Foreign Relations of the United States, 1964–1968, Volume XXVII, Mainland Southeast Asia; Regional Affairs

192. Memorandum From the Joint Chiefs of Staff to Secretary of Defense McNamara¹

JCSM–612–66

Washington, September 24, 1966.

SUBJECT

• Cross-Border Operations (U)

1. (S) Reference is made to:

a. Your memorandum, dated 13 June 1966, subject as above.²

b. A message from the Joint Chiefs of Staff to CINCPAC, 5374/271912Z June 1966, subject as above.³

c. A message from CINCPAC to the Joint Chiefs of Staff, 130401Z August 1966, subject as above.

d. A message from COMUSMACV to CINCPAC, 031206Z August 1966, subject as above.

e. A message from the Defense Intelligence Agency to CINCPAC, DIAAQ 4054/152257Z February 1966, subject: “Clandestine Collection Operations Against Cambodia (S).”⁴

f. A message from COMUSMACV to CINCPAC, 010340Z February 1966, subject: “Preparation for Cross-Border Operations in Cambodia.”

2. (TS) On 13 June 1966, you approved (reference 1a) the recommendation to organize, train, and equip an indigenous force of intelligence agents, reconnaissance teams, and reaction teams for possible future employment in cross-border operations into Cambodia. Authority was not granted to commit these forces into Cambodia.

3. (TS) The State Department view (reference 1a)⁵ that the recruitment of ethnic Cambodians (Khmer) should not be permitted was reflected in the guidance provided to CINCPAC by the Joint Chiefs of Staff in reference 1b. However, prior to receipt of this restriction, based on his interpretation of the guidance contained in reference 1e and on his visualized employment of the force (reference 1f) until such time as cross-border operations were authorized, COMUSMACV had already recruited and partially trained 40 ethnic Cambodians. These personnel were carefully screened to ensure that they were not Khmer Serei.

4. (TS) In reference 1c, CINCPAC requested reconsideration of the restriction prohibiting the recruitment of Cambodians and requested the authority to retain and utilize those already in training.

5. (TS) The State Departmentʼs rationale in recommending against the use of Cambodian personnel is as follows: first, the Cambodian minority in Vietnam is strongly influenced by the Khmer Serei (Free Cambodia) movement and second, should Prince Sihanouk learn that a force of Khmers was being formed for cross-border operations into Cambodia, he would interpret this as a serious threat to his regime and be more likely than ever to cast his lot with the Chinese communists.

6. (TS) COMUSMACVʼs position (reference 1d), supported by CINCPAC (reference 1c), is that Cambodians who have lived in border regions are ideal for use in this type operation due to their familiarity with the area, language, and customs of the people. Furthermore, thorough screening, checking and investigation of all Cambodians recruited can minimize penetration of the operation by the Khmer Serei.

7. (TS) The Joint Chiefs of Staff have considered these factors and are of the view that COMUSMACVʼs requirements can be met and the potential problems associated with the use of ethnic Cambodians minimized by adhering to the following guidelines:

a. Ethnic Cambodians will be used primarily as agents and in the intelligence and reconnaissance teams.

b. Ethnic Cambodians will be recruited in such numbers as not to become the dominant element in the reaction force as a whole or in any one reaction company.

c. All ethnic Cambodians recruited will be carefully screened to reduce the possibility of penetration of the program by Khmer Serei or Cambodian intelligence agents.

d. The program will not be identified as a potential cross-border operation into Cambodia, and use of the assets for in-country operations will support this contention.

8. (TS) Accordingly, the Joint Chiefs of Staff recommend:

a. Approval for the retention of the Cambodians now in the program.

b. Approval for recruitment of additional Cambodians in accord-ance with the above guidelines.

c. Forwarding a memorandum to the Secretary of State substantially as proposed in the Appendix hereto.⁶

For the Joint Chiefs of Staff:

David L. McDonald ⁷
Acting Chairman
Joint Chiefs of Staff

1. Source: Department of Defense, JCS Official Records, 9155 (1 Feb 1966) Sec. 1, IR 101. Top Secret; Sensitive.
2. References, a, c, and d are attached, but not printed.
3. Department of Defense, JCS Official Records, 9155.1 (14 Oct 65), Sec. 2, IR 6231.
4. References e and f were not found.
5. The Department of State view is in a memorandum from Unger to Blouin, June 7, attached to reference 1a, which is attached to this memorandum.
6. The memorandum to the Department of State was not found attached, but in telegram 120 to CINCPAC, December 10, the JCS granted authority to retain the 40 Cambodians already recruited and trained so long as all necessary precautions were taken to minimize the risk of disclosing their association with cross-border operations. Authority was not granted for recruitment of additional ethnic Cambodians for cross-border operations. (Department of Defense, JCS Official Records, 9155 (1 Feb 1966), Sec. 1, IR 101)
7. Printed from a copy that indicates McDonald signed the original.