Pentagon Papers

  2. Retaliatory Actions. For example:

  a. Overt high and/or low-level reconnaissance flights by U.S. or Farmgate aircraft over North Vietnam to assist in locating and identifying the sources of external aid to the Viet Cong.

  b. Retaliatory bombing strikes and commando raids on a tit-for-tat basis by the GVN against NVN targets (communication centers, training camps, infiltration routes, etc.)

  c. Aerial mining by the GVN aircraft (possibly with U.S. assistance) of the major NVN ports.

  3. Graduated Overt Military Pressure by GVN and U.S. Forces.

  This program would go beyond reacting on a tit-for-tat basis. It would include air attacks against military and possibly industrial targets. The program would utilize the combined resources of the GVN Air Force and the U.S. Farmgate Squadron, with the latter reinforced by three squadrons of B-57s presently in Japan. Before this program could be implemented it would be necessary to provide some additional air defense for South Vietnam and to ready U.S. forces in the Pacific for possible escalation.

  The analysis of the more serious of these military actions (from 2 (b) upward) revealed the extremely delicate nature of such operations, both from the military and political standpoints. There would be the problem of marshalling the case to justify such action, the problem of communist escalation, and the problem of dealing with the pressures for premature or “stacked” negotiations. We would have to calculate the effect of such military actions against a specified political objective. That objective, while being cast in terms of eliminating North Vietnamese control and direction of the insurgency, would in practical terms be directed toward collapsing the morale and the self-assurance of the Viet Cong cadres now operating in South Vietnam and bolstering the morale of the Khanh regime. We could not, of course, be sure that our objective could be achieved by any means within the practical range of our options. Moreover, and perhaps most importantly, unless and until the Khanh government has established its position and preferably is making significant progress in the South, an overt extension of operations into the North carries the risk of being mounted from an extremely weak base which might at any moment collapse and leave the posture of political confrontation worsened rather than improved.

  The other side of the argument is that the young Khanh Government [two words illegible] reinforcement of some significant sources against the North and without [words illegible] the in-country program, even with the expansion discussed in Section [words illegible] may not be sufficient to stem the tide.

  [Words illegible] balance, except to the extent suggested in Section V below, I [words illegible] against initiation at this time of overt GVN and/or U.S. military [word illegible] against North Vietnam.

  C. Initiate Measures to Improve the Situation in South Vietnam.

  There were and are sound reasons for the limits imposed by present policy—the South Vietnamese must win their own fight; U.S. intervention on a larger scale, and/or GVN actions against the North, would disturb key allies and other nations; etc. In any case, it is vital that we continue to take every reasonable measure to assure success in South Vietnam. The policy choice is not an “either/or” between this course of action and possible pressures against the North; the former is essential without regard to our decision with respect to the latter. The latter can, at best, only reinforce the former.

  The following are the actions we believe can be taken in order to improve the situation both in the immediate future and over a longer-term period. To emphasize that a new phase has begun, the measures to be taken by the Khanh government should be described by some term such as “South Vietnam’s Program for National Mobilization.”

  Basic U.S. Posture

  1. The U.S. at all levels must continue to make it emphatically clear that we are prepared to furnish assistance and support for as long as it takes to bring the insurgency under control.

  2. The U.S. at all levels should continue to make it clear that we fully support the Khanh government and are totally opposed to any further coups. The Ambassador should instruct all elements, including the military advisors, to report intelligence information of possible coups promptly, with the decision to be made by the ambassador whether to report such information to Khanh. However, we must recognize that our chances would not be great of detecting and preventing a coup that had major military backing.

  3. We should support fully the Pacification Plan now announced by Khanh (described in Annex B), and particularly the basic theory—now fully accepted both on the Vietnamese and U.S. sides—of concentrating on the more secure areas and working out from these through military operations to provide security, followed by necessary civil and economic actions to make the presence of the government felt and to provide economic improvements. . . .

  V. POSSIBLE LATER ACTIONS

  If the Khanh government takes hold vigorously—inspiring confidence, whether or not noteworthy progress has been made—or if we get hard information of significantly stepped-up VC arms supply from the North, we may wish to mount new and significant pressures against North Vietnam. We should start preparations for such a capability now. (See Annex C for an analysis of the situation in North Vietnam and Communist China.) Specifically, we should develop a capability to initiate within 72 hours the “Border Control”** and “Retaliatory Actions” referred to on pages 5 and 6, and we should achieve a capability to initiate with 30 days’ notice the program of “Graduated Overt Military Pressure.” The reasoning behind this program of preparations for initiating action against North Vietnam is rooted in the fact that, even with progress in the pacification plan, the Vietnamese Government and the population in the South will still have to face the prospect of a very lengthy campaign based on a war-weary nation and operating against Viet Cong cadres who retain a great measure of motivation and assurance.

  In this connection, General Khanh stated that his primary concern is to establish a firm base in the South. He favors continuation of covert activities against North Vietnam, but until such time as “rear-area security” has been established, he does not wish to engage in overt operations against the North.

  In order to accelerate the realization of pacification and particularly in order to denigrate the morale of the Viet Cong forces, it may be necessary at some time in the future to put demonstrable retaliatory pressure on the North. Such a course of action might proceed according to the scenario outlined in Annex D. . . .

  VII. RECOMMENDATIONS

  I recommend that you instruct the appropriate agencies of the U.S. Government:

  1. To make it clear that we are prepared to furnish assistance and support to South Vietnam for as long as it takes to bring the insurgency under control.

  2. To make it clear that we fully support the Khanh government and are opposed to further coups.

  3. To support a Program for National Mobilization (including a national service law) to put South Vietnam on a war footing.

  4. To assist the Vietnamese to increase the armed forces (regular plus paramilitary) by at least 50,000 men.

  5. To assist the Vietnamese to create a greatly enlarged Civil Administrative Corps for work at province, district and hamlet levels.

  6. To assist the Vietnamese to improve and reorganize the paramilitary forces and increase their compensation.

  7. To assist the Vietnamese to create an offensive guerrilla force.

  8. To provide the Vietnamese Air Force 25 A-1H aircraft in exchange for the present T-28s.

  9. To provide the Vietnamese Army additional M-113 armored personnel carriers (withdrawing the M-114s there), additional river boats, and approximately $5-10 million of other additional material.

  10. To announce publicly the Fertilizer Program and to expand it with a view within two years to trebling the amount of fertilizer made available.

  11. To authorize continued high-level U.S. overflights of South Vietnam’s borders and to authorize “hot pursuit” and South Vietnamese ground operations over the Laotian line for the purpose of bor
der control. More ambitious operations into Laos involving units beyond battalion size should be authorized only with the approval of Souvanna Phouma. Operations across the Cambodian border should depend on the state of relations with Cambodia.

  12. To prepare immediately to be in a position on 72 hours’ notice to initiate the full range of Laotian and Cambodian “Border Control” actions (beyond those authorized in Paragraph 11 above) and the “Retaliatory Actions” against North Vietnam, and to be in a position on 30 days’ notice to initiate the program of “Graduated Overt Military Pressure” against North Vietnam.

  # 64

  U.S. Order for Preparations for Some Retaliatory Action

  Excerpts from National Security Action Memorandum 288, “U.S. Objectives in South Vietnam,” March 17, 1964, as provided in the body of the Pentagon study. The words in brackets are the study’s. The paragraph in italics is the paraphrase by a writer of the study.

  [The United States’ policy is] to prepare immediately to be in a position on 72 hours’ notice to initiate the full range of Laotian and Cambodian “Border Control actions” . . . and the “Retaliatory Actions” against North Vietnam, and to be in a position on 30 days’ notice to initiate the program of “Graduated Overt Military Pressure” against North Vietnam. . . .

  We seek an independent non-Communist South Vietnam. We do not require that it serve as a Western base or as a member of a Western Alliance. South Vietnam must be free, however, to accept outside assistance as required to maintain its security. This assistance should be able to take the form not only of economic and social measures but also police and military help to root out and control insurgent elements.

  Unless we can achieve this objective in South Vietnam, almost all of Southeast Asia will probably fall under Communist dominance (all of Vietnam, Laos, and Cambodia), accommodate to Communism so as to remove effective U.S. and anti-Communist influence (Burma), or fall under the domination of forces not now explicitly Communist but likely then to become so (Indonesia taking over Malaysia). Thailand might hold for a period without help, but would be under grave pressure. Even the Philippines would become shaky, and the threat to India on the West, Australia and New Zealand to the South, and Taiwan, Korea, and Japan to the North and East would be greatly increased.

  All of these consequences would probably have been true even if the U.S. had not since 1954, and especially since 1961, become so heavily engaged in South Vietnam. However, that fact accentuates the impact of a Communist South Vietnam not only in Asia but in the rest of the world, where the South Vietnam conflict is regarded as a test case of U.S. capacity to help a nation to meet the Communist “war of liberation.”

  Thus, purely in terms of foreign policy, the stakes are high. . . .

  We are now trying to help South Vietnam defeat the Viet Cong, supported from the North, by means short of the unqualified use of U.S. combat forces. We are not acting against North Vietnam except by a modest “covert” program operated by South Vietnamese (and a few Chinese Nationalists)—a program so limited that it is unlikely to have any significant effect. . . .

  There were and are some sound reasons for the limits imposed by the present policy—the South Vietnamese must win their own fight; U.S. intervention on a larger scale, and/or GVN actions against the North, would disturb key allies and other nations; etc. In any case, it is vital that we continue to take every reasonable measure to assure success in South Vietnam. The policy choice is not an “either/or” between this course of action and possible pressure against the North; the former is essential and without regard to our decision with respect to the latter. The latter can, at best, only reinforce the former. . . .

  Many of the actions described in the succeeding paragraphs fit right into the framework of the [pacification] plan as announced by Khanh. Wherever possible, we should tie our urgings of such actions to Khanh’s own formulation of them, so that he will be carrying out a Vietnamese plan and not one imposed by the United States. . . .

  Among the alternatives considered, but rejected for the time being . . . were overt military pressure on North Vietnam, neutralization, return of U.S. dependents, furnishing of a U.S. combat unit to secure the Saigon area, and a full takeover of the command in South Vietnam by the U.S. With respect to this last proposal, it was said that

  . . . the judgment of all senior people in Saigon, with which we concur, was that the possible military advantages of such action would be far outweighed by adverse psychological impact. It would cut across the whole basic picture of the Vietnamese winning their own war and lay us wide open to hostile propaganda both within South Vietnam and outside.

  # 65

  Cable from President to Lodge on Escalation Contingencies

  Cablegram from President Johnson to Henry Cabot Lodge, United States Ambassador in Saigon, March 20, 1964.

  1. We have studied your 1776 and I am asking State to have Bill Bundy make sure that you get out latest planning documents on ways of applying pressure and power against the North. I understand that some of this was discussed with you by McNamara mission in Saigon, but as plans are refined it would be helpful to have your detailed comments. As we agreed in our previous messages to each other, judgment is reserved for the present on overt military action in view of the consensus from Saigon conversations of McNamara mission with General Khanh and you on judgment that movement against the North at the present would be premature. We have [sic] share General Khanh’s judgment that the immediate and essential task is to strengthen the southern base. For this reason our planning for action against the North is on a contingency basis at present, and immediate problem in this area is to develop the strongest possible military and political base for possible later action. There is additional international reason for avoiding immediate overt action in that we expect a showdown between the Chinese and Soviet Communist parties soon and action against the North will be more practicable after than before a showdown. But if at any time you feel that more immediate action is urgent, I count on you to let me know specifically the reasons for such action, together with your recommendations for its size and shape.

  2. On dealing with de Gaulle, I continue to think it may be valuable for you to go to Paris after Bohlen has made his first try. (State is sending you draft instruction to Bohlen, which I have not yet reviewed, for your comment.) It ought to be possible to explain in Saigon that your mission is precisely for the purpose of knocking down the idea of neutralization wherever it rears its ugly head and on this point I think that nothing is more important than to stop neutralist talk wherever we can by whatever means we can. I have made this point myself to Mansfield and Lippmann and I expect to use every public opportunity to restate our position firmly. You may want to convey our concern on this point to General Khanh and get his ideas on the best possible joint program to stop such talk in Saigon, in Washington, and in Paris. I imagine that you have kept General Khanh abreast of our efforts in Paris. After we see the results of the Bohlen approach you might wish to sound him out on Paris visit by you.

  # 66

  Draft Resolution for Congress on Actions in Southeast Asia

  Draft Resolution on Southeast Asia, May 25, 1964, as provided in the body of the Pentagon study.

  Whereas the signatories of the Geneva Accords of 1954, including the Soviet Union, the Communist regime in China, and Viet Nam agreed to respect the independence and territorial integrity of South Viet Nam, Laos and Cambodia; and the United States, although not a signatory of the Accords, declared that it would view any renewal of aggression in violation of the Accords with grave concern and as seriously threatening international peace and security;

  Whereas the Communist regime in North Viet Nam, with the aid and support of the Communist regime in China, has systematically flouted its obligations under these Accords and has engaged in aggression against the independence and territorial integrity of South Viet Nam by carrying out a systematic plan for the subversion of the Government of South Viet Nam, by furnishing dire
ction, training, personnel and arms for the conduct of guerrilla warfare within South Viet Nam, and by the ruthless use of terror against the peaceful population of that country;

  Whereas in the face of this Communist aggression and subversion the Government and people of South Viet Nam have bravely undertaken the defense of their independence and territorial integrity, and at the request of that Government the United States has, in accordance with its Declaration of 1954, provided military advice, economic aid and military equipment;

  Whereas in the Geneva Agreements of 1962 the United States, the Soviet Union, the Communist regime in China, North Viet Nam and others solemnly undertook to respect the sovereignty, independence, neutrality, unity and territorial integrity of the Kingdom of Laos;

  Whereas in violation of these undertakings the Communist regime in North Viet Nam, with the aid and support of the Communist regime in China, has engaged in aggression against the independence, unity and territorial integrity of Laos by maintaining forces on Laotian territory, by the use of that territory for the infiltration of arms and equipment into South Viet Nam, and by providing direction, men and equipment for persistent armed attacks against the Government of (words illegible);

  Whereas in the face of this Communist aggression the Government of National Unification and the non-Communist elements in Laos have striven to maintain the conditions of unity, independence and neutrality envisioned for their country in the Geneva Agreements of 1962;

  Whereas the United States has no territorial, military or political ambitions in Southeast Asia, but desires only that the peoples of South Viet Nam, Laos and Cambodia should be left in peace by their neighbors to work out their own destinies in their own way, and, therefore, its objective is that the status established for these countries in the Geneva Accords of 1954 and the Geneva Agreements of 1962 should be restored with effective means of enforcement;