Haiti: Political Conflict and U.S. Policy Overview
August 2, 2022
Haiti: Political Conflict and U.S. Policy Overview
Conflict and political fragility have plagued Haiti, the
In September 2021, Henry and his supporters proposed that
poorest country in the Western Hemisphere, for much of its
he name a provisional electoral council to convene elections
history. Haiti improved governance prior to the 2010
and that he remain the single head of government until a
earthquake, but progress since has been uneven.
new elected government takes office. He has yet to appoint
Democratic institutions remain weak and corruptible.
that council, and many civil society and political actors
Poverty remains extreme and economic disparity wide.
within Haiti have opposed Henry’s proposal.
Haiti’s proximity to the United States, instability, and
vulnerability to natural disasters have made relations with
As an alternative to Henry’s proposal, numerous civil
Haiti an ongoing policy issue for the U.S. government.
society organizations and political parties, some in
coalitions, have sought to form an interim government.
A year after the July 2021 assassination of President
After months of broad consultations, the Citizen
Jovenel Moïse and an August 2021 earthquake that killed
Conference for a Haitian Solution to the Crisis (widely
2,000 people, Haiti lacks an elected president, legislature,
known as the Montana Group) came to an agreement in
and mayors. No elections are scheduled to replace the
August 2021. The Montana Accord proposed a two-year
expired terms of Haitian officials at any level of
interim government led by a president and prime minister,
government. A political standoff between Prime Minister
with oversight committees, to restore order, administer
Ariel Henry’s government and political and civil society
elections, and create a truth and justice commission to
leaders has occurred amid a worsening security crisis. The
address past human rights violations. Although many civic
ongoing crises in Haiti are major concerns for the Biden
leaders and political parties signed the Montana Accord,
Administration and many Members of Congress. U.S.
others did not (including some business groups, churches,
policymakers have pushed for an inclusive, Haitian-led
and the PHTK and allied parties).
political accord leading to new elections and have increased
security assistance for the Haitian police.
Negotiations between Henry and the Montana Group have
yet to bear fruit. In June 2022, both parties named
Political Paralysis
negotiation commissions that began meeting in mid-July.
As in past periods when Haitian presidents failed to hold
Some observers favor a Henry-Montana Group agreement,
timely elections, former President Moïse of the Haitian Tèt
but others warn such an agreement may not receive broad
Kale Party (PHTK) had been governing extra-
enough support among the Haitian people to be successful.
constitutionally prior to his assassination. Moïse failed to
convene parliamentary elections due in 2019 and began
Security Crisis
ruling by decree in 2020. There was controversy over
Violent gangs, some formerly tied to the PHTK, threaten to
whether his term ended in February 2021 or February 2022.
overwhelm the government with greater resources and
Moïse, like some other Haitian politicians and business
weaponry. Gangs have exerted power and control over
leaders, allegedly provided money and arms to gangs and
territory, access to fuel, and the delivery of humanitarian
other criminal groups in exchange for suppressing anti-
aid, challenging the authority of the Haitian National Police
government protests, according to Insight Crime.
(HNP) and other state institutions. Since Moïse’s
assassination, gangs have expanded their power, as
Following Moïse’s July 2021assassination, the United
evidenced by the October 2021 kidnapping of U.S.
States and other donors supported Henry’s bid to serve as
missionaries, hindering the HNP’s ability to combat drug
prime minister over other competitors. Shortly before the
trafficking and other crimes.
assassination, Moïse had nominated Henry, a neurosurgeon,
to be prime minister. The legislature lacked a quorum to
There are as many as 200 gangs in Haiti, and they control
consider him, however, and the president had not sworn
60% of Port-Au-Prince, key ports, and roads, according to a
him in. Henry’s irregular path to his position and
study commissioned by the U.S. Agency for International
allegations of his possible involvement in Moïse’s
Development (USAID). From January to May 2022,
assassination, a case that remains unresolved, have eroded
kidnappings rose by 36% and homicides by 17%, according
his credibility. Henry has fired officials who have sought to
to U.N. data; sexual violence is rampant. A wave of gang
question him about the case. Under Henry, inflation has
violence in Port-Au-Prince in mid-July resulted in more
further damaged the economy and insecurity has worsened.
than 470 killings, according to the United Nations.
As of August 1, 2022, 1.4% of the population had been
Impunity prevails in Haiti’s weak justice system. In
fully vaccinated against Coronavirus Disease 2019
addition to failing to resolve Moïse’s assassination, Haitian
(COVID-19), according to Johns Hopkins University.
authorities have yet to arrest Jimmy Cherizier, a former
HNP officer turned gang leader, or other Haitian officials
implicated in the 2018 La Saline massacre of 71 people.
https://crsreports.congress.gov
Haiti: Political Conflict and U.S. Policy Overview
The escalating gang violence threatens to worsen political,
well as a gang leader responsible for the 2021 kidnapping
economic, and social conditions in Haiti, a country where
of U.S. missionaries.
the U.N. Office for the Coordination of Humanitarian
Affairs estimates that 40% of the population is in need of
U.S. apprehensions of Haitian migrants have risen notably,
humanitarian assistance. Violence has prompted closures of
both at sea and on the southwest border. From January to
schools, businesses, markets, and medical facilities and has
June 2022, the International Organization for Migration
limited humanitarian access in some areas. Gang violence
assisted more than 19,000 Haitians repatriated to Haiti, 73%
also could inhibit future disaster responses.
of whom were removed from the United States. The United
States also has taken steps to provide legal migration and
U.S. Policy
protection pathways for some Haitians. Some 155,000
U.S. policy goals in Haiti aim to support Haitians in their
Haitians may be eligible for relief from removal under the
efforts to confront insecurity; restore democratic
Temporary Protected Status designation announced in May
institutions; and promote economic growth, educational
2021. In July 2022, the Administration said it would resume
opportunities, and health care. The Biden Administration’s
the Haitian Family Reunification Parole program, allowing
political approach to Haiti has evolved from supporting the
certain U.S. citizens and legal permanent residents to seek
Henry government to pushing Henry, the Montana Group,
parole for family members in Haiti.
and other stakeholders to reach an inclusive political
accord. In a July 6, 2022, Miami Herald editorial, Assistant
Congressional Action
Secretary of State for Western Hemisphere Affairs Brian
The 117th Congress has enacted legislation, appropriated
Nichols said, “the time has come for ... steps that will allow
and conditioned foreign assistance, and conducted oversight
Haiti to restore democratic order.”
of U.S. policy toward Haiti. Congress has held hearings and
briefings on U.S. policy toward Haiti, U.S. treatment of
U.S. and international donors, criticized for past
Haitian migrants, and Haiti’s April 2022 selection as one of
interventions in the country, have emphasized their support
the priority countries of focus under the Global Fragility
for Haitian-led solutions to the country’s challenges. On
Act (P.L. 116-94).
July 15, the U.N. Security Council requested that Haitian
officials provide an update on progress toward a political
Congress enacted the Haiti Development, Accountability,
accord by mid-October. The Security Council also renewed,
and Institutional Transparency Initiative (HAITI Act; H.R.
but did not expand, the mandate of the U.N. Integrated
2471/S. 1104) as part of the FY2022 Consolidated
Office in Haiti, established in 2019 to strengthen political
Appropriations Act (P.L. 117-103). The act requires U.S.
stability and the rule of law in Haiti.
agencies to measure the progress of post-disaster recovery
and efforts to address corruption, governance, rule of law,
U.S. foreign assistance to Haiti for FY2022-FY2024 is to
and media freedoms in Haiti.
be guided by a two-year Integrated Country Strategies
(ICS) adopted in March 2022. The Administration
P.L. 117-103 does not designate an appropriations level for
requested $274.8 million in assistance for Haiti in FY2023,
Haiti. The act requires the State Department to withhold
up from the $204.4 million provided in FY2021, most of
those funds and any other aid for the central government of
which would fund health and other development activities.
Haiti until a new president and parliament have taken office
following free and fair elections or the Secretary of State
Although a complete breakdown of FY2022 aid to Haiti is
determines a transitional government representative of
not yet available, the United States allocated $56 million in
Haitian society is in place and it is in the U.S. interest to
development assistance, as well as at least $48 million in
provide assistance. Notwithstanding those requirements, the
International Narcotics Control and Law Enforcement funds
act allows U.S. agencies to provide assistance to support
to support the HNP and $5 million to improve prison
elections, anti-gang police and justice administration, public
conditions. U.S. assistance also has included more than
health, food security, water and sanitation, education,
$153 million in humanitarian aid since the August 2021
disaster relief and recovery, and other programs to meet
earthquake, according to a July 2022 State Department fact
basic human needs.
sheet. USAID and the State Department have provided at
least $47 million in health aid to help Haiti address
Congress is considering the FY2023 budget request. The
COVID-19 and have donated more than 500,000 vaccines.
FY2023 State and Foreign Operations appropriations bill
The Department of Defense has provided disaster relief and
reported by the House Appropriations Committee (H.R.
has donated $5 million in equipment and health supplies.
8282) does not designate a total funding level for Haiti; it
includes the same conditions as P.L. 117-103. The report
U.S. policy toward Haiti also has included the use of
accompanying the bill (H.Rept. 117-401) would require a
sanctions; judicial support for the investigation into Moïse’s
report by USAID on maternal care in Haiti. Additionally,
assassination; and extradition for those complicit in arms
measures to extend duty-free treatment from 2025 to 2035
trafficking, gang violence, and drug trafficking. In
with respect to imports from Haiti under the Caribbean
December 2020, the Treasury Department sanctioned
Basin Economic Recovery Act have been introduced as the
Cherizier and two other former officials for grave human
Haiti Economic Lift Program Extension Act of 2021 (S.
rights violations under the Global Magnitsky Act. The
3279 in November 2021; H.R. 6136 in December 2021).
Department of Justice (DOJ) has assisted Haitian officials
investigating the Moïse assassination. DOJ has secured the
Clare Ribando Seelke, Specialist in Latin American
extradition of two individuals complicit in that crime as
Affairs
https://crsreports.congress.gov
Haiti: Political Conflict and U.S. Policy Overview
IF12182
Maureen Taft-Morales, Specialist in Latin American
Affairs
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