176. Telegram From the Department of State to Secretary of State Rusk, at Bermuda1
Tosec 16. For President and Secretary. Should be delivered even if in session with UK. Our preliminary analysis of statement by Tshombe accepting reintegration of Katanga follows:
If agreement carried out, it spells end of Katanga secession, full justification firm US support for UN actions, and provides opportunity for Léopoldville moderates cope conclusively with Gizenga problem. Bunche’s comment that this most encouraging event in Congo since [Page 337] Adoula Government approved by Parliament last August is most apt. According to unofficial text available, Tshombe accepts application of present Constitution, unity of Congo, President Kasavubu as Chief of State, authority of central government over all parts of Congo, and Katangan participation in parliamentary commission on Constitution. He also places Katanga gendarmerie under President Kasavubu. Such a complete capitulation on Tshombe’s part goes far beyond our expectations.
However, Tshombe has apparently left himself one important escape possibility. Press reports foregoing represents proposals he will put to Cabinet and provincial assembly for their approval. He has performed this routine before. Moreover, we all too well aware that most pressures on him in Elisabethville will be to go back on present commitments.
Major difference between this and previous occasions is the presence of the UN in Elisabethville and its demonstrated capacity to stay there. Its continued presence is an important part of the pressure on Tshombe to abide by his agreement. This could, if necessary, be made even more effective by insisting that Katangan tax revenues go to GOC Government thus depriving Tshombe’s government of its financial strength. We are insisting with UNNY (and Thant agrees) that UN troops maintain their “hold-fire”. We expect him to make statement in NY on this later today.
It is important, however, that we not give impression that our resolve to maintain UN in Elisabethville has weakened. It is equally imperative that there be no fighting, since any substantial incidents might only give Katanga extremists opportunity to find a way out.
On other hand desirable maximum effort be made by UK, Rhodesia, Belgium and France to support Kitona agreement and give Tshombe assistance in defending it against criticism of radical ministers and advisers.
As additional form of moral suasion, we hope President and Prime Minister will issue joint statement along lines suggested below as means making clear both governments regard agreement as binding. This parallels position taken by UN which has applauded agreement as major step in establishment of unity, peace and stability in Congo. Department has also issued statement today (sent addressees in separate message).2
Attention should be paid to fact that too great emphasis on identification of Kitona action as joint UK–US effort might impair influence of each nation at Elizabethville and Léopoldville.
[Page 338]Suggested statement follows:
“The governments of the US and the UK are gratified by the agreement reached at Kitona for resolving the Congo’s differences and for turning the energies of the Congolese to the task of building a nation, united in its independence, proud in its peaceful pursuits and respected in the eyes of the world.
The agreement to reintegrate the Katanga under the national government of the Congo is a most important building block of the Congo’s freedom and independence. The leaders participating in that agreement have shown notable statesmanship. Tribute should also be paid to the United Nations which by its presence in the Congo has contributed to peace and unity.
There will undoubtedly be practical details to be settled. We hope they will be resolved with vigor and urgency in the spirit of cooperation which the participants in the Kitona meeting have demonstrated so commendably.”3
- Source: Department of State, Central Files, 770G.00/12–2161. Confidential; Niact. Drafted by Cleveland and Tron, cleared by Vance, and approved by Ball. Repeated to London, Léopoldville, USUN, Paris, and Brussels. President Kennedy and Secretary Rusk met with Prime Minister Macmillan and Foreign Secretary Home in Bermuda December 21–22.↩
- Tosec 17 to Bermuda, December 21. (Ibid.) For text of the statement, see American Foreign Policy: Current Documents, 1961, p. 873.↩
- The joint communique issued by Kennedy and Macmillan on December 22 included a paragraph on the Congo in which they noted with satisfaction the “useful meeting” of Adoula and Tshombe at Kitona, expressed the “strong hope” that further progress would be made, and agreed on the importance of avoiding any renewal of armed action while “genuine efforts” at consultation went forward. The joint communique is printed ibid., pp. 547–548.↩