63. Memorandum From the Assistant Secretary of State for International
Organization Affairs (Wilcox) to the Secretary of
State1
Washington, February 13,
1957.
SUBJECT
- Proposal to Establish a Permanent UN Corps for Observation, Patrol, and Related
Functions
Problem:
To consider whether the United States should sponsor a proposal for a
permanent United Nations force.
[Page 173]
Discussion:
- 1.
- Considerable interest has been expressed in Congress and elsewhere
in UNEF as the possible prototype
or forerunner of a multi-national UN
force to deal with political disputes, acts of aggression, armed
conflicts, etc. The Governments of Pakistan and Canada are
reportedly developing proposals on this subject.
- 2.
- The existence of various situations where United Nations
observation or patrol might either deter the outbreak of hostilities
or facilitate the cessation of hostilities after they have broken
out, suggests that the UNEF
experience might now constructively be built upon to augment the
available tools for dealing with international disputes,
particularly those in the non-Communist world. I believe the
Department should be prepared with a realistic and feasible plan for
presentation at an auspicious time.
- 3.
- A proposal for a UN corps should be
considered as an adjunct to UN
procedures for the pacific settlement of disputes, rather than as a
collective security-type fighting force designed to repel military
aggression. Anything going beyond this limited role would not be
likely to secure acceptance at the present time.
- 4.
- Ambassador Lodge feels
that the present moment is inappropriate for formal discussions of
this idea.2 Given the tactical situation in the Assembly, and
the unresolved questions regarding UNEF, I suggest we be flexible as to timing, but be in
a position to make a proposal as soon as feasible. Such a proposal
is outlined in Tab A, along with a
draft resolution (Tab B)
establishing a study committee to make recommendations to the
General Assembly. The suggested force might be called UN Corps for Observation and Patrol
(UNCOP).
- 5.
- Perhaps the best way to stimulate constructive thinking on this
matter would be to ask the Secretary General to circulate for
general information a memorandum containing proposals based on the
attached papers. If you approve, we could work out with Ambassador
Lodge suitable timing
for such a move, which might be made jointly with Canada and
possibly others.
- 6.
- It would probably be undesirable to advance this proposal until
Israeli forces have completed their withdrawal and UNEF is further deployed. Also, it
would be made clear that the present proposal has no direct
application to UNEF itself.
- 7.
- EUR, while concurring in the
proposal, is concerned at the possibility of participation in the
corps by Soviet satellite states, and also possible proposals for
utilization of the corps by the Assembly in situations where it
might not be in this country’s interest. It is believed, however,
that the overall advantages of the proposal outweigh these possible
difficulties, which could be met by appropriate diplomatic
leadership in concrete circumstances.
Recommendations:
1. That, subject to clearance with the Defense Department, Ambassador
Lodge be authorized to
consult with Canada and other principal allies with a view to having the
Secretary General, at an appropriate time, circulate for information a
memorandum embodying appropriate portions of the attached paper. The
tactics, including preliminary consultations, possible concert with
Canada, etc. would be worked out with Ambassador Lodge at the time.3
Tab A4
UNITED STATES VIEWS REGARDING POSSIBLE UN CORPS FOR OBSERVATION, PATROL AND
RELATED FUNCTIONS
Governing Principles
- 1.
- Standing arrangements should be developed enabling the UN in appropriate circumstances to
provide international military personnel to give “on the ground”
support to efforts toward the pacific settlement of disputes by
the General Assembly (or Security Council), including the
patrolling of disputed boundary lines or areas, supervising and
maintaining cessation of hostilities, and observing situations
which threaten the maintenance of peace and security.
- 2.
- It would be neither a purely “paper” corps on the one hand,
nor a large standing force on the other. It might most feasibly
take material shape in the form of a UN Corps training center. This might be established
within a “neutral” nation, such as India, Sweden, or even
Switzerland, possibly by leasing or purchasing an already
existing military school facility. Alternatively, it could be
located in e.g. Canada, relatively accessible to UN Headquarters. A permanent cadre
of UN officers, directly hired or
seconded by Member governments, would constitute the permanent
party. 75 Member States would be eligible to detail a small
number of officers
[Page 175]
and
non-coms for suitable training periods, on a rotational basis.
These cadres would return to staff and train elements of company
or battalion size within the various national military
establishments, such units to be equipped with UN helmets and armbands.
- 3.
- Upon call of the Assembly (or Security Council) various of
these trained and earmarked units would be immediately available
to carry out UN observation
and/or patrol duties, the composition of a particular force to
be guided by political and other desiderata.
- 4.
- It would not at this stage include personnel from the five
permanent members of the Security Council, nor would the
Security Council or Military Staff Committee have any
supervisory role.
- 5.
- It would be stationed on the territory of a Member State only
with the consent of that State. (This does not imply U.S.
acceptance of the doctrine that the consent of a state is
legally necessary for the entry of UN forces in any case not covered by Chapter VII of
the Charter.)
- 6.
- It would constitute new machinery, not continuation of UNEF as such.
- 7.
- It would not be regarded as a continuation of efforts of the
Collective Measures Committee or efforts under Article 43
regarding military forces for enforcement purposes, but rather
as an adjunct of pacific settlement machinery under the
Charter.
- 8.
- It might be known as “UN Corps
for Observation and Patrol” (UNCOP), or possibly “UN Patrol”.
Organization
- 9.
- It would take the form of a new UN instrumentality, under the administrative
direction of a Chief of Staff named by the Secretary General
with the consent of two-thirds of the Assembly. The corps would
establish its own internal organization,TOs, equipment requirements, tactical doctrine,
training and orientation curriculum, communications procedures,
staff operations, etc. with assistance of experts seconded from
Member States as requested, and with the guidance of an advisory
committee of governments.
- 10.
- Training and indoctrination would focus on language,
inter-unit coordination, observation and patrol techniques, and
other special skills essential for a multi-national,
non-fighting military body operating under international
directives.
Financing
- 11.
- Such a force could be financed either by the participating
states, through the UN regular
budget, or as a special budget. The US doctrine of logistical
support for contributing nations, evolved after the Korean
experience suggests that the US might wish to
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assist financially, and rules out
the first alternative. However, such a force would clearly be in
the US interest, and we should not leave the full financial
burden to the lesser powers. The principle of shared costs
should be followed, under the regular assessment scale.
- 12.
- The principal cost would be the acquisition and operation of
the training center, and support of the permanent party. When
units were actually on UN
assignments, the UN would cover
all expenses other than basic pay, uniforms and personal gear,
including small weapons, which would be supplied by the
contributing nations, who would receive appropriate credits
against their assessments. The UN
would pay a standard allowance to troops on patrol assignment.
Where a nation furnished manpower but was unable to finance its
equipment, a special working capital fund could be established
to supply grants as appropriate. Costs would also include
airlift and sealift facilities which countries such as the US
could be called upon to furnish in actual operational
assignments.
Tab B5
Draft Resolution Prepared in the
Bureau of International Organization Affairs
The General Assembly,
Recognizing the contribution which the United
Nations Emergency Force has made to the achievement of the purposes
of the United Nations Charter in the area to which it has been
assigned,
Expressing its appreciation to the
Secretary-General, to the Advisory Committee, and to Member States
for their cooperation and assistance in the establishment and
operation of the force,
Believing that the effectiveness of the United
Nations in fulfillment of its Charter responsibilities in the field
of pacific settlement of disputes would be enhanced by agreement
upon standing arrangements which would facilitate the ready
availability and prompt dispatch, if deemed necessary, of military
personnel in support of such efforts toward the pacific settlement
of disputes as the patrolling of disputed boundary lines or areas,
supervising and maintaining the cessation of hostilities, and
observing situations which threaten the maintenance of international
peace and security,
[Page 177]
Establishes a Committee on United Nations
Observation and Patrol, consisting of [ ]6
Requests the Committee to consider, in
collaboration with the Secretary General and consultation with
Member States as appropriate, the feasibility and possible nature of
permanent arrangements to facilitate the ready availability and
prompt dispatch of a UN corps for
observation, patrol, and related duties, and to report its
recommendations to the General Assembly by [ ]
