223. Telegram From the Department of State to the Embassy in Belgium1
2982. Re Deptel 2800 USUN, rptd 2940 Brussels, 5709 London, 1815 Léopoldville.2 McGhee called in Belgian Ambassador Scheyven and British Minister Hood to outline US policy on Congo as set forth reftel.
[Page 428]McGhee opened by saying since we all three deeply involved in Congo we would like discuss future course events and receive Belgian and British ideas as to how we should proceed from here. McGhee stated we were discouraged as to progress of Adoula-Tshombe talks. Tshombe had said he would return to Léopoldville on May 3 but we have no indication that progress will be made when talks resume. In addition we are worried about courses of action Adoula Government might take to reintegrate Katanga. Adoula had already approached certain Afro-Asian states for possible assistance to reintegrate Katanga and to have UN mandate changed. This line of action could lead to unfavorable situation which could be exploited by Bloc. We had, moreover indications that Adoula may ask UN to leave the Congo and unconfirmed secret reports that he may visit Moscow in mid-May. Therefore, in view dangers facing us in Congo we should try map out new approach, injecting into Adoula-Tshombe discussions new element of more vigorous mediation by Gardiner between two sides if they do not soon reach agreement. U Thant and Gardiner expressed general agreement idea, in recent talks with Cleveland and Fredericks. Our concept is to try find middle ground which both Adoula and Tshombe might accept. This should include financial concessions by Tshombe on tax question balanced by certain constitutional guarantees to satisfy Tshombe as well as Adoula. Views Gardiner who following talks and has confidence both parties should have great weight. The U.S. would like to see what new ideas Gardiner might come up with when talks reconvene next week and discuss them with Belgians and British. However, we would not envisage joint demarches which would be counter productive. McGhee concluded statement by saying fact of meeting with Belgians and British should not become known and should be held very tightly. He then asked for British and Belgian views.
Scheyven indicated that on basis their information they not as pessimistic as U.S. Spaak felt that although it was clear talks had gone on a long time without agreement time not yet ripe to intervene on either side. Spaak also very much opposed to contingency tax collection plan believing that this would be spark which would set off hostilities. During recent talks with Bomboko in Brussels, Scheyven continued, Spaak had suggested to Bomboko that GOC pass a law specifying division of taxes between Central Government and provinces. Spaak felt that such a law might give UMHK better legal basis pay taxes Central Government and that the proposal itself might help in getting both Adoula and Tshombe down to specifics.
McGhee replied that we also thought that time was not yet quite ripe for injection of mediation role and that we plan to await further views of Gardiner. We do however have greater sense of urgency and feel that unless some progress made by mid June, Adoula might begin [Page 429] take some dangerous steps. We do not wish use tax collection scheme, except as last resort. We want exhaust every other approach before resorting to it, e.g., mediation and Spaak proposal. McGhee indicated Spaak proposal might be very useful in helping Adoula and Tshombe reach an agreement.
In response to McGhee’s query as to British views, Hood replied he did not have London’s assessment concerning deterioration described by McGhee but would request it. He was sure British policy unchanged. He would report to London on our suggestion for more active mediation in talks and personally thought Gardiner would be best candidate for role.
In response to questions concerning timing of consultation, McGhee replied: a) we wished begin consultation as soon as possible in Department on working level, perhaps by May 1, if Belgians and British could get preliminary views their Fon Offs by then including estimate present situation in Congo; b) in meantime British and Belgians could study Gardiner’s paper3 [1-1/2 lines of source text not declassified] c) once we have additional suggestions or new reports from Gardiner after resumption of talks, we would wish begin more detailed consultation; d) when proposals finally worked out for Gardiner to inject into talks, there might be consultation in Léopoldville between Gardiner and (separately) our three ambassadors, if necessary.
For Brussels and London:
Ambassador MacArthur and Embassy London should inform Spaak and British Fon Off of McGhee’s talk with Scheyven and Hood, emphasizing our concern that continued lack of progress in talks increases domestic political pressures on Adoula, pushing him towards unilateral action. By bringing Belgians and British in on discussions at beginning and by asking for their thinking on possible outlines of an acceptable settlement between Adoula and Tshombe, we hope obtain if possible their concurrence US policy set forth reftel as well as their support of provisions of paper to be introduced by Gardiner when finally worked out, with corollary result their willingness to use their best efforts to make Tshombe agree to such provisions.
- Source: Department of State, Central Files, 770G.00/4–2862. Confidential. Drafted by Andrews; cleared by Tasca, Burdett, and Wallner; and approved by McGhee. Also sent to London and repeated to Léopoldville, Paris, New Delhi, Elisabethville, and USUN.↩
- Telegram 2800 to USUN, April 25, contained Cleveland’s instructions for his meeting with U Thant reported in telegram 3515, Document 222. (Department of State, Central Files, 770G.00/4–2562)↩
- Reference is to a draft agreement transmitted in telegram 2553 from Léopoldville, April 10. (Ibid., 770G.00/4–1062)↩