221. Telegram From the Mission to the United Nations to the Department of State1
3515. Congo. Cleveland, Yost, Fredericks, and Vance met with Bunche and Gardiner for review of Congo situation and consideration of next steps. Gardiner, in response to question from Cleveland, said he expected Adoula–Tshombe talks to recommence soon. He said Tshombe had conveyed his intention to return to Leo Apr 30 and he (Gardiner) had sent letter to Tshombe welcoming decision. Gardiner, in accordance with Tshombe’s request, reaffirmed UN’s guarantees for Tshombe’s security. Gardiner said his reply had been sent to Adoula before it went to Tshombe and Adoula had approved it; Gardiner considered this favorable sign. However, he noted Adoula making speech Tuesday which would no doubt cover airport incident.
[Page 424]Yost asked what basis would be for talks when they began again. Gardiner presumed they would be on basis of paper Adoula gave Tshombe just before they parted.2 Tshombe has said he would offer: (A) comments, (B) amendments, (C) and counter proposals. Gardiner expressed opinion Adoula paper gave provinces a little less autonomy than Loi Fondamentale, but made clear his view paper was useful opening bid and had apparently been taken as such by Tshombe.
Cleveland asked if paper containing proposals from third party might be useful at this point as basis for negotiation. Gardiner said he did not think Congolese on either side would accept it. He noted extremely negative reaction to proposal agenda Gullion had offered earlier,3 attributing to that incident the temporary cooling of Adoula-US relations. Bunche also emphasized difficulty of pushing Congolese and said pressure only produced explosive reaction.
Cleveland then asked if this meant present situation was to go on indefinitely. Gardiner replied it could not be allowed to. Bunche stressed that Gardiner would not let talks collapse without intervening; but he would have to be judge of his tactics and timing so that his intervention would have effect of keeping talks going and not producing blowup.
Yost asked Gardiner’s estimation of domestic pressures on Adoula growing out of lengthening inconclusive negotiations. Gardiner noted that negotiations almost paralyze GOC administration. He named large number of GOC leaders who are kept away from administrative duties by participating in talks. (He said GOC thinking of dividing team in two parts which would alternate; but Adoula himself would have to continue be present for all talks.) Gardiner turned to difficulties Kamitatu is causing for Adoula and to some extent for UN. He noted Kamitatu’s practice of taking decisions about which Adoula was not informed and mentioned as examples arrests of trade union leaders and journalists, closing of daily papers, airport incident, etc.
He said Kamitatu is trying build party which theoretically is to be loyal to Adoula but Gardiner speculated it might turn out to be loyal to Kamitatu. He said Kamitatu has developed trouble with the “Leo group” who support Adoula.
Gardiner said there are two theories on political situation in Congo; one is that negotiations are going about as might be expected and will be successful ultimately; the other is that Tshombe simply stalling and preparing [Page 425] himself militarily. Gardiner did not commit himself as to which theory he held but he tended toward view Tshombe stalling.
Cleveland raised possibility of using tax collection scheme to get out of impasse. Gardiner replied this might be “waking the lion” and “if we wake him up I would hope the gun will be ready.” Bunche said during Gardiner’s talks here UN planning for various courses (A) if the talks succeed and (B) what UN would face in Leo and Eville if attempt at reconciliation collapses. Bunche said Gardiner had wanted to come to New York to get advice on contingency plans.
Gardiner and Bunche both expressed view tax collection scheme ran danger of starting train of events requiring extensive military action. While UN could hold its position in Eville under attack, it might also be attacked in other points in north Katanga. What would UN do? What, for example, would be limits on its action to stop troop movements from other parts of Katanga toward Eville?
In response to questions by Fredericks, Bunche noted reports of continuing buildup of mercenaries and military equipment by Katanga. As example, he referred to discovery of route for transporting mercenaries from Usumbura by barge and air to Abercorn in Rhodesia and then to Ndola and Katanga. He concluded if only small part of reports are true, Katanga is stronger now than in December.
Vance asked for Gardiner’s estimation of Adoula’s feeling toward political trends. Gardiner said Adoula feels he is on rock with Tshombe and tide is rising; Tshombe has a boat and he doesn’t. When Cleveland said it did not appear Adoula trying for deal with Tshombe, Gardiner noted great difficulties of negotiating with Tshombe and great skill required to make any progress. Gardiner commented if Adoula knew of tax collection proposal this might harden his negotiating positions. Vance asked Gardiner what he would expect Adoula’s position to be if Adoula were told of tax collection scheme with force behind it, but at same time were told scheme not available unless Adoula took certain positions in negotiations with Tshombe, thereby forcing Tshombe either to accept or reject reasonable offer. Gardiner replied Adoula would first have to get cabinet acceptance of proposal he would put to Tshombe; second, Adoula should not be given such proposal unless it were genuine and not bluff.
Cleveland commented we would need to know whether tactic was good one before we could go through procedure of taking decision to back it. Gardiner replied he believed if proposal were really true, if it was not bluff and therefore would lead to integration of Katanga, Adoula would do anything to carry it out; but if bluff, and Adoula made compromise offer to Tshombe which was rejected and nothing happened, results would be disastrous. Gardiner expressed view Adoula would make all reasonable concessions to prove that Tshombe is not really [Page 426] willing to integrate; but Adoula would only do this if he were assured it was not waste of time and at end there was backing for firm measures. Gardiner also referred to natural time limit to negotiations; when rainy season ended, movement of gendarmerie which had vehicles, could lead to clashes.
As conversation ended, Cleveland noted he and Gardiner would be traveling to Leo on same plane and could continue discussion.
- Source: Department of State, Central Files, 770G.00/4–2462. Confidential; Limit Distribution. Repeated to Léopoldville, Brussels, London, and Paris.↩
- See footnote 2, Document 219.↩
- Reference is apparently to a proposed agenda that Gullion had sent to Adoula via Gardiner. Gullion transmitted it in telegram 2539; see footnote 1, Document 219.↩