42. Memorandum From the President’s Special Assistant for National Security Affairs (Bundy) to President Johnson1

Re

  • Basic Policy in Vietnam
1.
Bob McNamara and I have asked for the meeting with you at 11:302 in order to have a very private discussion of the basic situation in Vietnam. In a way it is unfortunate that we are meeting the morning after a minor coup, because that is not the present point. All of us agree with Alexis Johnson that nothing should be done on that until we have particular recommendations from Saigon (though at that point we may well want to urge Taylor and Johnson to make the best of the matter and not try to undo it).
2.
What we want to say to you is that both of us are now pretty well convinced that our current policy can lead only to disastrous defeat. What we are doing now, essentially, is to wait and hope for a stable government. Our December directives make it very plain that wider action against the Communists will not take place unless we can get such a government. In the last six weeks that effort has been unsuccessful, and Bob and I are persuaded that there is no real hope of success in this area unless and until our own policy and priorities change.
3.
The underlying difficulties in Saigon arise from the spreading conviction there that the future is without hope for anti-Communists. More and more the good men are covering their flanks and avoiding executive responsibility for firm anti-Communist policy. Our best friends have been somewhat discouraged by our own inactivity in the face of major attacks on our own installations. The Vietnamese know just as well as we do that the Viet Cong are gaining in the countryside. Meanwhile, they see the enormous power of the United States withheld, and they get little sense of firm and active U.S. policy. They feel that we are unwilling to take serious risks. In one sense, all of this is outrageous, in the light of all that we have done and all that we are ready to do if they will only pull up their socks. But it is a fact—or at least so McNamara and I now think.
4.
The uncertainty and lack of direction which pervade the Vietnamese authorities are also increasingly visible among our own people, even the most loyal and determined. Overtones of this sentiment appear in our cables from Saigon, and one can feel them also among our most loyal staff officers here in Washington. The basic directive says that we will not go further until there is a stable government, and no one has much hope that there is going to be a stable government while we sit still. The result is that we are pinned into a policy of first aid to squabbling politicos and passive reaction to events we do not try to control. Or so it seems.
5.
Bob and I believe that the worst course of action is to continue in this essentially passive role which can only lead to eventual defeat and an invitation to get out in humiliating circumstances.
6.
We see two alternatives. The first is to use our military power in the Far East and to force a change of Communist policy. The second is to deploy all our resources along a track of negotiation, aimed at salvaging what little can be preserved with no major addition to our present military risks. Bob and I tend to favor the first course, but we believe that both should be carefully studied and that alternative programs should be argued out before you.
7.
Both of us understand the very grave questions presented by any decision of this sort. We both recognize that the ultimate responsibility is not ours. Both of us have fully supported your willingness, in earlier months, to move out of the middle course. We both agree that every effort should still be made to improve our operations on the ground and to prop up the authorities in South Vietnam as best we can. But we are both convinced that none of this is enough, and that the time has come for harder choices.
8.
You should know that Dean Rusk does not agree with us. He does not quarrel with our assertion that things are going very badly and that the situation is unraveling. He does not assert that this deterioration [Page 97]can be stopped. What he does say is that the consequences of both escalation and withdrawal are so bad that we simply must find a way of making our present policy work. This would be good if it was possible. Bob and I do not think it is.
9.
A topic of this magnitude can only be opened for initial discussion this morning, but McNamara and I have reached the point where our obligations to you simply do not permit us to administer our present directives in silence and let you think we see real hope in them.
McG. B.
  1. Source: Johnson Library, National Security File, Memos to the President, McGeorge Bundy, Vol. VIII. Secret.
  2. On another copy of this memorandum a handwritten marginal notation by McNamara reads: “1/27/65 Mac & I presented these views orally to the Pres., who had already read this report, in a mtg with Dean Rusk Wed. mtg [January 27] B Mac.” (Washington National Records Center, RG 330, McNamara Files: FRC 71 A 3470, South Vietnam Statements and Supporting Papers)