Foreign Relations of the United States, 1961–1963, Volume XX, Congo Crisis

288. Telegram From the Department of State to the Embassy in Belgium¹

Washington, September 4, 1962, 9:31 p.m.

409. Department concurs in view that immediate steps should be taken to implement UN proposal and therefore carry forward present momentum.² We consider it important UN follow up quickly to engage Tshombe actively in implementation of proposal by having him take concrete steps envisaged in plan. Once first steps taken it will be difficult for him to stall or renege.

For USUN:

While we recognize that responsibility for proceeding with mediatory efforts rests with UN and do not propose to blueprint their course of action, we believe it important to make known to UNNY our thoughts on next steps it should take.³ These steps are fully in line with what Gardiner has proposed. USUN should urge UNNY send appropriate instructions to Gardiner suggesting he approach Adoula along following lines:

1) Adoula should immediately name his member of military commission and have UN set up early meeting schedule.

2) Adoula should call upon UN to obtain IMF assistance on working out urgently (a) technical details of revenue and foreign exchange split during interim period and (b) currency reunification. Adoula should designate Monetary Council or other institution to receive 50% share Katanga revenue and serve as depository for foreign exchange as envisaged in the plan.

3) Adoula should publicize or otherwise call attention to existing decrees providing for all authorities to deposit foreign exchange with GOC.

4) Adoula should call on UN for assistance in drafting fiscal legislation.

5) Adoula should give immediate consideration to making offer broaden his cabinet to include Conakat representatives.

6) Adoula should issue invitation soonest to provincial governments and interested political groups to submit views promptly on new constitution and financial legislation.

7) Adoula should immediately announce amnesty as provided paragraph 6 of plan.

Once Gardiner has consulted Adoula, he should go to Elisabethville to urge following on Tshombe personally:

1) Tshombe should start paying 50%, as agreed, of his revenues to Monetary Council or other institution once Adoula has designated appropriate depository. In our view this constitutes single most important step in entire process and Gardiner’s main efforts should be directed to accomplishing this quickly. It should be made absolutely clear to all concerned that we consider this the touchstone of Tshombe’s sincerity.

2) Tshombe should immediately implement step 5 of plan re foreign offices.

3) Tshombe should immediately accept Adoula’s invitation to provide advice on drafting of the constitution and financial laws.

4) Tshombe should name Katanga member military commission immediately.

5) Gardiner should reaffirm assurance contained his letter to Kimba of September 3 (Léopoldville’s 535).⁴ In particular would be useful for Gardiner to reaffirm directly to Tshombe undertaking that UNOC will insure UN plan for reintegration will be fairly implemented.

6) Gardiner might discuss with Tshombe ways in which GOC passports could be issued to Katangans. This would be related to lifting the travel ban.

7) Gardiner should urge Tshombe to move ahead on Katanga gendarmerie oath of allegiance to Kasavubu.

8) We understand from telecon with USUN that Gardiner will give assurances to Tshombe re ANC brigading with UN. Details will be reported from NY.

For Léopoldville:

After coordinating with Gardiner, you should, unless objections perceived, approach Adoula and urge him take steps outlined above.⁵ You may tell him that we think GOK statement does contain number of positive factors upon which GOC can capitalize in order bring about full implementation of plan and his best interests would be served in treating it as acceptance. We hope Adoula shares this view and will be able to take immediate positive approach.

You should tell Adoula USG remains aware of delicate political balance in Léopoldville. As step to bolster position central government $8 million of US aid for import financing can be released as soon as control decrees approved and published. [For USUN: You should approach UNNY to expedite UN approval financial control scheme as requested Deptel 498.]⁶ As another step to strengthen Adoula’s position we have decided send him shipment of communications equipment based on recommendation Greene team.⁷ Shipment should arrive next month consisting of 20 jeeps, 25 radio sets, 15,000 C rations and spare parts for radios.

Would appreciate report on progress commission constitutional experts. Believe it would be desirable they consult constitutional expert designated by Tshombe.

For Elisabethville:

Re Tshombe request for Western assurances in connection with implementation of plan⁸ you should, assuming Adoula’s reaction not unfavorable, concert urgently with UK and Belgian consuls indicating you authorized individually, or in concert with them, to approach Tshombe expressing gratification he has accepted plan and tell him our governments will utilize all means at their disposal to assure that UN proposal will be equitably applied.

In order assure this approach to Tshombe not out of phase with Léopoldville developments, you should not take this step until confirming instruction received from Ambassador Gullion.

For Brussels:

You should inform GOB of above (as well as of Deptel 398)⁹ and express hope GOB will support Gardiner approach to Tshombe. You might also ask GOB if it can now move forward on increased aid.¹⁰

For London:

Embassy London should inform HMG of above as well as of Deptel 1272 to London.¹¹

Assistant Secretary Williams seeing reps Belgian, British and French Embassies noon September 5.¹²

Rusk

1. Source: Department of State, Central Files, 770G.00/9–462. Confidential; Priority. Drafted by Carlucci, Buffum, and Pelcovits; cleared by Williams, Wallner, Burdett, and Ball; and approved by McGhee. Also sent to Elisabethville, USUN, Léopoldville, and London and repeated to Paris, Rome, Lagos, New Delhi, and Bonn.
2. MacArthur had reported in telegram 377 from Brussels, September 3, that Spaak considered it imperative to take positive and constructive action to follow up on Tshombe’s reply to the U.N. plan, which Spaak considered as close to complete acceptance as was possible to obtain. (Ibid., 770G.00/9–362) Tshombe’s reply was set forth in a September 2 letter to Gardiner. (U.N. doc. S/5053/Add.13/Annex IV)
3. Telegram 675 from USUN, September 5, reported that Stevenson and Yost had met with U Thant and Bunche and given them the Department’s suggestions. (Department of State, Central Files, 770G.00/9–562)
4. Dated September 3. (Ibid., 332.70G/9–362)
5. Telegram 575 from Léopoldville, September 6, reported that Gullion had discussed these steps with Gardiner and Adoula. (Ibid., 770G.00/9–662)
6. Telegram 498 to USUN, August 29, urged U.N. approval and assistance in the implementation of a plan for Congolese financial controls set forth in an August 23 letter from Adoula to Khiari. (Ibid., 870G.10/8–2462) Brackets in the source text.
7. See footnote 4, Document 268. The President formally approved the shipment on September 14. (Memorandum from Williams to Rusk, August 21, and attachments; Department of State, Central Files, 770G.5/8–2162)
8. Tshombe stated this request in his letter to Gardiner; see footnote 1 above.
9. Telegram 398 to Brussels, September 4, repeated telegram 545 to USUN, also dated September 4, which instructed USUN to express to the U.N. Secretariat the Department’s concern that stationing ANC troops under U.N. command in North Katanga would complicate the problem of implementing the U.N. plan. The telegram also recommended that Gardiner or Mathu repeat to Tshombe the assurance in Gardiner’s letter to Kimba that the plan would be fairly implemented. (Both in Department of State, Central Files, 770G.5/9–462)
10. MacArthur reported in telegram 398 from Brussels, September 6, that Spaak was in general agreement with these U.S. views. (Ibid., 770G.00/9–662)
11. Telegram 398 to Brussels (see footnote 8 above) was also sent to London as telegram 1272. Telegram 943 from London, September 6, reported that the British Foreign Office was in general agreement. (Department of State, Central Files, 770G.00/9–662)
12. The meeting is recorded in telegram 404 to Brussels, September 5. (Ibid., 770G.00/9–562)