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

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

Léopoldville, October 16, 1962, 10 p.m.

931. Pass to White House. For Secretary and Under Secretary from McGhee. For Ambassador from McGhee. For Stevenson from McGhee. Evaluation of developments as of close October 16.

Last 24 hours has been a period of waiting to see how developments en train, which have been previously described, would unfold. Eville’s 638 to Dept² announced signing of cease-fire today. There is still some risk this will backfire here since Gardiner himself sent telegram authorizing GOC rep Ngalula to sign and Adoula is extremely dubious about agreement because of its limitation to north Katanga. Tshombe’s letter to Gardiner agreeing to oath taking (Eville’s 626 to Dept)³ is, moreover, linked to question of amnesty.

Since, on the face of it, opposing positions on amnesty are irreconcilable—Tshombe demanding amnesty for the whole of Congo and Adoula intent on limiting it to Katanga—Gardiner is attempting to formulate a UN proposal which Tshombe has, in letter referred to, agreed to accept. This poses great dilemma for Gardiner since limitation to Katanga he considers contrary to real concept of national reconciliation and will be criticized by many as discriminating in favor of Tshombe and his secessionist Katangese without any relief for host of others all over country who might have been included. On other hand Gardiner convinced complete amnesty, which would necessarily include Gizenga, Kalonji and Gbenye, would cause Adoula’s downfall.

Formula Gardiner will probably come up with, which his lawyers are now working on, involves preamble explaining amnesty in Katanga is only first step which will later be applicable other provinces. There is evidence that Adoula may again acquiesce on this point and let Gardiner call the tune, although this may also buy trouble for future in the form of a possible later disavowal or basis for special claims by Adoula.

Since Adoula launched Constitution this morning before presidents of provinces, releasing it simultaneously to press, we are now waiting time bomb of Tshombe’s reaction. I had in my last communication to Tshombe urged him to come to today’s meeting. He not only did not come but did not send a representative, possibly because he might have been forced to answer rollcall of south Katanga. Adoula did not call him on phone to invite him yesterday as he had promised; he said he forgot in morning and could not reach him in afternoon.

In meantime plans for opening Lubilash Bridge tomorrow go forward. Gardiner will go but central govt will be represented only through appropriate Minister in south Kasai govt. Hopefully GOC will tomorrow send 28 military representatives to Eville to represent them on tripartite observation teams. Hopefully, also, two GOC men for customs and two for immigration, accompanied by 4–6 experts, will go to Eville to provide for opening of airport to direct flights. Former Katangese staff will also return to airport to do actual work.

Work of foreign exchange and revenue commissions has proceeded to point of agreement on principles and arrangements for handling various transactions involved. I do not believe, however, that Adoula really understands the implications in his agreement that needs of Katanga are to be covered as a matter of priority providing how much foreign exchange goes to central govt. This would appear to be an even more dangerous admission than a straight deal on what the cut will be. In any event, stage seems to have been set for deal on cut both in revenue and foreign exchange. Katangese have made firm offer of 25 percent gross in foreign exchange to complement previous offer of 25 percent revenue.

I am tonight sending Tshombe another letter acknowledging progress made but pointing out problems to be faced in future and what we will expect. Text is being sent separately (Embtel 930).⁴ In this letter I have emphasized two major remaining obstacles: I have attempted persuade him: (1) take his chances along with other provinces in getting Constitution changed more to his liking; (2) facilitate work of military commission which has up to now made almost no progress.

On GOC front principal current problem is in obtaining forthcoming declaration on developments from Adoula. We are working with his public relations counsel to this end, but prospects for a statement are not good. He has promised a press conference for Thursday.

During meeting with him today, Gardiner said he has made no report to UN since that from Eville. Although he is currently giving thought to what he might say, he did not indicate whether or not or when he might make a final report to SYG.

Summary and preliminary evaluation: Although there has been some demonstrable progress in carrying out specific steps in plan, structure built so far is fragile: only the standstill is final; the oath taking hinges on the amnesty. In revenue and foreign exchange commissions certain principles and arrangements have been agreed upon and stage is set for a compromise on amounts. However, Adoula has not yet openly acknowledged that he is willing negotiate on this point. Constitution has been launched but it remains to be seen whether Adoula dares take it to Parliament and whether it or he can weather the expected assaults. Tshombe could, if he so elected, use either the issue of the amnesty, the Constitution or the recent continued ANC attacks around Kongolo (even though probably provoked by Katangese) to kick the whole thing over.

It has been one of my principal objectives in discussions with officials on both sides to push forward other forms of cooperation and integration outside the framework of the plan, to give the whole process of mutual involvement and reconciliation a forward momentum. In this field considerable progress had been made.

The opening of the Lubilash Bridge brings together officials at the ceremony and necessitates joint arrangements for onward shipment of copper and payment of export duties at Matadi. The opening of telecommunications has made it possible resume normal traffic between Leo and Eville and resulted in conversation between Adoula and Tshombe themselves. Necessity for making joint technical arrangements required cooperation which has speeded up the involvement process. Similarly, opening of Eville airport, if it does occur, with mingling of Congolese and Katangese officials, will further accelerate their being able work together. A spirit of cooperation, even fraternity, has been reported in some of the meetings of the commissions in Eville. Unexpected breakthroughs in agreements on complex arrangements have occurred in foreign exchange commission.

There are also other inducements to continued forward movement. Gardiner has held out enticing prospects to Tshombe: Eventual turning over of Eville air base and camp in Eville area now held by UN, supplying by UN of beleaguered Katangese forces in north Katanga, and relaxation of restrictions on Katangan train movements. This should serve to establish a greater feeling of confidence between Katangese and UN.

Adoula himself, in letter just received which being transmitted separately⁵ says in part “Following my recent conversations . . . I wish to bring to your attention that in view of the assurances which you have given me, I have accepted to believe one more time in the word given me by M. Moise Tshombe . . .”⁶

On the whole it is believed that there is sufficient possibility that the forward momentum of cooperation created will carry along with it agreement on the difficult issues remaining under the plan, to justify continued support of the plan as a basis for our policy in the Congo. Every effort must be made by unremitting pressure on both sides to assure that this momentum is not lost, indeed, that it continues to build up strength through further mutual involvements. This is particularly important because if forward momentum is ever arrested, I do not believe the forces at play or the tempers of the principals involved would make it possible to get momentum started again.

Gullion

1. Source: Department of State, Central Files, 770G.00/10-1662. Confidential; Priority. Repeated to USUN and Brussels.
2. Dated October 16. (Ibid.)
3. Dated October 15. (Ibid., 770G.00/10–1562)
4. Dated October 16. (Ibid., 770G.00/10–1662)
5. In telegram 936, October 17. (Ibid., 770G.00/10–1762)
6. Ellipses in the source text. In telegram 936, the sentence reads as follows: “Following different conversations which I recently was pleased to have with you in course of your current visit to Congo, I wish to bring to your attention that I have accepted, because of assurances which you have given me, to believe one more time in word given me by M. Moise Tshombe, Provincial President of South Katanga.”