254. Notes on the National Security Council Meeting1

[Here follows a brief discussion of other matters.] A brief outline of the size and disposition of Chinese armed forces was given. The President then asked what routes of movement are available for these troops from China to North Viet Nam. Mr. Amory pointed out and described the condition of railway and roads of access and cited the generally inadequate aspects of these avenues. Mr. Dulles cautioned that it should not be assumed that the Chinese setbacks as well as the ideological rift were such that the Soviets and Chinese would not be able nor willing to engage jointly any nation which threatened Communist interests.

Mr. Rusk explained the Draft of Memorandum on South Viet Nam.2 He added the hope that, in spite of the magnitude of the proposal, any U.S. actions would not be hampered by lack of funds nor failure to pursue the program vigorously. The President expressed the fear of becoming involved simultaneously on two fronts on opposite sides of the world. He questioned the wisdom of involvement in Viet Nam since the basis thereof is not completely clear. By comparison he noted that Korea was a case of clear aggression which was opposed by the United States and other members of the U.N. The conflict in Viet Nam is more obscure and [Page 608] less flagrant. The President then expressed his strong feeling that in such a situation the United States needs even more the support of allies in such an endeavor as Viet Nam in order to avoid sharp domestic partisan criticism as well as strong objections from other nations of the world. The President said that he could even make a rather strong case against intervening in an area 10,000 miles away against 16,000 guerrillas with a native army of 200,000, where millions have been spent for years with no success. The President repeated his apprehension concerning support, adding that none could be expected from the French, and Mr. Rusk interrupted to say that the British were tending more and more to take the French point of view. The President compared the obscurity of the issues in Viet Nam to the clarity of the positions in Berlin, the contrast of which could even make leading Democrats wary of proposed activities in the Far East.

Mr. Rusk suggested that firmness in Viet Nam in the manner and form of that in Berlin might achieve desired results in Viet Nam without resort to combat. The President disagreed with the suggestion on the basis that the issue was clearly defined in Berlin and opposing forces identified whereas in Viet Nam the issue is vague and action is by guerrillas, sometimes in a phantom-like fashion. Mr. McNamara expressed an opinion that action would become clear if U.S. forces were involved since this power would be applied against sources of Viet Cong power including those in North Viet Nam. The President observed that it was not clear to him just where these U.S. forces would base their operations other than from aircraft carriers which seemed to him to be quite vulnerable. General Lemnitzer confirmed that carriers would be involved to a considerable degree and stated that Taiwan and the Philippines would also become principal bases of action.

With regard to sources of power in North Viet Nam, Mr. Rusk cited Hanoi as the most important center in North Viet Nam and it would be hit. However, he considered it more a political target than a military one and under these circumstances such an attack would “raise serious questions.” He expressed the hope that any plan of action in North Viet Nam would strike first of all any Viet Cong airlift into South Viet Nam in order to avoid the establishment of a procedure of supply similar to that which the Soviets have conducted for so long with impunity in Laos.

Mr. Bundy raised the question as to whether or not U.S. action in Viet Nam would not render the Laotian settlement more difficult. Mr. Rusk said that it would to a certain degree but qualified his statement with the caveat that the difficulties could be controlled somewhat by the manner in which actions in Viet Nam are initiated.

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The President returned the discussion to the point of what will be done next in Viet Nam rather than whether or not the U.S. would become involved. He cautioned that the technique of U.S. actions should not have the effect of unilaterally violating Geneva accords. He felt that a technique and timing must be devised which will place the onus of breaking the accords on the other side and require them to defend their actions. Even so, he realized that it would take some time to achieve this condition and even more to build up world opinion against Viet Cong. He felt that the Jorden Report might be utilized in this effort.

The President discussed tactics in dealing with the International Control Commission. He delineated a clever plan to charge North Viet Nam with the onus for breaking accords. Following this he envisioned the initiation of certain U.S. actions. He realized that these actions would be criticized and subject to justification in world opinion but felt that it would be much less difficult if this particular U.S. action were secondary rather than primary. He directed State to study possible courses of action with consideration for his views relating to timing and to the Geneva Accords. He asked State also to consider the position of the individual members of the ICC and further suggested that the time was appropriate to induce India to agree to follow U.S. suggestion.

Mr. Murrow reported that parts of the Jorden Report are already in the hands of the ICC. He questioned the value of utilizing the report in the suggested manner since to do so would simply be to place a U.S. stamp on the report. Such action might not reap the desired effects.

The President asked what nations would possibly support the U.S. intervention in Viet Nam, listing Pakistan, Thailand, the Philippines, Australia, New Zealand (?). Mr. Rusk replied that they all would but the President implied doubts because of the pitfalls of the particular type of war in Viet Nam. He described it as being more a political issue, of different magnitude and (again) less defined than the Korean War.

Mr. Fowler said that the studies suggested to him that the job to be done has been magnified, thereby leading to pessimistic conclusions as to outcome. Taylor responded that although the discussion and even some of the draft memoranda were somewhat pessimistic, he returned from Viet Nam with optimism over what could be done if certain clearcut actions were taken. He envisioned two phases: (1) the revival of Viet Nam morale and (2) the initiation of the guerrilla suppression program. Mr. McNamara cautioned that the program was in fact complex and that in all probability U.S. troops, planes and resources would have to be supplied in additional quantities at a later date.

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The President asked the Secretary of Defense if he would take action if SEATO did not exist and McNamara replied in the affirmative. The President asked for justification and Lemnitzer replied that the world would be divided in the area of Southeast Asia on the sea, in the air and in communications. He said that Communist conquest would deal a severe blow to freedom and extend Communism to a great portion of the world. The President asked how he could justify the proposed courses of action in Viet Nam while at the same time ignoring Cuba. General Lemnitzer hastened to add that the JCS feel that even at this point the United States should go into Cuba.

The President stated the time had come for neutral nations as well as others to be in support of U.S. policy publicly. He felt that we should aggressively determine which nations are in support of U.S. policy and that these nations should identify themselves. The President again expressed apprehension on support of the proposed action by the Congress as well as by the American people. He felt that the next two or three weeks should be utilized in making the determination as to whether or not the proposed program for Viet Nam could be supported. His impression was that even the Democratic side of Congress was not fully convinced. The President stated that he would like to have the Vice President’s views in this regard and at that point asked if there was information on the Vice President’s arrival.3 The President then stated that no action would be taken during the meeting on the proposed memorandum and that he would discuss these subjects with the Vice President. He asked State to report to him when the directed studies had been completed.

“The meeting proceeded in the normal fashion with the first hour being consumed by the presentation of reports. Discussion continued until about 11:30, at which time the President asked me if I had further information on your arrival and, when I replied in the negative, he asked if I would check. I went outside the meeting and called Walter [Jenkins] and discovered that you had informed him around midnight of your difficulty in returning to Washington last night by private plane because of weather and of the possibility that you might not return to Washington as scheduled but might proceed to Seattle. I returned to the meeting and informed the President that I could not ascertain the details of your flight and arrival at the moment. The President then suggested that the meeting be adjourned and that he would discuss the subject with you later.” (Johnson Library, Vice Presidential Security File, National Security Council (II))

No record was found of a subsequent meeting between the President and Vice President regarding Vietnam.

  1. Source: Johnson Library, Vice Presidential Security File, National Security Council (11). Top Secret. The drafter is not indicated, but it was probably Howard L. Burris, the Vice President’s military aide. According to the President’s log, the following people, in addition to the President, attended the meeting: Byron R. White, Acting Attorney General; David E. Bell; Allen W. Dulles; John A. McCone; Robert S. McNamara; Roswell L. Gilpatric; Paul Nitze; William P. Bundy; Lyman L. Lemnitzer; Edward A. McDermott; Dean Rusk; Fowler Hamilton, U. Alexis Johnson, George C. McGhee; Walter P. McConaughy; Henry H. Fowler; Edward R. Murrow, McGeorge Bundy; Walt R. Rostow; Maxwell Taylor; Chester V. Clifton; Theodore C. Sorensen; Howard L. Burris; and Bromley Smith. (Kennedy Library; JFK Log, Book 11) From the notes themselves it is evident that Robert Amory was also present.
  2. Document 247.
  3. In a memorandum of November 15 to the Vice President, Colonel Burris described the hasty manner in which the November 15 meeting had been scheduled and how he had been unable to notify the Vice President prior to his departure from Washington on November 14 for Detroit. Just before the opening of the meeting, Burris told McGeorge Bundy that the only flight Johnson could get back from Detroit did not arrive until just after 11 a.m. but that he was not aware of the Vice President’s plans. Burris then described the course of the meeting: