They worked metals, including both iron and bronze, and possessed navigational skills. Mon-Khmer people, who arrived at a later date, probably intermarried with them. The Khmer who now populate Cambodia may have migrated from southeastern China to the Indochinese Peninsula before the first century A.D. They are believed to have arrived before their present Vietnamese, Thai, and Lao neighbors.
At about the time that the ancient peoples of Western Europe were absorbing the classical culture and institutions of the Mediterranean, the peoples of mainland and insular Southeast Asia were responding to the stimulus of a civilization that had arisen in northern India during the previous millennium. The Britons, Gauls, and Iberians experienced Mediterranean influences directly, through conquest by and incorporation into the Roman Empire. In contrast, the Indianization of Southeast Asia was a slower process than the Romanization of Europe because there was no period of direct Indian rule and because land and sea barriers that separated the region from the Indian subcontinent are considerable. Nevertheless, Indian religion, political thought, literature, mythology, and artistic motifs gradually became integral elements in local Southeast Asian cultures. The caste system never was adopted, but Indianization stimulated the rise of highly-organized, centralized states.
Funan, the earliest of the Indianized states, generally is considered by Cambodians to have been the first Khmer kingdom in the area. Founded in the first century A.D., Funan was located on the lower reaches of the Mekong River in the delta area. Its capital, Vyadhapura, probably was located near the present-day town of Phumi Banam in Prey Veng Province. The earliest historical reference to Funan is a Chinese description of a mission that visited the country in the third century A.D. The name Funan derives from the Chinese rendition of the old Khmer word bnam (meaning mountain). What the Funanese called themselves, however, is not known.
During this early period in Funan's history, the population was probably concentrated in villages along the Mekong River and along the Tonle Sab River below the Tonle Sap. Traffic and communications were mostly waterborne on the rivers and their delta tributaries. The area was a natural region for the development of an economy based on fishing and rice cultivation. There is considerable evidence that the Funanese economy depended on rice surpluses produced by an extensive inland irrigation system. Maritime trade also played an extremely important role in the development of Funan. The remains of what is believed to have been the kingdom's main port, Oc Eo (now part of Vietnam), contain Roman as well as Persian, Indian, and Greek artifacts.
By the fifth century A.D., the state exercised control over the lower Mekong River area and the lands around the Tonle Sap. It also commanded tribute from smaller states in the area now comprising northern Cambodia, southern Laos, southern Thailand, and the northern portion of the Malay Peninsula.
Indianization was fostered by increasing contact with the subcontinent through the travels of merchants, diplomats, and learned Brahmans (Hindus of the highest caste traditionally assigned to the priesthood). Indian immigrants, believed to have arrived in the fourth and the fifth centuries, accelerated the process. By the fifth century, the elite culture was thoroughly Indianized. Court ceremony and the structure of political institutions were based on Indian models. The Sanskrit language was widely used; the laws of Manu, the Indian legal code, were adopted; and an alphabet based on Indian writing systems was introduced.
Funan reached its zenith in the fifth century A.D.. Beginning in the early sixth century, civil wars and dynastic strife undermined Funan's stability, making it relatively easy prey to incursions by hostile neighbors. By the end of the seventh century, a northern neighbor, the kingdom of Chenla, had reduced Funan to a vassal state.
The people of Chenla also were Khmer. Once they established control over Funan, they embarked on a course of conquest that continued for three centuries. They subjugated central and upper Laos, annexed portions of the Mekong Delta, and brought what are now western Cambodia and southern Thailand under their direct control.
The royal families of Chenla intermarried with their Funanese counterparts and generally preserved the earlier political, social, and religious institutions of Funan. In the eighth century A.D., however, factional disputes at the Chenla court resulted in the splitting of the kingdom into rival northern and southern halves. According to Chinese chronicles, the two parts were known as Land (or Upper) Chenla and Water (or Lower) Chenla. Land Chenla maintained a relatively stable existence, but Water Chenla underwent a period of constant turbulence.
Late in the eighth century A.D., Water Chenla was subjected to attacks by pirates from Java, Sumatra, and the Malay Peninsula. By the beginning of the ninth century, it had apparently become a vassal of the Sailendra dynasty of Java. The last of the Water Chenla kings allegedly was killed around A.D. 790 by a Javanese monarch whom he had offended. The ultimate victor in the strife that followed was the ruler of a small Khmer state located north of the Mekong Delta. His assumption of the throne as Jayavarman II (ca. A.D. 802-50) marked the liberation of the Khmer people from Javanese suzerainty and the beginning of a unified Khmer nation.
The Angkorian period lasted from the early ninth century to the early fifteenth century A.D. In terms of cultural accomplishments and political power, this was the golden age of Khmer civilization. The great temple cities of the Angkorian region, located near the modern town of Siemreab, are a lasting monument to the greatness of Jayavarman II's successors. (Even the Khmer Rouge, who looked on most of their country's past history and traditions with hostility, adopted a stylized Angkorian temple for the flag of Democratic Kampuchea. A similar motif is found in the flag of the PRK). The kingdom founded by Jayavarman II also gave modern-day Cambodia, or Kampuchea, its name. During the early ninth to the mid-fifteenth centuries, it was known as Kambuja, originally the name of an early north Indian state, from which the current forms of the name have been derived.
Possibly to put distance between himself and the seaborne Javanese, Jayavarman II settled north of the Tonle Sap. He built several capitals before establishing one, Hariharalaya, near the site where the Angkorian complexes were built. Indravarman I (A.D. 877-89) extended Khmer control as far west as the Korat Plateau in Thailand, and he ordered the construction of a huge reservoir north of the capital to provide irrigation for wet rice cultivation. His son, Yasovarman I (A.D. 889-900), built the Eastern Baray (reservoir or tank), evidence of which remains to the present time. Its dikes, which may be seen today, are more than 6 kilometers long and 1.6 kilometers wide. The elaborate system of canals and reservoirs built under Indravarman I and his successors were the key to Kambuja's prosperity for half a millennium. By freeing cultivators from dependence on unreliable seasonal monsoons, they made possible an early "green revolution" that provided the country with large surpluses of rice. Kambuja's decline during the thirteenth and fourteenth centuries probably was hastened by the deterioration of the irrigation system. Attacks by Thai and other foreign peoples and the internal discord caused by dynastic rivalries diverted human resources from the system's upkeep, and it gradually fell into disrepair.
Suryavarman II (1113-50), one of the greatest Angkorian monarchs, expanded his kingdom's territory in a series of successful wars against the kingdom of Champa in central Vietnam, the kingdom of Nam Viet in northern Vietnam, and the small Mon polities as far west as the Irrawaddy River of Burma. He reduced to vassalage the Thai peoples who had migrated into Southeast Asia from the Yunnan region of southern China and established his suzerainty over the northern part of the Malay Peninsula. His greatest achievement was the construction of the temple city complex of Angkor Wat. The largest religious edifice in the world, Angkor Wat is considered the greatest single architectural work in Southeast Asia. Suryavarman II's reign was followed, however, by thirty years of dynastic upheaval and an invasion by the neighboring Cham, who destroyed the city of Angkor in 1177.
The Cham ultimately were driven out and conquered by Jayavarman VII, whose reign (1181-ca. 1218) marked the apogee of Kambuja's power. Unlike his predecessors, who had adopted the cult of the Hindu god-king, Jayavarman VII was a fervent patron of Mahayana Buddhism. Casting himself as a bodhisattva, he embarked on a frenzy of building activity that included the Angkor Thom complex and the Bayon, a remarkable temple whose stone towers depict 216 faces of buddhas, gods, and kings. He also built over 200 rest houses and hospitals throughout his kingdom. Like the Roman emperors, he maintained a system of roads between his capital and provincial towns. According to historian George Coedès, "No other Cambodian king can claim to have moved so much stone." Often, quality suffered for the sake of size and rapid construction, as is revealed in the intriguing but poorly constructed Bayon.
Carvings show that everyday Angkorian buildings were wooden structures not much different from those found in Cambodia today. The impressive stone buildings were not used as residences by members of the royal family. Rather, they were the focus of Hindu or Buddhist cults that celebrated the divinity, or buddhahood, of the monarch and his family. Coedès suggests that they had the dual function of both temple and tomb. Typically, their dimensions reflected the structure of the Hindu mythological universe. For example, five towers at the center of the Angkor Wat complex represent the peaks of Mount Meru, the center of the universe; an outer wall represents the mountains that ring the world's edge; and a moat depicts the cosmic ocean. Like many other ancient edifices, the monuments of the Angkorian region absorbed vast reserves of resources and human labor and their purpose remains shrouded in mystery.
Angkorian society was strictly hierarchical. The king, regarded as divine, owned both the land and his subjects. Immediately below the monarch and the royal family were the Brahman priesthood and a small class of officials, who numbered about 4,000 in the tenth century. Next were the commoners, who were burdened with heavy corvée (forced labor) duties. There was also a large slave class that, like the nameless multitudes of ancient Egypt, built the enduring monuments.
After Jayavarman VII's death, Kambuja entered a long period of decline that led to its eventual disintegration. The Thai were a growing menace on the empire's western borders. The spread of Theravada Buddhism, which came to Kambuja from Sri Lanka by way of the Mon kingdoms, challenged the royal Hindu and Mahayana Buddhist cults. Preaching austerity and the salvation of the individual through his or own her efforts, Theravada Buddhism did not lend doctrinal support to a society ruled by an opulent royal establishment maintained through the virtual slavery of the masses.
In 1353 a Thai army captured Angkor. It was recaptured by the Khmer, but wars continued and the capital was looted several times. During the same period, Khmer territory north of the present Laotian border was lost to the Lao kingdom of Lan Xang. In 1431 the Thai captured Angkor Thom. Thereafter, the Angkorian region did not again encompass a royal capital, except for a brief period in the third quarter of the sixteenth century.
The more than four centuries that passed from the abandonment of Angkor around the mid-fifteenth century to the establishment of a protectorate under the French in 1863 are considered by historians to be Cambodia's "dark ages," a period of economic, social, and cultural stagnation when the kingdom's internal affairs came increasingly under the control of its aggressive neighbors, the Thai and the Vietnamese. By the mid-nineteenth century, Cambodia had become an almost helpless pawn in the power struggles between Thailand and Vietnam and probably would have been completely absorbed by one or the other if France had not intervened, giving Cambodia a colonially dominated "lease on life." Fear of racial and cultural extinction has persisted as a major theme in modern Cambodian thought and helps to explain the intense nationalism and xenophobia of the Khmer Rouge during the 1970s. Establishment in 1979 of the People's Republic of Kampuchea, a Vietnamese-dominated satellite state, can be seen as the culmination of a process of Vietnamese encroachment that was already well under way by the seventeenth century.
The process of internal decay and foreign encroachment was gradual rather than precipitous and was hardly evident in the fifteenth century when the Khmer were still powerful. Following the fall of Angkor Thom, the Cambodian court abandoned the region north of the Tonle Sap, never to return except for a brief interlude in the late sixteenth century. By this time however, the Khmer penchant for monument building had ceased. Older faiths such as Mahayana Buddhism and the Hindu cult of the god-king had been supplanted by Theravada Buddhism, and the Cambodians had become part of the same religious and cultural cosmos as the Thai. This similarity did not prevent intermittent warfare between the two kingdoms, however. During the sixteenth century Cambodian armies, taking advantage of Thai troubles with the Burmese, invaded the Thai kingdom several times.
In the meantime, following the abandonment of the Angkorian sites, the Khmer established a new capital several hundred kilometers to the southeast on the site of what is now Phnom Penh. This new center of power was located at the confluence of the Mekong and the Tonle Sab rivers. Thus, it controlled the river commerce of the Khmer heartland and the Laotian kingdoms and had access, by way of the Mekong Delta, to the international trade routes that linked the China coast, the South China Sea, and the Indian Ocean. A new kind of state and society emerged, more open to the outside world and more dependent on commerce as a source of wealth than its inland predecessor. The growth of maritime trade with China during the Ming dynasty (1368-1644) provided lucrative opportunities for members of the Cambodian elite who controlled royal trading monopolies. The appearance of Europeans in the region in the sixteenth century also stimulated commerce.
King Ang Chan (1516-66), one of the few great Khmer monarchs of the post-Angkorian period, moved the capital from Phnom Penh to Lovek. Portuguese and Spanish travelers who visited the city, located on the banks of the Tonle Sab, a river north of Phnom Penh, described it as a place of fabulous wealth. The products traded there included precious stones, metals, silk and cotton, incense, ivory, lacquer, livestock (including elephants), and rhinoceros horn (prized by the Chinese as a rare and potent medicine). By the late sixteenth and early seventeenth centuries, Lovek contained flourishing foreign trading communities of Chinese, Indonesians, Malays, Japanese, Arabs, Spanish, and Portuguese. They were joined later in the century by the English and the Dutch.
Because the representatives of practically all these nationalities were pirates, adventurers, or traders, this was an era of stormy cosmopolitanism. Hard-pressed by the Thai, King Sattha (1576-94) surrounded himself with a personal guard of Spanish and Portuguese mercenaries, and in 1593 asked the Spanish governor of the Philippines for aid. Attracted by the prospects of establishing a Spanish protectorate in Cambodia and of converting the monarch to Christianity, the governor sent a force of 120 men, but Lovek had already fallen to the Thai when they arrived the following year. The Spanish took advantage of the extremely confused situation to place one of Sattha's sons on the throne in 1597. Hopes of making the country a Spanish dependency were dashed, however, when the Spaniards were massacred two years later by an equally belligerent contingent of Malay mercenaries.
The Thai, however, had dealt a fatal blow to Cambodian independence by capturing Lovek in 1594. With the posting of a Thai military governor in the city, a degree of foreign political control was established over the kingdom for the first time. Cambodian chronicles describe the fall of Lovek as a catastrophe from which the nation never fully recovered.
More than their conquest of Angkor a century and a half earlier, the Thai capture of Lovek marked the beginning of a decline in Cambodia's fortunes. One possible reason for the decline was the labor drain imposed by the Thai conquerors as they marched thousands of Khmer peasants, skilled artisans, scholars, and members of the Buddhist clergy back to their capital of Ayutthaya. This practice, common in the history of Southeast Asia, crippled Cambodia's ability to recover a semblance of its former greatness. A new Khmer capital was established at Odongk (Udong), south of Lovek, but its monarchs could survive only by entering into what amounted to vassal relationships with the Thai and with the Vietnamese. In common parlance, Thailand became Cambodia's "father" and Vietnam its "mother."
By the late fifteenth century, the Vietnamese--who, unlike other Southeast Asian peoples, had patterned their culture and their civilization on those of China--had defeated the oncepowerful kingdom of Champa in central Vietnam. Thousands of Chams fled into Khmer territory. By the early seventeenth century, the Vietnamese had reached the Mekong Delta, which was inhabited by Khmer people. In 1620 the Khmer king Chey Chettha II (1618-28) married a daughter of Sai Vuong, one of the Nguyen lords (1558- 1778), who ruled southern Vietnam for most of the period of the restored Le dynasty (1428-1788). Three years later, Chey Chettha allowed the Vietnamese to establish a custom-house at Prey Nokor, near what is now Ho Chi Minh City (until 1975, Saigon). By the end of the seventeenth century, the region was under Vietnamese administrative control, and Cambodia was cut off from access to the sea. Trade with the outside world was possible only with Vietnamese permission.
There were periods in the seventeenth and the eighteenth centuries, when Cambodia's neighbors were preoccupied with internal or external strife, that afforded the beleaguered country a breathing spell. The Vietnamese were involved in a lengthy civil war until 1674, but upon its conclusion they promptly annexed sizable areas of contiguous Cambodian territory in the region of the Mekong Delta. For the next one hundred years they used the alleged mistreatment of Vietnamese colonists in the delta as a pretext for their continued expansion. By the end of the eighteenth century, they had extended their control to include the area encompassed in the late 1980s by the Socialist Republic of Vietnam (Vietnam).
Thailand, which might otherwise have been courted as an ally against Vietnamese incursions in the eighteenth century, was itself involved in a new conflict with Burma. In 1767 the Thai capital of Ayutthaya was besieged and destroyed. The Thai quickly recovered, however, and soon reasserted their dominion over Cambodia. The youthful Khmer king, Ang Eng (1779-96), a refugee at the Thai court, was installed as monarch at Odongk by Thai troops. At the same time, Thailand quietly annexed Cambodia's three northernmost provinces. In addition, the local rulers of the northwestern provinces of Batdambang and Siemreab (Siemreap) became vassals of the Thai king, and these areas came under the Thai sphere of influence.
A renewed struggle between Thailand and Vietnam for control of Cambodia in the nineteenth century resulted in a period when Vietnamese officials, working through a puppet Cambodian king, ruled the central part of the country and attempted to force Cambodians to adopt Vietnamese customs. Several rebellions against Vietnamese rule ensued. The most important of these occurred in 1840 to 1841 and spread through much of the country. After two years of fighting, Cambodia and its two neighbors reached an accord that placed the country under the joint suzerainty of Thailand and Vietnam. At the behest of both countries, a new monarch, Ang Duong (1848-59), ascended the throne and brought a decade of peace and relative independence to Cambodia.
In their arbitrary treatment of the Khmer population, the Thai and the Vietnamese were virtually indistinguishable. The suffering and the dislocation caused by war were comparable in many ways to similar Cambodian experiences in the 1970s. But the Thai and the Vietnamese had fundamentally different attitudes concerning their relationships with Cambodia. The Thai shared with the Khmer a common religion, mythology, literature, and culture. The Chakri kings at Bangkok wanted Cambodia's loyalty and tribute, but they had no intention of challenging or changing its people's values or way of life. The Vietnamese viewed the Khmer people as barbarians to be civilized through exposure to Vietnamese culture, and they regarded the fertile Khmer lands as legitimate sites for colonization by settlers from Vietnam.
France's interest in Indochina in the nineteenth century grew out of its rivalry with Britain, which had excluded it from India and had effectively shut it out of other parts of mainland Southeast Asia. The French also desired to establish commerce in a region that promised so much untapped wealth and to redress the Vietnamese state's persecution of Catholic converts, whose welfare was a stated aim of French overseas policy. The Nguyen dynasty's repeated refusal to establish diplomatic relations and the violently anti-Christian policies of the emperors Minh Mang (1820- 41), Thieu Tri (1841-47), and Tu Duc (1848-83) impelled the French to engage in gunboat diplomacy that resulted, in 1862, in the establishment of French dominion over Saigon and over the three eastern provinces of the Cochinchina (Mekong Delta) region.
In the view of the government in Paris, Cambodia was a promising backwater. Persuaded by a missionary envoy to seek French protection against both the Thai and the Vietnamese, King Ang Duong invited a French diplomatic mission to visit his court. The Thai, however, pressured him to refuse to meet with the French when they finally arrived at Odongk in 1856. The much-publicized travels of the naturalist Henri Mouhot, who visited the Cambodian court, rediscovered the ruins at Angkor, and journeyed up the Mekong River to the Laotian kingdom of Luang Prabang from 1859 to 1861, piqued French interest in the kingdom's alleged vast riches and in the value of the Mekong as a gateway to China's southwestern provinces. In August 1863, the French concluded a treaty with Ang Duong's successor, Norodom (1859-1904). This agreement afforded the Cambodian monarch French protection (in the form of a French official called a résident--in French resident) in exchange for giving the French rights to explore and to exploit the kingdom's mineral and forest resources. Norodom's coronation, in 1864, was an awkward affair at which both French and Thai representatives officiated. Although the Thai attempted to thwart the expansion of French influence, their own influence over the monarch steadily dwindled. In 1867 the French concluded a treaty with the Thai that gave the latter control of Batdambang Province and of Siemreab Province in exchange for their renunciation of all claims of suzerainty over other parts of Cambodia. Loss of the northwestern provinces deeply upset Norodom, but he was beholden to the French for sending military aid to suppress a rebellion by a royal pretender.
In June 1884, the French governor of Cochinchina went to Phnom Penh, Norodom's capital, and demanded approval of a treaty with Paris that promised far-reaching changes such as the abolition of slavery, the institution of private land ownership, and the establishment of French résidents in provincial cities. Mindful of a French gunboat anchored in the river, the king reluctantly signed the agreement. Local elites opposed its provisions, however, especially the one dealing with slavery, and they fomented rebellions throughout the country during the following year. Though the rebellions were suppressed, and the treaty was ratified, passive resistance on the part of the Cambodians postponed implementation of the reforms it embodied until after Norodom's death.
In October 1887, the French proclaimed the Union Indochinoise, or Indochina Union, comprising Cambodia and the three constituent regions of Vietnam: Tonkin, Annam, and Cochinchina. (Laos was added to the Indochina Union after being separated from Thai suzerainty in 1893.) Cambodia's chief colonial official, responsible to the Union's governor general and appointed by the Ministry of Marine and Colonies in Paris, was a resident general (résident supérieur). Residents, or local governors, were posted in all the principal provincial centers. In 1897 the incumbent resident general complained to Paris that Norodom was no longer capable of ruling and received permission to assume the king's authority to issue decrees, collect taxes, and appoint royal officials. Norodom and his successors were left with hollow, figurehead roles as head of state and as patron of the Buddhist religion. The colonial bureaucracy expanded rapidly. French nationals naturally held the highest positions, but even on the lower rungs of the bureaucracy Cambodians found few opportunities because the colonial government preferred to hire Vietnamese.
When Norodom died in 1904, the French passed over his sons and set his brother Sisowath (1904-27) on the throne. Sisowath's branch of the royal family was considered more cooperative than that of Norodom because the latter was viewed as partly responsible for the revolts of the 1880s and because Norodom's favorite son, Prince Yukanthor, had stirred up publicity abroad about French colonial injustices. During their generally peaceful reigns, Sisowath and his son Monivong (1927-41) were pliant instruments of French rule. A measure of the monarchs' status was the willingness of the French to provide them annually with complimentary rations of opium. One of the few highlights of Sisowath's reign was French success in getting Thailand's King Chulalongkorn to sign a new treaty in 1907 returning the northwestern provinces of Batdambang and Siemreab to Cambodia.
Soon after establishing their protectorate in 1863, the French realized that Cambodia's hidden wealth was an illusion and that Phnom Penh would never become the Singapore of Indochina. Aside from collecting taxes more efficiently, the French did little to transform Cambodia's village-based economy. Cambodians paid the highest taxes per capita in Indochina, and in 1916 a nonviolent tax revolt brought tens of thousands of peasants into Phnom Penh to petition the king for a reduction. The incident shocked the French, who had lulled themselves into believing that the Cambodians were too indolent and individualistic to organize a mass protest. Taxes continued to be sorely resented by the Cambodians. In 1925 villagers killed a French resident after he threatened to arrest tax delinquents. For poor peasants, the corvée service--a tax substitute--of as many as ninety days a year on public works projects, was an onerous duty.
According to Hou Yuon (a veteran of the communist movement who was murdered by the Khmer Rouge after they seized power in 1975), usury vied with taxes as the chief burden upon the peasantry. Hou's 1955 doctoral thesis at the University of Paris was one of the earliest and most thorough studies of conditions in the rural areas during the French colonial era. He argued that although most landholdings were small (one to five hectares), poor and middleclass peasants were victims of flagrantly usurious practices that included effective interest rates of 100 to 200 percent. Foreclosure reduced them to the status of sharecroppers or landless laborers. Although debt slavery and feudal landholding patterns had been abolished by the French, the old elites still controlled the countryside. According to Hou, "the great feudal farms, because of their precapitalist character, are disguised as small and mediumsized farms, in the form of tenancies and share-farms, and materially are indistinguishable from other small and medium-seized farms." Whether or not the countryside was as polarized in terms of class (or property) as Hou argues is open to debate, but it is clear that great tension and conflict existed despite the smiles and the easygoing manner of Khmer villagers.
To develop the economic infrastructure, the French built a limited number of roads and a railroad that extended from Phnom Penh through Batdambang to the Thai border. The cultivation of rubber and of corn were economically important, and the fertile provinces of Batdambang and Siemreab became the rice baskets of Indochina. The prosperous 1920s, when rubber, rice, and corn were in demand overseas, were years of considerable economic growth, but the world depression after 1929 caused great suffering, especially among rice cultivators whose falling incomes made them more than ever the victims of moneylenders.
Industry was rudimentary and was designed primarily to process raw materials such as rubber for local use or export. There was considerable immigration, which created a plural society similar to those of other Southeast Asian countries. As in British Burma and Malaya, foreigners dominated the developed sectors of the economy. Vietnamese came to serve as laborers on rubber plantations and as clerical workers in the government. As their numbers increased, Vietnamese immigrants also began to play important roles in the economy as fishermen and as operators of small businesses. The Chinese had been in Cambodia for several centuries before the imposition of French rule, and they had dominated precolonial commerce. This arrangement continued under the French, because the colonial government placed no restrictions on the occupations in which they could engage. Chinese merchants and bankers in Cambodia developed commercial networks that extended throughout Indochina as well as overseas to other parts of Southeast Asia and to mainland China.
In stark contrast to neighboring Cochinchina and to the other Vietnamese-populated territories of Indochina, Cambodia was relatively quiescent politically during the first four decades of the twentieth century. The carefully maintained fiction of royal rule was probably the major factor. Khmer villagers, long inured to abuses of power, believed that as long as a monarch occupied the throne "all was right with the world." Low literacy rates, which the French were extremely reluctant to improve, also insulated the great majority of the population from the nationalist currents that were sweeping other parts of Southeast Asia.
Nevertheless, national consciousness was emerging among the handful of educated Khmer who composed the urban-based elite. Restoration of the monuments at Angkor, which the historian David P. Chandler suggests was France's most valuable legacy to the colony, awakened Cambodians' pride in their culture and in their past achievements. Many of the new elite were graduates of the Lycée Sisowath in Phnom Penh, where resentment of the favored treatment given Vietnamese students resulted in a petition to King Monivong during the 1930s. Significantly, the most articulate of the early nationalists, were Khmer Krom --members of the Cambodian minority who lived in Cochinchina. In 1936 Son Ngoc Thanh and another Khmer Krom named Pach Chhoeun, began publishing Nagaravatta (Angkor Wat), the first Khmerlanguage newspaper. In its editorials, Nagaravatta mildly condemned French colonial policies, the prevalence of usury in the rural areas, foreign domination of the economy, and the lack of opportunities for educated Khmer. Much of the paper's journalistic wrath was directed toward the Vietnamese for their past exploitation of Cambodia and for their contemporary monopolization of civil service and of professional positions.
The Khmer were fortunate in escaping the suffering endured by most other Southeast Asian peoples during World War II. After the establishment of the Vichy regime in France in 1940, Japanese forces moved into Vietnam and displaced French authority. In mid1941 , they entered Cambodia but allowed Vichy French colonial officials to remain at their administrative posts. The pro-Japanese regime in Thailand, headed by Prime Minister Field Marshal Luang Plaek Phibunsonggram, requested assurances from the Vicky regime that, in the event of an interruption of French sovereignty, Cambodian and Laotian territories formerly belong to Thailand would be returned to Bangkoh's authority. The request was rejected. In January 1941, a Thai force invaded Cambodia. The land fighting was indecisive, but the Vichy French defeated the Thai navy in an engagement in the Gulf of Thailand. At this point, Tokyo intervened and compelled the French authorities to agree to a treaty ceding the province of Batdambang and part of the province of Siemreab to Thailand in exchange for a small compensation. The Cambodians were allowed to retain Angkor. Thai aggression, however, had minimal impact on the lives of most Cambodians outside the northwestern region.
King Monivong died in April 1941. Although his son, Prince Monireth, had been considered the heir apparent, the French chose instead Norodom Sihanouk, the great grandson of King Norodom. Sihanouk was an ideal candidate from their point of view because of his youth (he was nineteen years old), his lack of experience, and his pliability.
Japanese calls of "Asia for the Asiatics" found a receptive audience among Cambodian nationalists, although Tokyo's policy in Indochina was to leave the colonial government nominally in charge. When a prominent, politically active Buddhist monk, Hem Chieu, was arrested and unceremoniously defrocked by the French authorities in July 1942, the editors of Nagaravatta led a demonstration demanding his release. They as well as other nationalists apparently overestimated the Japanese willingness to back them, for the Vichy authorities quickly arrested the demonstrators and gave Pach Chhoeun, one of the Nagaravatta editors, a life sentence. The other editor, Son Ngoc Thanh, escaped from Phnom Penh and turned up the following year in Tokyo.
In a desperate effort to enlist local support in the final months of the war, the Japanese dissolved the French colonial administration on March 9, 1945, and urged Cambodia to declare its independence within the Greater East Asia Co-Prosperity Sphere. Four days later, King Sihanouk decreed an independent Kampuchea (the original Khmer pronunciation of Cambodia). Son Ngoc Thanh returned from Tokyo in May, and he was appointed foreign minister. On August 15, 1945, the day Japan surrendered, a new government was established with Son Ngoc Thanh acting as prime minister. When an Allied force occupied Phnom Penh in October, Thanh was arrested for collaboration with the Japanese and was sent into exile in France to remain under house arrest. Some of his supporters went to northwestern Cambodia, then still under Thai control, where they banded together as one faction in the Khmer Issarak movement, originally formed with Thai encouragement in the 1940s.
Cambodia's situation at the end of the war was chaotic. The Free French, under General Charles de Gaulle, were determined to recover Indochina, though they offered Cambodia and the other Inchochinese protectorates a carefully circumscribed measure of self-government. Convinced that they had a "civilizing mission," they envisioned Indochina's participation in a French Union of former colonies that shared the common experience of French culture. Neither the urban professional elites nor the common people, however, were attracted by this arrangement. For Cambodians of practically all walks of life, the brief period of independence, from March to October of 1945, was an invigorating breath of fresh air. The lassitude of the Khmer was a thing of the past.
In Phnom Penh, Sihanouk, acting as head of state, was placed in the extremely delicate position of negotiating with the French for full independence while trying to neutralize party politicians and supporters of the Khmer Issarak and Viet Minh who considered him a French collaborator. During the tumultuous period between 1946 and 1953, Sihanouk displayed the remarkable aptitude for political survival that sustained him before and after his fall from power in March 1970. The Khmer Issarak was an extremely heterogeneous guerrilla movement, operating in the border areas. The group included indigenous leftists, Vietnamese leftists, antimonarchical nationalists (Khmer Serei) loyal to Son Ngoc Thanh, and plain bandits taking advantage of the chaos to terrorize villagers. Though their fortunes rose and fell during the immediate postwar period (a major blow was the overthrow of a friendly leftist government in Bangkok in 1947), by 1954 the Khmer Issarak operating with the Viet Minh by some estimates controlled as much as 50 percent of Cambodia's territory.
In 1946 the French allowed the Cambodians to form political parties and to hold elections for a Consultative Assembly that would advise the monarch on drafting the country's constitution. The two major parties were both headed by royal princes. The Democratic Party, led by Prince Sisowath Yuthevong, espoused immediate independence, democratic reforms, and parliamentary government. Its supporters were teachers, civil servants, politically active members of the Buddhist priesthood, and others whose opinions had been greatly influenced by the nationalistic appeals of Nagaravatta before it was closed down by the French in 1942. Many Democrats sympathized with the violent methods of the Khmer Issarak. The Liberal Party, led by Prince Norodom Norindeth, represented the interests of the old rural elites, including large landowners. They preferred continuing some form of the colonial relationship with France, and advocated gradual democratic reform. In the Consultative Assembly election held in September 1946, the Democrats won fifty out of sixty-seven seats.
With a solid majority in the assembly, the Democrats drafted a constitution modeled on that of the French Fourth Republic. Power was concentrated in the hands of a popularly elected National Assembly. The king reluctantly proclaimed the new constitution on May 6, 1947. While it recognized him as the "spiritual head of the state," it reduced him to the status of a constitutional monarch, and it left unclear the extent to which he could play an active role in the politics of the nation. Sihanouk would turn this ambiguity to his advantage in later years, however.
In the December 1947 elections for the National Assembly, the Democrats again won a large majority. Despite this, dissension within the party was rampant. Its founder, Prince Yuthevong, had died and no clear leader had emerged to succeed him. During the period 1948 to 1949, the Democrats appeared united only in their opposition to legislation sponsored by the king or his appointees. A major issue was the king's receptivity to independence within the French Union, proposed in a draft treaty offered by the French in late 1948. Following dissolution of the National Assembly in September 1949, agreement on the pact was reached through an exchange of letters between King Sihanouk and the French government. It went into effect two months later, though National Assembly ratification of the treaty was never secured.
The treaty granted Cambodia what Sihanouk called "fifty percent independence": by it, the colonial relationship was formally ended, and the Cambodians were given control of most administrative functions. Cambodian armed forces were granted freedom of action within a self-governing autonomous zone comprising Batdambang and Siemreab provinces, which had been recovered from Thailand after World War II, but which the French, hard-pressed elsewhere, did not have the resources to control. Cambodia was still required to coordinate foreign policy matters with the High Council of the French Union, however, and France retained a significant measure of control over the judicial system, finances, and customs. Control of wartime military operations outside the autonomous zone remained in French hands. France was also permitted to maintain military bases on Cambodian territory. In 1950 Cambodia was accorded diplomatic recognition by the United States and by most noncommunist powers, but in Asia only Thailand and the Republic of Korea (South Korea) extended recognition.
The Democrats won a majority in the second National Assembly election in September 1951, and they continued their policy of opposing the king on practically all fronts. In an effort to win greater popular approval, Sihanouk asked the French to release nationalist Son Ngoc Thanh from exile and to allow him to return to his country. He made a triumphant entry into Phnom Penh on October 29, 1951. It was not long, however, before he began demanding withdrawal of French troops from Cambodia. He reiterated this demand in early 1952 in Khmer Krok (Khmer Awake!) a weekly newspaper that he had founded. The newspaper was forced to cease publication in March, and Son Ngoc Thanh fled the capital with a few armed followers to join the Khmer Issarak. Branded alternately a communist and an agent of the United States Central Intelligence Agency (CIA) by Sihanouk, he remained in exile until Lon Nol established the Khmer Republic in 1970.
In June 1952, Sihanouk announced the dismissal of his cabinet, suspended the constitution, and assumed control of the government as prime minister. Then, without clear constitutional sanction, he dissolved the National Assembly and proclaimed martial law in January 1953. Sihanouk exercised direct rule for almost three years, from June 1952 until February 1955. After dissolution of the assembly, he created an Advisory Council to supplant the legislature and appointed his father, Norodom Suramarit, as regent.
In March 1953, Sihanouk went to France. Ostensibly, he was traveling for his health; actually, he was mounting an intensive campaign to persuade the French to grant complete independence. The climate of opinion in Cambodia at the time was such that if he did not achieve full independence quickly, the people were likely to turn to Son Ngoc Thanh and the Khmer Issarak, who were fully committed to attaining that goal. At meetings with the French president and with other high officials, the French suggested that Sihanouk was unduly "alarmist" about internal political conditions. The French also made the thinly veiled threat that, if he continued to be uncooperative, they might replace him. The trip appeared to be a failure, but on his way home by way of the United States, Canada, and Japan, Sihanouk publicized Cambodia's plight in the media.
To further dramatize his "royal crusade for independence," Sihanouk, declaring that he would not return until the French gave assurances that full independence would be granted, left Phnom Penh in June to go into self-imposed exile in Thailand. Unwelcome in Bangkok, he moved to his royal villa near the ruins of Angkor in Siemreab Province. Siemreab, part of the autonomous military zone established in 1949, was commanded by Lieutenant Colonel Lon Nol, formerly a right-wing politician who was becoming a prominent, and in time would be an indispensable, Sihanouk ally within the military. From his Siemreab base, the king and Lon Nol contemplated plans for resistance if the French did not meet their terms.
Sihanouk was making a high-stakes gamble, for the French could easily have replaced him with a more pliable monarch; however, the military situation was deteriorating throughout Indochina, and the French government, on July 3, 1953, declared itself ready to grant full independence to the three states of Cambodia, Vietnam, and Laos. Sihanouk insisted on his own terms, which included full control of national defense, the police, the courts, and financial matters. The French yielded: the police and the judiciary were transferred to Cambodian control at the end of August, and in October the country assumed full command of its military forces. King Sihanouk, now a hero in the eyes of his people, returned to Phnom Penh in triumph, and independence day was celebrated on November 9, 1953. Control of residual matters affecting sovereignty, such as financial and budgetary affairs, passed to the new Cambodian state in 1954.
Sihanouk continues to be one of the most controversial figures in Southeast Asia's turbulent, and often tragic, postwar history. Admirers view him as one of the country's great patriots, whose insistence on strict neutrality kept Cambodia out of the maelstrom of war and out of the revolution in neighboring Vietnam for more than fifteen years before he was betrayed by his close associate, Lon Nol. Critics attack him for his vanity, eccentricities, and intolerance of any political views different from his own. One such critic, Michael Vickery, asserts that beneath the neutralist rhetoric Sihanouk presided over a regime that was oppressively reactionary and, in some instances, as violent in its suppression of political opposition as the Khmer Rouge. According to Vickery, the royal armed forces under Lon Nol slaughtered women and children in pro-Khmer Issarak regions of Batdambang in 1954 using methods that were later to become routine under Pol Pot. Another critical observer, Milton E. Osborne, writing as an Australian expatriate in Phnom Penh during the late 1960s, describes the Sihanouk years in terms of unbridled greed and corruption, of a foreign policy inspired more by opportunism than by the desire to preserve national independence, of an economy and a political system that were rapidly coming apart, and of the prince's obsession with making outrageously mediocre films--one of which starred himself and his wife, Princess Monique.
Sihanouk was all of these things--patriot, neutralist, embodiment of the nation's destiny, eccentric, rigid defender of the status quo, and promoter of the worst sort of patron-client politics. He believed that he single-handedly had won Cambodia's independence from the French. The contributions of other nationalists, such as Son Ngoc Thanh and the Viet Minh, were conveniently forgotten. Sihanouk also believed he had the right to run the state in a manner not very different from that of the ancient Khmer kings--that is, as an extension of his household. Unlike the ancient "god-kings," however, he established genuine rapport with ordinary Cambodians. He made frequent, often impromptu, trips throughout the country, visiting isolated villages, chatting with peasants, receiving petitions, passing out gifts, and scolding officials for mismanagement. According to British author and journalist William Shawcross, Sihanouk was able to create a "unique brand of personal populism." To ordinary Cambodians, his eccentricities, volatility, short temper, sexual escapades, and artistic flights of fancy were an expression of royal charisma rather than an occasion for scandal. Sihanouk's delight in making life difficult for foreign diplomats and journalists, moreover, amused his subjects. Ultimately, the eccentric humanity of Sihanouk was to contrast poignantly with the random brutality of his Khmer Rouge successors.
Although Cambodia had achieved independence by late 1953, its military situation remained unsettled. Noncommunist factions of the Khmer Issarak had joined the government, but communist Viet Minh activities increased at the very time French Union force were stretched thin elsewhere. In April 1954, several Viet Minh battalions crossed the border into Cambodia. Royalist forces engaged them but could not force their complete withdrawal. In part, the communists were attempting to strengthen their bargaining position at the Geneva Conference that had been scheduled to begin in late April.
The Geneva Conference was attended by representatives of Cambodia, North Vietnam, the Associated State of Vietnam (the predecessor of the Republic of Vietnam, or South Vietnam), Laos, the People's Republic of China, the Soviet Union, France, Britain, and the United States. One goal of the conference was to restore a lasting peace in Indochina. The discussions on Indochina began on May 8, 1954. The North Vietnamese attempted to get representation for the resistance government that had been established in the south, but failed. On July 21, 1954, the conference reached an agreement calling for a cessation of hostilities in Indochina. With respect to Cambodia, the agreement stipulated that all Viet Minh military forces be withdrawn within ninety days and that Cambodian resistance forces be demobilized within thirty days. In a separate agreement signed by the Cambodian representative, the French and the Viet Minh agreed to withdraw all forces from Cambodian soil by October 1954.
In exchange for the withdrawal of Viet Minh forces, the communist representatives in Geneva wanted full neutrality for Cambodia and for Laos that would prevent the basing of United States military forces in these countries. On the eve of the conference's conclusion, however, the Cambodian representative, Sam Sary, insisted that, if Cambodia were to be genuinely independent, it must not be prohibited from seeking whatever military assistance it desired (Cambodia had earlier appealed to Washington for military aid). The conference accepted this point over North Vietnam's strenuous objections. In the final agreement, Cambodia accepted a watered-down neutrality, vowing not to join any military alliance "not in conformity with the principles of the Charter of the United Nations" or to allow the basing of foreign military forces on its territory "as long as its security is not threatened."
The conference agreement established the International Control Commission (officially called the International Commission for Supervision and Control) in all the Indochinese countries. Made up of representatives from Canada, Poland, and India, it supervised the cease-fire, the withdrawal of foreign troops, the release of prisoners of war, and overall compliance with the terms of the agreement. The French and most of the Viet Minh forces were withdrawn on schedule in October 1954.
The Geneva agreement also stipulated that general elections should be held in Cambodia during 1955 and that the International Control Commission should monitor them to ensure fairness. Sihanouk was more determined than ever to defeat the Democrats (who, on the basis of their past record, were expected to win the election). The king attempted unsuccessfully to have the constitution amended. On March 2, 1955, he announced his abdication in favor of his father, Norodom Suramarit. Assuming the title of samdech (prince), Sihanouk explained that this action was necessary in order to give him a free hand to engage in politics.
To challenge the Democrats, Prince Sihanouk established his own political machine, the oddly named Sangkum Reastr Niyum (Popular Socialist Community), commonly referred to as the Sangkum. The name is odd because its most important components were right-wing parties that were virulently anticommunist. The Sangkum's emergence in early 1955 unified most right-wing groups under the prince's auspices. In the September election, Sihanouk's new party decisively defeated the Democrats, the Khmer Independence Party of Son Ngoc Thanh, and the leftist Pracheachon (Citizens') Party, winning 83 percent of the vote and all of the seats in the National Assembly.
Khmer nationalism, loyalty to the monarch, struggle against injustice and corruption, and protection of the Buddhist religion were major themes in Sangkum ideology. The party adopted a particularly conservative interpretation of Buddhism, common in the Theravada countries of Southeast Asia, that the social and economic inequalities among people were legitimate because of the workings of karma. For the poorer classes, virtuous and obedient conduct opened up the possibility of being born into a higher station in a future life. The appeal to religion won the allegiance of the country's many Buddhist priests, who were a particularly influential group in rural villages.
As the 1960s began, organized political opposition to Sihanouk and the Sangkum virtually had disappeared. According to Vickery, the Democratic Party disbanded in 1957 after its leaders--who had been beaten by soldiers--requested the privilege of joining the Sangkum.
Despite its defense of the status quo, especially the interests of rural elites, the Sangkum was not an exclusively right-wing organization. Sihanouk included a number of leftists in his party and government. Among these were future leaders of the Khmer Rouge. Hu Nim and Hou Yuon served in several ministries between 1958 and 1963, and Khieu Samphan served briefly as secretary of state for commerce in 1963.
Sihanouk's attitude toward the left was paradoxical. He often declared that if he had not been a prince, he would have become a revolutionary. Sihanouk's chronic suspicion of United States intentions in the region, his perception of revolutionary China as Cambodia's most valuable ally, his respect for such prominent and capable leftists as Hou, Hu, and Khieu, and his vague notions of "royal socialism" all impelled him to experiment with socialist policies. In 1963 the prince announced the nationalization of banking, foreign trade, and insurance as a means of reducing foreign control of the economy. In 1964 a state trading company, the National Export-Import Corporation, was established to handle foreign commerce. The declared purposes of nationalization were to give Khmer nationals, rather than Chinese or Vietnamese, a greater role in the nation's trade, to eliminate middlemen and to conserve foreign exchange through the limiting of unnecessary luxury imports. As a result of this policy, foreign investment quickly disappeared, and a kind of "crony socialism" emerged somewhat similar to the "crony capitalism" that evolved in the Philippines under President Ferdinand Marcos. Lucrative state monopolies were parceled out to Sihanouk's most loyal retainers, who "milked" them for cash.
Sihanouk was headed steadily for a collision with the right. To counter charges of one-man rule, the prince declared that he would relinquish control of candidate selection and would permit more than one Sangkum candidate to run for each seat in the September 1966 National Assembly election. The returns showed a surprising upsurge in the conservative vote at the expense of more moderate and left-wing elements, although Hou, Hu, and Khieu were reelected by their constituencies. General Lon Nol became prime minister.
Out of concern that the right wing might cause an irreparable split within the Sangkum and might challenge his domination of the political system, Sihanouk set up a "counter government" (like the British "shadow cabinet") packed with his most loyal personal followers and with leading leftists, hoping that it would exert a restraining influence on Lon Nol. Leftists accused the general of being groomed by Western intelligence agencies to lead a bloody anticommunist coup d'état similar to that of General Soeharto in Indonesia. Injured in an automobile accident, Lon Nol resigned in April 1967. Sihanouk replaced him with a trusted centrist, Son Sann. This was the twenty-third successive Sangkum cabinet and government to have been appointed by Sihanouk since the party was formed in 1955.
Sihanouk's nonaligned foreign policy, which emerged in the months following the Geneva Conference, cannot be understood without reference to Cambodia's past history of foreign subjugation and its very uncertain prospects for survival as the war between North Vietnam and South Vietnam intensified. Soon after the 1954 Geneva Conference, Sihanouk expressed some interest in integrating Cambodia into the framework of the Southeast Asia Treaty Organization (SEATO), which included Cambodia, Laos, and South Vietnam within the "treaty area," although none of these states was a signatory. But meetings in late 1954 with India's Prime Minister Jawaharlal Nehru and Burma's Premier U Nu made him receptive to the appeal of nonalignment. Moreover, the prince was somewhat uneasy about a United States-dominated alliance that included one old enemy, Thailand, and encompassed another, South Vietnam, each of which offered sanctuary to anti-Sihanouk dissidents.
At the Bandung Conference in April 1955, Sihanouk held private meetings with Premier Zhou Enlai of China and Foreign Minister Pham Van Dong of North Vietnam. Both assured him that their countries would respect Cambodia's independence and territorial integrity. His experience with the French, first as a client, then as the self-proclaimed leader of the "royal crusade for independence," apparently led him to conclude that the United States, like France, would eventually be forced to leave Southeast Asia. From this perspective, the Western presence in Indochina was only a temporary interruption of the dynamics of the region--continued Vietnamese (and perhaps even Thai) expansion at Cambodia's expense. Accommodation with North Vietnam and friendly ties with China during the late 1950s and the 1960s were tactics designed to counteract these dynamics. China accepted Sihanouk's overtures and became a valuable counterweight to growing Vietnamese and Thai pressure on Cambodia.
Cambodia's relations with China were based on mutual interests. Sihanouk hoped that China would restrain the Vietnamese and the Thai from acting to Cambodia's detriment. The Chinese, in turn, viewed Cambodia's nonalignment as vital in order to prevent the encirclement of their country by the United States and its allies. When Premier Zhou Enlai visited Phnom Penh in 1956, he asked the country's Chinese minority, numbering about 300,000, to cooperate in Cambodia's development, to stay out of politics, and to consider adopting Cambodian citizenship. This gesture helped to resolve a sensitive issue--the loyalty of Cambodian Chinese--that had troubled the relationship between Phnom Penh and Beijing. In 1960 the two countries signed a Treaty of Friendship and Nonaggression. After the Sino-Soviet rift Sihanouk's ardent friendship with China contributed to generally cooler ties with Moscow.
China was not the only large power to which Sihanouk looked for patronage, however. Cambodia's quest for security and nation- building assistance impelled the prince to search beyond Asia and to accept help from all donors as long as there was no impingement upon his country's sovereignty. With this end in mind, Sihanouk turned to the United States in 1955 and negotiated a military aid agreement that secured funds and equipment for the Royal Khmer Armed Forces (Forces Armées Royales Khmères--FARK). A United States Military Assistance Advisory Group (MAAG) was established in Phnom Penh to supervise the delivery and the use of equipment that began to arrive from the United States. By the early 1960s, aid from Washington constituted 30 percent of Cambodia's defense budget and 14 percent of total budget inflows.
Relations with the United States, however, proved to be stormy. United States officials both in Washington and in Phnom Penh frequently underestimated the prince and considered him to be an erratic figure with minimal understanding of the threat posed by Asian communism. Sihanouk easily reciprocated this mistrust because several developments aroused his suspicion of United States intentions toward his country.
One of these developments was the growing United States influence within the Cambodian armed forces. The processing of equipment deliveries and the training of Cambodian personnel had forged close ties between United States military advisers and their Cambodian counterparts. Military officers of both nations also shared apprehensions about the spread of communism in Southeast Asia. Sihanouk considered FARK to be Washington's most powerful constituency in his country. The prince also feared that a number of high-ranking, rightist FARK officers led by Lon Nol were becoming too powerful and that, by association with these officers, United States influence in Cambodia was becoming too deeply rooted.
A second development included the repetition of overflights by United States and South Vietnamese military aircraft within Cambodian airspace and border incursions by South Vietnamese troops in hot pursuit of Viet Cong insurgents who crossed into Cambodian territory when military pressure upon them became too sustained. As the early 1960s wore on, this increasingly sensitive issue contributed to the deterioration of relations between Phnom Penh and Washington.
A third development was Sihanouk's own belief that he had been targeted by United States intelligence agencies for replacement by a more pro-Western leader. Evidence to support this suspicion came to light in 1959 when the government discovered a plot to overthrow Sihanouk. The conspiracy involved several Khmer leaders suspected of American connections. Among them were Sam Sary, a leader of right-wing Khmer Serei troops in South Vietnam; Son Ngoc Thanh, the early nationalist leader once exiled into Thailand; and Dap Chhuon, the military governor of Siemreab Province. Another alleged plot involved Dap Chuon's establishment of a "free" state that would have included Siemreab Province and Kampong Thum (Kampong Thom) Province and the southern areas of Laos that were controlled by the rightist Laotian prince, Boun Oum.
These developments, magnified by Sihanouk's abiding suspicions, eventually undermined Phnom Penh's relations with Washington. In November 1963, the prince charged that the United States was continuing to support the subversive activities of the Khmer Serei in Thailand and in South Vietnam, and he announced the immediate termination of Washington's aid program to Cambodia. Relations continued to deteriorate, and the final break came in May 1965 amid increasing indications of airspace violations by South Vietnamese and by United States aircraft and of ground fighting between Army of the Republic of Vietnam (ARVN) troops and Viet Cong insurgents in the Cambodian border areas.
In the meantime, Cambodia's relations with North Vietnam and with South Vietnam, as well as the rupture with Washington, reflected Sihanouk's efforts to adjust to geopolitical realities in Southeast Asia and to keep his country out of the escalating conflict in neighboring South Vietnam. In the early to mid-1960s, this effort required a tilt toward Hanoi because the government in Saigon tottered on the brink of anarchy. In the cities, the administration of Ngo Dinh Diem and the military regimes that succeeded it had become increasingly ineffectual and unstable, while in the countryside the government forces were steadily losing ground to the Hanoi-backed insurgents. To observers in Phnom Penh, South Vietnam's short-term viability was seriously in doubt, and this compelled a new tack in Cambodian foreign policy. First, Cambodia severed diplomatic ties with Saigon in August 1963. The following March, Sihanouk announced plans to establish diplomatic relations with North Vietnam and to negotiate a border settlement directly with Hanoi. These plans were not implemented quickly, however, because the North Vietnamese told the prince that any problem concerning Cambodia's border with South Vietnam would have to be negotiated directly with the National Front for the Liberation of South Vietnam (NFLSVN). Cambodia opened border talks with the front in mid-1966, and the latter recognized the inviolability of Cambodia's borders a year later. North Vietnam quickly followed suit. Cambodia was the first foreign government to recognize the NFLSVN's Provisional Revolutionary Government after it was established in June 1969. Sihanouk was the only foreign head of state to attend the funeral of Ho Chi Minh, North Vietnam's deceased leader, in Hanoi three months later.
In the late 1960s, while preserving relations with China and with North Vietnam, Sihanouk sought to restore a measure of equilibrium by improving Cambodia's ties with the West. This shift in course by the prince represented another adjustment to prevailing conditions in Southeast Asia. North Vietnamese and Viet Cong forces were increasing their use of sanctuaries in Cambodia, which also served as the southern terminus of the Ho Chi Minh Trail, their logistical resupply route originating in North Vietnam. Cambodian neutrality in the conflict thus was eroding, and China, preoccupied with its Cultural Revolution, did not intercede with Hanoi. On Cambodia's eastern border, South Vietnam, surprisingly, had not collapsed, even in the face of the communist Tet Offensive in 1968, and President Nguyen Van Thieu's government was bringing a measure of stability to the war-ravaged country. As the government in Phnom Penh began to feel keenly the loss of economic and military aid from the United States, which had totaled about US$400 million between 1955 and 1963, it began to have second thoughts about the rupture with Washington. The unavailability of American equipment and spare parts was exacerbated by the poor quality and the small numbers of Soviet, Chinese, and French substitutes.
In late 1967 and in early 1968, Sihanouk signaled that he would raise no objection to hot pursuit of communist forces by South Vietnamese or by United States troops into Cambodian territory. Washington, in the meantime, accepted the recommendation of the United States Military Assistance Command--Vietnam (MACV) and, beginning in March 1969, ordered a series of airstrikes (dubbed the Menu series) against Cambodian sanctuaries used by the North Vietnamese and the Viet Cong. Whether or not these bombing missions were authorized aroused considerable controversy, and assertions by the Nixon administration that Sihanouk had "allowed" or even "encouraged" them were disputed by critics such as British journalist William Shawcross. On a diplomatic level, however, the Menu airstrikes did not impede bilateral relations from moving forward. In April 1969, Nixon sent a note to the prince affirming that the United States recognized and respected "the sovereignty, neutrality and territorial integrity of the Kingdom of Cambodia with its present frontiers." Shortly thereafter, in June 1969, full diplomatic relations were restored between Phnom Penh and Washington.
The history of the communist movement in Cambodia can be divided into six phases: the emergence of the Indochinese Communist Party (ICP), whose members were almost exclusively Vietnamese, before World War II; the ten-year struggle for independence from the French, when a separate Cambodian communist party, the Kampuchean (or Khmer) People's Revolutionary Party (KPRP), was established under Vietnamese auspices; the period following the Second Party Congress of the KPRP in 1960, when Saloth Sar (Pol Pot after 1976) and other future Khmer Rouge leaders gained control of its apparatus; the revolutionary struggle from the initiation of the Khmer Rouge insurgency in 1967-68 to the fall of the Lon Nol government in April 1975; the Democratic Kampuchea regime, from April 1975 to January 1979; and the period following the Third Party Congress of the KPRP in January 1979, when Hanoi effectively assumed control over Cambodia's government and communist party.
Much of the movement's history has been shrouded in mystery, largely because successive purges, especially during the Democratic Kampuchea period, have left so few survivors to recount their experiences. One thing is evident, however, the tension between Khmer and Vietnamese was a major theme in the movement's development. In the three decades between the end of World War II and the Khmer Rouge victory, the appeal of communism to Westerneducated intellectuals (and to a lesser extent its more inchoate attraction for poor peasants) was tempered by the apprehension that the much stronger Vietnamese movement was using communism as an ideological rationale for dominating the Khmer. The analogy between the Vietnamese communists and the Nguyen dynasty, which had legitimized its encroachments in the nineteenth century in terms of the "civilizing mission" of Confucianism, was persuasive. Thus, the new brand of indigenous communism that emerged after 1960 combined nationalist and revolutionary appeals and, when it could afford to, exploited the virulent anti-Vietnamese sentiments of the Khmers. Khmer Rouge literature in the 1970s frequently referred to the Vietnamese as yuon (barbarian), a term dating from the Angkorian period.
In 1930 Ho Chi Minh founded the Vietnamese Communist Party by unifying three smaller communist movements that had emerged in Tonkin, in Annam, and in Cochinchina during the late 1920s. The name was changed almost immediately to the ICP, ostensibly to include revolutionaries from Cambodia and Laos. Almost without exception, however, all the earliest party members were Vietnamese. By the end of World War II, a handful of Cambodians had joined its ranks, but their influence on the Indochinese communist movement and on developments within Cambodia was negligible.
Viet Minh units occasionally made forays into Cambodia bases during their war against the French, and, in conjunction with the leftist government that ruled Thailand until 1947, the Viet Minh encouraged the formation of armed, left-wing Khmer Issarak bands. On April 17, 1950 (twenty-five years to the day before the Khmer Rouge captured Phnom Penh), the first nationwide congress of the Khmer Issarak groups convened, and the United Issarak Front was established. Its leader was Son Ngoc Minh (possibly a brother of the nationalist Son Ngoc Thanh), and a third of its leadership consisted of members of the ICP. According to the historian David P. Chandler, the leftist Issarak groups, aided by the Viet Minh, occupied a sixth of Cambodia's territory by 1952; and, on the eve of the Geneva Conference, they controlled as much as one half of the country.
In 1951 the ICP was reorganized into three national units--the Vietnam Workers' Party, the Lao Itsala, and the KPRP. According to a document issued after the reorganization, the Vietnam Workers' Party would continue to "supervise" the smaller Laotian and Cambodian movements. Most KPRP leaders and rank-and-file seem to have been either Khmer Krom, or ethnic Vietnamese living in Cambodia. The party's appeal to indigenous Khmers appears to have been minimal.
According to Democratic Kampuchea's version of party history, the Viet Minh's failure to negotiate a political role for the KPRP at the 1954 Geneva Conference represented a betrayal of the Cambodian movement, which still controlled large areas of the countryside and which commanded at least 5,000 armed men. Following the conference, about 1,000 members of the KPRP, including Son Ngoc Minh, made a "Long March" into North Vietnam, where they remained in exile. In late 1954, those who stayed in Cambodia founded a legal political party, the Pracheachon Party, which participated in the 1955 and the 1958 National Assembly elections. In the September 1955 election, it won about 4 percent of the vote but did not secure a seat in the legislature. Members of the Pracheachon were subject to constant harassment and to arrests because the party remained outside Sihanouk's Sangkum. Government attacks prevented it from participating in the 1962 election and drove it underground. Sihanouk habitually labeled local leftists the Khmer Rouge, a term that later came to signify the party and the state headed by Pol Pot, Ieng Sary, Khieu Samphan, and their associates.
During the mid-1950s, KPRP factions, the "urban committee" (headed by Tou Samouth), and the "rural committee" (headed by Sieu Heng), emerged. In very general terms, these groups espoused divergent revolutionary lines. The prevalent "urban" line, endorsed by North Vietnam, recognized that Sihanouk, by virtue of his success in winning independence from the French, was a genuine national leader whose neutralism and deep distrust of the United States made him a valuable asset in Hanoi's struggle to "liberate" South Vietnam. Champions of this line hoped that the prince could be persuaded to distance himself from the right wing and to adopt leftist policies. The other line, supported for the most part by rural cadres who were familiar with the harsh realities of the countryside, advocated an immediate struggle to overthrow the "feudalist" Sihanouk. In 1959 Sieu Heng defected to the government and provided the security forces with information that enabled them to destroy as much as 90 percent of the party's rural apparatus. Although communist networks in Phnom Penh and in other towns under Tou Samouth's jurisdiction fared better, only a few hundred communists remained active in the country by 1960.
During the 1950s, Khmer students in Paris organized their own communist movement, which had little, if any, connection to the hard-pressed party in their homeland. From their ranks came the men and women who returned home and took command of the party apparatus during the 1960s, led an effective insurgency against Sihanouk and Lon Nol from 1968 until 1975, and established the regime of Democratic Kampuchea.
Pol Pot, who rose to the leadership of the communist movement in the 1960s, was born in 1928 (some sources say in 1925) in Kampong Thum Province, north of Phnom Penh. He attended a technical high school in the capital and then went to Paris in 1949 to study radio electronics (other sources say he attended a school for printers and typesetters and also studied civil engineering). Described by one source as a "determined, rather plodding organizer," he failed to obtain a degree, but, according to the Jesuit priest, Father François Ponchaud, he acquired a taste for the classics of French literature as well as for the writings of Marx.
Another member of the Paris student group was Ieng Sary. He was a Chinese-Khmer born in 1930 in South Vietnam. He attended the elite Lycée Sisowath in Phnom Penh before beginning courses in commerce and politics at the Institut d'Etudes Politiques in France. Khieu Samphan, considered "one of the most brilliant intellects of his generation," was born in 1931 and specialized in economics and politics during his time in Paris. In talent he was rivaled by Hou Yuon, born in 1930, who was described as being "of truly astounding physical and intellectual strength," and who studied economics and law. Son Sen, born in 1930, studied education and literature; Hu Nim, born in 1932, studied law.
These men were perhaps the most educated leaders in the history of Asian communism. Two of them, Khieu Samphan and Hou Yuon, earned doctorates from the University of Paris; Hu Nim obtained his degree from the University of Phnom Penh in 1965. In retrospect, it seems enigmatic that these talented members of the elite, sent to France on government scholarships, could launch the bloodiest and most radical revolution in modern Asian history. Most came from landowner or civil servant families. Pol Pot and Hou Yuon may have been related to the royal family. An older sister of Pol Pot had been a concubine at the court of King Monivong. Three of the Paris group forged a bond that survived years of revolutionary struggle and intraparty strife, Pol Pot and Ieng Sary married Khieu Ponnary and Khieu Thirith (also known as Ieng Thirith), purportedly relatives of Khieu Samphan. These two well-educated women also played a central role in the regime of Democratic Kampuchea.
The intellectual ferment of Paris must have been a dizzying experience for young Khmers fresh from Phnom Penh or the provinces. A number sought refuge in the dogma of orthodox Marxism-Leninism. At some time between 1949 and 1951, Pol Pot and Ieng Sary joined the French Communist Party, the most tightly disciplined and Stalinist of Western Europe's communist movements. In 1951 the two men went to East Berlin to participate in a youth festival. This experience is considered to have been a turning point in their ideological development. Meeting with Khmers who were fighting with the Viet Minh (and whom they subsequently judged to be too subservient to the Vietnamese), they became convinced that only a tightly disciplined party organization and a readiness for armed struggle could achieve revolution. They transformed the Khmer Students' Association (KSA), to which most of the 200 or so Khmer students in Paris belonged, into a platform for nationalist and leftist ideas. In 1952 Pol Pot, Hou Yuon, Ieng Sary, and other leftists gained notoriety by sending an open letter to Sihanouk calling him the "strangler of infant democracy." A year later, the French authorities closed down the KSA. In 1956, however, Hou Yuon and Khieu Samphan helped to establish a new Marxist-oriented group, the Khmer Students' Union.
The doctoral dissertations written by Hou Yuon and Khieu Samphan express basic themes that were later to become the cornerstones of the policy adopted by Democratic Kampuchea. The central role of the peasants in national development was espoused by Hou Yuon in his 1955 thesis, "The Cambodian Peasants and Their Prospects for Modernization," which challenged the conventional view that urbanization and industrialization are necessary precursors of development. The major argument in Khieu Samphan's 1959 thesis, "Cambodia's Economy and Industrial Development," was that the country had to become self-reliant and had to end its economic dependency on the developed world. In its general contours, Khieu's work reflected the influence of a branch of the "dependency theory" school, which blamed lack of development in the Third World on the economic domination of the industrialized nations.
After returning to Cambodia in 1953, Pol Pot threw himself into party work first in Kampong Cham Province (Kompong Cham) and then in Phnom Penh under Tou Samouth's "urban committee." His comrades, Ieng Sary and Hou Yuon, became teachers at a new private high school, the Lycée Kambuboth, which Hou Yuon helped to establish. Khieu Samphan returned from Paris in 1959, taught as a member of the law faculty of the University of Phnom Penh, and started a left-wing, French-language publication, L'Observateur. The paper soon acquired a reputation in Phnom Penh's small academic circle. The following year, the government closed the paper, and Sihanouk's police publicly humiliated Khieu by undressing and photographing him in public--as Shawcross notes, "not the sort of humiliation that men forgive or forget." Yet the experience did not prevent Khieu from advocating cooperation with Sihanouk in order to promote a united front against United States activities in South Vietnam. As mentioned, Khieu Samphan, Hou Yuon, and Hu Nim tried to "work through the system" by joining the Sangkum and by accepting posts in the prince's government. Hardliners like Pol Pot, Ieng Sary, and Son Sen advocated resistance.
In late September, 1960, twenty-one leaders of the KPRP held a secret congress in a vacant room of the Phnom Penh railroad station. This pivotal event remains shrouded in mystery because its outcome has become an object of contention (and considerable historical rewriting) between pro-Vietnamese and anti-Vietnamese Khmer communist factions. The question of cooperation with, or resistance to, Sihanouk was thoroughly discussed. Tou Samouth, who advocated a policy of cooperation, was elected general secretary of the KPRP that was renamed the Workers' Party of Kampuchea (WPK). His ally, Nuon Chea (also known as Long Reth), became deputy general secretary; however, Pol Pot and Ieng Sary were named to the Political Bureau to occupy the third and the fifth highest positions in the renamed party's hierarchy. The name change is significant. By calling itself a workers' party, the Cambodian movement claimed equal status with the Vietnam Workers' Party. The pro-Vietnamese regime of the People's Republic of Kampuchea (PRK) implied in the 1980s that the September 1960 meeting was nothing more than the second congress of the KPRP.
On July 20, 1962, Tou Samouth disappeared. He may have been the victim of Sihanouk's police, but some observers suggest that Pol Pot, who had built up a strong faction within the party, had him eliminated. In February 1963, at the WPK's second congress, Pol Pot was chosen to succeed Tou Samouth as the party's general secretary. Tou's allies, Nuon Chea and Keo Meas, were removed from the Central Committee and replaced by Son Sen and Vorn Vet. From then on, Pol Pot and loyal comrades from his Paris student days controlled the party center, edging out older veterans whom they considered excessively pro-Vietnamese.
In July 1963, Pol Pot and most of the central committee left Phnom Penh to establish an insurgent base in Rotanokiri (Ratanakiri) Province in the northeast. This is a region inhabited by tribal minorities, the Khmer Loeu, whose rough treatment (including resettlement and forced assimilation) at the hands of the central government made them willing recruits for a guerrilla struggle. In 1965 Pol Pot made a visit of several months duration to North Vietnam and China. He probably received some training in China, which must have enhanced his prestige when he returned to the WPK's liberated areas. Despite friendly relations between Sihanouk and the Chinese, the latter kept Pol Pot's visit a secret from Sihanouk. In September 1966, the party changed its name a second time, to the Kampuchean (or Khmer) Communist Party (KCP). Adopting the label "communist" suggested that the Cambodian movement was more advanced than Vietnam's (which was merely a "workers' party"), and was on the same level as China's.
By the mid-1960s, Sihanouk's delicate balancing act was beginning to go awry. Regionally, the presence of large-scale North Vietnamese and Viet Cong logistical bases on Cambodian territory and the use of Kampong Saom (then Sihanoukville) as a port of disembarkation for supplies being sent to communist troops, as well as the covert intelligence-gathering, sabotage missions, and overflights by South Vietnamese and United States teams had made a sham of Cambodian neutrality. Domestically, Sihanouk's sporadic harassment of the leftists and the withdrawal of his endorsement from all candidates in the 1966 elections cost the radicals their chance for victory and alienated them from the prince as well. Sihanouk also lost the support of the rightists by his failure to come to grips with the deteriorating economic situation in the country and with the growing North Vietnamese and Viet Cong military presence in Cambodia. In addition to these regional developments and the clash of interests among Phnom Penh's politicized elite, social tensions also were creating a favorable environment for the growth of a domestic communist insurgency in the rural areas.
In early 1967, an insurrection broke out in the area around Samlot in Batdambang, a province long noted for the presence of large landowners and great disparities of wealth. Local resentment focused on tax collections and on the decision of the revenuestarved government to expropriate land to build a sugar refinery near Samlot. In January 1967, irate villagers attacked a tax collection brigade--an incident that recalled the 1925 murder of the French resident in the area. With the probable encouragement of local communist cadres, the insurrection quickly spread through the whole region. Sihanouk was on one of his frequent sojourns in France, and Lon Nol, the prime minister, responded harshly. After returning home in March 1967, Sihanouk personally supervised counterinsurgency measures. He later mentioned, in an offhand way, that the effectiveness of the royal armed forces had restored the peace but that approximately 10,000 people had died.
The insurgency was not suppressed completely. It spread rapidly from Batdambang to the southern and to the southwestern provinces of Pouthisat (Pursat), Kampong Chhnang (Kompong Chang), Kampong Cham, Kampong Spoe (Kompong Speu), Kampot, and the central province of Kampong Thum. By the end of 1968, unrest was reported in eleven of the country's eighteen provinces. The Khmer Loeu regions of Mondol Kiri (Mondolkiri) Province and Rotanokiri Province fell almost entirely under KCP control by the end of the decade.
In January 1968, the communists established the Revolutionary Army of Kampuchea (RAK). During Sihanouk's last two years in power, the RAK obtained minimal assistance from the North Vietnamese, the Viet Cong, and the Chinese. Although North Vietnam had established a special unit in 1966 to train the Cambodian communists, it was extremely reluctant to alienate Sihanouk at a time when vital supplies were passing through the port of Kampong Saom and along the Ho Chi Minh Trail to the Viet Cong bases along the CambodiaVietnam border. Beijing and Moscow also were providing Sihanouk with arms, many of which were being used against the insurgents. The indifference of the world communist movement to the Cambodian struggle from 1967 to 1969 made a permanent impression on Pol Pot and other Khmer Rouge leaders.
Sihanouk was away on a trip to Moscow and Beijing when General Lon Nol launched a successful coup d'état. On the morning of March 18, 1970, the National Assembly was hastily convened, and voted unanimously to depose Sihanouk as head of state. Lon Nol, who had been serving as prime minister, was granted emergency powers. Sirik Matak, an ultraconservative royal prince who in 1941 had been passed over by the French in favor of his cousin Norodom Sihanouk as king, retained his post as deputy prime minister. The new government emphasized that the transfer of power had been totally legal and constitutional, and it received the recognition of most foreign governments.
Most middle-class and educated Khmers in Phnom Penh had grown weary of Sihanouk and apparently welcomed the change of government. But he was still popular in the villages. Days after the coup, the prince, now in Beijing, broadcast an appeal to the people to resist the usurpers. Demonstrations and riots occurred throughout the country. In one incident on March 29, an estimated 40,000 peasants began a march on the capital to demand Sihanouk's reinstatement. They were dispersed, with many casualties, by contingents of the armed forces and the Khmer Serei.
From Beijing, Sihanouk proclaimed his intention to create a National United Front of Kampuchea (Front Uni National du Kampuchéa, FUNK). In the prince's words, this front would embrace "all Khmer both inside and outside the country-- including the faithful, religious people, military men, civilians, and men and women who cherish the ideals of independence, democracy, neutrality, progressivism, socialism, Buddhism, nationalism, territorial integrity, and anti-imperialism." A coalition, brokered by the Chinese, was hastily formed between the prince and the KCP. On May 5, 1970, the actual establishment of FUNK and of the Royal Government of National Union of Kampuchea (Gouvernement Royal d'Union Nationale du Kampuchéa, GRUNK, were announced. Sihanouk assumed the post of GRUNK head of state, appointing Penn Nouth, one of his most loyal supporters, as prime minister. Khieu Samphan was designated deputy prime minister, minister of defense, and commander in chief of the GRUNK armed forces (though actual military operations were directed by Pol Pot). Hu Nim became minister of information, and Hou Yuon assumed multiple responsibilities as minister of interior, communal reforms, and cooperatives. GRUNK claimed that it was not a government-in-exile because Khieu Samphan and the insurgents remained inside Cambodia.
For Sihanouk and the KCP, this was an extremely useful marriage of convenience. Peasants, motivated by loyalty to the monarchy, rallied to the FUNK cause. The appeal of the Sihanouk-KCP coalition grew immensely after October 9, 1970, when Lon Nol abolished the monarchy and redesignated Cambodia as the Khmer Republic. The concept of a republic was not popular with most villagers, who had grown up with the idea that something was seriously awry in a Cambodia without a monarch.
GRUNK operated on two tiers. Sihanouk and his loyalists remained in Beijing, although the prince did make a visit to the "liberated areas" of Cambodia, including Angkor Wat, in March 1973. The KCP commanded the insurgency within the country. Gradually, the prince was deprived of everything but a passive, figurehead role in the coalition. The KCP told people inside Cambodia that expressions of support for Sihanouk would result in their liquidation, and when the prince appeared in public overseas to publicize the GRUNK cause, he was treated with almost open contempt by Ieng Sary and Khieu Samphan. In June 1973, the prince told the Italian journalist Oriana Fallaci that when "they [the Khmer Rouge] no longer need me, they will spit me out like a cherry pit!" By the end of that year, Sihanouk loyalists had been purged from all of GRUNK's ministries.
The 1970 coup d'état that toppled Sihanouk dragged Cambodia into the vortex of a wider war. The escalating conflict pitted government troops, now renamed the Khmer National Armed Forces (Forces Armées Nationales Khmères, FANK), initially against the North Vietnamese and the Viet Cong, and subsequently against the old RAK, now revitalized and renamed the Cambodian People's National Liberation Armed Forces (CPNLAF).
As combat operations quickly disclosed, the two sides were mismatched. The inequality lay not so much in sheer numbers. Thousands of young urban Cambodians flocked to join FANK in the months following the coup and, throughout its five-year life, the republican government forces held a numerical edge over their opponents, the padded payrolls and the phantom units reported in the press notwithstanding. Instead, FANK was outclassed in training and leadership. With the surge of recruits, the government forces expanded beyond their capacity to absorb the new inductees. Later, given the press of tactical operations and the need to replace combat casualties, there was insufficient time to impart needed skills to individuals or to units, and lack of training remained the bane of FANK's existence until its collapse. While individual soldiers and some government units fought bravely, their leaders-- with notable exceptions--were both corrupt and incompetent. Arrayed against an armed force of such limited capability was arguably the best light infantry in the world at the time--the North Vietnamese and the Viet Cong. And when there forces were supplanted, it was by the tough, rigidly indoctrinated peasant army of the CPNLAF with its core of Khmer Rouge leaders.
With the fall of Sihanouk, the North Vietnamese and the Viet Cong became alarmed at the prospect of a pro-Western regime that might allow the United States to establish a military presence on their western flank. To prevent this from happening, they began transferring their military installations away from the border area to locations deeper within Cambodian territory. A new command center was established at the city of Kracheh (Kratié). On April 29, 1970, South Vietnamese and United States units unleashed a multi-pronged offensive into Cambodia to destroy the Central Office for South Vietnam (COSVN), the headquarters for North Vietnamese and Viet Cong combat operations in South Vietnam. Extensive logistical installations and large amounts of supplies were found and destroyed, but as reporting from the United States MACV subsequently disclosed, still larger amounts of material already had been moved deeper into Cambodia.
The North Vietnamese army turned on the republican government forces, and by June 1970, three months after the coup, they and the CPNLAF had swept FANK from the entire northeastern third of the country. After defeating the government forces, they turned newly won territories over to the local insurgents. The Khmer Rouge also established "liberated areas" in the south and the southwestern parts of the country, where they operated independently of the Vietnamese. The KCP's debt to the North Vietnamese after March 1970 was one that Pol Pot was loath to acknowledge; however, it is clear that without North Vietnamese and Viet Cong assistance, the revolutionary struggle would have dragged on much longer than it did.
United States bombing of enemy troop dispositions in Cambodia-- particularly in the summer of 1973, when intense aerial bombardment (known as Arclight) was used to halt a Khmer Rouge assault on Phnom Penh--bought time for the Lon Nol government, but did not stem the momentum of the communist forces. United States official documents give a figure of 79,959 sorties by B-52 and F-111 aircraft over the country, during which a total of 539,129 tons of ordnance were dropped, about 350 percent of the tonnage (153,000 tons) dropped on Japan during World War II. Many of the bombs that fell in Cambodia struck relatively uninhabited mountain or forest regions; however, as declassified United States Air Force maps show, others fell over some of the most densely inhabited areas of the country, such as Siemreab Province, Kampong Chhnang Province, and the countryside around Phnom Penh. Deaths from the bombing are extremely difficult to estimate, and figures range from a low of 30,000 to a high of 500,000. Whatever the real extent of the casualties, the Arclight missions over Cambodia, which were halted in August 15, 1973, by the United States Congress, delivered shattering blows to the structure of life in many of the country's villages, and, according to some critics, drove the Cambodian people into the arms of the Khmer Rouge.
The bombing was by far the most controversial aspect of the United States presence in Cambodia. In his book Sideshow, William Shawcross provides a vivid image of the hellish conditions, especially in the months of January to August 1973, when the Arclight sorties were most intense. He claims that the bombing contributed to the forging of a brutal and singlemindedly fanatical Khmer Rouge movement. However, his arguments have been disputed by several United States officials--including the former ambassador to Cambodia, Emory C. Swank, and the former Air Force commander in Thailand, General John W. Vogt--in an appendix to the second volume of the memoirs of then Secretary of State, Henry Kissinger.
From the Khmer Rouge perspective, however, the severity of the bombings was matched by the treachery of the North Vietnamese. The Cambodian communists had refused to take part in the Paris peace talks. When North Vietnam and the United States signed the Paris Peace Accords on January 27, 1973, bombing missions over Vietnam and Laos were terminated. The fighter bombers and other aircraft thus released were diverted to strike Khmer Rouge positions in Cambodia.
One of the earliest accounts of life under the Khmer Rouge was written in 1973 by a school administrator, Ith Sarin, who had joined the movement after becoming disillusioned with Lon Nol and the Khmer Republic, then rose to the status of candidate member of the KCP, but left the party and returned to Phnom Penh after nine months in the underground. His work, Regrets for the Khmer Soul (in Khmer, Sranaoh Pralung Khmer), it revealed the secrecy with which the Khmer Rouge concealed the existence of the communist party, which they referred to by the sinister term Angkar Loeu (High Organization), or simply, Angkar. The KCP Central Committee was referred to as the Kena Mocchhim (or Committee Machine, mocchhim being derived from the Western term, "machine").
Territories under Angkar control were well organized. Ith Sarin described a five-level hierarchy of Angkar-controlled bodies reaching from the six areas, or phumphaek (see Glossary) into which the country was divided down to the hamlet, or phum level. The Angkar imposed a grim regime in which hatred for Lon Nol, the Americans, and, at times, the North Vietnamese "allies" was assiduously cultivated. Expressions of support for Sihanouk were firmly discouraged and people were encouraged to spy on each other. Discipline was unremittingly harsh. Ith Sarin concluded from his experience that the great majority of the people did not like the Angkar and the collective way of life it imposed, that they despaired that Sihanouk would ever return to power, and that they would support the Khmer Republic if it carried out genuine reforms. Oddly, Lon Nol's security forces banned the book for a time on the grounds that it was "pro-communist." Although this was not true, it did provide a foretaste of what the entire Cambodian population would endure after April 1975.
Disturbing stories of Khmer Rouge atrocities began to surface as the communists prepared to deal the coup de grace to the Khmer Republic. In March 1974, they captured the old capital city of Odongk north of Phnom Penh, destroyed it, dispersed its 20,000 inhabitants into the countryside, and executed the teachers and civil servants. The same year, they brutally murdered sixty people, including women and children, in a small village called Sar Sarsdam in Siemreab Province. A similar incident was reported at Ang Snuol, a town west of the capital. Other instances of what one observer, Donald Kirk, described as a "sweeping, almost cosmic policy" of indiscriminate terror, were recounted by refugees who fled to Phnom Penh or across the Thai border. Kirk contrasted this behavior with the Viet Cong's use of "a modicum of care and precision" in applying terror in South Vietnam (for instance, assassination of landlords or of South Vietnamese officials). Atrocity stories, however, were considered to be anticommunist propaganda by many, if not most, Western journalists and other observers; nevertheless, Phnom Penh's population swelled to as many as 2.5 million people as terrified refugees sought to escape not only the United States bombing and the ground fighting, but the harshness of life under the Angkar.
The Khmer Rouge initiated their dry-season offensive to capture the beleaguered Cambodian capital on January 1, 1975. Their troops controlled the banks of the Mekong River, and they were able to rig ingenious mines to sink convoys bringing relief supplies of food, fuel, and ammunition to the slowly starving city. After the river was effectively blocked in early February, the United States began airlifts of supplies. This was extremely risky because of Khmer Rouge rockets. The communists also fired rockets and shells into the city, causing many civilian deaths. Doomed units of republican soldiers dug in around the capital; many of them had run out of ammunition, and they were overrun as the Khmer Rouge advanced. American observers, who generally had little esteem for FANK officer corps, were impressed by the determination of the Khmer enlisted men to fight to the end.
On April 1, 1975, President Lon Nol resigned and left the country. His exit was prompted by fear of certain death if he fell into Khmer Rouge hands. The communists had included him among "seven traitors" who were marked for execution. (The others were non-communist, nationalist leaders Sirik Matak, Son Ngoc Thanh, In Tam, Prime Minister Long Boret, Cheng Heng, who became head of state after Sihanouk's ouster, and Sosthene Fernandez, the FANK commander in chief). Saukham Khoy became acting president of a government that had less than three weeks to live. Last-minute efforts on the part of the United States to arrange a peace agreement involving Sihanouk ended in failure. On April 12, United States embassy personnel were evacuated by helicopter. The ambassador, John Gunther Dean, invited high officials of the Khmer Republic to join them. But Sirik Matak, Long Boret, Lon Non (Lon Nol's brother), and most members of Lon Nol's cabinet declined. They chose to share the fate of their people. All were executed soon after Khmer Rouge units entered Phnom Penh on April 17, 1975.
Mid-April is the beginning of the Cambodian new year, the year's most festive celebration. For many Cambodians, the fall of Phnom Penh promised both a new year and a new era of peace. The people of Phnom Penh and of other cities waited in anticipation for the appearance of their new rulers. The troops who entered the capital on April 17 were mostly grim-faced youths clad in black with the checkered scarves that had become the uniform of the movement. Their unsmiling demeanor quickly dispelled popular enthusiasm. People began to realize that, in the eyes of the victors, the war was not over; it was just beginning, and the people were the new enemy. According to Father Ponchaud, as the sense of consternation and dread grew, it seemed that "a slab of lead had fallen on the city."
Evacuation of Phnom Penh began immediately.The black-clad troops told the residents that they would move only about "two or three kilometers" outside the city and would return in "two or three days." Other witnesses report being told that the evacuation was because of the threat of an American bombing and that they did not have to lock their houses since the Khmer Rouge would "take care of everything" until they returned. The roads out of the city were clogged with evacuees. Phnom Penh--the population of which, numbering 2.5 million people, included as many as 1.5 million wartime refugees living with relatives or in shantytowns around the urban center--was soon emptied. Similar evacuations occurred at Batdambang, Kampong Cham, Siemreab, Kampong Thum, and the country's other towns and cities.
There were no exceptions to the evacuation. Even Phnom Penh's hospitals were emptied of their patients. The Khmer Rouge provided transportation for some of the aged and the disabled, and they set up stockpiles of food outside the city for the refugees; however, the supplies were inadequate to sustain the hundreds of thousands of people on the road. Even seriously injured hospital patients, many without any means of conveyance, were summarily forced to leave regardless of their condition. According to Khieu Samphan, the evacuation of Phnom Penh's famished and disease-racked population resulted in 2,000 to 3,000 deaths, which is probably an understatement. The foreign community, about 800 persons, was quarantined in the French embassy compound, and by the end of the month the foreigners were taken by truck to the Thai border. Khmer women who were married to foreigners were allowed to accompany their husbands, but Khmer men were not permitted to leave with their foreign wives.
Promises that urban residents forced into the countryside would be allowed to return home were never kept. Instead, the town dwellers, regarded as politically unreliable "new people," were put to work in forced labor battalions throughout the country. One refugee, for example, recalled that her family was sent to the region around Moung Roessei in Batdambang Province to clear land and grow rice.
Aside from the alleged threat of United States air strikes, the Khmer Rouge justified the evacuations in terms of the impossibility of transporting sufficient food to feed an urban population of between 2 and 3 million people. Lack of adequate transportation meant that, instead of bringing food to the people (tons of it lay in storehouses in the port city of Kampong Saom, according to Father Ponchaud), the people had to be brought to (and had to grow) the food. But there were other, more basic motivations. The Khmer Rouge was determined to turn the country into a nation of peasants in which the corruption and parasitism of city life would be completely uprooted. In addition, Pol Pot wanted to break up the "enemy spy organizations" that allegedly were based in the urban areas. Finally, it seems that Pol Pot and his hard-line associates on the KCP Political Bureau used the forced evacuations to gain control of the city's population and to weaken the position of their factional rivals within the communist party. Had Phnom Penh been controlled by one of the more moderate communist leaders, the exodus might not have taken place when it did.
The regime immediately seized and executed as many Khmer Republic civil servants, police, and military officers as it could find. Evacuees who had been associated with the Lon Nol government had to feign peasant or working-class backgrounds to avoid certain death. One refugee wrote that she and her family, who came from the middle or upper middle class, dyed their city clothes black (like those of peasants) to help them escape detection. In one incident, soon after the fall of Phnom Penh, more than 300 former military officers were told to put on their dress uniforms in order to "meet Sihanouk." Instead, they were taken to a jungle clearing in Batdambang Province and were machine-gunned or clubbed to death. The wives and the children of people with government backgrounds were also killed, apparently to eliminate people who might harbor feelings of revenge toward the regime.
According to refugee accounts, the rate of killing had decreased by the summer of 1975. Some civil servants and educated people were sent to "reeducation centers" and, if they showed "genuine" contrition, were put in forced labor battalions. There were new killings, however, in late 1975 and in early 1976. Many of the victims were educated people, such as schoolteachers. During the entire Democratic Kampuchea period from 1975 to 1978, cadres exercised the power of life and death, especially over "new people," for whom threats of being struck with a pickax or an ax handle and of being "put in a plastic bag" were a part of everyday life. In order to save ammunition, firearms were rarely used. People were murdered for not working hard, for complaining about living conditions, for collecting or stealing food for their own use, for wearing jewelry, for having sexual relations, for grieving over the loss of relatives or friends, or for expressing religious sentiments. Sick people were often eliminated. The killings often, if not usually, occurred without any kind of trial, and they continued, uninterrupted, until the 1979 Vietnamese invasion. People who displeased the Angkar, or its local representatives, customarily received a formal warning (kosang) to mend their ways. More than two warnings resulted in being given an "invitation," which meant certain death. In 1977 and 1978 the violence reached a climax as the revolutionaries turned against each other in bloody purges.
Estimates of the number of people who perished under the Khmer Rouge vary tremendously. A figure of three million deaths between 1975 and 1979 was given by the Vietnamese-sponsored Phnom Penh regime, the PRK. Father Ponchaud suggested 2.3 million. Amnesty International estimated 1.4 million dead; the United States Department of State, 1.2 million. Khieu Samphan and Pol Pot, who could be expected to give underestimations, cited figures of 1 million and 800,000, respectively. In 1962 the year of the last census taken before Cambodia was engulfed by war, the population of the country was cited at 5.7 million. Ten years later, in 1972, the population was estimated to have reached 7.1 million. Using Pol Pot's rather modest figure of 800,000 deaths, about 11 percent of the population would have died from unnatural causes between 1975 and 1978. By contrast, Amnesty International's figure would yield a death rate of almost 20 percent of the population; Father Ponchaud's, of approximately 32 percent. The revolution was easily, in proportion to the size of the country's population, the bloodiest in modern Asian history.
As is evident from the accounts of refugees, the greatest causes of death were hunger, disease, and exposure. Many city people could not survive the rigors of life in the countryside, the forced marches, and the hard physical labor. People died from the bites of venomous snakes, drowned in flooded areas during the rainy season, and were killed by wild beasts in jungle areas. Many fell victim to malaria. Others died in the fighting between Vietnam and Cambodia in 1978 and in 1979. Nonetheless, executions accounted for hundreds of thousands of victims and perhaps for as many as 1 million. Western journalists have been shown "killing fields" containing as many as 16,000 bodies.
The social transformation wrought by the Khmer Rouge, first, in the areas that they occupied during the war with Lon Nol and, then, in varying degrees, throughout the country, was far more radical than anything attempted by the Russian, Chinese, or Vietnamese revolutions. According to Pol Pot, five classes existed in prerevolutionary Cambodia -- peasants, workers, bourgeoisie, capitalists, and feudalists. Postrevolutionary society, as defined by the 1976 Constitution of Democratic Kampuchea, consisted of workers, peasants, and "all other Kampuchean working people." No allowance was made for a transitional stage such as China's "New Democracy" in which "patriotic" landlord or bourgeois elements were permitted to play a role in socialist construction. Sihanouk writes that in 1975 he, Khieu Samphan, and Khieu Thirith went to visit Zhou Enlai, who was gravely ill. Zhou warned them not to attempt to achieve communism suddenly by one "great leap forward" without intermediate steps, as China had done with disastrous results in the late 1950s. Khieu Samphan and Khieu Thirith "just smiled an incredulous and superior smile." Khieu Samphan and Son Sen later boasted to Sihanouk that "we will be the first nation to create a completely communist society without wasting time on intermediate steps."
Although conditions varied from region to region, a situation that was, in part, a reflection of factional divisions that still existed within the KCP during the 1970s, the testimony of refugees reveals that the most salient social division was between the politically suspect "new people," those driven out of the towns after the communist victory, and the more reliable "old people," the poor and lower middle-class peasants who had remained in the countryside. Despite the ideological commitment to radical equality, KCP members and the armed forces constituted a clearly recognizable elite. The working class was a negligible factor because of the evacuation of the urban areas and the idling of most of the country's few factories. The one important working class group in prerevolutionary Cambodia--laborers on large rubber plantations--traditionally had consisted mostly of Vietnamese emigrants and thus was politically suspect.
The number of people, including refugees, living in the urban areas, on the eve of the communist victory probably was somewhat more than 3 million, in a wartime population that has been estimated at between 5.7 and 7.3 million. As mentioned, despite their rural origins, the refugees were considered "new people"-- that is, people unsympathetic to Democratic Kampuchea. Some doubtless passed as "old people" after returning to their native villages, but the Khmer Rouge seem to have been extremely vigilant in recording and keeping track of the movements of families and of individuals. The lowest unit of social control, the krom (group), consisted of ten to fifteen nuclear families whose activities were closely supervised by a three-person committee. The committee chairman was selected by the KCP. This grass roots leadership was required to note the social origin of each family under its jurisdiction and to report it to persons higher up in the Angkar hierarchy. The number of "new people" may initially have been as high as 2.5 million.
The "new people" were treated as slave laborers. They were constantly moved, were forced to do the hardest physical labor, and worked in the most inhospitable, fever-ridden parts of the country, such as forests, upland areas, and swamps. "New people" were segregated from "old people," enjoyed little or no privacy, and received the smallest rice rations. When the country experienced food shortages in 1977, the "new people" suffered the most. The medical care available to them was primitive or nonexistent. Families often were separated because people were divided into work brigades according to age and sex and sent to different parts of the country. "New people" were subjected to unending political indoctrination and could be executed without trial. The creation of what amounted to a slave class suggests continuity between the Cambodian revolution and the country's ancient history. Like the Khmer Rouge leadership, the god-kings of Angkor had commanded armies of slaves. Pol Pot boasted in 1977 that "if our people can make Angkor, they can make anything."
The situation of the "old people" under Khmer Rouge rule was more ambiguous. Refugee interviews reveal cases in which villagers were treated as harshly as the "new people," enduring forced labor, indoctrination, the separation of children from parents, and executions; however, they were generally allowed to remain in their native villages. Because of their age-old resentment of the urban and rural elites, many of the poorest peasants probably were sympathetic to Khmer Rouge goals. In the early 1980s, visiting Western journalists found that the issue of peasant support for the Khmer Rouge was an extremely sensitive subject that officials of the People's Republic of Kampuchea had little inclination to discuss.
On the basis of interviews with refugees from different parts of the country as well as other sources, Vickery has argued that there was a wide regional variation in the severity of policies adopted by local Khmer Rouge authorities. Ideology had something to do with the differences, but the availability of food, the level of local development, and the personal qualities of cadres also were important factors. The greatest number of deaths occurred in undeveloped districts, where "new people" were sent to clear land. While conditions were hellish in some localities, they apparently were tolerable in others. Vickery describes the Eastern Zone, which was dominated by pro-Vietnamese cadres, as one in which the extreme policies of the Pol Pot leadership were not adopted (at least until 1978, when the Eastern leadership was liquidated in a bloody purge). Executions were few, "old people" and "new people" were treated largely the same, and food was made available to the entire population. Although the Southwestern Zone was one original center of power of the Khmer Rouge, and cadres administered it with strict discipline, random executions were relatively rare, and "new people" were not persecuted if they had a cooperative attitude. In the Western Zone and in the Northwestern Zone, conditions were harsh. Starvation was widespread in the latter zone because cadres sent rice to Phnom Penh rather than distributed it to the local population. In the Northern Zone and in the Central Zone, there seem to have been more executions than there were victims of starvation. Little reliable information emerged on conditions in the Northeastern Zone, one of the most isolated parts of Cambodia.
On the surface, society in Democratic Kampuchea was strictly egalitarian. The Khmer language, like many in Southeast Asia, has a complex system of usages to define speakers' rank and social status. These usages were abandoned. People were encouraged to call each other "friend," or "comrade" (in Khmer, mit or met), and to avoid traditional signs of deference such as bowing or folding the hands in salutation. Language was transformed in other ways. The Khmer Rouge invented new terms. People were told they must "forge" (lot dam) a new revolutionary character, that they were the "instruments" (opokar) of the Angkar, and that nostalgia for prerevolutionary times (cchoeu sttak aram, or "memory sickness") could result in their receiving Angkar's "invitation."
As in other revolutionary states, however, some people were "more equal" than others. Members and candidate members of the KCP, local-level leaders of poor peasant background who collaborated with the Angkar, and members of the armed forces had a higher standard of living than the rest of the population. Refugees agree that, even during times of severe food shortage, members of the grass-roots elite had adequate, if not luxurious, supplies of food. One refugee wrote that "pretty new bamboo houses" were built for Khmer Rouge cadres along the river in Phnom Penh. According to Craig Etcheson, an authority on Democratic Kampuchea, members of the revolutionary army lived in self-contained colonies, and they had a "distinctive warrior-caste ethos." Armed forces units personally loyal to Pol Pot, known as the "Unconditional Divisions," were a privileged group within the military.
Given the severity of their revolutionary ideology, it is surprising that the highest ranks of the Khmer Rouge leadership exhibited a talent for cronyism that matched that of the Sihanouk- era elite. Pol Pot's wife, Khieu Ponnary, was head of the Association of Democratic Khmer Women and her younger sister, Khieu Thirith, served as minister of social action. These two women are considered among the half-dozen most powerful personalities in Democratic Kampuchea. Son Sen's wife, Yun Yat, served as minister for culture, education and learning. Several of Pol Pot's nephews and nieces were given jobs in the Ministry of Foreign Affairs. One of Ieng Sary's daughters was appointed head of the Calmette Hospital although she had not graduated from secondary school. A niece of Ieng Sary was given a job as English translator for Radio Phnom Penh although her fluency in the language was extremely limited. Family ties were important, both because of the culture and because of the leadership's intense secretiveness and distrust of outsiders, especially of pro-Vietnamese communists. Greed was also a motive. Different ministries, such as the Ministry of Foreign Affairs and the Ministry of Industry, were controlled and exploited by powerful Khmer Rouge families. Administering the diplomatic corps was regarded as an especially profitable fiefdom.
Religious and Minority CommunitiesArticle 20 of the 1976 Constitution of Democratic Kampuchea guaranteed religious freedom, but it also declared that "all reactionary religions that are detrimental to Democratic Kampuchea and the Kampuchean People are strictly forbidden." About 85 percent of the population follows the Theravada school of Buddhism. Before 1975 the Khmer Rouge tolerated the activities of the community of Buddhist monks, or sangha, in the liberated areas in order to win popular support. This changed abruptly after the fall of Phnom Penh. The country's 40,000 to 60,000 Buddhist monks, regarded by the regime as social parasites, were defrocked and forced into labor brigades. Many monks were executed; temples and pagodas were destroyed or turned into storehouses or jails. Images of the Buddha were defaced and dumped into rivers and lakes. People who were discovered praying or expressing religious sentiments in other ways were often killed. The Christian and Muslim communities also were persecuted. The Roman Catholic cathedral of Phnom Penh was completely razed. The Khmer Rouge forced Muslims to eat pork, which they regard as an abomination. Many of those who refused were killed. Christian clergy and Muslim leaders were executed.
The Khmer Rouge's treatment of minorities seems to have varied from group to group. The Vietnamese endured the greatest suffering. Tens of thousands were murdered in regime-organized massacres. Most of the survivors fled to Vietnam. The Cham, a Muslim minority who are the descendants of migrants from the old state of Champa, were forced to adopt the Khmer language and customs. Their communities, which traditionally had existed apart from Khmer villages, were broken up. Forty thousand Cham were killed in two districts of Kampong Cham Province alone. Thai minorities living near the Thai border also were persecuted.
Despite the fact that Chinese and Sino-Khmers had dominated the Cambodian economy for centuries and could be considered exploiters of the peasantry, the Khmer Rouge apparently did not single them out for harsh treatment. The war drove most rural Chinese into the cities, and after the forced evacuations they and their urban compatriots were regarded as "new people." They shared the same hardships as Khmers, however. Phnom Penh's close relationship with China was probably a factor in the regime's reluctance to persecute them openly.
In the late 1980s, little was known of Khmer Rouge policies toward the tribal peoples of the northeast, the Khmer Loeu. Pol Pot established an insurgent base in the tribal areas of Rotanokiri Province in the early 1960s, and he may have had a substantial Khmer Loeu following. Predominately animist peoples with few ties to the Buddhist culture of the lowland Khmers, the Khmer Loeu had resented Sihanouk's attempts to "civilize" them. Cambodia expert Serge Thion notes that marriage to a tribal person was considered "final proof of unconditional loyalty to the party." Khieu Samphan may have been married to a tribal woman.
Education and HealthLike the radical exponents of the Cultural Revolution in China during the 1960s, the Khmer Rouge regarded traditional education with unalloyed hostility. After the fall of Phnom Penh, they executed thousands of teachers. Those who had been educators prior to 1975 survived by hiding their identities. Aside from teaching basic mathematical skills and literacy, the major goal of the new educational system was to instill revolutionary values in the young. For a regime at war with most of Cambodia's traditional values, this meant that it was necessary to create a gap between the values of the young and the values of the nonrevolutionary old.
In a manner reminiscent of George Orwell's 1984, the regime recruited children to spy on adults. The pliancy of the younger generation made them, in the Angkar's words, the "dictatorial instrument of the party." In 1962 the communists had created a special secret organization, the Alliance of Democratic Khmer Youth, that, in the early 1970s, changed its name to the Alliance of Communist Youth of Kampuchea. Pol Pot considered Alliance alumni as his most loyal and reliable supporters, and used them to gain control of the central and of the regional KCP apparatus. The powerful Khieu Thirith, minister of social action, was responsible for directing the youth movement.
Hardened young cadres, many little more than twelve years of age, were enthusiastic accomplices in some of the regime's worst atrocities. Sihanouk, who was kept under virtual house arrest in Phnom Penh between 1976 and 1978, wrote in War and Hope that his youthful guards, having been separated from their families and given a thorough indoctrination, were encouraged to play cruel games involving the torture of animals. Having lost parents, siblings, and friends in the war and lacking the Buddhist values of their elders, the Khmer Rouge youth also lacked the inhibitions that would have dampened their zeal for revolutionary terror.
Health facilities in the years 1975 to 1978 were abysmally poor. Many physicians either were executed or were prohibited from practicing. It appears that the party and the armed forces elite had access to Western medicine and to a system of hospitals that offered reasonable treatment but ordinary people, especially "new people," were expected to use traditional plant and herbal remedies that usually were ineffective. Some bartered their rice rations and personal possessions to obtain aspirin and other simple drugs.
The EconomyIn its general contours, Democratic Kampuchea's economic policy was similar to, and possibly inspired by, China's radical Great Leap Forward that carried out immediate collectivization of the Chinese countryside in 1958. During the early 1970s, the Khmer Rouge established "mutual assistance groups" in the areas they occupied. After 1973 these were organized into "low-level cooperatives" in which land and agricultural implements were lent by peasants to the community but remained their private property. "High-level cooperatives," in which private property was abolished and the harvest became the collective property of the peasants, appeared in 1974. "Communities," introduced in early 1976, were a more advanced form of high-level cooperative in which communal dining was instituted. State-owned farms also were established.
Far more than had the Chinese communists, the Khmer Rouge relentlessly pursued the ideal of economic self-sufficiency, in their case the version that Khieu Samphan had outlined in his 1959 doctoral dissertation. Extreme measures were taken. Currency was abolished, and domestic trade or commerce could be conducted only through barter. Rice, measured in tins, became the most important medium of exchange, although people also bartered gold, jewelry, and other personal possessions. Foreign trade was almost completely halted, though there was a limited revival in late 1976 and early 1977. China was the most important trading partner, but commerce amounting to a few million dollars was also conducted with France, with Britain, and with the United States through a Hong Kong intermediary.
From the Khmer Rouge perspective, the country was free of foreign economic domination for the first time in its 2,000-year history. By mobilizing the people into work brigades organized in a military fashion, the Khmer Rouge hoped to unleash the masses' productive forces. There was an "Angkorian" component to economic policy. That ancient kingdom had grown rich and powerful because it controlled extensive irrigation systems that produced surpluses of rice. Agriculture in modern Cambodia depended, for the most part, on seasonal rains. By building a nationwide system of irrigation canals, dams, and reservoirs, the leadership believed it would be possible to produce rice on a year-round basis. It was the "new people" who suffered and sacrificed the most to complete these ambitious projects.
Although the Khmer Rouge implemented an "agriculture first" policy in order to achieve self-sufficiency, they were not, as some observers have argued, "back-to-nature" primitivists. Although the 1970-75 war and the evacuation of the cities had destroyed or idled most industry, small contingents of workers were allowed to return to the urban areas to reopen some plants. Like their Chinese counterparts, the Cambodian communists had great faith in the inventive power and the technical aptitude of the masses, and they constantly published reports of peasants' adapting old mechanical parts to new uses. Much as the Chinese had attempted unsuccessfully to build a new steel industry based on backyard furnaces during the Great Leap Forward, the Khmer Rouge sought to move industry to the countryside. Significantly, the seal of Democratic Kampuchea displayed not only sheaves of rice and irrigation sluices, but also a factory with smokestacks.
By the April 1975 communist victory, Pol Pot and his close associates occupied the most important positions in the KCP and in the state hierarchies. He had been KCP general secretary since February 1963. His associates functioned as the party's Political Bureau, and they controlled a majority of the seats on the Central Committee. Khieu Thirith's management of youth groups meant that Pol Pot had ample reserves of zealous young cadres, "the nucleus and wick of the struggle," committed to imposing the party center's will throughout the country. But his domination of the revolutionary movement was not complete. In different areas of the country, especially in the Eastern Zone, pro-Vietnamese and veteran Khmer Issarak commanders were jealous of their independence. They questioned, and at times openly defied, his policies of revolutionary terror and hostility toward Vietnam. The highest ranks of the party were not free of dissension.
Like Joseph Stalin in the late 1920s and in the 1930s, Pol Pot initiated a purge of his opponents, both imagined and real. In terms of the number of people liquidated in relation to the total population, the Khmer Rouge terror was far bloodier than Stalin's. Through the 1970s, and especially after mid-1975, the party was shaken by factional struggles. There were even armed attempts to topple Pol Pot. The resultant purges reached a crest in 1977 and 1978 when hundreds of thousands of people, including some of the most important KCP leaders, were executed.
The communists had exercised real power behind the facade, since its establishment in 1970, of the Royal Government of National Union of Kampuchea, (Governement Royal d'Union Nationale du Kampuchéa--GRUNK). It remained formally in control of the country until the proclamation of the Constitution of Democratic Kampuchea on January 5, 1976. Three months later, on April 2, Sihanouk resigned as head of state. Sihanouk remained under comfortable, but insecure, house arrest in Phnom Penh, until he departed for China on the last flight before Vietnamese forces captured the city on January 7, 1979.
Khieu Samphan described the 1976 Constitution as "not the result of any research on foreign documents, nor...the fruit of any research by scholars. In fact the people--workers, peasants, and Revolutionary Army--wrote the Constitution with their own hands." It was a brief document of sixteen chapters and twenty-one articles that defined the character of the state; the goals of economic, social and cultural policies; and the basic tenets of foreign policy. The "rights and duties of the individual" were briefly defined in Article 12. They included none of what are commonly regarded as guarantees of political human rights except the statement that "men and women are equal in every respect." The document declared, however, that "all workers" and "all peasants" were "masters" of their factories and fields. An assertion that "there is absolutely no unemployment in Democratic Kampuchea" rings true in light of the regime's massive use of forced labor.
The Constitution defined Democratic Kampuchea's foreign policy principles in Article 21, the document's longest, in terms of "independence, peace, neutrality, and nonalignment." It pledged the country's support to anti-imperialist struggles in the Third World. In light of the regime's aggressive attacks against Vietnamese, Thai, and Lao territory during 1977 and 1978, the promise to "maintain close and friendly relations with all countries sharing a common border" bore little resemblance to reality.
Governmental institutions were outlined very briefly in the Constitution. The legislature, the Kampuchean People's Representative Assembly (KPRA), contained 250 members "representing workers, peasants, and other working people and the Kampuchean Revolutionary army." One hundred and fifty KPRA seats were allocated for peasant representatives; fifty, for the armed forces; and fifty, for worker and other representatives. The legislature was to be popularly elected for a five-year term. Its first and only election was held on March 20, 1976. "New people" apparently were not allowed to participate.
The executive branch of government also was chosen by the KPRA. It consisted of a state presidium "responsible for representing the state of Democratic Kampuchea inside and outside the country." It served for a five-year term, and its president was head of state. Khieu Samphan was the first and only person to serve in this office, which he assumed after Sihanouk's resignation. The judicial system was composed of "people's courts," the judges for which were appointed by the KPRA, as was the executive branch.
The Constitution did not mention regional or local government institutions. After assuming power, the Khmer Rouge abolished the old provinces (khet) and replaced them with seven zones; the Northern Zone, Northeastern Zone, Northwestern Zone, Central Zone, Eastern Zone, Western Zone, and Southwestern Zone. There were also two other regional-level units: the Kracheh Special Region Number 505 and, until 1977, the Siemreab Special Region Number 106. The zones were divided into damban (regions) that were given numbers. Number One, appropriately, encompassed the Samlot region of the Northwestern Zone (including Batdambang Province), where the insurrection against Sihanouk had erupted in early 1967. With this exception, the damban appear to have been numbered arbitrarily.
The damban were divided into srok (districts), khum (subdistricts), and phum (villages), the latter usually containing several hundred people. This pattern was roughly similar to that which existed under Sihanouk and the Khmer Republic, but inhabitants of the villages were organized into krom (groups) composed of ten to fifteen families. On each level, administration was directed by a three-person committee (kanak, or kena). KCP members occupied committee posts at the higher levels. Subdistrict and village committees were often staffed by local poor peasants, and, very rarely, by "new people." Cooperatives (sahakor), similar in jurisdictional area to the khum, assumed local government responsibilities in some areas.
To most people inside and outside Democratic Kampuchea, the communist party was known simply as the Angkar Loeu. The party's commitment to revolution was expressed in the terminology of the 1976 Constitution, but no mention was made of a specifically Marxist-Leninist ideology. The KCP's real leaders and identity were kept closely guarded secrets from non-members until 1977. Head of state Khieu Samphan was a front--Sihanouk describes him as a "bit player"--for the most important leader, Saloth Sar, whose appearances and speeches were not publicized in the official media. Under the name Pol Pot, Saloth Sar was elected to a seat in the KPRA in March 1976 as a representative of rubber plantation workers, and he became Democratic Kampuchea's prime minister the following month.
The histories of most revolutionary movements contain a clandestine theme, but rarely have any approached the near-paranoia of the Cambodian communists. In part, this reflected the profound distrust with which Pol Pot and his associates regarded people outside their small, closed circle that had begun its association in Paris in the 1950s. Also, there may have been an unwillingness to risk the support of a still-conservative peasantry by publicly embracing Marxism-Leninism. The most important reason for the obsession with secrecy, however, was intraparty strife--the KCP's continuing failure to resolve factional differences and to achieve consensus on its mission and policies. Even more than the future, however, the past was a focus of bitter controversy: how much should the KCP acknowledge its debt to the Vietnamese communists?
On September 18, in a speech mourning the death of Mao Zedong, Pol Pot announced that the Angkar was "Marxist-Leninist" and that it enjoyed "fraternal relations" with the Chinese Communist Party. But it was not until a year later, in September 1977, that Pol Pot revealed the existence of the KCP and its history in a five-hour recorded radio speech. He stated that the KCP was seventeen years old and that its founding date had been September 30, 1960. He noted that the KCP's decision to disclose its real identity had been encouraged by "foreign friends" (the Chinese) who wanted the KCP to take credit for the revolutionary victory.
Pol Pot's mention of the September 1960 founding date was extremely significant. Within the party ranks, September 30, 1951, traditionally had been recognized as its founding date. This was the day when the Kampuchean (or Khmer) People's Revolutionary Party (KPRP) was established following the reorganization of the Indochinese Communist Party (ICP). The September 1960 meeting had been considered the KPRP's second congress, but in the September-October 1976 edition of the party's official journal, Tung Padevat (Revolutionary Flag), the date of birth of the KPRP was given as September 30, 1960. Tung Padevat declared that the new founding date was adopted because "we must arrange the history of the party into something clean and perfect, in line with our policies of independence and selfmastery ." Pol Pot's speech a year later gave official sanction to this view.
Another party journal, Tung Kraham (Red Flag), mentioned the traditional founding date, September 30, 1951, in its September 1976 issue. The argument over the birth date reflected deep factional divisions within the KCP. Backers of the 1951 birth date, if not pro-Vietnamese, were at least willing to recognize their movement's past dependence on Vietnamese support. Pol Pot and his associates adopted the 1960 birthday to emphasize the party's Cambodian identity and to distance it from any association with the Vietnamese communists. The party's official history, or "Black Book," published in 1978 after pro-Vietnamese elements had been liquidated, stated that the KCP had severed fraternal party relations with the Vietnam Workers' Party as early as 1973.
Intraparty ConflictOn the eve of its 1975 victory against the Lon Nol forces, the KCP was, in terms of personnel, ideological viewpoints, and factional loyalties, quite heterogeneous. Etcheson, in The Rise and Demise of Democratic Kampuchea, identifies six factions: the Pol Pot group (members of which he labels "Stalinists"); internationalists (pro-Vietnamese elements who were based in Hanoi after 1954, and who returned to the country when the FUNK united front was declared in 1970); veterans of the leftist Khmer Issarak (who remained in the country after 1954, mostly in the southern and in western parts of the country); veterans of the Pracheachon Party founded in 1954 (which had contested Sihanouk's Sangkum openly until being driven underground in the 1960s); pro-Chinese or Maoist elements (including Paris-group intellectuals Hou Yuon and Hu Nim); and the pro-Sihanouk Khmer Rumdo. Ben Kiernan, another analyst of Cambodia, identifies three factions: the Pol Pot faction, the pro-Vietnamese communists, and the adherents of the Chinese Cultural Revolution model. The roles of ideology and of conflicting party lines in factional struggles, however, should not be overemphasized. Behind doctrinal differences lay the dynamics of personal rivalry and the strong sense of patron-client loyalty that has always characterized Cambodian politics.
Although the Revolutionary Army of Kampuchea (RAK) was "reestablished" in July 1975 to bring all Khmer Rouge units formally under central authority, real control of regional armed forces remained in the hands of the zone party committee heads. The most important center of regional resistance to the Pol Potdominated party center was the Eastern Zone, comprising part or all of the old provinces of Prey Veng, Svay Rieng, Kandal, and Kampong Cham that adjoined Vietnam. Its leader was So Phim, a proVietnamese internationalist.
Differences between the Eastern Zone revolutionaries and the other Khmer Rouge were readily apparent by 1975. While the uniforms of Pol Pot loyalists and their allies were black, the uniforms of the Eastern Zone were a distinctive green. In addition, cadre behavior toward the civilian population in the Eastern Zone was generally exemplary. It seems that some of the Eastern cadres were sympathetic to Sihanouk; refugee Molyda Szymusiak wrote that during the evacuation of Phnom Penh, a "Sihanouk Khmer" soldier advised her relatives (who were distantly related to the royal family) to accompany him to Prey Veng Province on Cambodia's southern border.
At least two coups d'état against the center were attempted--in July and in September, 1975. The latter incident involved Eastern Zone troops. After April 1975, Hou Yuon, one of the original Paris group, disappeared. His colleague, Hu Nim, who was tortured and killed in the Tuol Sleng detention center in 1977, indicated in his confession that Hou Yuon had been liquidated for opposing the extremism of the center's policies.
Pol Pot loyalists occupied most of the important positions in the new government that was formed after the March 20, 1976, elections; however, Vorn Vet, a pro-Vietnamese leader, was appointed second vice premier with responsibility over six ministry-level economic committees, and he also headed the special Phnom Penh capital zone. So Phim, a longtime rival of Pol Pot within the communist movement, was first vice president of the presidium and a member of the KCP Political Bureau. (The second vice president, Nhim Ros, was a Pol Pot loyalist who commanded the Northwestern Zone.) The year 1976 appears to have been a time initially of retreat for the faction led by Pol Pot. Many communists were alienated by his authoritarian behavior. Article 4 of the Constitution, "Democratic Kampuchea applies the collective principle in leadership and in work," apparently reflects this opinion. In relation to what had gone before and what was to come, policies during 1976 were moderate. The terror eased. Relations with Hanoi were placed on a friendlier footing. Trade and diplomatic relations were expanded.
On September 27, 1976, Pol Pot resigned as premier "for reasons of health." Nuon Chea, the pro-Vietnamese deputy premier, became acting premier. Little is known of the intense factional maneuvering that was occurring at this time, but by late October 1976, Pol Pot had regained his post. On October 22, his comeback was confirmed with his issuance of a statement in his capacity as prime minister condemning China's "counterrevolutionary Gang of Four," who had been arrested in Beijing on October 6.
The influence of China on Democratic Kampuchea's internal politics apparently was a crucial, though little understood, factor in Pol Pot's defeat of his pro-Vietnamese rivals. Etcheson and Kiernan have suggested, in separate articles, that radicals in the Chinese Communist Party may have backed pro-Vietnamese Internationalist elements in the KCP in 1976 because they were interested in preserving good relations with Hanoi. The fall of the radicals in October 1976, a month after Mao Zedong's death, brought in the moderates, led by Deng Xiaoping. As the subsequent break between Beijing and Hanoi shows, Deng was inclined to regard Vietnam as an agent of Soviet "hegemonism." Chinese support of the Pol Pot faction may have been a crucial element in its ability to triumph over the pro-Vietnamese communists in the fall of 1976. From an ideological standpoint, the pragmatic Deng Xiaoping and the ultra-radical Pol Pot were polar opposites, but from the geopolitical perspective, the post-Mao Zedong leadership recognized the value of having a well-armed Cambodian thorn in the side of Vietnam. Immediately after making his September 27, 1977, speech revealing the KCP's existence, Pol Pot, accompanied by Ieng Sary and Vorn Vet, visited Beijing, where he acknowledged the importance of Maoist thought to the Cambodian revolution. In early 1978, the Chinese sent substantial military aid, which included armor, artillery, and antitank guns.
The PurgeIn 1975 Pol Pot concluded an alliance with the party head of the Southwestern Zone, Ta Mok, who was a Khmer Issarak veteran and, like Pol Pot, was strongly anti-Vietnamese. During 1977 and 1978, Ta Mok provided the backing that enabled Pol Pot to liquidate the opposition within the KCP and to initiate new terrorism against the local population. In February 1977, Southwestern cadres went into the Eastern, Northern, and Western zones to purge local Khmer Rouge. Four months later, the same process was begun in the Northwestern Zone. The purges intensified following an abortive coup d'état in August.
After the fall of the capital, Ta Mok's lieutenant, a former high school teacher who assumed the name Mit (Comrade) Deuch, became head of the secret police, and established the Tuol Sleng interrogation and detention center on the site of a former Phnom Penh high school. In the 1975 to 1976 period, Tuol Sleng's meticulous records show that 2,404 "antiparty elements" were tortured and executed. The terror escalated in 1977, when the number of victims rose to 6,330. In the first six months of 1978, records show that 5,765 people were killed; records for the latter half of that year have not been discovered. The victims who passed through Tuol Sleng from mid-1975 to January 1979 numbered about 20,000. Among those who met death in the infamous prison were Paris alumni Hu Nim and (presumably) Hou Yuon. Similar centers were set up throughout the country (Tuol Sleng's code designation, S-21, suggests that at least twenty other similar sites had been established). Molyda Szymusiak writes that a new wave of terror began in the Batdambang region after cadres arrived from the south. The Sala Som Niat, a school for political education was converted into an extermination center where local communists were tortured and executed. The pattern in these centers was much the same: victims were tortured, forced to write often absurd confessions, and then killed. A young British teacher, captured in a yacht off the Cambodian coast, confessed at Tuol Sleng that he had been recruited by the Central Intelligence Agency (CIA) of the United States when he was twelve years old; he was subsequently murdered. Hu Nim was forced to confess that he had become a CIA agent in 1957.
The Eastern Zone apparently remained largely unaffected by the purge until May 1978, when So Phim led a revolt that provoked massive retaliation by Pol Pot and his Southwestern henchmen. In the bloodiest purge of the entire 1975 to 1978 period, as many as 100,000 people in the Eastern Zone--labeled people with "Khmer bodies but Vietnamese minds"--were liquidated or were deported to face certain death in other parts of the country. Most of the victims were political cadres, "new people," and Vietnamese or part-Vietnamese residents. So Phim reportedly committed suicide as he faced capture. Some of his subordinates, including Heng Samrin, the leader of the PRK after 1979, fled to Vietnam.
Immediately following the Khmer Rouge victory in 1975, there were skirmishes between their troops and Vietnamese forces. A number of incidents occurred in May 1975. The Cambodians launched attacks on the Vietnamese islands of Phu Quoc and Tho Chu and intruded into Vietnamese border provinces. In late May, at about the same time that the United States launched an air strike against the oil refinery at Kampong Saom, following the Mayaguez incident, Vietnamese forces seized the Cambodian island of Poulo Wai. The following month, Pol Pot and Ieng Sary visited Hanoi. They proposed a friendship treaty between the two countries, an idea that met with a cool reception from Vietnam's leaders. Although the Vietnamese evacuated Poulo Wai in August, incidents continued along Cambodian's northeastern border. At the instigation of the Phnom Penh regime, thousands of Vietnamese also were driven out of Cambodia.
Relations between Cambodia and Vietnam improved in 1976, in part because of Pol Pot's preoccupation with intraparty challenges. In May Cambodian and Vietnamese representatives met in Phnom Penh in order to establish a commission to resolve border disagreements. The Vietnamese, however, refused to recognize the Brévié Line--the colonial-era demarcation of maritime borders between the two countries--and the negotiations broke down. In late September, however, a few days before Pol Pot was forced to resign as prime minister, air links were established between Phnom Penh and Hanoi.
With Pol Pot back in the forefront of the regime in 1977, the situation rapidly deteriorated. Incidents escalated along all of Cambodia's borders. Khmer Rouge forces attacked villages in the border areas of Thailand near Aranyaprathet. Brutal murders of Thai villagers, including women and children, were the first widely reported concrete evidence of Khmer Rouge atrocities. There were also incidents along the Laotian border. At approximately the same time, villages in Vietnam's border areas underwent renewed attacks. In turn, Vietnam launched air strikes against Cambodia. In September, border fighting resulted in as many as 1,000 Vietnamese civilian casualties. The following month, the Vietnamese counterattacked in a campaign involving a force of 20,000 personnel. Vietnamese defense minister General Vo Nguyen Giap underestimated the tenacity of the Khmer Rouge, however, and was obliged to commit an additional 58,000 reinforcements in December. On January 6, 1978, Giap's forces began an orderly withdrawal from Cambodian territory. The Vietnamese apparently believed they had "taught a lesson" to the Cambodians, but Pol Pot proclaimed this a "victory" even greater than that of April 17, 1975.
Faced with growing Khmer Rouge belligerence, the Vietnamese leadership decided in early 1978 to support internal resistance to the Pol Pot regime, with the result that the Eastern Zone became a focus of insurrection. War hysteria reached bizarre levels within Democratic Kampuchea. In May 1978, on the eve of So Phim's Eastern Zone uprising, Radio Phnom Penh declared that if each Cambodian soldier killed thirty Vietnamese, only 2 million troops would be needed to eliminate the entire Vietnamese population of 50 million. It appears that the leadership in Phnom Penh was seized with immense territorial ambitions, i.e., to recover the Mekong Delta region, which they regarded as Khmer territory.
Massacres of ethnic Vietnamese and of their sympathizers by the Khmer Rouge intensified in the Eastern Zone after the May revolt. In November, Vorn Vet led an unsuccessful coup d'état. There were now tens of thousands of Cambodian and Vietnamese exiles on Vietnamese territory. On December 3, 1978, Radio Hanoi announced the formation of the Kampuchean (or Khmer) National United Front for National Salvation (KNUFNS). This was a heterogeneous group of communist and noncommunist exiles who shared an antipathy to the Pol Pot regime and a virtually total dependence on Vietnamese backing and protection. The KNUFNS provided the semblance, if not the reality, of legitimacy for Vietnam's invasion of Democratic Kampuchea and for its subsequent establishment of a satellite regime in Phnom Penh.
In the meantime, as 1978 wore on, Cambodian bellicosity in the border areas surpassed Hanoi's threshold of tolerance. Vietnamese policy makers opted for a military solution and, on December 22, Vietnam launched its offensive with the intent of overthrowing Democratic Kampuchea. An invasion force of 120,000, consisting of combined armor and infantry units with strong artillery support, drove west into the level countryside of Cambodia's southeastern provinces. After a seventeen-day blitzkrieg, Phnom Penh fell to the advancing Vietnamese on January 7, 1979. From new redoubts in the mountain and jungle fastness of Cambodia's periphery, Pol Pot and other Khmer Rouge leaders regrouped their units, issued a new call to arms, and reignited a stubborn insurgency against the regime in power as they had done in the late 1960s. For the moment, however, the Vietnamese invasion had accomplished its purpose of deposing an unlamented and particularly loathsome dictatorship. A new administration under the mentorship of Hanoi was quickly established, and it set about competing, both domestically and internationally, with the Khmer Rouge as the legitimate government of Cambodia. Peace still eluded the war-ravaged nation, however, and although the insurgency set in motion by the Khmer Rouge proved unable to topple the new Vietnamese-backed regime in Phnom Penh, it did nonetheless keep the country in a permanent state of insecurity. The fledgling Khmer administration, weak and lacking in manpower and in resources, was propped up by a substantial Vietnamese military force and civilian advisory effort. As events in the 1980s progressed, the main preoccupations of the new regime were survival, restoring the economy, and combating the Khmer Rouge insurgency by military and by political means. The fostering of activity to meet these imperatives and the building of institutions are described in subsequent chapters.