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

331. Telegram From the Embassy in Belgium to the Department of State¹

Brussels, November 16, 1962, 8 p.m.

699. Policy. Eyes only Under Secretary McGhee. Eyes only Ambassador Bruce. Following is draft agreed minute approved in substance by McGhee prior his departure Brussels but modified by Foreign Office in subsequent discussions.²

Begin text.

At meeting on November 15, 1962, Foreign Minister Spaak and Under Secretary of State McGhee discussed following alternative suggestions.

First suggestion.

McGhee would go back to Congo accompanied by high official of Belgian Government and representative from Union Miniere to approach Tshombe.

Tshombe would be told of danger of present situation. He would be urged to accept deposit by Union Miniere to Monetary Council of foreign exchange provided by their exports and payment to same of their taxes and duties.

It would be indicated to Tshombe that this decision would be contingent upon Adoula agreeing to a satisfactory Constitution and amnesty and giving assurances regarding repayment of a fair share of revenues and foreign exchange to Katanga.

Belgian Government and Union Miniere representatives accompanying McGhee would emphasize to Tshombe their complete agreement with this proposal and their conviction that from economic point of view this arrangement would protect vital interests of Union Miniere and of Katanga.

Second suggestion.

A. McGhee would approach U Thant to ascertain whether payment by Union Miniere to Monetary Council of its foreign exchange, taxes and duties would be considered by him significant enough to allow pursuance of the present negotiation; assurances should be asked from Secretary General that no action would be undertaken by UN during these proceedings.

B. If U Thant gives these assurances, Adoula will be immediately asked whether he also considers implementation of above proposal of enough importance to justify calling a conference of provincial Presidents to study Constitutional amendments, to issue amnesty and to give following financial assurances:

1) IMF will propose a division of revenues between the GOC and the GOK.

These divisions will take into account needs of UMHK in and outside Congo and needs of GOK.

2) GOC will accept these findings and instruct Monetary Council accordingly. For necessary discussions Adoula, McGhee would go to Léopoldville accompanied by a high official of GOB and representative of UMHK.

C. If U Thant and Adoula agree, Spaak would submit question to GOB and seek to persuade it to urge UMHK to go along with this proposal.³

Should GOB agree, UMHK would be informed that Belgian Government would assume responsibility of implementation of these measures even if Tshombe does not agree to them.

D. When all agreements necessary to completion of above proposed steps have been obtained, McGhee accompanied by a high official of GOB and representative of UMHK would proceed to Elisabethville for necessary discussions with Tshombe. Plan could be outlined to him in detail, using all arguments and persuasions which could be brought to bear, both political and economic, by GOB and UMHK representatives, along with McGhee. By this means Tshombe could be assured that all aspects of his position have been given full consideration and have been taken as a basis for Plan. If at end of these conversations Tshombe should continue to prove recalcitrant, he could be informed that it is intention of UMHK, under any circumstance, to make its payments to GOC in Léopoldville.

Third Suggestion.

Secretary-General will convoke at UN Headquarters in New York Adoula, Tshombe, and high-ranking representatives of Belgian, British and American Governments (preferably Lord Home, Mr. Rusk, and Mr. Spaak).

U Thant would tell Adoula and Tshombe that with help of all interested powers, they should reach agreement on an effective solution of Katangan problem within a short given period of time.

Mr. Spaak feels that this could be most effective way of keeping initiative and solving problem.

Remarks.

A) During discussions held in Léopoldville and Elisabethville representatives of U.S. Government, of Belgian Government and of Union Miniere will work behind scenes with Gardiner appearing as official mediator.

B) Steps outlined in third suggestion could be proposed again in case sufficient progress not reached by means of implementation of second suggestion.

C) U.S. reiterated its will to help share losses Union Miniere might suffer in retaliation for its cooperation.

D) Spaak will outline to Lord Home three above-mentioned suggestions. No mention shall be made at present to UK of possibility of a unilateral action in case Tshombe’s acceptance could not be obtained.⁴

E) It is imperative that all of foregoing be held in strictest secrecy. For this reason discussions on subject between Belgian and American Governments will be centered in Brussels; and within UN only Secretary-General and Bunche will be approached. Our Embassies in Léopoldville and our Consulates in Elisabethville will not be informed for time-being of lines along which two governments are thinking.

End text.

Spaak will inform Lord Home of above as appropriate (probably through British Embassy here) and will let us know terms in which foregoing presented to him which we will cable to the Department upon receipt.

MacArthur

1. Source: Department of State, Central Files, 870G.25/11–1662. Secret; Niact. Repeated to London.
2. Telegram 703 from Brussels, November 17, reported that the Foreign Office had given the Embassy a revised text in English and French of the agreed minute and a copy in French of a memorandum for transmission to Lord Home that was largely identical to the agreed minute. The telegram reported the revisions in the agreed minute and the discrepancies in the memorandum. (Ibid., 870G.25/11–1762)
3. According to telegram 703, this sentence in the revised agreed minute and in the memorandum read: “If U Thant and Adoula agree, Spaak would submit question to GOB, which will officially seek to persuade UMHK to go along with this proposal.”
4. According to telegram 703, the Foreign Office asked that this sentence in the agreed minute be revised to read: “Mr. Spaak will outline to Lord Home the three above mentioned suggestions, without insisting on the fact that the measures mentioned in the second suggestion would be taken even without Tshombe’s acceptance.”