Foreign Relations of the United States, 1961–1963, Volume XX, Congo Crisis

298. Telegram From the Embassy in the Congo to the Department of State¹

Léopoldville, September 28, 1962, 11 a.m.

761. Department also pass to White House. Eyes only Acting Secretary from McGhee. USUN eyes only for Secretary and Stevenson. Following summary of situation here as I see it after first days talks with Ambassador Gullion and staff, Acting Foreign Minister, Gardiner, Khiari, Belgian, UK, German Ambassadors and Canadian Charge:

1. It is generally agreed that implementation conciliation plan is stalled (see Embtel 755).² Key members of three commissions in Elisabethville returning to Léopoldville with others remaining as holding action. Tshombe clearly does not recognize Commissions as implementing agencies but only as discussion groups and has injected into their deliberations impossible procedural as well as substantive issues. No important irreversible step has been taken under plan. As Gardiner puts it, it is only question of whether UN admits situation, not as to whether it exists.

2. Although I have not yet seen Adoula, three hour meeting having been scheduled for September 28th, all sources indicate that he is not prepared to give on constitutional consultation issue and that his already weak political position would be greatly endangered if he did. We do not know, however, his reaction to U Thant’s letter of September 24 on this subject which he has requested 24 hours to consider. Agreement to consultation will be prime objective of my discussion with Adoula and all possible variants as to how consultation can be arranged will be exhausted.

3. Gardiner states clearly that he has not up to this point considered himself a mediator between Adoula and Tshombe in furtherance of plan, which means that there is no real link now between UN-Adoula and Tshombe. Gardiner’s position is that he will not go to Elisabethville until he sees evidence good faith on Tshombe’s part which, particularly in light of day’s revelations, is not likely unless some new element is injected into situation.

4. I do not see any objection to Adoula proceeding with letters re payments from mining companies agreed to between Spaak and Secretary General outlined Deptel 134.³ This appears to be in line with other steps being taken by Adoula pursuant to plan and should not provide excuse for Tshombe that he cannot proceed with plan under threat. Indeed steps should add useful pressure on Tshombe and in event Belgians succeed in getting UMHK to deposit revenues with Central Government will put onus on Tshombe if any retaliatory move is made.

I have received proposal from Tshombe covering two or three day visit which with some modifications I propose to accept arriving October 1st. If agreeable to Department, Ambassador Gullion and Hoffacker will accompany me to Elisabethville. Ambassador Gullion would participate in initial meeting.

Other discussions with Tshombe will be requested alone.

My immediate strategy, unless Department perceives objection is as follows.

1. Attempt persuade Adoula to some form of compromise on constitutional consultation issue.

2. Attempt persuade Tshombe of necessity following through with plan and to receive Gardiner in a frame of mind which can result in fruitful negotiations on specific issues removal of which would permit resumption work of Commissions and carrying out plan. I will seek avoid mediatory role.

3. Persuade Gardiner, contingent on success efforts with Tshombe, to go to Elisabethville immediately following my return. I would in such case remain in Léopoldville to await outcome after having made it clear to Tshombe that my report to Secretary and President would hinge largely on concrete results of Gardiner meeting that can be put into effect without delay.⁴

Gullion

1. Source: Department of State, Central Files, 110.12–McG/9–2862. Secret; Priority. Also sent to USUN.
2. Dated September 27. (Ibid., 770G.00/9–2762)
3. Telegram 905 to USUN (Document 297) was repeated as telegram 134 to Léopoldville.
4. Telegram 525 to Léopoldville, September 29, replied that McGhee’s three-point strategy appeared sound but questioned the advisability of Gullion accompanying him to Elisabethville, lest Tshombe use this as an excuse for lack of cooperation. (Department of State, Central Files, 110.12–McG/9–2862) Meanwhile, McGhee and Gardiner had agreed that Gardiner’s visit to Elisabethville should precede McGhee’s; Gullion remained in Léopoldville, pleading prior engagements. (Telegrams 770 and 778–780 from Léopoldville, September 29, and 781, September 30; ibid., 110.12–McG/9–2962 and 110.12–McG/9–3062, respectively)