Office of the Historian

382. Memorandum From the Joint Chiefs of Staff to Secretary of Defense McNamara1

JCSM–1017–62
Washington, December 21, 1962.

SUBJECT

  • Review of Congo Developments (U)
1.
The Joint Chiefs of Staff have reviewed their two previous memoranda to you, JCSM–983–62, dated 11 December 1962, subject: “Congo Developments”2 and JCSM–1000–62, dated 15 December 1962, subject: “Congo”,3 both in response to OSD (ISA) requests, in the light of the “Operating Plan for the Congo” proposed by the State Department.
2.
Before addressing specific actions, the Joint Chiefs of Staff note that:
a.
There are at present more than 17,000 UN troops in the Congo. Sufficient aircraft have been available to the UNOC to have permitted successful operations against the Katanga air force. However, the UN has neither conducted ground operations of any scope against Katanga ground forces nor utilized available aircraft to counter Katanga air attacks on forces of the Congolese Central Government.
b.
The US is supporting the UN Congo effort regularly with airlift, sealift, and equipment. Approximately 65,000 UN personnel have been airlifted in and out of the Congo, and 33,000 have been sealifted. Over 8,000 tons of equipment have been airlifted, including Swedish jet aircraft, and 30,000 tons sealifted. US equipment furnished includes communications gear, munitions, transport aircraft, and helicopters.
c.
In August 1962 the United States provided a modest expedited shipment of military equipment for the Congolese National Forces in order to provide assurance of US intention for the long-range reorganization and training of the ANC. The cost of this shipment was about $150,000.
3.
The Joint Chiefs of Staff believe the lack of forceful action by the UN forces in the Congo could be attributed to the mandate, or its execution, or to poor leadership and management. Troop morale has declined, doubts as to the effectiveness of the Congolese Central Government have arisen, and the Katangan will to resist has been strengthened. This situation reacts to the disadvantage of the Congolese Central Government and favors bolder and more independent action by the Tshombe Katangan regime and its supporters.
4.
The concept in the “Operating Plan for the Congo” is based on a series of measures, including threat or use of US forces, to force solution of the integration of the Congo. This appears to be an enlargement of and goes beyond the scope of the original problem addressed in JCSM–983–62. Though the main issue stems from secession of Katanga, there is no guarantee that strong visible military support from the US will overcome the inherent instability of the Adoula government.
5.
Accordingly, to proceed with timely phased actions in regard to the Congo without unnecessarily expanding the problem cited in paragraph 4 above, the Joint Chiefs of Staff wish to emphasize the sequence of their recommended actions and to clarify their recommendations contained in JCSM–983–62 as follows:
a.
The United States undertake, as a matter of priority, to exert pressure to revitalize present UN political and military efforts in the Congo.
b.
Simultaneously with the action in subparagraph 5a above, the United States should, as soon as possible, implement the approved military assistance program for the Congo.
c.
Since submission of the two previous memoranda mentioned in paragraph 1 above and in the light of subsequent developments in the Congo, the decision has been made that the Joint Chiefs of Staff will send a team of officers to the Congo to make an on-the-scene assessment of the military situation in compliance with Terms of Reference in which the Joint Chiefs of Staff, the Secretary of Defense, and the Secretary of State have concurred. The Joint Chiefs of Staff recommend that no decisions be taken with respect to the very important issue as to whether or not US forces will be introduced into the Congo until the report of the Congo Military Mission has been fully considered.
For the Joint Chiefs of Staff:
Maxwell D. Taylor
Chairman
Joint Chiefs of Staff
  1. Source: Washington National Records Center, RG 330, OSD Files: FRC 66 A 3542, Congo 381. Top Secret. The source text bears a notation that it was seen by Gilpatric.↩
  2. Enclosure to Document 353.↩
  3. It enclosed a military annex for the “Operating Plan for the Congo” (Document 362), identical to the annex and appendices cited in footnote 1 thereto. (Washington National Records Center, RG 330, OSD Files: FRC 66 A 3542, Congo 381)↩