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

37. Telegram From the Department of State to the Embassy in Belgium¹

Washington, February 23, 1961, 4:35 p.m.

1631. Department anticipates that one major result of present Security Council meeting will be general consensus that all Belgian military and para-military personnel and political advisers must be withdrawn from the Congo, including Katanga. Becoming increasingly clear US will be expected exert pressure on Belgians to take necessary steps to ensure removal these personnel; in fact, our influence with Afro-Asians on Congo will in large part only be effective to extent we demonstrate to them our success with Belgians, particularly since Belgium made scapegoat for Congo’s ills in large part of world. So long as we appear tolerate presence Belgian military in Katanga (and elsewhere) our denunciations of Bloc aid will fall on deaf ears of most Afro-Asians. If we are to succeed in efforts keep Communists out of Congo we must take steps to place ourselves in unassailable position vis-a-vis Afro-Asians. Ineluctably this will give us serious problems with Belgians and will place yet another strain on NATO.

Department when consulting with Belgians on new US ideas on Congo problem, has pointed out repeatedly implications our approach held for Belgian military, para-military and political personnel. However, Belgians continue maintain Belgians in Congo employed by Congolese, not by Belgium, and express doubts re UN capability replace Belgians. Therefore, US efforts with Belgium to obtain withdrawal personnel from Congo could produce serious strains US-Belgian relations similar to last summer’s experience, with serious results possible for NATO alliance as whole. Likelihood these adverse developments increased by fact Belgium beginning become involved in national election campaign. If particular attention not paid this problem now with Belgium, outgoing government might find it expedient launch anti-American campaign in defense its policies.

Accordingly, Department believes it highly desirable begin consulting closely with Belgians in Washington, New York and Brussels since manner in which problem handled with Belgium fully as important as substance of problem itself. Following position which designed to approach Belgians in most constructive light, should be taken with Belgians by addresses posts:

1. US fully cognizant past Belgian contribution to Congo and continues recognize essential role in Congolese economy which Belgian civilian technicians must play for some time in future if paralysis of Congolese economy to be avoided.

2. President has clearly stated US intention preventing Communist takeover in Congo and US continues full support of UN role there as best means achieve this objective.

3. However, success UN effort in Congo depends today in large measure on Afro-Asian support, which virtually impossible obtain on wide scale without withdrawal all Belgian military, para-military and political personnel from Congo, including Katanga which seems have become touchstone of West’s good intentions in Africa.

4. US therefore desires consult with Belgians as early as possible to ensure they fully understand our position as well as ensure they have ample opportunity work out any differences with us.

5. In our view, is in long-term Belgian economic interest to withdraw these personnel in order to preserve Belgian civilian role in Congo. As Secretary has pointed out to Belgian Ambassador here, would be extremely helpful particularly if at least some of individual Belgian adventurers who not cooperative with UN could be removed rapidly. US particularly convinced that Belgian initiative this matter will ease problem with Belgium’s critics as well as make it easier for Belgium’s friends take helpful stance.

6. As Secretary also has stated to Scheyven, US envisages withdrawal those Belgian military, para-military and political personnel in organized units to be accomplished in consultation with Congolese authorities. US hopes Belgium will do what it can to encourage cooperation Congolese in this regard, and US for its part will encourage both SYG and Congolese cooperate this matter. Attitude SYG as recently reported by USUN would seem give reason hope for success this effort.

7. US will also make efforts in UN and elsewhere to point out Belgian role in Congo essential if economic chaos to be avoided; US efforts would include urging UN develop better relations with Belgians in Congo, pointing out that there are several different categories of Belgians in Congo and that for most part these Belgians (e.g., civilian employees of business enterprises, small businessmen and landowners, professional people) carrying on constructive role essential to Congolese economic life.

In addition above presentation, in response specific request from Belgian Embassy, Department plans give Embassy following views as to how new Security Council resolution’s provisions relating withdrawal Belgian military and para-military personnel will be implemented (addressees should use with Belgians as appropriate):

(a) Belgians should seek SYG’s views on implementation resolution’s provisions on Belgian personnel, since SYG charged with this task;

(b) In U.S. view, Belgians should take immediate steps to withdraw military, paramilitary and political personnel over which they exercise direct control and should take all possible steps see that individual adventurers and “freebooters” are rapidly withdrawn;

(c) As Secretary told Scheyven on February 19,² those Belgian military and paramilitary personnel in organized units in Congo, including Katanga, should be withdrawn through consultations between SYG and appropriate Congolese authorities to ensure their withdrawal compensated for by alternative personnel arrangements acceptable to UN and Congolese. In this connection, Belgians should urge such consultations on SYG, pointing out personnel not under Belgian control; US would be glad support this point with SYG. By “alternative personnel arrangements” US specifically envisages that withdrawal these Belgian personnel must be carried out in carefully planned way in connection with UN steps to gain control of, regroup and discipline Congolese military units (para B(2) of SC resolution). US fully agrees with Belgians that withdrawal Belgian personnel must not lead to breakdown in order which could lead to large-scale exodus Belgian civilians.

Rusk

1. Source: Department of State, Central Files, 770G.00/2–2361. Confidential; Priority. Drafted by Chadbourn and Robert H. Miller of the Office of Western European Affairs; cleared by Wallner, Penfield, and Kohler; and approved and signed by Rusk. Also sent to USUN and repeated to Léopoldville and Paris.
2. A memorandum of the conversation, drafted by Miller, is ibid., Secretary’s Memoranda of Conversation: Lot 65 D 330.