Foreign Relations of the United States, 1917–1972, Volume VI, Public Diplomacy, 1961–1963

131. Circular Telegram From the Department of State to All Diplomatic and Consular Posts¹

Washington, undated.

2177. For Ambassador and Principal Officer. Government is deeply involved both with immediate problems arising from incidence of racial tension and with long-term issue of civil rights which lies at center of country’s existence as a democratic state. Administration is keenly aware of impact of domestic racial problem on US image overseas and on achievement US foreign policy objectives.

There should be no illusions as to seriousness this situation. As far as American domestic developments concerned policies of this Administration have been sound and its actions consistent. On one hand, Federal Government power and prestige are committed to full equality, a commitment fortified by even larger elements of our society. On the other hand, there still exists articulate and determined opposition. We must assume therefore that racial incidents will continue and their geographic location will spread. Problem is national rather than exclusively southern dilemma.

Foreign reaction is source great concern. Evidence from all parts of world indicates that racial incidents have produced extremely negative reactions. Characteristic is recommendation in May of assembled foreign ministers at Addis Ababa conference of African Chiefs of State. They recommended Chiefs of State pass strongly worded resolution on discrimination in US and communicate directly with President.² We believe this is clear indication depth of emotional feeling in most of Africa and indeed the world. We think more conciliatory stands may be taken for tactical reasons. In this context, final statement on racial discrimination of Chiefs of State at Addis Conference was remarkably moderate. At best, however, it suggests we have certain amount of time before our racial problem will impinge even more seriously upon our policies and objectives.

Under these circumstances, we recognize there is no effective substitute for decisive action on part of United States Government. This will include special Presidential message to Congress today,³ Administration-backed legislation, and continued series of positive Federal actions throughout country. This will take time; there may be setbacks; and no schedule can now be set.

Meanwhile, you have difficult responsibility of trying to establish sufficient understanding of our problems and goals to mitigate effect of any future incidents and to provide a basis for more understanding local response in future. We recognize each country has its own problems, and we know you will need all your resources and imagination to meet the situation. We rely on your judgment of local scene and of most effective way of meeting situation.

Simultaneous with this cable, the President is sending you a special message on civil rights,⁴ to which this telegram is background. To help you in carrying out the President’s expressed desire in that message, we will be sending a summary of Federal actions and policies.⁵ You also may draw as appropriate on contents in departmental guidance message on this subject which follows. These will supplement materials already available through USIS, especially info kits and guidances. You should use this material in manner you deem most appropriate to cope with reaction in your country.

A large number of posts have received from USIA taped versions of the President’s television address on civil rights made June 11.⁶ Others will be receiving same soon. It would be desirable wherever practical to arrange showing of this tape to all US personnel at posts.

Following points may also be of some help:

(a) In your personal dealings with principal governmental officials, you should not gloss over the problem. At same time, you should reaffirm depth of concern felt by President and your confidence in his ability meet problem effectively.

(b) Even though constructive events are not always news, you should use all appropriate opportunities to emphasize at all levels the gains which have been made and steps Federal Government and private agencies are taking.

(c) Suggest post review its governmental and public relations programs on civil rights and adapt to new situation.

Finally, request you report concisely on reactions local groups, particularly leadership groups, to this new situation. We also want your suggestions with respect to diplomatic or other actions United States might take.

You can expect further guidance from Department on this matter.

Rusk

1. Source: Kennedy Library, National Security Files, Subjects Series, Box 295A, Civil Rights 6/19/63–7/9/63. Confidential; Priority. Drafted by Jorden on June 19; cleared in substance by Manell, Abernethy, Read, Burdett, Cottam, Gorrell, Kaysen, and Anderson; and approved by Rusk. Sent for information to Eastern European posts.
2. The Summit Conference of Independent African States took place in Addis Ababa May 22–25 with 30 African nations in attendance. Circular telegram 2032 to certain African posts May 28, noted that the resolution on racism: “[c]ondemned racial discrimination everywhere, particularly in the US, but coupled this with appreciation for efforts US Gov’t end discriminatory practices which otherwise likely cause serious deterioration in relations between US and Africa. This probably as good a resolution as could be expected. More moderate than earlier Foreign Ministers draft and significantly includes recognition and understanding role of US Gov’t.” The circular airgram is printed in Foreign Relations, 1961–1963, vol. XXI, Africa, Document 219. See also Russell Howe, “30 Nations Sign Africa Unity Pact,” The Washington Post, May 26, 1963, p. A1.
3. For the text of Kennedy’s June 19 special message to Congress on civil rights, see Public Papers: Kennedy, 1963, pp. 483–494. The next day, legislation to enact the recommendations in the President’s message was transmitted in letters to the President of the Senate and the Speaker of the House. (Ibid., p. 494)
4. Circular telegram 2176 to all diplomatic and consular posts, June 19, transmitted the President’s message, which asked U.S. Ambassadors and Principal Officers to discuss civil rights with host governments with candor, but also to affirm U.S. accomplishments and highlight the positive commitment set by the President toward the goal of equal opportunity for all. (Kennedy Library, National Security Files, Countries Series, Africa)
5. On June 19, the Department of State sent a series of instructions and information messages to all U.S. diplomatic missions abroad, which included a background summary of U.S. civil rights accomlishments. (Ibid.)
6. See footnote 2, Document 130.