Pentagon Papers

by Neil Sheehan

  Eden has already told Molotov that security pact is inevitable, that he himself favored it some time ago and that he would not (repeat not) withdraw from that position, but he made the mistake of saying that no consideration had been given to inclusion of Laos and Cambodia.

  This final gambit is going to be extremely difficult to play and I do not (repeat not) now see the moves clearly. However, my opinion as expressed to you before leaving, i.e., that Molotov will gain more by bringing down Mendes Government than by a settlement, has grown stronger.

  # 13

  Details on Chinese Informant

  Cablegram from Under Secretary Bedell Smith at Geneva to Secretary Dulles, July 19, 1954.

  Topping has supplied in confidence following background information concerning his story on views of Chinese Communist delegation.

  He stated his informant was Huang Hua, whom he has known for many years. Interview was at Huang’s initiative, was called on short notice, and was conducted in extremely serious manner without propaganda harangues.

  Topping said he had reported Huang’s statement fully in his story but had obtained number of “visual impressions” during interview. When Huang spoke of possibility American bases in Indochina or anti-Communist pact in Southeast Asia, he became very agitated, his hands shook, and his usually excellent English broke down, forcing him to work through interpreter. Huang also spoke seriously and with apparent sincerity concerning his belief that I have returned to Geneva to prevent settlement. Topping believes Chinese Communists convinced Americans made deal with French during Paris talks on basis of which Mendes-France has raised price of settlement.

  # 14

  “Final Declaration” at Geneva Conference and U.S. Statement Renouncing Use of Force

  Following are the texts of the “final declaration” signed by France and the Vietminh at the end of the Geneva conference in July, 1954, and of the statement of United States policy delivered at the concluding session by Under Secretary of State Walter Bedell Smith. The “final declaration,” agreement also constitutes the Geneva accords on Vietnam.

  THE ‘FINAL DECLARATION’

  FINAL DECLARATION, dated the 21st July, 1954, of the Geneva Conference on the problem of restoring peace in Indo-China, in which the representatives of Cambodia, the Democratic Republic of Viet-Nam, France, Laos, the People’s Republic of China, the State of Viet-Nam, the Union of Soviet Socialist Republics, the United Kingdom, and the United States of America took part.

  1. The Conference takes note of the agreements ending hostilities in Cambodia, Laos and Viet-Nam and organizing international control and the supervision of the execution of the provisions of these agreements.

  2. The Conference expresses satisfaction at the ending of hostilities in Cambodia, Laos and Viet-Nam; the Conference expresses its conviction that the execution of the provisions set out in the present declaration and in the agreements on the cessation of hostilities will permit Cambodia, Laos, and Viet-Nam henceforth to play their part, in full independence and sovereignty, in the peaceful community of nations.

  3. The Conference takes note of the declarations made by the Governments of Cambodia and of Laos of their intention to adopt measures permitting all citizens to take their place in the national community, in particular by participating in the next general elections, which, in conformity with the constitution of each of these countries, shall take place in the course of the year 1955, by secret ballot and in conditions of respect for fundamental freedoms.

  4. The Conference takes note of the clauses in the agreement on the cessation of hostilities in Viet-Nam prohibiting the introduction into Viet-Nam of foreign troops and military personnel as well as of all kinds of arms and munitions. The Conference also takes note of the declarations made by the Governments of Cambodia and Laos of their resolution not to request foreign aid, whether in war material, in personnel or in instructors except for the purpose of the effective defense of their territory and, in the case of Laos, to the extent defined by the agreements on the cessation of hostilities in Laos.

  5. The Conference takes note of the clauses in the agreement on the cessation of hostilities in Viet-Nam to the effect that no military base under the control of a foreign State may be established in the regrouping zones of the two parties, the latter having the obligation to see that the zones allotted to them shall not constitute part of any military alliance and shall not be utilized for the resumption of hostilities or in the service of an aggressive policy. The Conference also takes note of the declarations of the Governments of Cambodia and Laos to the effect that they will not join in any agreement with other States if this agreement includes the obligation to participate in a military alliance not in conformity with the principles of the Charter of the United Nations or, in the case of Laos, with the principles of the agreement on the cessation of hostilities in Laos or, so long as their security is not threatened, the obligation not to establish bases on Cambodia or Laotian territory for the military forces of foreign powers.

  6. The Conference recognizes that the essential purpose of the agreement relating to Viet-Nam is to settle military questions with a view to ending hostilities and that the military demarcation line is provisional and should not in any way be interpreted as constituting a political or territorial boundary. The Conference expresses its conviction that the execution of the provisions set out in the present declaration and in the agreement on the cessation of hostilities creates the necessary basis for the achievement in the near future of a political settlement in Viet-Nam.

  7. The Conference declares that, so far as Viet-Nam is concerned, the settlement of political problems, effected on the basis of respect for the principles of independence, unity and territorial integrity, shall permit the Viet-Namese people to enjoy the fundamental freedoms, guaranteed by democratic institutions established as a result of free general elections by secret ballot. In order to ensure that sufficient progress in the restoration of peace has been made, and that all the necessary conditions obtain for free expression of the national will, general elections shall be held in July 1956, under the supervision of an international commission composed of representatives of the Member States of the International Supervisory Commission, referred to in the agreement on the cessation of hostilities. Consultations will be held on this subject between the competent representative authorities of the two zones from 20 July 1955 onwards.

  8. The provisions of the agreements on the cessation of hostilities intended to ensure the protection of individuals and of property must be most strictly applied and must, in particular, allow everyone in Viet-Nam to decide freely in which zone he wishes to live.

  9. The competent representative authorities of the Northern and Southern zones of Viet-Nam, as well as the authorities of Laos and Cambodia, must not permit any individual or collective reprisals against persons who have collaborated in any way with one of the parties during the war, or against members of such persons’ families.

  10. The Conference takes note of the declaration of the Government of the French Republic to the effect that it is ready to withdraw its troops from the territory of Cambodia, Laos, and Viet-Nam, at the requests of the Governments concerned and within periods which shall be fixed by agreement between the parties except in the cases where, by agreement between the two parties, a certain number of French troops shall remain at specified points and for a specified time.

  11. The Conference takes note of the declaration of the French Government to the effect that for the settlement of all the problems connected with the re-establishment and consolidation of peace in Cambodia, Laos and Viet-Nam, the French Government will proceed from the principle of respect for the independence and sovereignty, unity, and territorial integrity of Cambodia, Laos and Viet-Nam.

  12. In their relations with Cambodia, Laos and Viet-Nam, each member of the Geneva Conference undertakes to respect the sovereignty, the independence, the unity and the territorial integrity of the above-mentioned states, and to refrain from any
interference in their internal affairs.

  13. The members of the Conference agree to consult one another on any question which may be referred to them by the International Supervisory Commission, in order to study such measures as may prove necessary to ensure that the agreements on the cessation of hostilities in Cambodia, Laos and Viet-Nam are respected.

  THE AMERICAN STATEMENT

  As I stated on July 18, my Government is not prepared to join in a declaration by the Conference such as is submitted. However, the United States makes this unilateral declaration of its position in these matters:

  “The Government of the United States being resolved to devote its efforts to the strengthening of peace in accordance with the principles and purposes of the United Nations takes note of the agreements concluded at Geneva on July 20 and 21, 1954 between (a) The Franco-Laotian Command and the Command of the Peoples Army of Viet-Nam; (b) the Royal Khmer Army Command and the Command of the Peoples Army of Viet-Nam; (c) Franco-Vietnamese Command and the Command of the Peoples Army of Viet-Nam and of paragraphs 1 to 12 inclusive of the declaration presented to the Geneva Conference on July 21, 1954 declares with regard to the aforesaid agreements and paragraphs that (i) it will refrain from the threat or the use of force to disturb them, in accordance with Article 2 (4) of the Charter of the United Nations dealing with the obligation of members to refrain in their international relations from the threat or use of force; and (ii) it would view any renewal of the aggression in violation of the aforesaid agreements with grave concern and as seriously threatening international peace and security.

  “In connection with the statement in the declaration concerning free elections in Viet-Nam my Government wishes to make clear its position which it has expressed in a declaration made in Washington on June 29, 1954, as follows:

  “ ‘In the case of nations now divided against their will, we shall continue to seek to achieve unity through free elections supervised by the United Nations to insure that they are conducted fairly.’

  “With respect to the statement made by the representative of the State of Viet-Nam, the United States reiterates its traditional position that peoples are entitled to determine their own future and that it will not join in an arrangement which would hinder this. Nothing in its declaration just made is intended to or does indicate any departure from this traditional position.

  “We share the hope that the agreements will permit Cambodia, Laos and Viet-Nam to play their part, in full independence and sovereignty, in the peaceful community of nations, and will enable the peoples of that area to determine their own future.”

  # 15

  Lansdale Team’s Report on Covert Saigon Mission in ’54 and ’55

  Following are excerpts from the report of the Saigon Military Mission, an American team headed by Edward G. Lansdale, covering its activities in the 1954-55 period. The report accompanies the Pentagon’s study of the Vietnam war, which cites it without identifying the author or date. The excerpts appear verbatim, with only unmistakable typographical errors corrected.

  I. FOREWORD

  . . . This is the condensed account of one year in the operations of a “cold war” combat team, written by the team itself in the field, little by little in moments taken as the members could. The team is known as the Saigon Military Mission. The field is Vietnam. There are other teams in the field, American, French, British, Chinese, Vietnamese, Vietminh, and others. Each has its own story to tell. This is ours.

  The Saigon Military Mission entered Vietnam on 1 June 1954 when its Chief arrived. However, this is the story of a team, and it wasn’t until August 1954 that sufficient members arrived to constitute a team. So, this is mainly an account of the team’s first year, from August 1954 to August 1955.

  It was often a frustrating and perplexing year, up close. The Geneva Agreements signed on 21 July 1954 imposed restrictive rules upon all official Americans, including the Saigon Military Mission. An active and intelligent enemy made full use of legal rights to screen his activities in establishing his stay-behind organizations south of the 17th Parallel and in obtaining quick security north of that Parallel. The nation’s economy and communications system were crippled by eight years of open war. The government, including its Army and other security forces, was in a painful transition from colonial to self rule, making it a year of hot-tempered incidents. Internal problems arose quickly to points where armed conflict was sought as the only solution. The enemy was frequently forgotten in the heavy atmosphere of suspicion, hatred, and jealousy.

  The Saigon Military Mission received some blows from allies and the enemy in this atmosphere, as we worked to help stabilize the government and to beat the Geneva time-table of Communist takeover in the north. However, we did beat the time-table. The government did become stabilized. The Free Vietnamese are now becoming unified and learning how to cope with the Communist enemy. We are thankful that we had a chance to help in this work in a critical area of the world, to be positive and constructive in a year of doubt.

  II. MISSION

  The Saigon Military Mission (SMM) was born in a Washington policy meeting early in 1954, when Dien Bien Phu was still holding out against the encircling Vietminh. The SMM was to enter into Vietnam quietly and assist the Vietnamese, rather than the French, in unconventional warfare. The French were to be kept as friendly allies in the process, as far as possible.

  The broad mission for the team was to undertake paramilitary operations against the enemy and to wage political-psychological warfare. Later, after Geneva, the mission was modified to prepare the means for undertaking paramilitary operations in Communist areas rather than to wage unconventional warfare. . . .

  III. HIGHLIGHTS OF THE YEAR

  a. Early Days

  The Saigon Military Mission (SMM) started on 1 June 1954, when its Chief, Colonel Edward G. Lansdale, USAF, arrived in Saigon with a small box of files and clothes and a borrowed typewriter, courtesy of an SA-16 flight set up for him by the 13th Air Force at Clark AFB. Lt-General John O’Daniel and Embassy Charge Rob McClintock had arranged for his appointment as Assistant Air Attache, since it was improper for U.S. officers at MAAG at that time to have advisory conferences with Vietnamese officers. Ambassador Heath had concurred already. There was no desk space for an office, no vehicle, no safe for files. He roomed with General O’Daniel, later moved to a small house rented by MAAG. Secret communications with Washington were provided through the Saigon station of CIA.

  There was deepening gloom in Vietnam. Dien Bien Phu had fallen. The French were capitulating to the Vietminh at Geneva. The first night in Saigon, Vietminh saboteurs blew up large ammunition dumps at the airport, rocking Saigon throughout the night. General O’Daniel and Charge McClintock agreed that it was time to start taking positive action. O’Daniel paved the way for a quick first-hand survey of the situation throughout the country. McClintock paved the way for contacts with Vietnamese political leaders. Our Chief’s reputation from the Philippines had preceded him. Hundreds of Vietnamese acquaintanceships were made quickly.

  Working in close cooperation with George Hellyer, USIS Chief, a new psychological warfare campaign was devised for the Vietnamese Army and for the government in Hanoi. Shortly after, a refresher course in combat psywar was constructed and Vietnamese Army personnel were rushed through it. A similar course was initiated for the Ministry of Information. Rumor campaigns were added to the tactics and tried out in Hanoi. It was almost too late.

  The first rumor campaign was to be a carefully planted story of a Chinese Communist regiment in Tonkin taking reprisals against a Vietminh village whose girls the Chinese had raped, recalling Chinese Nationalist troop behavior in 1945 and confirming Vietnamese fears of Chinese occupation under Vietminh rule; the story was to be planted by soldiers of the Vietnamese Armed Psywar Company in Hanoi dressed in civilian clothes. The troops received their instructions silently, dressed in civilian clothes, went on the mission, and failed to return. They had deserted to the Vietminh. Weeks later, Tonk
inese told an excited story of the misbehavior of the Chinese Divisions in Vietminh territory. Investigated, it turned out to be the old rumor campaign, with Vietnamese embellishments.

  There was political chaos. Prince Buu Loc no longer headed the government. Government ministries all but closed. The more volatile leaders of political groups were proposing a revolution, which included armed attacks on the French. Col. Jean Carbonel of the French Army proposed establishing a regime with Vietnamese (Nungs and others) known to him close to the Chinese border and asked for our backing. Our reply was that this was a policy decision to be made between the FEC top command and U.S. authorities.

  Oscar Arellano, Junior Chamber International vice-president for Southeast Asia, stopped by for a visit with our Chief; an idea in this visit later grew into “Operation Brotherhood.”

  On 1 July, Major Lucien Conein arrived, as the second member of the team. He is a paramilitary specialist, well-known to the French for his help with French-operated maquis in Tonkin against the Japanese in 1945, the one American guerrilla fighter who had not been a member of the Patti Mission. He was assigned to MAAG for cover purposes. Arranged by Lt-Col William Rosson, a meeting was held with Col Carbonel, Col Nguyen Van Vy, and the two SMM officers; Vy had seen his first combat in 1945 under Conein. Carbonel proposed establishing a maquis, to be kept as a secret between the four officers. SMM refused, learned later that Carbonel had kept the FEC Deuxieme Bureau informed. Shortly afterwards, at a Defense conference with General O’Daniel, our Chief had a chance to suggest Vy for a command in the North, making him a general. Secretary of State for Defense Le Ngoc Chan did so, Vy was grateful and remained so.