Pentagon Papers

by Neil Sheehan

  2. The first critical military action against North Vietnam should be designed merely to install the principle that they will, from the present forward, be vulnerable to retaliatory attack in the north for continued violations for the 1954 and 1962 Accords. In other words, we would signal a shift from the principle involved in the Tonkin Gulf response. This means that the initial use of force in the north should be as limited and as unsanguinary as possible. It is the installation of the principle that we are initially interested in, not tit for tat.

  3. But our force dispositions to accompany an initial retaliatory move against the north should send three further signals lucidly:

  a. that we are putting in place a capacity subsequently to step up direct and naval pressure on the north, if that should be required;

  b. that we are prepared to face down any form of escalation North Vietnam might mount on the ground; and

  c. that we are putting forces into place to exact retaliation directly against Communist China, if Peiping should join in an escalatory response from Hanoi. The latter could take the form of increased aircraft on Formosa plus, perhaps, a carrier force sitting off China distinguished from the force in the South China Sea.

  4. The launching of this track, almost certainly, will require the President to explain to our own people and to the world our intentions and objectives. This will also be perhaps the most persuasive form of communication with Ho and Mao. In addition, I am inclined to think the most direct communication we can mount (perhaps via Vientiane and Warsaw) is desirable, as opposed to the use of cut-outs. They should feel they now confront an LBJ who has made up his mind. Contrary to an anxiety expressed at an earlier stage, I believe it quite possible to communicate the limits as well as the seriousness of our intentions without raising seriously the fear in Hanoi that we intend at our initiative to land immediately in the Red River Delta, in China, or seek any other objective than the re-installation of the 1954 and 1962 Accords.

  # 91

  Memo from Rostow Advocating Ground Troops and Air Attacks

  Memorandum from Mr. Rostow to Secretary Rusk, Nov. 23, 1964, “Some Observations as We Come to the Crunch in Southeast Asia.”

  I leave for Lima this Saturday for the CIAP and CIES meetings. I presume that in early December some major decisions on Southeast Asia will be made. I should, therefore, like to leave with you some observations on the situation. I have already communicated them to Bill Bundy.

  1. We must begin by fastening our minds as sharply as we can around our appreciation of the view in Hanoi and Peiping of the Southeast Asia problem. I agree almost completely with SNIE 10-3-64 of October 9. Here are the critical passages:

  “While they will seek to exploit and encourage the deteriorating situation in Saigon, they probably will avoid actions that would in their view unduly increase the chances of a major U.S. response against North Vietnam (DRV) or Communist China. We are almost certain that both Hanoi and Peiping are anxious not to become involved in the kind of war in which the great weight of superior U.S. weaponry could be brought against them. Even if Hanoi and Peiping estimated that the U.S. would not use nuclear weapons against them, they could not be sure of this. . . .

  “In the face of new U.S. pressures against the DRV further actions by Hanoi and Peiping would be based to a considerable extent on their estimate of U.S. intentions, i.e., whether the U.S. was actually determined to increase its pressures as necessary. Their estimates on this point are probably uncertain, but we believe that fear of provoking severe measures by the U.S. would lead them to temper their responses with a good deal of caution. . . .

  “If despite Communist efforts, the U.S. attacks continued, Hanoi’s leaders would have to ask themselves whether it was not better to suspend their support of Viet Cong military action rather than suffer the destruction of their major military facilities and the industrial sector of their economy. In the belief that the tide has set almost irreversibly in their favor in South Vietnam, they might calculate that the Viet Cong could stop its military attacks for the time being and renew the insurrection successfully at a later date. Their judgment in this matter might be reinforced by the Chinese Communist concern over becoming involved in a conflict with U.S. air and naval power.”

  Our most basic problem is, therefore, how to persuade them that a continuation of their present policy will risk major destruction in North Viet Nam; that a preemptive move on the ground as a prelude to negotiation will be met by U.S. strength on the ground; and that Communist China will not be a sanctuary if it assists North Viet Nam in counter-escalation.

  2. In terms of force dispositions, the critical moves are, I believe, these:

  a. The introduction of some ground forces in South Viet Nam and, possibly, in the Laos corridor.

  b. A minimal installation of the principle that from the present forward North Viet Nam will be vulnerable to retaliatory attacks for continued violation of the 1954-1962 Accords.

  c. Perhaps most important of all, the introduction into the Pacific Theater of massive forces to deal with any escalatory response, including forces evidently aimed at China as well as North Viet Nam, should the Chinese Communists enter the game. I am increasingly confident that we can do this in ways which would be understood—and not dangerously misinterpreted—in Hanoi and Peiping.

  3. But the movement of forces, and even bombing operations in the north, will not, in themselves, constitute a decisive signal. They will be searching, with enormous sensitivity, for the answer to the following question: Is the President of the United States deeply committed to reinstalling the 1954-1962 Accords; or is he putting on a demonstration of force that would save face for, essentially, a U.S. political defeat at a diplomatic conference? Here their judgment will depend not merely on our use of force and force dispositions but also on the posture of the President, including commitments he makes to our own people and before the world, and on our follow-through. The SNIE accurately catches the extent of their commitments and their hopes in South Viet Nam and Laos. They will not actually accept a setback until they are absolutely sure that we really mean it. They will be as searching in this matter as Khrushchev was before he abandoned the effort to break our hold on Berlin and as Khrushchev was in searching us out on the Turkish missiles before he finally dismantled and removed his missiles from Cuba. Initial rhetoric and military moves will not be enough to convince them.

  4. Given the fundamental assessment in this SNIE, I have no doubt we have the capacity to achieve a reinstallation of the 1954-1962 Accords if we enter the exercise with the same determination and staying power that we entered the long test on Berlin and the short test on the Cuba missiles. But it will take that kind of Presidential commitment and staying power.

  5. In this connection, the SNIE is quite sound in emphasizing that they will seek, if they are permitted, either to pretend to call off the war in South Viet Nam, without actually doing so; or to revive it again when the pressure is off. (We can see Castro doing this now in Venezuela.) The nature of guerrilla war, infiltration, etc., lends itself to this kind of ambiguous letdown and reacceleration. This places a high premium on our defining precisely what they have to do to remove the pressure from the north. It is because we may wish to maintain pressure for some time to insure their compliance that we should think hard about the installation of troops not merely in South Viet Nam south of the seventeenth parallel, but also in the infiltration corridor of Laos. The same consideration argues for a non-sanguinary but important pressure in the form of naval blockade which will be easier to maintain during a negotiation or quasi-negotiation phase than bombing operations.

  6. The touchstones for compliance should include the following: the removal of Viet Minh troops from Laos; the cessation of infiltration of South Viet Nam from the north; the turning off of the tactical radio network; and the overt statement on Hanoi radio that the Viet Cong should cease their operations and pursue their objectives in South Viet Nam by political means. On the latter point, even if co
ntrary covert instructions are given, an overt statement would have important political and psychological impact.

  7. As I said in my memorandum to the President of June 6, no one can be or should be dogmatic about how much of a war we still would have—and for how long—if the external element were thus radically reduced or eliminated. The odds are pretty good, in my view, that, if we do these things in this way, the war will either promptly stop or we will see the same kind of fragmentation of the Communist movement in South Viet Nam that we saw in Greece after the Yugoslav frontier was closed by the Tito-Stalin split. But we can’t proceed on that assumption. We must try to gear this whole operation with the best counter-insurgency effort we can mount with our Vietnamese friends outside the country; and not withdraw U.S. forces from Viet Nam until the war is truly under control. (In this connection, I hope everyone concerned considers carefully RAND proposal of November 17, 1964, entitled “SIAT: Single Integrated Attack Team, A Concept for Offensive Military Operations in South Viet-Nam.”)

  8. I do not see how, if we adopt this line, we can avoid heightened pressures from our allies for either Chinese Communist entrance into the UN or for a UN offer to the Chinese Communists on some form of two-China basis. This will be livable for the President and the Administration if—but only if—we get a clean resolution of the Laos and South Viet Nam problems. The publication of a good Jordan Report will help pin our allies to the wall on a prior reinstallation of the 1954 and 1962 Accords.

  9. Considering these observations as a whole, I suspect what I am really saying is that our assets, as I see them, are sufficient to see this thing through if we enter the exercise with adequate determination to succeed. I know well the anxieties and complications on our side of the line. But there may be a tendency to underestimate both the anxieties and complications on the other side and also to underestimate that limited but real margin of influence on the outcome which flows from the simple fact that at this stage of history we are the greatest power in the world—if we behave like it.

  10. In the President’s public exposition of his policy, I would now add something to the draft I did to accompany the June 6 memorandum to the President. I believe he should hold up a vision of an Asian community that goes beyond the Mekong passage in that draft. The vision, essentially, should hold out the hope that if the 1954 and 1962 Accords are reinstalled, these things are possible:

  a. peace;

  b. accelerated economic development;

  c. Asians taking a larger hand in their own destiny;

  d. as much peaceful coexistence between Asian Communists and non-Communists as the Communists wish.

  11. A scenario to launch this track might begin as follows:

  A. A Presidential decision, communicated to but held by the Congressional leaders. Some leakage would not be unhelpful.

  B. Immediate movement of relevant forces to the Pacific.

  C. Immediate direct communication to Hanoi to give them a chance to back down before faced with our actions, including a clear statement of the limits of our objectives but our absolute commitment to them.

  D. Should this first communication fail (as is likely) installation of our ground forces and naval blockade, plus first attack in North, to be accompanied by publication up-dated Jordan Report and Presidential speech.

  # 92

  McGeorge Bundy Memo to Johnson on “Sustained Reprisal” Policy

  Annex A, “A Policy of Sustained Reprisal,” to memorandum to President Lyndon B. Johnson from McGeorge Bundy, Presidential assistant for national security, Feb. 7, 1965.

  I. INTRODUCTORY

  We believe that the best available way of increasing our chance of success in Vietnam is the development and execution of a policy of sustained reprisal against North Vietnam—a policy in which air and naval action against the North is justified by and related to the whole Viet Cong campaign of violence and terror in the South.

  While we believe that the risks of such a policy are acceptable, we emphasize that its costs are real. It implies significant U.S. air losses even if no full air war is joined, and it seems likely that it would eventually require an extensive and costly effort against the whole air defense system of North Vietnam. U.S. casualties would be higher—and more visible to American feelings—than those sustained in the struggle in South Vietnam.

  Yet measured against the costs of defeat in Vietnam, this program seems cheap. And even if it fails to turn the tide—as it may—the value of the effort seems to us to exceed its cost.

  II. OUTLINE OF THE POLICY

  In partnership with the Government of Vietnam, we should develop and exercise the option to retaliate against any VC act of violence to persons or property.

  2. In practice, we may wish at the outset to relate our reprisals to those acts of relatively high visibility such as the Pleiku incident. Later, we might retaliate against the assassination of a province chief, but not necessarily the murder of a hamlet official; we might retaliate against a grenade thrown into a crowded cafe in Saigon, but not necessarily to a shot fired into a small shop in the countryside.

  3. Once a program of reprisals is clearly underway, it should not be necessary to connect each specific act against North Vietnam to a particular outrage in the South. It should be possible, for example, to publish weekly lists of outrages in the South and to have it clearly understood that these outrages are the cause of such action against the North as may be occurring in the current period. Such a more generalized pattern of reprisal would remove much of the difficulty involved in finding precisely matching targets in response to specific atrocities. Even in such a more general pattern, however, it would be important to insure that the general level of reprisal action remained in close correspondence with the level of outrages in the South. We must keep it clear at every stage both to Hanoi and to the world, that our reprisals will be reduced or stopped when outrages in the South are reduced or stopped—and that we are not attempting to destroy or conquer North Vietnam.

  4. In the early stages of such a course, we should take the appropriate occasion to make clear our firm intent to undertake reprisals on any further acts, major or minor, that appear to us and the GVN as indicating Hanoi’s support. We would announce that our two governments have been patient and forebearing in the hope that Hanoi would come to its senses without the necessity of our having to take further action; but the outrages continue and now we must react against those who are responsible; we will not provoke; we will not use our force indiscriminately; but we can no longer sit by in the face of repeated acts of terror and violence for which the DRV is responsible.

  5. Having once made this announcement, we should execute our reprisal policy with as low a level of public noise as possible. It is to our interest that our acts should be seen—but we do not wish to boast about them in ways that make it hard for Hanoi to shift its ground. We should instead direct maximum attention to the continuing acts of violence which are the cause of our continuing reprisals.

  6. This reprisal policy should begin at a low level. Its level of force and pressure should be increased only gradually—and as indicated above should be decreased if VC terror visibly decreased. The object would not be to “win” an air war against Hanoi, but rather to influence the course of the struggle in the South.

  7. At the same time it should be recognized that in order to maintain the power of reprisal without risk of excessive loss, an “air war” may in fact be necessary. We should therefore be ready to develop a separate justification for energetic flak suppression and if necessary for the destruction of Communist air power. The essence of such an explanation should be that these actions are intended solely to insure the effectiveness of a policy of reprisal, and in no sense represent any intent to wage offensive war against the North. These distinctions should not be difficult to develop.

  8. It remains quite possible, however, that this reprisal policy would get us quickly into the level of military activity contemplated in the so-called Phase II of ou
r December planning. It may even get us beyond this level with both Hanoi and Peiping, if there is Communist counter-action. We and the GVN should also be prepared for a spurt of VC terrorism, especially in urban areas, that would dwarf anything yet experienced. These are the risks of any action. They should be carefully reviewed—but we believe them to be acceptable.

  9. We are convinced that the political values of reprisal require a continuous operation. Episodic responses geared on a one-for-one basis to “spectacular” outrages would lack the persuasive force of sustained pressure. More important still, they would leave it open to the Communists to avoid reprisals entirely by giving up only a small element of their own program. The Gulf of Tonkin affair produced a sharp upturn in morale in South Vietnam. When it remained an isolated episode, however, there was a severe relapse. It is the great merit of the proposed scheme that to stop it the Communists would have to stop enough of their activity in the South to permit the probable success of a determined pacification effort.

  III. EXPECTED EFFECT OF SUSTAINED REPRISAL POLICY

  1. We emphasize that our primary target in advocating a reprisal policy is the improvement of the situation in South Vietnam. Action against the North is usually urged as a means of affecting the will of Hanoi to direct and support the VC. We consider this an important but longer-range purpose. The immediate and critical targets are in the South—in the minds of the South Vietnamese and in the minds of the Viet Cong cadres.

  2. Predictions of the effect of any given course of action upon the states of mind of people are difficult. It seems very clear that if the United States and the Government of Vietnam join in a policy of reprisal, there will be a sharp immediate increase in optimism in the South, among nearly all articulate groups. The Mission believes—and our own conversations confirm—that in all sectors of Vietnamese opinion there is a strong belief that the United States could do much more if it would, and that they are suspicious of our failure to use more of our obviously enormous power. At least in the short run, the reaction to reprisal policy would be very favorable.