by Neil Sheehan
10. Later in the meeting, Mr. Allen Dulles raised the question as to sending the CAP pilots the French had once requested. It was agreed that the French apparently wanted them now, that they should be sent, and CIA should arrange for the necessary negotiations with the French in Indochina to take care of it.
11. Mr. Kyes said that if we meet the French urgent demands they should be tied to two things: first, the achievement of maximum collaboration with the French in training and strategy, and secondly, the strengthening of General O’Daniel’s hand in every way possible. General Smith agreed and felt we should reinforce General O’Daniel’s position not only with the French in Indochina but also at the highest level in Paris. . . .
12. Summary of Action Agreed Regarding Urgent French Requests
It was agreed:
a. To provide 200 uniformed U.S. Air Force mechanics who would be assigned as an augmentation to MAAG, Indochina, these mechanics to be provided only on the understanding that they would be used at bases where they would be secure from capture and would not be exposed to combat.
c. To send the CAP pilots, with CIA arranging necessary negotiations.
d. Not to provide a “dirigible.”
e. To await General O’Daniel’s return to Washington before making a decision on the other French requests. Efforts should continue to get the French to contribute a maximum number of mechanics.
It was further agreed that General Smith would clear these recommended actions with the President.
13. The next item discussed was the status of General O’Daniel. Mr. Kyes said General Trapnell, the present Chief of MAAG, is being replaced at the normal expiration of his tour. General Dabney had been chosen to replace General Trapnell and is about to leave for Indochina. Admiral Radford pointed out that General O’Daniel could be made Chief of MAAG without any further clearance with the French Government. General Smith said this would be all right but should not preclude further action to increase the position of General O’Daniel. General Erskine pointed out that the MAAG in Indochina is not a “military mission” but only an administrative group concerned with the provision of MDAP equipment. He thought the MAAG status should be raised to that of a mission which could help in training. It was agreed that General O’Daniel should probably be first assigned as Chief of MAAG and that, for this reason, General Dabney’s departure for Indochina should be temporarily held up. General Dabney should, however, go to Indochina to assist General O’Daniel by heading up the present MAAG functions. Admiral Davis was requested to assure that General Dabney did not depart until further instructions were given.
20. Mr. Allen Dulles inquired if an unconventional warfare officer, specifically Colonel Lansdale, could not be added to the group of five liaison officers to which General Navarre had agreed. Admiral Radford thought this might be done and at any rate Colonel Lansdale could immediately be attached to the MAAG, but he wondered if it would not be best for Colonel Lansdale to await General O’Daniel’s return before going to Indochina. In this way, Colonel Lansdale could help the working group in its revision of General Erskine’s paper. This was agreeable to Mr. Allen Dulles.
21. Present at the meeting were:
Department of Defense—Mr. Kyes, Admiral Radford, Admiral Davis, General Erskine, Mr. Godel, B/G Bonesteel, Colonel Alden.
Department of State—General Smith, Mr. Robertson.
CIA—Mr. Allen Dulles, General Cabell, Mr. Aurell, Colonel Lansdale.
# 4
’54 Report by Special Committee on the Threat of Communism
Excerpts from Part II of the Special Committee’s Report on Southeast Asia, April 5, 1954. Part I was not made available with it.
IV CONCLUSIONS
A. The special Committee considers that these factors reinforce the necessity of assuring that Indo-China remain in the non-Communist bloc, and believes that defeat of the Viet Minh in Indo-China is essential if the spread of Communist influence in Southeast Asia is to be halted.
B. Regardless of the outcome of military operations in Indo-China and without compromising in any way the overwhelming strategic importance of the Associated States to the Western position in the area, the U.S. should take all affirmative and practical steps, with or without its European allies, to provide tangible evidence of Western strength and determination to defeat Communism; to demonstrate that ultimate victory will be won by the free world; and to secure the affirmative association of Southeast Asian states with these purposes.
C. That for these purposes the Western position in Indo-China must be maintained and improved by a military victory.
D. That without compromise to C, above, the U.S. should in all prudence reinforce the remainder of Southeast Asia, including the land areas of Malaya, Burma, Thailand, Indonesia and the Philippines.
RECOMMENDED COURSES OF ACTION*
A. The Special Committee wishes to reaffirm the following recommendations which are made in NCS 5405, the Special Committee Report concerning military operations in Indo-China, and the position paper of the Special Committee, concurred in by the Department of Defense, concerning U.S. courses of action and policies with respect to the Geneva Conference:
(1) It be U.S. policy to accept nothing short of a military victory in Indo-China.
(2) It be the U.S. position to obtain French support of this position; and that failing this, the U.S. actively oppose any negotiated settlement in Indo-China at Geneva.
(3) It be the U.S. position in event of failure of (2) above to initiate immediate steps with the governments of the Associated States aimed toward the continuation of the war in Indo-China, to include active U.S. participation and without French support should that be necessary.
(4) Regardless of whether or not the U.S. is successful in obtaining French support for the active U.S. participation called for in (3) above, every effort should be made to undertake this active participation in concert with other interested nations.
B. The Special Committee also considers that all possible political and economic pressure on France must be exerted as the obvious initial course of action to reinforce the French will to continue operatings [sic] in Indo-China. The Special Committee recognizes that this course of action will jeopardize the existing French Cabinet, may be unpopular among the French public, and may be considered as endangering present U. S. policy with respect to EDC. The Committee nevertheless considers that the free world strategic position, not only in Southeast Asia but in Europe and the Middle East as well, is such as to require the most extraordinary efforts to prevent Communist domination of Southeast Asia. The Committee considers that firm and resolute action now in this regard may well be the key to a solution of the entire problem posed by France in the free world community of nations.
C. In order to make the maximum contribution to the free world strength in Southeast Asia, and regardless of the outcome of military operations currently in progress in Indo-China, the U. S. should, in all prudence, take the following courses of action in addition to those set forth in NSC 5405 and in Part I of the Special Committee Report:
Political and Military:
(1) Ensure that there be initiated no cease-fire in Indo-China prior to victory whether that be by successful military action or clear concession of defeat by the Communists.
Action: State, CIA
(2) Extraordinary and unilateral, as well as multi-national, efforts should be undertaken to give vitality in Southeast Asia to the concept that Communist imperialism is a transcending threat to each of the Southeast Asian states. These efforts should be so undertaken as to appear through local initiative rather than as a result of U.S. or UK, or French instigation.
ACTION: USIA, State, CIA
(3) It should be U.S. policy to develop within the UN Charter a Far Eastern regional arrangement subscribed and underwritten by the major European powers with interests in the Pacific.
a. Full accomplishment of such an arrangement can only be developed in the long term and should therefore be preceded by the
development, through indigenous sources, or regional economic and cultural agreements between the several Southeast Asian countries and later with Japan. Such agreements might take a form similar to that of OEEC in Europe.
Action: State, CIA, FOA
b. Upon the basis of such agreements, the U.S. should actively but unobtrusively seek their expansion into mutual defense agreements and should for this purpose be prepared to underwrite such agreements with military and economic aid and should [rest unavailable].
D. The courses of action outlined above are considered as mandatory regardless of the outcome of military operations in Indo-China.
(1) If Indo-China is held they are needed to build up strength and resistance to Communism in the entire area.
(2) If Indo-China is lost they are essential as partial steps:
a. To delay as long as possible the extension of Communist domination throughout the Far East, or
b. In conjunction with offensive operations to retake Indo-China from the Communists.
(3) Should Indo-China be lost it is clear to the Special Committee that the involvement of U. S. resources either in an attempt to stop the further spread of Communism in the Far East, (which is bound, except in terms of the most extensive military and political effort, to be futile) or to initiate offensive operations to retake and reorient Indo-China, (which would involve a major military campaign), will greatly exceed those needed to hold Indo-China before it falls.
(4) Furthermore, either of these undertakings (in the light of the major setback to U.S. national policy involved in the loss of Indo-China) would entail as an urgent prerequisite the restoration of Asian morale and confidence in U.S. policy which will have reached an unprecedentedly low level in the area.
(5) Each of these courses of action would involve greater risk of war with Communist China, and possibly the Soviet Union, than timely preventive action taken under more favorable circumstances before Indo-China is lost.
# 5
Dillon Cable to Dulles on Appeal for Air Support at Dienbienphu
Cablegram from Douglas Dillon, United States Ambassador to France, to Secretary of State John Foster Dulles on April 5, 1954.
URGENT. I was called at 11 o’clock Sunday night and asked to come immediately to Matignon where a restricted Cabinet meeting was in progress. On arrival Bidault received me in Laniel’s office and was joined in a few minutes by Laniel. They said that immediate armed intervention of U.S. carrier aircraft at Dien Bien Phu is now necessary to save the situation.
Navarre reports situation there now in state of precarious equilibrium and that both sides are doing best to reinforce—Viet Minh are bringing up last available reinforcements which will way outnumber any reinforcing French can do by parachute drops. Renewal of assault by reinforced Viet Minh probable by middle or end of week. Without help by then fate of Dien Bien Phu will probably be sealed.
Ely brought back report from Washington that Radford gave him his personal (repeat personal) assurance that if situation at Dien Bien Phu required U.S. naval air support he would do his best to obtain such help from U.S. Government. Because of this information from Radford as reported by Ely, French Government now asking for U.S. carrier aircraft support at Dien Bien Phu. Navarre feels that a relatively minor U.S. effort could turn the tide but naturally hopes for as much help as possible. French report Chinese intervention in Indochina already fully established as follows:
First. Fourteen technical advisors at Giap headquarters plus numerous others at division level. All under command of Chinese Communist General Ly Chen-hou who is stationed at Giap headquarters.
Second. Special telephone lines installed maintained and operated by Chinese personnel.
Third. Forty 37 mm. anti-aircraft guns radar-controlled at Dien Bien Phu. These guns operated by Chinese and evidently are from Korea. These AA guns are now shooting through clouds to bring down French aircraft.
Fourth. One thousand supply trucks of which 500 have arrived since 1 March, all driven by Chinese army personnel.
Fifth. Substantial material help in guns, shells, etc., as is well known.
Bidault said that French Chief of Air Staff wished U.S. be informed that U.S. air intervention at Dien Bien Phu could lead to Chinese Communist air attack on delta airfields. Nevertheless, government was making request for aid.
Bidault closed by saying that for good or evil the fate of Southeast Asia now rested on Dien Bien Phu. He said that Geneva would be won or lost depending on outcome at Dien Bien Phu. This was reason for French request for this very serious action on our part.
He then emphasized necessity for speed in view of renewed attack which is expected before end of week. He thanked U.S. for prompt action on airlift for French paratroops. He then said that he had received Dulles’ proposal for Southeast Asian coalition, and that he would answer as soon as possible later in week as restricted Cabinet session not competent to make this decision.
New Subject. I passed on Norstad’s concern that news of airlift (DEPTEL 3470, April 3) might leak as planes assembled. Pleven was called into room. He expressed extreme concern as any leak would lead to earlier Viet Minh attack. He said at all costs operation must be camouflaged as training exercise until troops have arrived. He is preparing them as rapidly as possible and they will be ready to leave in a week. Bidault and Laniel pressed him to hurry up departure date of troops and he said he would do his utmost.
# 6
Dulles Cable Barring Intervention
Cablegram from Secretary Dulles to Ambassador Dillon in Paris, April 5, 1954.
As I personally explained to Ely in presence of Radford, it is not (rpt not) possible for U.S. to commit belligerent acts in Indochina without full political understanding with France and other countries. In addition, Congressional action would be required. After conference at highest level, I must confirm this position. U.S. is doing everything possible as indicated my 5175 to prepare public, Congressional and Constitutional basis for united action in Indochina. However, such action is impossible except on coalition basis with active British Commonwealth participation. Meanwhile U.S. prepared, as has been demonstrated, to do everything short of belligerency.
FYI U.S. cannot and will not be put in position of alone salvaging British Commonwealth interests in Malaya, Australia and New Zealand. This matter now under discussion with UK at highest level.
# 7
Dillon Reply on French Reaction
Cablegram from Ambassador Dillon to Secretary Dulles, April 5, 1954.
I delivered message DEPTEL 3482 to Bidault Monday evening. He asked me to tell Secretary that he personally could well understand position US Government and would pass on your answer to Laniel.
He asked me to say once more that unfortunately the time for formulating coalitions has passed as the fate of Indochina will be decided in the next ten days at Dien-Bien-Phu. As I left he said that even though French must fight alone they would continue fighting and he prayed God they would be successful.
# 8
Memo of Eisenhower-Dulles Talk on the French Cease-Fire Plan
Memorandum by Robert Cutler, special assistant to President Dwight D. Eisenhower, May 7, 1954.
At a meeting in the President’s office this morning with Dulles, three topics were discussed.
1. Whether the President should approve paragraph lb of the tentative Record of Action of the 5/6/54 NSC meeting, which covers the proposed answer to the Eden proposal. The Secretary of State thought the text was correct. Wilson and Radford preferred the draft message to Smith for Eden prepared yesterday by MacArthur and Captain Anderson, and cleared by the JCS, which included in the Five Power Staff Agency Thailand and the Philippines. Radford thinks that the Agency (which has hitherto been not disclosed in SEA) has really completed its military planning; that if it is enlarged by top level personnel, its actions will be necessarily open to the world; that therefore some Southeast Asian countries should be included in it, and he fears Eden’s proposal as an intended dela
ying action.
The President approved the text of paragraph lb but suggested that Smith’s reply to Eden’s proposal should make clear the following:
1. Five Power Staff Agency, alone or with other nations, is not to the United States a satisfactory substitute for a broad political coalition which will include the Southeast Asian countries which are to be defended.
2. Five Power Staff Agency examination is acceptable to see how these nations can give military aid to the Southeast Asian countries in the cooperative defense effort.
3. The United States will not agree to a “white man’s party” to determine the problems of the Southeast Asian nations.
I was instructed to advise Wilson and Radford of the above, and have done so.
2. The President went over the draft of the speech which Dulles is going to make tonight, making quite a few suggestions and changes in text. He thought additionally the speech should include some easy to understand slogans, such as “The U.S. will never start a war,” “The U.S. will not go to war without Congressional authority,” “The U.S., as always, is trying to organize cooperative efforts to sustain the peace.”