Pentagon Papers

  A second objective in this period is the maintenance of morale in South Viet Nam particularly within the Khanh Government. This should not be difficult in the case of the government if we can give Khanh assurance of our readiness to bring added pressure on Hanoi if he provides evidence of ability to do his part. Thirdly while gaining time for Khanh, we must be able to hold the DRV in check and restrain a further buildup of Viet Cong strength by way of infiltration from the North. Finally, throughout this period, we should be developing a posture of maximum readiness for a deliberate escalation of pressure against North Viet Nam, using January 1, 1965 as a target D-Day. We must always recognize, however, that events may force U.S. to advance D-Day to a considerably earlier date.

  [Start of sentence illegible] we then need to design a course of action which will achieve the four objectives enumerated above. Such a course of action would consist of three parts: the first, a series of actions directed at the Khanh Government; the second, actions directed at the Hanoi Government; the third, following a pause of some duration, initiation of an orchestrated air attack against North Viet Nam.

  In approaching the Khanh Government, we should express our willingness to Khanh to engage in planning and eventually to exert intense pressure on North Viet Nam, providing certain conditions are met in advance. In the first place before we would agree to go all out against the DRV, he must stabilize his government and make some progress in cleaning up his operational backyard. Specifically, he must execute the initial phases of the Hop Tac Plan successfully to the extent of pushing the Viet Cong from the doors of Saigon. The overall pacification program, including Hop Tac, should progress sufficiently to allow earmarking at least three division equivalents for the defense in I Corps if the DRV step up military operations in that area.

  Finally we should reach some fundamental understandings with Khanh and his government concerning war aims. We must make clear that we will engage in actions against North Viet Nam only for the purpose of assuring the security and independence of South Viet Nam within the territory assigned by the 1954 agreements; that we will not (rpt not) join in a crusade to unify the north and south; that we will not (rpt not) even seek to overthrow the Hanoi regime provided the latter will cease its efforts to take over the south by subversive warfare.

  With these understandings reached, we would be ready to set in motion the following:

  (1) Resume at once 34A (with emphasis on Marine operations) and Desoto patrols. These could start without awaiting outcome of discussions with Khanh.

  (2) Resume U-2 overflights over all NVN.

  (3) Initiate air and ground strikes in Laos against infiltration targets as soon as joint plans now being worked out with the Khanh Government are ready. Such plans will have to be related to the situation in Laos. It appears to U.S. that Souvanna Phouma should be informed at an appropriate time of the full scope of our plans and one would hope to obtain his acquiescence in the anti-infiltration actions in Laos. In any case we should always seek to preserve our freedom of action in the Laotian corridor.

  By means of these actions, Hanoi will get the word that the operational rules with respect to the DRV are changing. We should perhaps consider message to DRV that shooting down of U-2 would result in reprisals. We should now lay public base for justifying such flights and have plans for prompt execution in contingency to shoot down. One might be inclined to consider including at this state tit-for-tat bombing operations in our plans to compensate for VC depredations in SVN. However, the initiation of air attacks from SVN against NVN is likely to release a new order of military reaction from both sides, the outcome of which is impossible to predict. Thus, we do not visualize initiating this form of reprisal as a desirable tactic in the current plan but would reserve the capability as an emergency response if needed.

  Before proceeding beyond this point, we should raise the level of precautionary military readiness (if not already done) by taking such visible measures as [word illegible] Hawk units to Danang and Saigon, landing a Marine force at Danang for defense of the airfield and beefing up MACV’s support base. By this time (assumed to be late fall) we should have some reading on Khanh’s performance.

  Assuming that his performance has been satisfactory and that Hanoi has failed to respond favorably, it will be time to embark on the final phase of course of action A, a carefully orchestrated bombing attack on NVN directed primarily at infiltration and other military targets. At some point prior thereto it may be desirable to open direct communications with Hanoi if this not been done before. With all preparations made, political and military, the bombing program would begin, using U.S. reconnaissance planes, VNAF/Farmgate aircraft against those targets which could be attacked safely in spite of the presence of the MIG’s and additional U.S. combat aircraft if necessary for the effective execution of the bombing programs.

  Pros and cons of course of action—A. If successful course of action A will accomplish the objectives set forth at the outset as essential to the support of U.S. policy in South Viet Nam. I will press the Khanh Government into doing its homework in pacification and will limit the diversion of interest to the out-of-country ventures it gives adequate time for careful preparation estimated at several months, while doing sufficient at once to maintain internal morale. It also provides ample warning to Hanoi and Peking to allow them to adjust their conduct before becoming overcommitted.

  On the other hand, course of action A relies heavily upon the durability of the Khanh government. It assumes that there is little danger of its collapse without notice or of its possible replacement by a weaker or more unreliable successor. Also, because of the drawn-out nature of the program it is exposed to the danger of international political pressure to enter into negotiations before NVN is really hurting from the pressure directed against it.

  Statement of the Problem—B. It may well be that the problem of U.S. policy in SVN is more urgent than that depicted in the foregoing statement. It is far from clear at the present moment that the Khanh Government can last until January 1, 1965, although the application of course of action A should have the effect of strengthening the government [rest of sentence illegible].

  [Start of sentence illegible] we would have to restate the problem in the following terms. Our objective avoid the possible consequences of a collapse of national morale. To accomplish these purposes, we would have to open the campaign against the DRV without delay, seeking to force Hanoi as rapidly as possible to resist from aiding the VC and to convince the DRV that it must cooperate in calling off the VC insurgency.

  Course of Action—B. To meet this statement of the problem, we need an accelerated course of action, seeking to obtain results faster than under course of action A. Such an accelerated program would include the following actions:

  Again we must inform Khanh of our intentions, this time expressing a willingness to begin military pressures against Hanoi at once, providing that he will undertake to perform as in course of action A. However, U.S. action would not await evidence of performance.

  Again we may wish to communicate directly on this subject with Hanoi or awaiting effect of our military actions. The scenario of the ensuing events would be essentially the same as under Course A but the execution would await only the readiness of plans to expedite relying almost exclusively on U.S. military means.

  Pros and cons of Course of Action B. This course of action asks virtually nothing from the Khanh Government, primarily because it is assumed that little can be expected from it. It avoids the consequence of the sudden collapse of the Khanh Government and gets underway with minimum delay the punitive actions against Hanoi. Thus, it lessens the chance of an interruption of the program by an international demand for negotiation by presenting a fait accompli to international critics. However, it increases the likelihood of U.S. involvement in ground action since Khanh will have almost no available ground forces which can be released from pacification employment to mobile resistance of DRV attacks.

  Conclusion: It is co
ncluded that Course of Action A offers the greater promised achievement of U.S. policy objectives in SVN during the coming months. However, we should always bear in mind the fragility of the Khanh Government and be prepared to shift quickly to Course of Action B if the situation requires. In either case, we must be militarily ready for any response which may be initiated by NVN or by Chicoms.

  Miscellaneous: as indicated above, we believe that 34A operations should resume at once at maximum tempo, still on a covert basis; similarily, Desoto patrols should begin advance, operating outside 12-mile limit. We concur that a number of VNAF pilots should be trained on B-57’s between now and first of year. There should be no change now with regard to policy on evacuation of U.S. dependents.

  Recommendation: It is recommended that USG adopt Course of Action A while maintaining readiness to shift to Course of Action B.

  # 77

  Rusk Cable to Embassy in Laos on Search and Rescue Flights

  Cablegram from Secretary of State Dean Rusk to the United States Embassy in Vientiane, Laos, Aug. 26, 1964. A copy of this message was sent to the Commander in Chief, Pacific.

  We agree with your assessment of importance SAR operations that Air America pilots can play critically important role, and SAR efforts should not discriminate between rescuing Americans, Thais and Lao. You are also hereby granted as requested discretionary authority to use AA pilots in T-28’s for SAR operations when you consider this indispensable rpt indispensable to success of operation and with understanding that you will seek advance Washington authorization wherever situation permits.

  At same time, we believe time has come to review scope and control arrangements for T-28 operations extending into future. Such a review is especially indicated view fact that these operations more or less automatically impose demands for use of U.S. personnel in SAR operations. Moreover, increased AA capability clearly means possibilities of loss somewhat increased, and each loss with accompanying SAR operations involves chance of escalation from one action to another in ways that may not be desirable in wider picture. On other side, we naturally recognize T-28 operations are vital both for their military and psychological effects in Laos and as negotiating card in support of Souvanna’s position. Request your view whether balance of above factors would call for some reduction in scale of operations and-or dropping of some of better-defended targets. (Possible extension T-28 operations to Panhandle would be separate issue and will be covered by septel.)

  On central problem our understanding is that Thai pilots fly missions strictly controlled by your Air Command Center with [word illegible] in effective control, but that this not true of Lao pilots. We have impression latter not really under any kind of firm control.

  Request your evaluation and recommendations as to future scope T-28 operations and your comments as to whether our impressions present control structure correct and whether steps could be taken to tighten this.

  # 78

  Joint Chiefs’ Recommendations on Military Courses of Action

  Excerpts from memorandum, “Recommended Courses of Action—Southeast Asia,” from the Joint Chiefs of Staff to Secretary of Defense Robert S. McNamara, Aug. 26, 1964.

  3. The Joint Chiefs of Staff have considered Ambassador Taylor’s statements of objectives and courses of action. In recognition of recent events in SVN, however, they consider that his proposed course of action B is more in accord with the current situation and consider that such an accelerated program of actions with respect to the DRV is essential to prevent a complete collapse of the U.S. position in Southeast Asia. Additionally, they do not agree that we should be slow to get deeply involved until we have a better feel for the quality of our ally. The United States is already deeply involved. The Joint Chiefs of Staff consider that only significantly stronger military pressures on the DRV are likely to provide the relief and psychological boost necessary for attainment of the requisite governmental stability and viability.

  4. Recent U.S. military actions in Laos and against the DRV have demonstrated our resolve more clearly than any other U.S. actions in some time. These actions showed force and restraint. Failure to resume and maintain a program of pressure through military actions could be misinterpreted to mean we have had second thoughts about Pierce Arrow and the events leading thereto, and could signal a lack of resolve. Accordingly, while maintaining a posture of readiness in the Western Pacific, the Joint Chiefs of Staff believe that the U.S. program should have as concurrent objectives: (1) improvements in South Vietnam, including emphasis on the Pacification Program and the Hop Tac plan to clear Saigon and its surroundings; (2) interdiction of the relatively unmolested VC lines of communication (LOC) through Laos by operations in the Panhandle and of the LOC through Cambodia by strict control of the waterways leading therefrom; (3) denial of Viet Cong (VC) sanctuaries in the Cambodia-South Vietnam border area through the conduct of “hot pursuit” operations into Cambodia, as required; (4) increased pressure on North Vietnam through military actions. As part of the program for increased pressures, the OPLAN 34A operations and the Desoto patrols in the Gulf of Tonkin should be resumed, the former on an intensified but still covert basis.

  5. The Joint Chiefs of Staff believe, however, that more direct and forceful actions than these will, in all probability, be required. In anticipation of a pattern of further successful VC and Pathet Lao (PL) actions in RVN and Laos, and in order to increase pressure on the DRV, the U.S. program should also provide for prompt and calculated responses to such VC/PL actions in the form of air strikes and other operations against appropriate military targets in the DRV.

  6. The Joint Chiefs of Staff recognize that defining what might constitute appropriate counteroperations in advance is a most difficult task. We should therefore maintain our prompt readiness to execute a range of selected responses, tailored to the developing circumstances and reflecting the principles in the Gulf of Tonkin actions, that such counteroperations will result in clear military disadvantage to the DRV. These responses, therefore, must be greater than the provocation in degree, and not necessarily limited to response in kind against similar targets. Air strikes in response might be purely VNAF; VNAF with U.S. escort to provide protection from possible employment of MIG’s; VNAF with U.S. escort support in the offensive as well as the defensive role; or entirely U.S. The precise combination should be determined by the effect we wish to produce and the assets available. Targets for attack by air or other forces may be selected from appropriate plans including the Target Study for North Vietnam consisting of 94 targets, recently forwarded to you by the Joint Chiefs of Staff. . . .

  # 79

  Plan of Action Attributed to McNaughton at Pentagon

  Excerpts from memorandum, Sept. 3, 1964, “Plan of Action for South Vietnam,” which the Pentagon study indicates was drawn up by Assistant Secretary of Defense John T. McNaughton.

  1. Analysis of the present situation. The situation in South Vietnam is deteriorating. Even before the government sank into confusion last week, the course of the war in South Vietnam had been downward, with Viet Cong incidents increasing in number and intensity and military actions becoming larger and more successful, and with less and less territory meaningfully under the control of the government. Successful ambushes had demonstrated an unwillingness of the population even in what were thought to be pacified areas to run the risk of informing on the Viet Cong. War weariness was apparent. The crisis of the end of August—especially since the competing forces have left the government largely “faceless” and have damaged the government’s ability to manage the pacification program—promises to lead to further and more rapid deterioration. . . . The objective of the United States is to reverse the present downward trend. Failing that, the alternative objective is to emerge from the situation with as good an image as possible in U.S., allied and enemy eyes.

  2. Inside South Vietnam. We must in any event keep hard at work inside South Vietnam. This means, inter alia, immediate action:

  (a) to press the
presently visible leaders to get a real government in operation;

  (b) to prevent extensive personnel changes down the line;

  (c) to see that lines of authority for carrying out the pacification program are clear.

  New initiatives might include action:

  (d) to establish a U.S. naval base, perhaps at Danang;

  (e) to embark on a major effort to pacify one province adjacent to Saigon.

  A separate analysis is being made of a proposal:

  (f) to enlarge significantly the U.S. military role in the pacification program inside South Vietnam—e.g., large numbers of U.S. special forces, divisions of regular combat troops, U.S. air, etc., to “interlard” with or to take over functions of geographical areas from the South Vietnamese armed forces. . . .

  3. Outside the borders of South Vietnam. There is a chance that the downward trend can be reversed—or a new situation created offering new opportunities, or at least a convincing demonstration made of the great costs and risks incurred by a country which commits aggression against an ally of ours—if the following course of action is followed. The course of action is made up of actions outside the borders of South Vietnam designed to put increasing pressure on North Vietnam but designed also both to create as little risk as possible of the kind of military action which would be difficult to justify to the American public and to preserve where possible the option to have no U.S. military action at all. . . .

  Actions. The actions, in addition to present continuing “extraterritorial” actions (U.S. U-2 recce of DRV, U.S. jet recce of Laos, T-28 activity in Laos), would be by way of an orchestration of three classes of actions, all designed to meet these five desiderata—(1) from the U.S. GVN and hopefully allied points of view, they should be legitimate things to do under the circumstances, (2) they should cause apprehension, ideally increasing apprehension, in the DRV, (3) they should be likely at some point to provoke a military DRV response, (4) the provoked response should be likely to provide good grounds for us to escalate if we wished, and (5) the timing and crescendo should be under our control, with the scenario capable of being turned off at any time. . . .