327. Memorandum From the Under Secretary of State for Political Affairs (McGhee) to the President’s Deputy Special Assistant for National Security Affairs (Kaysen)1
SUBJECT
- Rumors of a United Nations Plan to Use Force in the Congo
Following is a report on rumors circulating to the effect the United Nations intends to resort to force to achieve a solution to the Congo problem, and a summary of discussions of this question with United Nations officials.
Rumors of possible use of force by the United Nations appear to have emanated from several sources: impressions of people talking to Bunche after his recent Congo trip as to what he had in mind; misleading press reports concerning U Thant’s remarks at the November 6 meeting of the Congo Advisory Committee; erroneous speculation on reasons for the UN efforts to obtain fighter aircraft, transport planes and troops to make up for the withdrawal of the Ethiopian F–86’s and the impending withdrawal of Malayan and Tunisian units; and inferences drawn by Elisabethville sources from bits and pieces of circumstantial evidence.
Our concern that these rumors might have some basis led to our instructing our Mission in New York to make clear to the United Nations our opposition to resort to the use of force.2Ambassador Yost expressed this view to Mr. Bunche on November 2.3 The latter expressed [Page 660] surprise that we should have any concern in this respect and denied that the United Nations was contemplating any plans involving the application of force. Moreover, as Mr. Harlan Cleveland explained to the President at the November 7 meeting on the Congo. Mr. Bunche’s explanation to him of the Secretary-General’s thinking about future steps did not involve aggressive measures. Bunche also promised to consult with us on any measures the United Nations planned to take in the Congo. In meeting with the Secretary-General and Dr. Bunche on November 9, after making it clear that we accepted their assurances that it was not their intention to use force but referring to the many current rumors to this effect both in New York and the Congo, I advised them that the United States would not support an unprovoked aggressive action by the UN. Both U Thant and Bunche reiterated that they had no such intention and that they would advise us before taking any stronger action, whether or not involving the use of force.
Our conclusion is that these rumors reflect a determination on the part of the Secretary-General and Bunche to bring to a head the issue of Katangan reintegration as soon as possible, at least before the end of the year. To this end they undoubtedly wish to put pressure on all concerned in Léopoldville, Elisabethville, Washington, London and Brussels to face up to the difficult steps that must be taken. In this regard they very possibly have drawn lessons from our present confrontation with the USSR as to the advantage of commingling power and diplomacy. It is, therefore, possible that the Secretary-General is prepared to act in such a way as to force us and the other principal parties interested in the Plan to support him in the application of stronger non-military measures, which he quite honestly feels will not lead to large-scale hostilities. We do not believe, however, that he will rely on the use of force as a primary instrument for this purpose, since he can effectively apply the resources available to him only with United Nations consent.
- Source: Kennedy Library, National Security Files, Brubeck Files, Congo. Secret. The source text does not indicate the drafter, but a copy indicates that it was drafted by Rutter and revised by McGhee. (Department of State, Central Files, 332.70G/11–962)↩
- Telegrams 1168, 1169, and 1170 to USUN, all November 2, contained instructions to this effect. (Ibid., 770G.00/10–3162 and 770G.00/11–262)↩
- The conversation was reported in telegram 1620 from USUN, November 2. (Ibid.)↩