Foreign Relations of the United States, 1958–1960, Africa, Volume XIV

320. Memorandum From the Assistant Secretary of State for African Affairs (Satterthwaite) to the Under Secretary of State (Dillon)⁰

October 6, 1959.

SUBJECT

• Aid to Guinea

Discussion:

President Sekou Toure’s forthcoming trip to Washington (October 26–28) provides a unique opportunity to exert a moderating influence on the future course of Guinea.

I. The Importance of Guinea to U.S. Interests

In the year since Guinea’s independence, the country has assumed a critical importance among all the French-speaking areas of West and Equatorial Africa. Because Guinea accepted General de Gaulle’s challenge and voted for independence, its experiment is being closely watched by all its French-speaking neighbors. If it seems to be succeeding, it will almost certainly act as a magnet to the surrounding area.

Furthermore, if the Soviet Bloc is able to achieve a dominant position there, it will undoubtedly use Guinea as a bridgehead for expanding its influence throughout West Africa.

II. Bloc Penetration

The Soviet Bloc appears to be making an all-out effort to capitalize on the present situation in Guinea. So far five Bloc nations have concluded bilateral trade agreements, theoretically committing a third of the country’s trade. Some 150 Bloc technicians have replaced French officials so that the key officers in many vital ministries are from Eastern Europe: i.e., Radio Conakry, which in the absence of daily newspapers is the principal information medium in the country, is being operated by Czech technicians and the leading advisers of both the Ministries of Defense and Mines are also from behind the Iron Curtain. Recently the Soviets have offered a 35 million dollar loan.

Although we believe President Toure is trying to maintain a neutral policy, there are members of his government who reportedly are trying to push him to the left. Saifoulaye Diallo, for example, who concluded the negotiations for the Soviet loan, may develop into a potential rival of Sekou Toure if he is able to represent the Soviet Union as the real supporter of African nationalism, as opposed to the United States which delayed recognition of Guinea and has produced comparatively little aid. The recent Congress of the PDG, the only political party in Guinea, was attended by official delegations from the Soviet Communist Party and the parties of other satellites and represented the high-water mark so far of Bloc influence in the area.

An indication of President Toure’s determination to maintain a neutral course is his choice of the United States for his first official trip outside Africa. Our Embassy in Conakry reports, however, that if he is unable to show that, as a result of this visit, the United States is as firm a supporter of Guinea as the USSR, his dominant position in the ruling hierarchy may be threatened by those further to the left.

III. United States Objectives

(1) Our principal objective in Guinea is to maintain the presence of the United States and the West in the country and to establish a position for future United States action to stem the flood of expanding Soviet influence and reinforce our own influence when this flood recedes.

(2) Also we believe that while Toure cannot be considered wholly satisfactory from the West’s point of view, he nevertheless represents a stable element strongly committed to neutrality and, as such, is worthy of our support. Only with this support will he be able to oppose extreme leftist opposition now developing within the Party and be influenced toward a position more truly in Guinea’s (and our own) best interests.

IV. United States Action Program

You will recall that on April 27 you approved the principle of United States aid to Guinea and the dispatch of an ICA survey team there (Tab A).¹ As a result of this visit, the team recommended (a) a technical cooperation program, (b) P.L. 480 support activities and (c) possible DLF loans, including one for setting up a development bank (Tab B).²

In addition to any impact projects that may be approved for presentation during the visit of Sekou Toure, it is planned to mention as evidence of United States interest in the well-being of Guinea the following examples of present and potential United States assistance:

English Teacher Program

ICA and USIA have initiated a joint English teaching project (Tab C)³ which to date has resulted in the arrival of one English teacher in Conakry on August 15, and the supplying of necessary equipment, such as tape recorders, mimeograph machines, books and supplies.

Following the signature of a Technical Cooperation Agreement with Guinea, which it is hoped will be ready for signature by Sekou Toure during his forthcoming visit to Washington (October 26–28), ICA proposes to expand this program by contracting with a university in the United States to provide a minimum of at least four additional English language teacher-trainers plus necessary backstop equipment. The estimated cost of this project is $200,000 for two years. This joint ICA–USIA project could be expanded as opportunities present themselves.

Other ICA Projects

ICA, following signature of the Technical Cooperation Agreement, is also prepared to finance the training at Ohio State University of five (5) Guinean elementary school teachers whose classes initially would be in French. This would be a one-year program commencing in January 1960, the total budget for which would run approximately $42,500.

Additionally, ICA contemplates obligation of up to $370,000 for technical assistance projects in the fields of agriculture, education, industry, etc., based on such recommendations as may develop out of joint USOM/GOG planning.

The foregoing activities scheduled for FY 1960 implementation will lay the basis for a continuing program, currently estimated at $2.5 million for FY 1961.

USIA Program

Guinea has already agreed to a USIA program. USIA will formally open its office in Conakry with the assignment of one American officer who, it is hoped, will be on duty before the end of the calendar year. The activities to be undertaken are a press operation based on radio-teletype monitoring of the wireless file, film distribution, and local production to be included in the agency’s African newsreel, “Today”.

In the field of radio, USIS Conakry will publicize the Voice of America schedule to build up listenership for VOA programs and will attempt to place package programs with Radio Conakry. A library of English and French books will be opened in the Information Center.

The contract English teacher previously mentioned, who arrived in Conakry on August 15, is conducting an English teaching program aimed primarily at VIP’s.

On September 15 a USIS officer was sent to Conakry to arrange for coverage of the Sekou Toure visit. Approximately $39,000 will be spent in FY 1960 under this program for USIA Mission expenses alone.

ICA Investment Guaranty Program

Ambassador Morrow has been instructed to discuss this with the Guinean authorities when he considers it opportune.⁴

P.L. 480 Programs

In FY 1959 Title II PL 480 commodities, consisting of 5,000 tons of rice and 3,000 tons of wheat flour valued at $2,175,000 were made available to Guinea. Similar commodities under the same program mounting to $4,000,000 may be proposed during FY 1960.

There are several possibilities of providing further assistance to Guinea under P.L. 480:

1. Under Title II or possibly Title III, the initiation by some welfare agency of a school feeding program in which Sekou Toure has expressed interest. (This program might be arranged through CARE since all religious mission schools have been closed down.)

2. Utilization of Section 104 (d) currencies, which the United States own, (such as Israeli pounds or Indian rupees), to purchase and supply Guinea with pharmaceutical supplies, a refrigeration plant, earth moving equipment, trucks, jeeps, tires and spare parts.

DLF Loans

Indicate to Sekou Toure our willingness to consider applications for DLF loans. In this connection we can point out that once an ICA mission has been established, it would be willing to provide assistance in advising on DLF loans and the preparation of applications.

Impact Projects

We believe it is essential that we make a favorable impression on President Toure during his visit. Listed below are my recommendations for a minimal package which we should be prepared to offer:

1. Plane (DC–3) (Tab D)⁵

Since the Guineans have inquired about acquiring a DC–3 through commercial channels, the Embassy has recommended that consideration be given to presenting an aircraft to Sekou Toure during his visit. AV reports that a surplus DC–3 passenger plane in good condition, plus spare parts, can be obtained for $80-100,000 and another $100,000 or more would have to be spent to change it to an executive configuration. In addition, it is estimated it will cost approximately $10,000 to ferry the plane from the United States to Guinea. The former Chargé in Conakry reports that the Guinean Government could probably provide its own crew and maintenance facilities. There are precedents for such a gesture in the Coast Guard patrol vessel given Liberia after the Nixon visit and the Constellation given the Emperor of Ethiopia.

2. IES Exchange Program (Tab E)⁶

Under the IES Exchange Program three grants have already been allocated to Guinea. IES is prepared to increase this number to 15 in accordance with the Embassy’s recommendation on page 9 of the referenced despatch.

Recommendation:

That you approve the above course of action, including the use of up to $600,000 from Contingency Funds for Technical Cooperation with Guinea, and up to $250,000 from Special Assistance Funds for the airplane, leaving a balance of possible requirements in Special Assistance of $1,150,000.⁷

0. Source: Department of State, Central Files, 770B.5–MSP/10–659. Confidential. Drafted by Thomas A. Cassilly and Eugene L. Padberg of the Office of Middle and Southern African Affairs. Those concurring included Deputy Coordinator for Mutual Security John O. Bell, Assistant Secretary of State for Economic Affairs Thomas C. Mann, ICA Deputy Director for Operations Dennis A. FitzGerald, and Deputy Assistant Secretary of State for European Affairs Ivan B. White.
1. The tabs are not attached to the source text. Tab A is listed as a memorandum of April 27 approving aid to Guinea; not found. In a meeting that day with Diallo, Dillon said the first step in the consideration of U.S. aid to Guinea would be the sending of technicians to collect data and determine what kind of assistance program might be feasible; he indicated that he did not know how long Guinea would have to wait for a policy decision on U.S. aid, but he believed Diallo could tell President Touré that “something concrete will probably come from Guinea’s requests.” (Memorandum of conversation, April 27; ibid., Secretary’s Memoranda of Conversation: Lot 64 D 199)
2. ICA Report on Guinea; not found.
3. Telegram 24 to Conakry, July 31. (Department of State, Central Files, 870B.43/6–2659)
4. Ambassador John Howard Morrow had presented his credentials on July 30.
5. Despatch 63 from Conakry, August 24. (Department of State, Central Files, 770B.72/8–2459)
6. Despatch 73 from Conakry, September 1. (Ibid., 611.70B/9–159)
7. Dillon initialed his approval of the recommendation on October 13.