KC Johnson

Kennedy, Khrushchev, & the Cold War (1961-1963)

• David Coleman, “The Missiles of November, December, January, February . . . : The Problem of Acceptable Risk in the Cuban Missile Crisis Settlement,” Journal of Cold War Studies 9.3 (2007), pp. 5-48.
• Noam Kochavi, “Limited Accommodation, Perpetuated Conflict: Kennedy, China, and the Laos Crisis, 1961 – 1963,” Diplomatic History (2002).

Excerpts from Rusk-McNamara Report to Kennedy, November 11, 1961.

l. United States National Interests in South Viet-Nam.

The deteriorating situation in South Viet-Nam requires attention to the nature and scope of United States national interests in that country. The loss of South Viet-Nam to Communism would involve the transfer of a nation of 20 million people from the free world to the Communism bloc. The loss of South Viet-Nam would make pointless any further discussion about the importance of Southeast Asia to the free world; we would have to face the near certainty that the remainder of Southeast Asia and Indonesia would move to a complete accommodation with Communism, if not formal incorporation with the Communist bloc. The United States, as a member of SEATO, has commitments with respect to South Viet-Nam under the Protocol to the SEATO Treaty. Additionally, in a formal statement at the conclusion session of the 1954 Geneva Conference, the United States representative stated that the United States “would view any renewal of the aggression . . . with grave concern and seriously threatening international peace and security.”
The loss of South Viet-Nam to Communism would not only destroy SEATO but would undermine the credibility of American commitments elsewhere. Further, loss of South Viet-Nam would stimulate bitter domestic controversies in the United States and would be seized upon by extreme elements to divide the country and harass the Administration…

3. The United States’ Objective in South Viet-Nam

The United States should commit itself to the clear objective of preventing the fall of South Viet-Nam to Communist [sic]. The basic means for accomplishing this objective must be to put the Government of South Viet-Nam into a position to win its own war against the Guerrillas. We must insist that that Government itself take the measures necessary for that purpose in exchange for large-scale United States assistance in the military, economic and political fields. At the same time we must recognize that it will probably not be possible for the GVN to win this war as long as the flow of men and supplies from North Viet-Nam continues unchecked and the guerrillas enjoy a safe sanctuary in neighboring territory.
We should be prepared to introduce United States combat forces if that should become necessary for success. Dependent upon the circumstances, it may also be necessary for United States forces to strike at the source of the aggression in North Viet-Nam.

4. The Use of United States Forces in South Viet-Nam.

The commitment of United States forces to South Viet-Nam involves two different catgories: (A) Units of modest size required for the direct support of South Viet-Namese military effort, such as communications, helicopter and other forms of airlift, reconnaissance aircraft, naval patrols, intelligence units, etc., and (B) larger organized units with actual or potential direct military mission. Category (A) should be introduced as speedily as possible. Category (B) units pose a more serious problem in that they are much more significant from the point of view of domestic and international political factors and greatly increase the probabilities of Communist bloc escalation. Further, the employment of United States combat forces (in the absence of Communist bloc escalation) involves a certain dilemma: if there is a strong South Viet Namese effort, they may not be needed; if there is not such an effort, United States forces could not accomplish their mission in the midst of an apathetic or hostile population. Under present circumstances, therefore, the question of injecting United States and SEATO combat forces should in large part be considered as a contribution to the morale of the South Viet Namese in their own effort to do the principal job themselves….

In the light of the foregoing, the Secretary of State and the Secretary of Defense recommend that:

1. We now take the decision to commit ourselves to the objective of preventing the fall of South Viet-Nam to Communism and that, in doing so, we recognize that the introduction of United States and other SEATO forces may be necessary to achieve this objective. (However, if it is necessary to commit outside forces to achieve the foregoing objective, our decision to introduce United States forces should not be contingent upon unanimous SEATO agreement thereto.)

2. The Department of Defense be prepared with plans for the use of United States forces in South Viet Nam under one or more of the following purposes:

(a) Use of a significant number of United States forces to signify United States determination to defend Viet-Nam and to boost South Viet-Nam morale.

(b) Use of substantial United States forces to assist in suppressing Viet Cong insurgency short of engaging in detailed counter-guerrilla operations but including relevant operations in North Viet-Nam.

(c) Use of United States forces to deal with the situation if there is organized Communist military intervention.

3. We immediately undertake the following actions in support of the GVN:

. . . (d) Provide the GVN with small craft, including such United States uniformed advisers and operating personnel as may be necessary for quick and effective operations in effecting surveillance and control over coastal waters and inland waterways….
(e) Provide such personnel and equipment as may be necessary to prove the military-political intelligence system beginning at the provincial level and extending upward through the Government and the armed forces to the Central Intelligence Organization.
(f) Provide such new terms of reference, reorganization and additional personnel for United States military forces as are required for increased United States participation in the direction and control of GVN military operations and to carry out the other increased responsibilities which accrue to MAAG under these recommendations….
(i) Provide individual administrators and advisers for insertion into the Governmental machinery of South VietNam in types and numbers to be agreed upon by the two Governments….

————————–

NSAM 263, Oct. 1963–final official review of Vietnam policy, Kennedy administration

NATIONAL SECURITY ACTION MEMORANDUM NO. 263

TO:

Secretary of State
Secretary of Defense
Chairman of the Joint Chiefs of Staff

SUBJECT: South Vietnam

At a meeting on October 5, 1963, the President considered the recommendations contained in the report of Secretary McNamara and General Taylor on their mission to South Vietnam.

The President approved the military recommendations contained in Section I B (1 -3) of the report, but directed that no formal announcement be made of the implementation of plans to withdraw 1,000 U.S. military personnel by the end of 1963.

After discussion of the remaining recommendations of the report, the President approved the instruction to Ambassador Lodge which is set forth in State Department telegram No. 534 to Saigon.

McGeorge Bundy

Copy furnished: Director of Central Intelligence
Administrator, Agency for International Development 11/21/63

DRAFT

TOP SECRET

NATIONAL SECURITY ACTION MEMORANDUM

The President has reviewed the discussions of South Vietnam which occurred in Honolulu, and has discussed the matter further with Ambassador Lodge. He directs that the following guidance be issued to all concerned:

1. It remains the central object of the United States in South Vietnam to assist the people and Government of that country to win their contest against the externally directed and supported Communist conspiracy. The test of all decisions and U.S. actions in this area should be the effectiveness of their contributions to this purpose.

2. The objectives of the United States with respect to the withdrawal of U.S. military personnel remain as stated in the White House statement of October 2, 1963.

3. It is a major interest of the United States Government that the present provisional government of South Vietnam should be assisted in consolidating itself in holding and developing increased public support. All U.S. officers should conduct themselves with this objective in view.

4. It is of the highest importance that the United States Government avoid either the appearance or the reality of public recrimination from one part of it against another, and the President expects that all senior officers of the Government will take energetic steps to insure that they and their subordinate go out of their way to maintain and to defend the unity of the United States Government both here and in the field. More specifically, the President approves the following lines of action developed in the discussions of the Honolulu meeting of November 20. The office or offices of the Government to which central responsibility is assigned is indicated in each case.

5. We should concentrate our own efforts, and insofar as possible we should persuade the government of South Vietnam to concentrate its efforts, on the critical situation in the Mekong Delta. This concentration should include not only military but political, economic, social, educational and informational efforts. We should seek to turn the tide not only of battle but of belief, and we should seek to increase not only our control of land but the productivity of this area whenever the proceeds can be held for the advantage of anti-Communist forces. (Action: The whole country team under the direct supervision of the Ambassador.)

6. Programs of military and economic assistance should be maintained at such levels that their magnitude and effectiveness in the eyes of the Vietnamese Government do not fall below the levels sustained by the United States in the time of the Diem Government. This does not exclude arrangements for economy on the MAP accounting for ammunition and any other readjustments which are possible as between MAP and other U.S. defense sources. Special attention should be given to the expansion of the import distribution and effective use of fertilizer for the Delta. (Action: AID and DOD as appropriate.)

7. With respect to action against North Vietnam, there should be a detailed plan for the development of additional Government of Vietnam resources, especially for sea-going activity, and such planning should indicate the time and investment necessary to achieve a wholly new level of effectiveness in this field of action. (Action: DOD and CIA)

8. With respect to Laos, a plan should be developed for military operations up to a line up to 50 kilometers inside Laos, together with political plans for minimizing the international hazards of such an enterprise. Since it is agreed that operational responsibility for such undertakings should pass from CAS to MACV, this plan should provide an alternative method of political liaison for such operations, since their timing and character can have an intimate relation to the fluctuating situation in Laos. (Action: State, DOD and CIA.)

9. It was agreed in Honolulu that the situation in Cambodia is of the first importance for South Vietnam, and it is therefore urgent that we should lose no opportunity to exercise a favorable influence upon that country. In particular, measures should be undertaken to satisfy ourselves completely that recent charges from Cambodia are groundless, and we should put ourselves in a position to offer to the Cambodians a full opportunity to satisfy themselves on this same point. (Action: State.)

10. In connection with paragraphs 7 and 8 above, it is desired that we should develop as strong and persuasive a case as possible to demonstrate to the world the degree to which the Viet Cong is controlled, sustained and supplied from Hanoi, through Laos and other channels. In short, we need a more contemporary version of the Jordan Report, as powerful and complete as possible. (Action: Department of State with other agencies as necessary.)