Pentagon Papers

  (b) A unilateral pause at this time would offer an excellent opportunity for Hanoi to interpose obstacles to our resumption of bombing and to demoralize South Vietnam by indefinitely dangling before us (and the world) the prospect of negotiations with no intent of reaching an acceptable settlement. It might also tempt the Soviet Union to make threats that would render very difficult a decision to resume bombing.

  (c) In Saigon, obtaining South Vietnamese acquiescence to a pause would be difficult. It could adversely affect the Government’s solidity. Any major falling out between the Government and the United States or any overturn in the Government’s political structure could set us back very severly (sic).

  (d) An additional factor is that undertaking the second course of action following a pause [i.e., “extrapolation” of ROLLING THUNDER] would give this course a much more dramatic character, both internationally and domestically, and would, in particular, present the Soviets with those difficult choices that we have heretofore been successful in avoiding.

  On balance, the arguments against the pause are convincing to the Secretary of State, who recommends that it not be undertaken at the present time. The Secretary of State believes that a pause should be undertaken only when and if the chances were significantly greater than they now appear that Hanoi would respond by reciprocal actions leading in the direction of a peaceful settlement. He further believes that, from the standpoint of international and domestic opinion, a pause might become an overriding requirement only if we were about to reach the advanced stages of an extrapolated Rolling Thunder program involving extensive air operations in the Hanoi/Haiphong area. Since the Secretary of State believes that such advanced stages are not in themselves desirable until the tide in the South is more favorable, he does not feel that, even accepting the point of view of the Secretary of Defense, there is now any international requirement to consider a “Pause.” . . .

  # 107

  Notes on McNamara Memorandum for Johnson after Vietnam Visit

  Excerpts from notes accompanying the Pentagon study, from a memorandum for President Lyndon B. Johnson from Secretary McNamara, Nov. 30, 1965.

  . . . The Ky “government of generals” is surviving, but not acquiring wide support or generating actions; pacification is thoroughly stalled, with no guarantee that security anywhere is permanent and no indications that able and willing leadership will emerge in the absence of that permanent security. (Prime Minister Ky estimates that his government controls only 25% of the population today and reports that his pacification chief hopes to increase that to 50% two years from now).

  The dramatic recent changes in the situation are on the military side. They are the increased infiltration from the North and the increased willingness of the Communist forces to stand and fight, even in large-scale engagements. The Ia Drang River Campaign of early November is an example. The Communists appear to have decided to increase their forces in SVN both by heavy recruitment in the South (especially in the Delta) and by infiltration of regular NVN forces from the North. . . . The enemy can be expected to enlarge his present strength of 110 battalion equivalents to more than 150 battalion equivalents by the end of calendar 1966, when hopefully his losses can be made to equal his input.

  As for the Communist ability to supply this force, it is estimated that, even taking account of interdiction of routes by air and sea, more than 200 tons of supplies a day can be infiltrated—more than enough, allowing for the extent to which the enemy lives off the land, to support the likely PAVN/VC force at the likely level of operations.

  To meet this possible—and in my view likely—Communist buildup, the presently contemplated Phase I forces will not be enough (approx 220,000 Americans, almost all in place by end of 1965). Bearing in mind the nature of the war, the expected weighted combat force ratio of less than 2-to-l will not be good enough. Nor will the originally contemplated Phase II addition of 28 more U.S. battalions (112,000 men) be enough; the combat force ratio, even with 32 new SVNse battalions, would still be little better than 2-to-l at the end of 1966. The initiative which we have held since August would pass to the enemy; we would fall far short of what we expected to achieve in terms of population control and disruption of enemy bases and lines of communications. Indeed, it is estimated that with the contemplated Phase II addition of 28 U.S. battalions, we would be able only to hold our present geographical positions.

  3. We have but two options, it seems to me. One is to go now for a compromise solution (something substantially less than the “favorable out once” I described in my memo of Nov. 3) and hold further deployments to a minimum. The other is to stick with our stated objectives and with the war, and provide what it takes in men and materiel. If it is decided not to move now toward a compromise, I recommend that the U.S. both send a substantial number of additional troops and very gradually intensify the bombing of NVN. Amb. Lodge, Wheeler, Sharp and Westmoreland concur in this prolonged course of action, although Wheeler and Sharp would intensify the bombing of the North more quickly.

  (recommend up to 74 battalions by end-66: total to approx 400,000 by end-66. And it should be understood that further deployments (perhaps exceeding 200,000) may be needed in 1967. Bombing of NVN. . . . over a period of the next six months we gradually enlarge the target system in the northeast (Hanoi-Haiphong) quadrant until, at the end of the period, it includes “controlled” reconnaissance of lines of comm throughout the area, bombing of petroleum storage facilities and power plants, and mining of the harbors. (Left unstruck would be population targets, industrial plants, locks and dams).

  4. Pause in bombing NVN. It is my belief that there should be a three- or four-week pause in the program of bombing the North before we either greatly increase our troop deployments to VN or intensify our strikes against the North. (My recommendation for a “pause” is not concurred in by Lodge, Wheeler or Sharp.) The reasons for this belief are, first, that we must lay a foundation in the minds of the American public and in world opinion for such an enlarged phase of the war and second, we should give NVN a face-saving chance to stop the aggression. I am not seriously concerned about the risk of alienating the SVNese, misleading Hanoi, or being “trapped” in a pause; if we take reasonable precautions, we can avoid these pitfalls. I am seriously concerned about embarking on a markedly higher level of war in VN without having tried, through a pause, to end the war or at least having made it clear to our people that we did our best to end it.

  5. Evaluation. We should be aware that deployments of the kind I have recommended will not guarantee success. U.S. killed-in-action can be expected to reach 1000 a month, and the odds are even that we will be faced in early 1967 with a “no-decision” at an even higher level. My over-all evaluation, nevertheless, is that the best chance of achieving our stated objectives lies in a pause followed, if it fails, by the deployments mentioned above.

  # 108

  Notes from McNamara Memo on Course of War in 1966

  Excerpts from notes accompanying the Pentagon study, from a memorandum for President Johnson from Secretary McNamara, “Military and Political Actions Recommended for South Vietnam,” Dec. 7, 1965.

  . . . We believe that, whether or not major new diplomatic initiatives are made, the U.S. must send a substantial number of additional forces to VN if we are to avoid being defeated there. (30 Nov program; concurred in by JCS)

  IV. Prognosis assuming the recommended deployments

  Deployments of the kind we have recommended will not guarantee success. Our intelligence estimate is that the present Communist policy is to continue to prosecute the war vigorously in the South. They continue to believe that the war will be a long one, that time is their ally, and that their own staying power is superior to ours. They recognize that the U.S. reinforcements of 1965 signify a determination to avoid defeat, and that more U.S. troops can be expected. Even though the Communists will continue to suffer heavily from GVN and U.S. ground and air action, we expect them, upon learning of any U.S. intentions to augment i
ts forces, to boost their own commitment and to test U.S. capabilities and will to persevere at higher level of conflict and casualties (U.S. KIA with the recommended deployments can be expected to reach 1000 a month).

  If the U.S. were willing to commit enough forces—perhaps 600,000 men or more—we could ultimately prevent the DRV/VC from sustaining the conflict at a significant level. When this point was reached, however, the question of Chinese intervention would become critical. (*We are generally agreed that the Chinese Communists will intervene with combat forces to prevent destruction of the Communist regime in the DRV. It is less clear whether they would intervene to prevent a DRV/VC defeat in the South.) The intelligence estimate is that the chances are a little better than even that, at this stage, Hanoi and Peiping would choose to reduce the effort in the South and try to salvage their resources for another day; but there is an almost equal chance that they would enlarge the war and bring in large numbers of Chinese forces (they have made certain preparations which could point in this direction).

  It follows, therefore, that the odds are about even that, even with the recommended deployments, we will be faced in early 1967 with a military standoff at a much higher level, with pacification still stalled, and with any prospect of military success marred by the chances of an active Chinese intervention.

  (memo of 24 jan 66: JCS believe that “the evaluation set forth in Par. 7 is on the pessimistic side in view of the constant and heavy military pressure which our forces in SEA will be capable of employing. While admittedly the following factors are to a degree imponderables, they believe that greater weight should be given to the following:

  a. The cumulative effect of our air campaign against the DRV on morale and DRV capabilities to provide and move men and materiel from the DRV to SVN.

  b. The effects of constant attack and harassment on the ground and from the air upon the growth of VC forces and on the morale and combat effectiveness of VC/PAVN forces.

  c. The effect of destruction of VC base areas on the capabilities of VC/PAVN forces to sustain combat operations over an extended period of time.

  d. The constancy of will of the Hanoi leaders to continue a struggle which they realize they cannot win in the face of progressively greater destruction of their country

  # 109

  Further McNaughton Memo on Factors in Bombing Decision

  Excerpts from memorandum by Assistant Secretary of Defense McNaughton, “Some Paragraphs on Vietnam,” third draft, Jan. 19, 1966, as provided in the body of the Pentagon study. Paragraphs in italics are the analyst’s paraphrase or explanation.

  McNaughton prepared a second memorandum complementing and partially modifying the one on bombing. It concerned the context for the decision. Opening with a paragraph which warned, “We . . . have in Vietnam the ingredients of an enormous miscalculation,” it sketched the dark outlines of the Vietnamese scene:

  . . . The ARVN is tired, passive and accommodation-prone . . . The PAVN/VC are effectively matching our deployments . . . The bombing of the North . . . may or may not be able effectively to interdict infiltration (partly because the PAVN/VC can simply refuse to do battle if supplies are short). . . . Pacification is stalled despite efforts and hopes. The GVN political infrastructure is moribund and weaker than the VC infrastructure among most of the rural population . . . South Vietnam is near the edge of serious inflation and economic chaos.

  The situation might alter for the better, McNaughton conceded. “Attrition—save Chinese intervention—may push the DRV ‘against the stops’ by the end of 1966.” Recent RAND motivation and morale studies showed VC spirit flagging and their grip on the peasantry growing looser. “The Ky government is coming along, not delivering its promised ‘revolution’ but making progress slowly and gaining experience and stature each week.” Though McNaughton termed it “doubtful that a meaningful ceiling can be put on the infiltration,” he said “there is no doubt that the cost of infiltration can . . . be made very high and that the flow of supplies can be reduced substantially below what it would otherwise be.” Possibly bombing, combined with other pressures, could bring the DRV to consider terms after “a period of months, not of days or even weeks.”

  The central point of McNaughton’s memorandum, following from its opening warning, was that the United States, too, should consider coming to terms. He wrote:

  C. The present U.S. objective in Vietnam is to avoid humiliation. The reasons why we went into Vietnam to the present depth are varied; but they are now largely academic. Why we have not withdrawn from Vietnam is, by all odds, one reason: (1) to preserve our reputation as a guarantor, and thus to preserve our effectiveness in the rest of the world. We have not hung on (2) to save a friend, or (3) to deny the Communists the added acres and heads (because the dominoes don’t fall for that reason in this case), or even (4) to prove that “wars of national liberation” won’t work (except as our reputation is involved). At each decision point we have gambled; at each point, to avoid the damage to our effectiveness of defaulting on our commitment, we have upped the ante. We have not defaulted, and the ante (and commitment) is now very high. It is important that we behave so as to protect our reputation. At the same time, since it is our reputation that is at stake, it is important that we not construe our obligation to be more than do the countries whose opinions of us are our reputation.

  D. We are in an escalating military stalemate. There is an honest difference of judgment as to the success of the present military efforts in the South. There is no question that the U.S. deployments thwarted the VC hope to achieve a quick victory in 1965. But there is a serious question whether we are now defeating the VC/PAVN main forces and whether planned U.S. deployments will more than hold our position in the country. Population and area control has not changed significantly in the past year; and the best judgment is that, even with the Phase IIA deployments, we will probably be faced in early 1967 with a continued stalemate at a higher level of forces and casualties.

  2. U.S. commitment to SVN. Some will say that we have defaulted if we end up, at any point in the relevant future, with anything less than a Western-oriented, non-Communist, independent government, exercising effective sovereignty over all of South Vietnam. This is not so. As stated above, the U.S. end is solely to preserve our reputation as a guarantor. It follows that the “softest” credible formulation of the U.S. commitment is the following:

  a. DRV does not take over South Vietnam by force. This does not necessarily rule out:

  b. A coalition government including Communists.

  c. A free decision by the South to succumb to the VC or to the North.

  d. A neutral (or even anti-U.S.) government in SVN.

  e. A live-and-let-live “reversion to 1959.” Furthermore, we must recognize that even if we fail to in achieving this “soft” formulation, we could over time come out with minimum damage:

  f. If the reason was GVN gross wrongheadedness or apathy.

  g. If victorious North Vietnam “went Titoist.”

  h. If the Communist take-over was fuzzy and very slow.

  Current decisions, McNaughton argued, should reflect awareness that the U.S. commitment could be fulfilled with something considerably short of victory. “It takes time to make hard decisions,” he wrote, “It took us almost a year to take the decision to bomb North Vietnam; it took us weeks to decide on a pause; it could take us months (and could involve lopping some white as well as brown heads) to get us in position to go for a compromise. We should not expect the enemy’s molasses to pour any faster than ours. And we should ‘tip the pitchers’ now if we want them to ‘pour’ a year from now.”

  But the strategy following from this analysis more or less corresponded over the short term to that recommended by the Saigon mission and the military commands: More effort for pacification, more push behind the Ky government, more battalions for MACV, and intensive interdiction bombing roughly as proposed by CINCPAC. The one change introduced in this memorandum, prepared only one day aft
er the other, concerned North Vietnamese ports. Now McNaughton advised that the ports not be closed.

  The argument which coupled McNaughton’s political analysis with his strategic recommendations appeared at the end of the second memorandum:

  The dilemma. We are in a dilemma. It is that the situation may be “polar.” That is, it may be that while going for victory we have the strength for compromise, but if we go for compromise we have the strength only for defeat—this because a revealed lowering of sights from victory to compromise (a) will unhinge the GVN and (b) will give the DRV the “smell of blood.” The situation therefore requires a thoroughly loyal and disciplined U.S. team in Washington and Saigon and great care in what is said and done. It also requires a willingness to escalate the war if the enemy miscalculates, misinterpreting our willingness to compromise as implying we are on the run. The risk is that it may be that the “coin must come up heads or tails, not on edge.”

  # 110

  McNaughton Memo for McNamara on Anti-Infiltration Barrier Plan

  Excerpts from a memorandum to Secretary of Defense McNamara, “ A Barrier Strategy,” as provided in the body of the Pentagon study. According to the narrative, the memorandum is unsigned but is by Assistant Secretary of Defense McNaughton, in whose handwriting the copy is marked “1/30/66” and “ copy given to RSM 3/22/66.” The study further says that the document is based on a draft memo of Jan. 3, 1966, “A Barrier Strategy,” by Prof. Roger D. Fisher of Harvard Law School.