Foreign Relations of the United States, 1952–1954, China and Japan, Volume XIV, Part 1

S/S–NSC files, lot 63 D 351, NSC 166 Series

No. 145
Memorandum by the Joint Chiefs of Staff to the Secretary of Defense¹

top secret

Washington, November 3, 1953.

Subject:

• NSC 166—U.S. Policy Toward Communist China²

1. The Joint Chiefs of Staff submit herewith their views regarding a draft statement of policy prepared by the National Security Council Planning Board entitled “U.S. Policy Toward Communist China” (NSC 166) which, if adopted, is intended to supersede paragraph 8 of NSC 48/5.

2. The Joint Chiefs of Staff are of the opinion that, to be adequate as a statement of United States policy toward Communist China, NSC 166 should set forth more definitely the United States objective regarding the present Chinese Communist regime. Subparagraph 2b of NSC 166 states that “… Even if particular Far Eastern issues were resolved to the satisfaction of Peiping, the Chinese Communists, as communists, would continue to maintain a basic hostility to the West in general and the U.S. in particular.” The Joint Chiefs of Staff are in general agreement with that assessment and also with the proposed Policy Conclusion that, in the absence of further Chinese Communist aggression or a basic change in the situation, the overthrow or replacement of the Chinese Communist regime by the use of United States armed force would be currently unacceptable as a United States policy. However, if it is accepted that the present Chinese Communist regime will remain basically hostile to the United States, the Joint Chiefs of Staff consider that it is clearly in the interest of the United States to adopt as an ultimate objective the replacement of that regime by one which, as a minimum, would not be hostile to the United States. The Joint Chiefs of Staff feel that the adoption of such an objective would not be unrealistic, even though specific measures which might be effective to this end are not now feasible of implementation. Neither would it be inconsistent with the more immediate goal of reducing the relative power position of Communist China in Asia and of creating conditions designed to render the Chinese Communist regime amenable to reasonable settlements of international issues. The Joint Chiefs of Staff therefore recommend (a) that it continue to be United States policy to seek the reorientation of the Chinese Communist regime or its ultimate replacement by a regime which would not be hostile to the United States and (b) that the proposed Policy Conclusions in NSC 166 be amended accordingly.

3. Paragraph 8 of NSC 48/5 states that the United States should “… oppose seating Communist China in the UN.” The Joint Chiefs of Staff consider that the United States position regarding the representation of Communist China in the United Nations should be affirmatively and explicitly stated in NSC 166. In this connection, they have noted that the United States intention in this regard is clearly stated in paragraph 7 of NSC 146/1, a proposed policy statement prepared for early consideration by the National Security Council entitled “U.S. Objectives and Courses of Action with Respect to Formosa and the Chinese National Government.” In the light of the foregoing, the Joint Chiefs of Staff recommend that subparagraph 5h of NSC 166 be brought into consonance with NSC 146/1 by amending it to read as follows (changes indicated in the usual manner):³

“Continue to recognize and support the Chinese National Government on Formosa as the government of China and the representative of China in the United Nations and other international bodies, and continue efforts to persuade other nations to adopt similar positions; assist it in achieving …” [.]

4. Subject to the revisions recommended in paragraphs 2 and 3 above, the Joint Chiefs of Staff consider that NSC 166 is acceptable as a statement of policy to supersede paragraph 8 of NSC 48/5.

For the Joint Chiefs of Staff:

Edwin H.J. Carns

Brigadier General, USA
Secretary

1. Circulated to the National Security Council with a covering memorandum of Nov. 4 by Lay.
2. NSC 166, “U.S. Policy Toward Communist China,” Oct. 19, 1953, includes a draft statement of policy prepared by the NSC Planning Board and an NSC staff study. Except for a few revisions, it is identical to NSC 166/1, Document 149. Further documentation related to the NSC 166 Series is in S/P–NSC files, lot 61 D 167, “Communist China, U.S. Policy Toward”.
3. Added material underscored; printed here in italics.