Foreign Relations of the United States, 1961–1963, Volume XXII, Northeast Asia

199. Telegram From the Department of State to the Embassy in the Soviet Union⁰

Washington, May 29, 1961, 8:05 p.m.

2088. Moscow for Ambassador. Ref Department’s 1753 to Moscow, 521 Taipei, 2022 USUN.¹ President has approved Department’s staff study re US relations with Outer Mongolia,² together with my recommendation we now implement course of action outlined Department’s 1753. Accordingly, after completion consultation with friendly governments, you will be requested take following action immediately in order avoid any suggestion that change of US policy vis-a-vis Outer Mongolia is related to agreement of President Kennedy and Premier Khrushchev to meet in Vienna.³

1. Inform appropriate Soviet official that you are under instruction to initiate talks with Outer Mongolian Ambassador Moscow to ascertain whether conditions for establishing diplomatic relations now exist. You may state US envisages mutual establishment of Missions at Embassy level and that you would be accredited as Ambassador having concurrent assignment both Moscow and Ulan Bator. However, for foreseeable future US Mission Ulan Bator would be headed by Charge with small staff. You should also state US consideration of this matter took note of Ambassador Menshikov’s indication to Senator Mansfield Soviet Govt would welcome establishment diplomatic relations between US and OM.

2. After informing Sovs, initiate talks with OM Ambassador Moscow, making it clear that your approach is not for purpose of giving advance notice of US decision to extend recognition but is designed ascertain whether both governments mutually desire establish diplomatic relations and can reach agreement on conditions under which those relations (political, economic, cultural) will be maintained. Assuming OM Ambassador will wish to communicate urgently with his Govt before engaging in further talks re foregoing “conditions,” I believe it highly desirable he clearly understand during this initial conversation that US not prepared proceed further if OM Govt unable agree to prompt establishment US diplomatic Mission in Ulan Bator. You are authorized to inform OM Ambassador US for its part is prepared agree to establishment OM Mission in Washington provided OM Govt grants reciprocal rights Ulan Bator and two Govts have clear-cut agreement on conditions (including normal diplomatic privileges) under which Missions will operate. You may note we would also be prepared to support OM membership application in UN provided these conditions are met. You may tell Ambassador US envisages giving our Ambassador Moscow additional accreditation to Ulan Bator and placing US Mission Ulan Bator under resident Charge with small staff.⁴

FYI. Dept is taking immediate steps to inform NATO members through NAC of nature of these instructions. Similar action being taken through US reps in consulting with SEATO and OAS members. In each instance, will be made clear that US recognition not yet granted OM and that your talks this stage will be exploratory to ascertain whether satisfactory agreements can be reached on which establishment diplomatic relations can be based. End FYI.

For Tokyo: Embassy should inform Foreign Ministry of intended course of action, emphasizing conditional nature of approach to OM.

Rusk

0. Source: Department of State, Central Files, 611.93C/5-2961. Secret; Priority. Drafted by William O. Anderson of the Office of Soviet Union Affairs; cleared by Kohler, Assistant Secretary of State for Far Eastern Affairs Walter P. McConaughy, and Deputy Assistant Secretary of State for International Organization Affairs Woodruff Wallner; and approved for transmission by Rusk.
1. Dated April 14. (Ibid., 793C.02/4-1461)
2. The President approved Document 198. The reference to a staff study is unclear. The only staff study located in White House files was the paper cited in footnote 1, Document 198.
3. Telegram 2090 to Moscow, May 30, instructed Ambassador Thompson to implement immediately the course of action outlined in telegram 2088. (Department of State, Central Files, 611.93C/5-3061)
4. Telegram 2972 from Moscow, May 31, reported that Thompson had informed Deputy Prime Minister Vasily Vasilevich Kuznetsov of the proposed approach to the Mongolian Embassy. (Ibid., 611.93C/5-3161) Telegram 2997, June 2, reported that Edward L. Freers, who was acting as Charge during Thompson’s absence for the Kennedy-Khru-shchev meeting in Vienna, had met with the Mongolian Ambassador that day. (Ibid., 611.93C/6-261) Telegram 3163 from Moscow, June 20, transmitted the text of an oral statement that the Mongolian Ambassador made to Freers in a meeting that day expressing readiness to establish diplomatic relations and to negotiate specific questions concerning this. (Ibid., 611.93C/6-2061)