Foreign Relations of the United States, 1961–1963, Volume XX, Congo Crisis

312. Telegram From the Embassy in the Congo to the Department of State¹

Léopoldville, October 11, 1962, 8 p.m.

881. Pass to White House. For Secretary and Under Secretary from McGhee. For Ambassador from McGhee. For Stevenson from McGhee. Following are principal Katanga-GOC developments as I see them upon my return to Léopoldville this noon from visits Stanleyville and Bukavu.

Since my return to Léopoldville from Elisabethville on October 7, I have sent Tshombe two messages:

(1) Léopoldville’s 391 to Elisabethville repeated 846 to Department² was sent as result information received from Dean and through UN that Tshombe continued demand inclusion UN forces in standstill and tripartite observation arrangements contrary to what I consider Tshombe’s commitment to me in final meeting October 6. I pointed out to Tshombe basic inconsistency his proposals and provisions of plan providing for freedom movement UN forces. Although I have not yet received reply from Tshombe, information Elisabethville’s 475 repeated Department 572³ indicates he understands issue and will reply. All reports indicate lack of progress up to this point in Military Commission where standfast arrangement has been referred; however, Elisabethville’s 488 repeated Department 586⁴ indicates Tshombe has now agreed with Dean separate relations ANC and UN which should remove barriers to agreement covering former.

(2) Léopoldville’s 399 to Elisabethville repeated Department 858.⁵ This message was calculated to impress Tshombe importance progress to be made before and during Gardiner’s visit, particularly insofar as it related to report I must make to President, and to make clear negotiations must remain in UN channels.

In meantime comment has been received from Tshombe on nine points embodied in memorandum I presented him during our discussion October 6, as reported in his letter to me in Elisabethville’s 578 to Department repeated Léopoldville 476.⁶ Following observations are offered:

I. (1) Tshombe’s comments on constitution not inconsistent with our discussion. Importance of constitution in plan cannot be denied and Adoula cannot expect Tshombe wholeheartedly carry out steps he has undertaken if in the end constitution promulgated is completely unacceptable.

(2) Tshombe does not appear to raise issues specified here as conditions to carrying out of plan, but suggests actions be taken as evidence good will by GOC and UN. Provisions with respect removal UN roadblocks in Elisabethville and withdrawal of ANC battalion at Kamina not acceptable to GOC–UN. Other provisions should however pose no problem. Adoula will tomorrow invite Provincial Presidents including Tshombe to Léopoldville October 15 at which time copies Federal Constitution will be presented. There is no assurance, however, that Tshombe will come.

II. Again, inclusion UN troops in standstill agreement unacceptable.

III. Taking of amnesty oath “within framework of Federal Army organized Federally on basis of a constitutional regime instituting the Federation” indicates oath would be conditional on subsequent acceptability of constitution. On the face of it, this is contrary to Tshombe’s undertaking not make actions pursuant to plan contingent on promulgation constitution.

IV. Tshombe appears to telescope payment export duties at Matadi with deposit to budget of Federal Government. As indicated below, he has today announced that latter has been done.

V. Tshombe avoids issue of deadline for completion of commissions. His statement of objective of commissions not helpful—quite vague.

VI. His observation that he would deposit a “sizeable sum as soon as commissions have ended their work” has now been superseded by today’s announcement as indicated below.

Taken as whole Tshombe’s comment, while it represents some back tracking, must be taken in conjunction with statement to Consuls given Elisabethville’s 585 [586] to Department which announces reopening Lubilash Bridge, irrevocable payment $2 million in foreign exchange and equivalent in Congolese francs, reopening of telecommunications, acceleration work of commissions and furnishing of necessary foreign exchange and revenue figures. Only inclusion UN forces in standstill agreement completely unacceptable; however, there are weak spots which can later be expanded into loopholes. Significant no reference in statement to standstill arrangements. Real test will come, however, in agreement on plan integration forces in Military Commission and in final financial arrangements. Concessions offered are those which could be calculated provide maximum effect toward buying time and regaining psychological initiative at minimum cost.

More complete evaluation will follow.

Ambassador Gullion will this evening give Adoula copy Tshombe’s statement to Consuls, urging him keep open mind re Tshombe’s proposals and not make statements prejudicial to their being carried out until he gets full report from Gardiner.

Gullion

1. Source: Department of State, Central Files, 770G.00/10–1162. Confidential; Priority. Repeated to Brussels and USUN.
2. Telegram 391 from Léopoldville to Elisabethville, October 9, transmitted the text of a message from McGhee to Tshombe which expressed concern over the lack of progress in reaching agreement on a cease-fire and urged Tshombe to move to resolve the impasse. (Ibid., 770G.5/10–962)
3. Telegram 475 from Elisabethville to Léopoldville, October 9, reported that Dean had delivered the message. (Ibid.)
4. Telegram 488 from Elisabethville to Léopoldville, October 11, reported that Tshombe had announced to the U.S., Belgian, and U.K. Consuls a number of concrete actions that he would take. (Ibid., 770G.00/10–1162)
5. Telegram 399 from Léopoldville to Elisabethville, October 10, transmitted the text of a message from McGhee to Tshombe expressing disappointment that agreement had not yet been reached on the matters they had discussed and noting that McGhee’s report to President Kennedy would be affected by whether or not Gardiner was able to report progress upon his return from Elisabethville. (Ibid., 770G.00/10–1062)
6. Telegram 578 from Elisabethville, October 10, transmitted the text of a letter of that date from Tshombe to McGhee. (Ibid.)