Pentagon Papers

  3. With reference to the cease-fire proposal transmitted by Bidault to the French cabinet, I read the following, as views principally of military members of the Planning Board, expressed in their yesterday afternoon meeting:

  1. U.S. should not support the Bidault proposal.

  2. Reasons for this position:

  a. The mere proposal of the cease-fire at the Geneva Conference would destroy the will to fight of French forces and make fencesitters jump to Vietminh side.

  b. The Communists would evade covertly cease-fire controls.

  3. The U.S. should (as a last act to save IndoChina) propose to France that if the following 5 conditions are met, the U.S. will go to Congress for authority to intervene with combat forces:

  a. grant of genuine freedom for Associated States

  b. U.S. take major responsibility for training indigenous forces

  c. U.S. share responsibility for military planning

  d. French forces to stay in the fight and no requirement of replacement of U.S. forces

  (e. Action under UN auspices?)

  This offer to be made known simultaneously to the other members of the proposed regional grouping (UK, Australia, NZ, Thailand, Associated States, Philippines) in order to enlist their participation.

  I then summarized possible objections to making the above proposal to the French:

  a. No French Government is now competent to act in a lasting way.

  b. There is no indication France wants to “internationalize” the conflict.

  c. The U.S. proposal would be made without the prior assurance of a regional grouping of SEA states, a precondition of Congress; although this point might be added as another condition to the proposal.

  d. U.S. would be “bailing out colonial France” in the eyes of the world.

  e. U.S. cannot undertake alone to save every situation of trouble.

  I concluded that some PB members felt that it had never been made clear to the French that the U.S. was willing to ask for Congressional authority, if certain fundamental preconditions were met; that these matters had only been hinted at, and that the record of history should be clear as to the U.S. position. Dulles was interested to know the President’s views, because he is talking with Ambassador Bonnet this afternoon. He indicated that he would mention these matters to Bonnet, perhaps making a more broad hint than heretofore. He would not circulate any formal paper to Bonnet, or to anyone else.

  The President referred to the proposition advanced by Governor Stassen at the April 29 Council Meeting as not having been thoroughly thought out. He said that he had been trying to get France to “internationalize” matters for a long time, and they are not willing to do so. If it were thought advisable at this time to point out to the French the essential preconditions to the U.S. asking for Congressional authority to intervene, then it should also be made clear to the French as an additional precondition that the U.S. would never intervene alone, that there must be an invitation by the indigenous people, and that there must be some kind of regional and collective action.

  I understand that Dulles will decide the extent to which he cares to follow this line with Ambassador Bonnet. This discussion may afford Dulles guidance in replying to Smith’s request about a U.S. alternative to support the Bidault proposal, but there really was no decision as to the U.S. attitude toward the cease-fire proposal itself.

  # 9

  Eisenhower’s Instructions to U.S. Envoy at Geneva Talks

  Cablegram from Secretary of State Dulles to Under Secretary Walter Bedell Smith, May 12, 1954.

  The following basic instructions, which have been approved by the President, and which are in confirmation of those already given you orally, will guide you, as head of the United States Delegation, in your participation in the Indochina phase of the Geneva Conference.

  1. The presence of a United States representative during the discussion at the Geneva Conference of “the problem of restoring peace in Indochina” rests on the Berlin Agreement of February 18, 1954. Under that agreement the U.S., UK, France, and USSR agreed that the four of them plus other interested states should be invited to a conference at Geneva on April 26 “for the purpose of reaching a peaceful settlement of the Korean question” and agreed further, that “the problem of restoring peace in Indochina” would also be discussed at Geneva by the four powers represented at Berlin, and Communist China and other interested states.

  2. You will not deal with the delegates of the Chinese Communist regime, or any other regime not now diplomatically recognized by the United States, on any terms which imply political recognition or which concede to that regime any status other than that of a regime with which it is necessary to deal on a de facto basis in order to end aggression or the threat of aggression, and to obtain peace.

  3. The position of the United States in the Indochina phase of the Geneva Conference is that of an interested nation which, however, is neither a belligerent nor a principal in the negotiation.

  4. The United States is participating in the Indochina phase of the Conference in order thereby to assist in arriving at decisions which will help the nations of that area peacefully to enjoy territorial integrity and political independence under stable and free governments with the opportunity to expand their economies, to realize their legitimate national aspirations, and to develop security through individual and collective defense against aggression, from within or without. This implies that these people should not be amalgamated into the Communist bloc of imperialistic dictatorship.

  5. The United States is not prepared to give its express or implied approval to any cease-fire, armistice, or other settlement which would have the effect of subverting the existing lawful governments of the three aforementioned states or of permanently impairing their territorial integrity or of placing in jeopardy the forces of the French Union in Indochina, or which otherwise contravened the principles stated in (4) above.

  6. You should, insofar as is compatible with these instructions, cooperate with the Delegation of France and with the Delegations of other friendly participants in this phase of the Conference.

  7. If in your judgment continued participation in the Indochina phase of the Conference appears likely to involve the United States in a result inconsistent with its policy, as stated above, you should immediately so inform your Government, recommending either withdrawal or the limitation of the U.S. role to that of an observer. If the situation develops such that, in your opinion, either of such actions is essential under the circumstances and time is lacking for consultation with Washington, you may act in your discretion.

  8. You are authorized to inform other delegations at Geneva of these instructions.

  # 10

  1954 Study by the Joint Chiefs on Possible U.S. Intervention

  Excerpts from memorandum from Admiral Arthur W. Radford, Chairman of the Joint Chiefs of Staff, to Secretary of Defense Charles E. Wilson, May 26, 1954, on “Studies With Respect to Possible U.S. Action Regarding Indochina.”

  1. Reference is made to the memorandum by the Acting Secretary of Defense, dated 18 May 1954, subject as above, wherein the Joint Chiefs of Staff were requested to prepare certain studies, and agreed outline answers to certain questions relating thereto, for discussion with the Acting Secretary of Defense on or before 24 May, and for subsequent submission to the National Security Council (NSC).

  2 a. The Studies requested by the Acting Secretary of Defense were developed within the parameters prescribed in the memorandum by the Executive Secretary, NSC, dated 18 May 1954, subject as above. This memorandum is interpreted as assuming no concurrent involvement in Korea. This assumption may be quite unrealistic and lead to malemployment of available forces. The Joint Chiefs of Staff desire to point out their belief that, from the point of view of the United States, with reference to the Far East as a whole, Indochina is devoid of decisive military objectives and the allocation of more than token U.S. armed forces in Indochina would be a serious diversion of limited U.S.
capabilities. The principal sources of Viet Minh military supply lie outside Indochina. The destruction or neutralization of these sources in China proper would materially reduce the French military problems in Indochina.

  b. In connection with the above, it may be readily anticipated that, upon Chinese Communist intervention in Indochina, the French would promptly request the immediate deployment of U.S. ground and air forces, additional naval forces, and a considerable increase in MDAF armament and equipment. The Joint Chiefs of Staff have stated their belief that committing to the Indochina conflict naval forces in excess of a Fast Carrier Task Force and supporting forces as necessary in accordance with the developments in the situation, of basing substantial air forces in Indochina, will involve maldeployment of forces and reduce readiness to meet probable Chinese Communist reaction elsewhere in the Far East. Simultaneously, it is necessary to keep in mind the considerable Allied military potential available in the Korea-Japan-Okinawa area.

  c. In light of the above, it is clear that the denial of these forces to Indochina could result in a schism between the United States and France unless they were employed elsewhere. However, it should be noted that the Joint Chiefs of Staff have plans, both approved and under consideration, which provide for the employment of these forces in combat operations outside Indochina. Nevertheless, it is desired to repeat that this particular report is responsive to the question of U.S. intervention in Indochina only.

  ASSUMING THE CHINESE COMMUNISTS INTERVENE

  3. Strategic Concept and Plan of Operation

  Seek to create conditions through the destruction of effective Communist forces and their means for support in the Indochina action and by reducing Chinese Communist capability for further aggression, under which Associated States forces could assume responsibility for the defense of Indochina. In the light of this concept the major courses of action would be as follows:

  a. Employing atomic weapons, whenever advantageous, as well as other weapons, conduct offensive air operations against selected military targets in Indochina and against those military targets in China, Hainan, and other Communist-held offshore islands which are being used by the Communists in direct support of their operations, or which threaten the security of U.S. and allied forces in the area.

  b. Simultaneously, French Union Forces, augmented by U.S. naval, and air forces, would exploit by coordinated ground, naval, and air action such successes as may be gained as a result of the aforementioned air operations in order to destroy enemy forces in Indochina.

  c. Conduct coordinated ground, naval, and air action to destroy enemy forces in Indochina.

  d. In the light of circumstances prevailing at the time, and subject to an evaluation of the results of operations conducted under subparagraphs a and b above, be prepared to take further action against Communist China to reduce its war-making capability, such as:

  (1) Destruction of additional selected military targets. In connection with these additional targets, such action requires an enlarged but highly selective atomic offensive in addition to attacks employing other weapons systems.

  (2) Blockade of the China coast. This might be instituted progressively from the outset.

  (3) Seizure or neutralization of Hainan Island.

  (4) Operations against the Chinese mainland by Chinese Nationalist forces. . . .

  ASSUMING CHINESE COMMUNISTS DO NOT INTERVENE

  9. Strategic Concept and Plan of Action

  Seek to create conditions by destroying effective Communist forces in Indochina, under which the Associated States Forces could assume responsibility for the defense of Indochina. In the light of this concept, the major courses of action which would be undertaken are as follows:

  a. Conduct air operations in support of allied forces in Indochina. The employment of atomic weapons is contemplated in the event that such course appears militarily advantageous.

  b. Simultaneously, French Union Forces augmented by such armed forces of the Philippines and Thailand as may be committed would, in coordination with U.S. naval and Air Force forces, conduct coordinated ground, naval and air action to destroy enemy forces in Indochina. . . .

  # 11

  Cable by Dulles on Negotiations at Geneva on Vietnam Elections

  Cablegram by Secretary Dulles to United States Embassy in Paris with copies to the United States Embassies in London and Saigon and to the United States Consul General in Geneva for Under Secretary Bedell Smith, July 7, 1954.

  We see no real conflict between paragraphs 4 and 5 U.S.-UK terms. We realize of course that even agreement which appears to meet all seven points cannot constitute guarantee that Indochina will not one day pass into Communist hands. Seven points are intended provide best chance that this shall not happen. This will require observance of criteria not merely in the letter but in the spirit. Thus since undoubtedly true that elections might eventually mean unification Vietnam under Ho Chi Minh this makes it all more important they should be only held as long after cease-fire agreement as possible and in conditions free from intimidation to give democratic elements best chance. We believe important that no date should be set now and especially that no conditions should be accepted by French which would have direct or indirect effect of preventing effective international supervision of agreement ensuring political as well as military guarantees. Also note paragraph 3 of President and Prime Minister joint declaration of June 29 regarding QTE unity through free elections supervised by the UN UNQTE.

  Our interpretation of willingness QTE respect UNQTE agreement which might be reached is that we would not (repeat not) oppose a settlement which conformed to seven points contained Deptel 4853. It does not (repeat not) of course mean we would guarantee such settlement or that we would necessarily support it publicly. We consider QTE respect UNQTE as strong a word as we can possibly employ in the circumstances to indicate our position with respect to such arrangements as French may evolve along lines points contained DEPTEL 4853. QTE respect UNQTE would also mean that we would not seek directly or indirectly to upset settlement by force.

  You may convey substance above to French.

  # 12

  Chinese Communists’ Position on a Neutralized Indochina

  Cablegram from Under Secretary of State Bedell Smith at Geneva to Secretary Dulles, July 18, 1954.

  Following despatch given us in advance by Topping of Associated Press apparently represents official Chinese Communist position and was given Topping in order that we would become aware of it. It begins:

  QUOTE

  The Communist bloc has demanded that the United States guarantee the partition peace plan for Indochina and join in an agreement to neutralize the whole country, a responsible Chinese Communist informant said today.

  The informant, who reflects the views of Red China Premier Chou En-lai, said the Communists are hopeful of a cease-fire agreement by next Tuesday’s deadline if the Western powers agree to ‘bar all foreign military bases from Indochina and keep the three member states out of any military bloc.’

  The informant said the Communists are pressing for the stamp of American approval on the armistice agreement—already okayed in principle by Britain and France—which would divide Vietnam between Communists leader Ho Chi Minh’s Viet Minh and Bao Dai’s pro-Western regime.

  ‘We believe that the U.S. as a member of the conference should and is obligated to subscribe to and guarantee any settlement. Morally, there is no reason for the U.S. to avoid this obligation.’

  But the informant did not (repeat not) rule out the chance of an Indochina cease-fire even if the U.S. refuses to okay the armistice agreement.

  The Eisenhower administration has told France and Britain that they can go ahead with their plan for an Indochina settlement based on partition of Vietnam. But Washington has made it clear that it is not (repeat not) ready to associate itself formally with the plan which would sanction putting millions of Vietnamese under Red rule.

  The Communist informant said the ‘crucial issue’ no
w in the Geneva peace negotiations revolves around whether the Western powers will agree effectively to neutralize Indochina.

  ‘Refusal to join in such a guarantee,’ the informant said, ‘could seriously deter a final settlement. On other important points in the negotiations we are in agreement or close to it. We are hopeful and we believe that there is time to reach a settlement by July 20.’

  French Premier Pierre Mendes-France has promised to resign with his Cabinet if he fails to end the bloody eight-year-old war by next Tuesday. Fall of the French Government probably would doom the Geneva negotiations. The informant declared that American efforts to organize a Southeast Asia Treaty organization (SEATO) is a ‘threat to any possible Indochina agreement.’

  ‘Success or failure of the Geneva Conference may depend on the attitude of the American delegation in this regard,’ he added.

  END QUOTE

  The above seems to me extremely significant, particularly in view of the fact that in my discussion with Eden last night he expressed pessimism, which he said was now shared for the first time by Krishna Menon. Latter had begun to feel, as I do, that Molotov wishes to force Mendes-France’s resignation. Eden remarked that Molotov had now become the most difficult and intransigent member of Communist delegation. You will note obvious intention to place on shoulders of U.S. responsibility for failure of Geneva Conference and fall of French Government if this occurs.

  Molotov is insisting on a meeting this afternoon which French and British are trying to make highly restricted as they are apprehensive of what may occur. If such a meeting is held and if demands are made for U.S. association in any agreement, I will simply say that in the event a reasonable settlement is arrived at which U.S. could “respect”, U.S. will probably issue a unilateral statement of its own position. If question of participation Laos, Cambodia and Vietnam in security pact is raised, I will reply that this depends on outcome of conference.