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

428. Telegram From the Mission to the United Nations to the Department of State¹

New York, September 20, 1963, 9:30 p.m.

920. Congo. Ref: tel #1 USUN 921,²tel #2 USUN 922.³

1. Session with Bunche afternoon Sept. 20th was most satisfactory. Bunche was accompanied by Duran and Liu. US represented by Ambs Stevenson, Plimpton, Yost, Asst. Secy. Cleveland and staff; West present from Am Embassy Léopoldville.

2. There has developed a somewhat different atmosphere on Congo affairs in Secretariat during past week or ten days. On civilian operations, Bunche’s takeover of responsibility plus sequence of small increments to Congo fund and Adoula’s willingness to contribute hard currency to the fund, have created for first time in months, sense that Congo fund might actually get through 1963, and 1964 can therefore be faced with the courage to plan ahead. On military side, SYG’s discussions with Africans, British, Belgians and ourselves, topped by President’s public endorsement of ONUC continuing (not only in GA speech,⁴ but also in extemporaneous remarks to Secretariat by Americans⁵ and in private conversation with SYG and Bunche),⁶ have produced a mood into which SYG now willing to say he prepared to continue ONUC if funds therefor become available.

3. Congo military

On ONUC financing for 1964, Cleveland took line in paper, text of which in cable reftel #1. By meeting time, USUN and Secretariat Staff had agreed that total cost for force of 5279 (179 headquarters, 3880 combat, 1220 support) would be 20.2 million dollars, including battalion strength airlift. From this gross figure, it was agreed one million dollars could be deducted by transferring to civilian operations present ONUC charges for airport controls, meteorological personnel. Also deductible from gross figure is 3.2 million dollars of costs arising in local currency, which GOC might appropriately pick up. Net foreign exchange requirement for GA consideration is therefore sixteen million dollars for January–June 1964. Bunche said SYG would be willing to certify this figure to Fifth Committee as requirement needing to be covered by Assembly action.

4. On politics of GA action, Bunche said SYG had told President he thought it might be easier to handle ONUC financing question by inscribing a special item, despite presence on agenda of item for consideration ONUC cost estimates. SYG seems to feel that Soviets and French less likely to challenge inscription of a new item successfully, and might raise procedural dust if Fifth Committee simply proceeds under existing agenda item. We will consider this problem further here and advise.

5. Bunche also said SYG had told President that Congolese and Nigerians would be best ball carriers for ONUC financing proposition. He thought that Bomboko not strong enough to handle leadership discussion in New York, but thought Adoula’s presence in New York would be impressive and useful.

6. Yost and Cleveland raised question of actions now being taken by Secretariat, such as proposed phasing out of Nigerian troops, which might prejudice continuation of ONUC before GA had fully considered the matter. Bunche said problem was of concern to Secretariat. On Nigerians, he said message just received from Prime Minister Balewa asking that Nigerians not be rotated home in October as presently planned, and indicated UNNY would honor this Nigerian request.

7. In this general connection, Bunche said that Seydoux in recent conversation with SYG had made firm commitment of $75,000 for UNEF as voluntary contribution, and weighed in strongly against any continuation of ONUC, strongly implying that French would pay up ONUC arrears when Congo operation shut down. We asked whether this was French promise or commitment, and Bunche said Seydoux did not go that far. No similar implied promises have been received from Soviets.

8. Congo civilian operations

Cleveland referred to paper (reftel #2) and summarized following elements of problem; US could finance Congo fund only on 50–50 matching basis. For some types of services US govt could enter into arrangements with Congolese to help Congolese finance continuing presence of operational personnel (teachers, doctors, judges, ministerial advisers, etc.) in either contractual form or “funds in trust” form as described reftel #2. Given these arrangements, plus transfer to ETAP and special fund of some advisory, developmental and training personnel, residual requirement for direct financing by Congo fund as such could surely be held below three million dollars, and thus be “manageable” for 1964 fund raising on 50–50 matching basis.

Bunche agreed that such arrangements would enable UN to continue to operate on something like its present scale, and provide framework within which progressive transfer of responsibility to Congolese govt could be carried out over one-to-two-year period.

Cleveland also stressed importance of maintaining Office of Chief of Civil Operations as central programming and coordinating agency. Bunche agreed that under financial arrangements above described, Congo fund would continue and therefore it would be appropriate to continue a UN civil operations presence on UN payroll in Leoville. He said that Office of SYG’s Special Representative, who supervises both ONUC and CIVOPS, would disappear when ONUC disestablished, but that a special civilian operations or technical assistance representative would be maintained for duration of special UN responsibilities on the civil side. He pointed out that chief of civil operations already wears two other hats as resrep of TAB and country director for special fund, and framework is therefore present for eventual transition to normal UN pattern when UN responsibilities in the Congo eventually normalized.

On Congo fund for 1963, Cleveland said it would probably be possible for US to match not only salary payments for other operating personnel but cost of German telecommunications equipment being contributed to the Congo fund. Against new money requirement of 7.25 million in Congo fund for CY 1963, following receipts are therefore in hand or in prospect: (figures in millions of dollars): received from non-US sources so far 2.3; German equipment 8; received from US so far 2.0; probable further US contribution 1.0; payment to Congo fund recently agreed to by GOC .75; Total 6.75; shortfall .5 to be made up if necessary by further Congolese payment late this year.

Stevenson

1. Source: Department of State, Central Files, POL 3 The Congo/UN. Confidential; Priority. Repeated to Léopoldville, Brussels, and Lagos.
2. Telegram 921, September 20, transmitted the text of a summary of the U.S. position on financing of U.N. forces in the Congo, which Cleveland had given to Bunche at a meeting that afternoon. It argued that it should be possible to fund the cost of continuing U.N. operations in the Congo until mid-1964, and the United States was prepared to work with other countries and to pay a fair share of the cost. (Ibid., POL 27–4 The Congo/UN)
3. Telegram 922, September 20, transmitted the text of an informal aide-memoire concerning the financing of U.N. civilian operations in the Congo, which Cleveland had left with Bunche that afternoon. (Ibid., AID (UN) 8 The Congo)
4. Kennedy addressed the General Assembly on September 20. For text of his address, see Public Papers of the Presidents of the United States: John F. Kennedy, 1963, pp. 693–698.
5. For text of Kennedy’s remarks on September 20 to staff members of the U.S. Delegation to the United Nations, see ibid., pp. 698–699.
6. No record of the conversation has been found.