United States – Vietnam Relations, 1945–1967: A Study Prepared by the Department of Defense/II. B. Toward a Negotiated Settlement
TOWARD A NEGOTIATED SETTLEMENT
Among the more frequently cited misapprehensions concerning U.S. policy in Vietnam is the view that the Eisenhower Administration flatly rejected intervention in the First Indochina War. The record shows plainly that the U.S. did seriously consider intervention,, and advocated it to the U.K. and other allies. With the intensification of the French–Viet Minh war and the deterioration of the French military position, the United States was forced to take a position on: first, a possible U.S. military intervention in order to avert a Viet Minh victory; second, the increasingly likely contingency of negotiations between Paris and Ho Chi Minh to end the war through a political settlement. In order to avoid a French sell-out, and as an alternative to unilateral U.S. intervention, the U.S. proposed in 1954 to broaden the war by involving a number of allies in a collective defense effort through "united action."
The U.S. Government internal debate on the question of intervention centered essentially on the desirability and feasibility of U.S. military action. Indochina's importance to U.S. security interests in the Far East was taken for granted. The Eisenhower Administration followed in general terms the rationale for American interest in Indochina that was expressed by the Truman Administration. With respect to intervention, the Truman Administration's NSC 124 of February 1952 recognized that the U.S. might be forced to take some military action in order to prevent the subversion of Southeast Asia. In late 1953 – early 1954, as the fall of Indochina seemed imminent, the question of intervention came to the fore. The Defense Department pressed for a determination by highest authority of the size and nature of the forces the U.S. was willing to commit in Indochina. Some in DOD questioned the then operating assumption that U.S. air and naval forces would suffice as aid for the French. The Army was particularly concerned about contingency planning that assumed that U.S. air and naval action alone could bring military victory, and argued for realistic estimates of requisite land forces, including the degree of mobilization that would be necessary. The State Department thought that Indochina was so critical from a foreign policy viewpoint that intervention might be necessary. But DOD and the JCS, estimating that air-naval action alone could not stem the surging Viet Minh, recommended that rather than intervening directly, the U.S. should concentrate on urging Paris to train an expanded indigenous army, and should exert all possible pressures — in Europe as well as in Asia — to motivate the French to fight hard for a military victory. Many in the U.S. Government (the Ridgway Report stands out in this group) were wary that U.S. intervention might provoke Chinese Communist intervention. In the latter case, even a considerable U.S. deployment of ground forces would not be able to stem the tide in Indochina. A number of special high-level studies were unable to bridge the evident disparity between those who held that vital U.S. interests were at stake in Indochina, and those who were unwilling to make a firm decision to intervene with U.S. ground forces to assure those interests. Consequently, when the French began pressing for U.S. intervention at Dien Bien Phu, the Eisenhower Administration took the position that the U.S. would not intervene unilaterally, but only in concert with a number of European and Far Eastern allies as part of a combined force. (Tab 1)
This "united action" proposal, announced publicly by Secretary Dulles on March 29, 1954; was also designed to offer the French an alternative to surrender at the negotiating table. Negotiations for a political settlement of the Franco–Viet Minh war, however, were assured when the Big Four Foreign Ministers meeting in February at Berlin placed Indochina on the agenda of the impending Geneva Conference. Foreign Minister Bidault insisted upon this, over U.S. objections, because of the mounting pressure in France for an end to the seemingly interminable and costly war. The "peace faction" in Paris became stronger in proportion to the "peace feelers" let out by Ho Chi Minh, and the lack of French success on the battlefield. U.S. policy was to steer the French away from negotiations because of the fear that Indochina would thereby be handed over to the communist "empire."
Secretary Dulles envisaged a ten-nation collective defense force to take "united action" to prevent a French defeat — if necessary before the Geneva Conference. Dulles and Admiral Radford were, at first, inclined towards an early unilateral intervention at Dien Bien Phu, as requested by the French (the so-called "Operation Vulture"). But Congressional leaders indicated they would not support U.S. military action without active allied participation, and President Eisenhower decided that he would not intervene without Congressional approval. In addition to allied participation, Congressional approval was deemed dependent upon a public declaration by France that it was speeding up the timetable for independence for the Associated States.
The U.S. was unable to gather much support for "united action" except in Thailand and the Philippines. The British response was one of hesitation in general, and flat opposition to undertaking military action before the Geneva Conference. Eden feared that it would lead to an expansion of the war with a high risk of Chinese intervention. Moreover, the British questioned both the U.S. domino principle, and the belief that Indochina would be totally lost at Dien Bien Phu and through negotiations at Geneva. As for the French, they were less interested in "united action" than in immediate U.S. military assistance at Dien Bien Phu. Paris feared that united action would lead to the internationalization of the war, and take control out of its hands. In addition, it would impede or delay the very negotiations leading towards a settlement which the French increasingly desired. But repeated French requests for direct U.S. intervention during the final agony of Dien Bien phu failed to alter president Eisenhower's conviction that it would be an error for the U.S. to act alone.
Following the fall of Dien Bien Phu during the Geneva Conference, the "domino theory" underwent a reappraisal. On a May 11 press conference, Secretary Dulles observed that "Southeast Asia could be secured even without, perhaps, Vietnam, Laos and Cambodia." In a further remark that was deleted from the official transcript; Dulles said that Laos and Cambodia were "important but by no means essential" because they were poor countries with meager populations. (Tab 2)
|II. B.||Tab 1 - The Interagency Debate over U.S. Intervention in Indochina|
|Tab 2 - The Attempt to Organize "United Action"|
II. B. 1.
THE INTERAGENCY DEBATE
OVER U.S. INTERVENTION IN INDOCHINA
TABLE OF CONTENTS AND OUTLINE
|1.||The General Policy Context||B-5|
|a.||The Final Truman Program (NSC 124)||B-5|
|b.||Eisenhower Administration's "Basic National Security Policy"||B-5|
|2.||The Question of Intervention with Ground Forces||B-5|
|a.||The Problem is Presented||B-5|
|b.||NSC: State and Defense Views||B-6|
|c.||The JCS View||B-7|
|d.||Formation of Special Working Group on Indochina||B-7|
|e.||Erskine Report, Part I: Motivate the French||B-8|
|f.||The Erskine Report, Part II: Intervention Only After Geneva?||B-8|
|g.||NSC 177 Annex Raises Intervention Question Anew||B-9|
|h.||Army Questions Feasibility of Air–Naval Intervention and Outlines Ground Forces Requirements||B-10|
|i.||Defense–JCS "Solution": Rectify French Deficiencies||B-11|
|3.||The New Approach: "United Action"||B-11|
|a.||Presidential Decision to Support Only "United Action"||B-12|
|b.||Rejection of Unilateral Intervention||B-13|
- 1. The General Policy Context
The debate over the wisdom and manner of American intervention in Indochina was based primarily on the desirability of military involvement, not on questions concerning Indochina's value to United States security interests in the Far East. The Eisenhower Administration was in general agreement with the rationale for American interest in Indochina expressed by the Truman Administration. The United States Government first came to full grips with the question of intervention in late 1953 – early 1954 as the fall of Indochina seemed to become imminent.
- a. The Final Truman Program (NSC 124)
NSC 124 (February, 1952) considered imperative the prevention of a Communist take-over in Indochina. It recognized that even in the absence of "identifiable aggression" by Communist China, the U.S. might be forced to take some action in order to prevent the subversion of Southeast Asia. In case of overt Chinese intervention, NSC 124 recommended: (1) naval, air and logistical support of French Union forces; (2) naval blockade of Communist China; (3) attacks by land and carrier-based aircraft on military targets in Mainland China. It stopped short of recommending the commitment of U.S. ground forces in Indochina.1
- b. Eisenhower Administration's "Basic National Security Policy"
NSC 162/2, adopted in October, 1953, ten months after the Republican Administration took office, was the basic document of the "New Look." After commenting on U.S. and Soviet defense capabilities, the prospect of nuclear parity and the need to balance domestic economic policy with military expenditures, it urged a military posture based on the ability "to inflict massive retaliatory damage" on the enemy. Indochina was listed as an area of "strategic importance" to the U.S. An attack on such important areas "probably would compel the United States to react with military force either locally at the point of attack or generally against the military power of the aggressor." The use of tactical nuclear weapons in conventional war situations was recommended, but they were not specifically suggested for use in Indochina.2
- 2. The Question of Intervention with Ground Forces
- a. The Problem is Presented
In late 1953, the Army questioned prevalent assumptions that ground forces would not be required in Indochina if the area was as important to U.S. security interests as the NSC papers stated. The Army urged that the issue be faced squarely in order to provide the best possible preparation for whatever courses of action might be undertaken. The Plans Division of the Army General Staff pointed out that under current programs the Army did not have the capability of providing divisional forces for operations in Indochina while maintaining its existing commitments in Europe and the Far East. Army also suggested a "reevaluation of the importance of Indochina and Southeast Asia in relation to the possible cost of saving it."3
With the deterioration of the French military situation in Indochina, the first serious attention came to be given to the manner and size of a U.S. intervention. The question to be faced was: how far was the U.S. prepared to go in terms of force commitments to ensure that Indochina stayed out of Communist hands? The Defense Department, though not of a single mind on this question, pressed for an early determination of the forces the U.S. would be willing to dispatch in an emergency situation. The Chief of Naval Operations, Admiral Robert , proposed to Secretary of Defense Wilson on January 6, 1954, that the U.S. decide immediately to employ combat forces in Indochina on the "reasonable assurance of strong indigenous support of our forces," whether or not the French Government approved.4 But Vice Admiral A. C. Davis, Director of the Office of Foreign Military Affairs in OSD, wrote:
- ". . . Involvement of U.S. forces in the Indochina war should be avoided at all practical costs. If, then, National Policy determines no other alternative, the U.S. should not be self-duped into believing the possibility of partial involvement — such as 'Naval and Air units only.' One cannot go over Niagara Falls in a barrel only slightly."
Admiral Davis then went on:
- "Comment: If it is determined desirable to introduce air and naval forces in combat in Indochina it is difficult to understand how involvement of ground forces could be avoided. Air strength sufficient to be of worth in such an effort would require bases in Indochina of considerable magnitude. Protection of those bases and port facilities would certainly require U.S. ground force personnel, and the force once committed would need ground combat units to support any threatened evacuation. It must be understood that there is no cheap way to fight a war, once committed."5
- b. NSC: State and Defense Views
The evident disparity between, on the one hand, our high strategic valuation of Indochina, and on the other, our unwillingness to reach a firm decision on the forces required to defend the area became the subject of the NSC's 179th meeting on January 8, 1954. At this meeting the Council discussed NSC 177 on Southeast Asia,6 but it decided not to take up the Special Annex to NSC 177 which laid out a series of choices which might face the United States if the French military position in Indochina continued to deteriorate. Nevertheless, the NSC at that time did make some headway on the problem it had posed for itself.
According to summary notes taken of the meeting,7 State and Defense were at considerable variance on what should be done in either of two contingencies: first, French abandonment of the struggle; second, a French demand for substantial U.S. forces (ground, sea, and air). The State view considered the French position so critical already as (in the rapporteur's words) to "force the U.S. to decide now to utilize U.S. forces in the fighting in Southeast Asia." The Defense representative refused to underwrite U.S. involvement. He reportedly stated that the French could win by the spring of 1955 given U.S. aid and given "improved French political relations with the Vietnamese... The commitment of U.S. forces in a 'civil war' in Indochina will be an admission of the bankruptcy of our political policies re Southeast Asia and France and should be resorted to only in extremity." He urged that every step be taken to avoid a direct American commitment.
The Council meeting reached two important conclusions, both fully in keeping with the Defense position. First, it decided that a discussion of contingencies for U.S. involvement missed the essential point that the French were capable of winning provided they gained native political and military cooperation. Second, NSC 177 was, as Defense suggested, inadequate in that the study failed to come to grips with the fact that eventual success in Indochina depended upon French ability to solve the problem of how to obtain Vietnamese support for the war effort.
- c. The JCS View
The NSC meeting of January 8 still left open the question of U.S. action in the event troops were indisputably necessary to prevent the "loss" of Indochina. In this regard, the Joint Chiefs of Staff kept their options open. The Chiefs thought that the Navarre Plan was fundamentally sound, but was being steadily undercut by the gulf separating the French from the Vietnamese, by General Navarre's failure to implement U.S. recommendations, and by hesitancy in Paris over the necessary-political concessions to the Bao Dai government. Yet JCS refused either to rule out the use of U.S. combat forces or to back unequivocally their employment.8
- d. Formation of Special Working Group on Indochina
Dissatisfaction with NSC 177 and the NSC's subsequent failure in NSC 54059 to resolve the ground force commitment issue led to the formation of a working group to evaluate the French military effort, to make recommendations concerning future U.S. contributions to it, and to devote attention to the various contingencies under which the U.S. might be called upon to intervene directly in the war. The working group, under the chairmanship of General G. B. Erskine (USMC, Ret.), was composed of representatives from the Departments of State and Defense, the Joint Chiefs, and CIA. The group was responsible to NSC through General W. Bedell Smith, Under Secretary of State, who had been appointed by the Council to head the Special Committee on the U.S. and Indochina.
- e. The Erskine Report, Part I: Motivate the French
The first section of Erskine's two-part report, dated February 6, 1954; was based on the assumption that U.S. policy toward Indochina would not require resort to overt combat operations by U.S. forces. Within that framework, the report adhered closely to the Defense Department position that the French, if properly motivated, could win in Indochina, but that their failure to carry through on needed reforms would require U.S. consideration of active involvement. The report noted that:
- "There is in Indo-China, or programmed for Indo-China..., a sufficient amount of equipment and supplies and a potential manpower pool sufficient eventually to defeat the Communists decisively if properly utilized and maintained and if the situation continues to permit this manpower to be converted into military effectiveness. Success will ultimately be dependent upon the inspiration of the local population to fight for their own freedom from Communist domination and the willingness of the French both to take the measures to stimulate that inspiration and to more fully utilize the native potential."
The Erskine Report (Part I) recommended: (1) augmentation of the French air force, but not using American personnel; (2) additional U.S. military assistance support of $124 million (supplementing FY 1954 commitments of $1.115 billion); (3) elevation of MAAG's status to that of Military Mission, with expanded personnel and advisory authority over training and planning; (4) assignment of additional U.S. personnel with the mission of acting as instructors and performing other key duties within the French forces; (5) Presidential letters to the Heads of State of the Associated States reaffirming our support of their independence and explaining our motivations in assisting them through the French; (6) an effort be undertaken to persuade Bao Dai to take a more active part in the anti-Viet Minh struggle. The report concluded that the program of recommended changes could bring about victory over the Viet Minh if it received full French approval and barring Chinese intervention.
- f. The Erskine Report, Part II: Intervention Only After Geneva?
The second part of the Erskine Report did not appear until March 17, 1954, and unlike the first, was the responsibility only of the Defense Department and the Joint Chiefs, with the State Department position "reserved." The report confirmed previous determinations that the loss of Indochina would be a major military and political setback for the United States. It recommended that prior to the start of the Geneva Conference, the U.S. should inform Britain and France that it was interested only in military victory in Indochina and would not associate ourselves with any settlement which falls short of that objective. It further recommended that in the event of an unsatisfactory outcome at Geneva, the U.S. should pursue ways of continuing the struggle in concert with the Associated States, the United Kingdom, and other allies. The National Security Council was therefore requested to determine the extent of American willingness to commit combat forces to the region with or without French cooperation. But with the Dien Bien Phu siege just beginning, and the Geneva Conference six weeks away, the Erskine Report suggested that the United States influence and observe developments at the Geneva Conference before deciding on active involvement.
- g. NSC 177 Annex Raises Intervention Question Anew
Following the second part of the Erskine Report, the President evidently decided that the Special Annex to NSC 177, which had been withdrawn in January 1954, should be redistributed for consideration by the Council's Planning Board.10 The Annex to NSC 177 posed the fundamental choice between (a) acceptance of the loss of Indochina, which would be followed by U.S. efforts to prevent further deterioration of our security position in Southeast Asia, or (b) direct military action to save Indochina before the French and Vietnamese became committed to an unacceptable political settlement at Geneva.
Among the alternative courses of action outlined in the Annex, two in particular — both geared to direct U.S. action prior to a Geneva settlement — were discussed. Under the first, based on French consent to continue fighting, the U.S. was urged to (1) seek a Franco—Vietnamese settlement of the independence issue, (2) insist upon a buildup of indigenous forces with U.S. advisory and material support, (3) demand the maintenance of French forces in the field at their then present level, and (4) prepare to provide sufficient U.S. forces to make possible the success of a joint effort. Full internationalization of the war would be discussed with the French later, thereby discounting immediate action in concert with the British or Asian nations.
The second alternative assumed a French pull-out. In such a case the United States could either accept the loss of Indochina, or adopt an active policy while France gradually withdrew its troops. Should we accept the latter course, our "most positive" step offering "the greatest assurance of success" would be, NSC estimated, to join with indigenous forces in combatting the Viet Minh until they were reduced "to the status of scattered guerrilla bands." U.S. land, sea, and air forces would be involved.
The Annex was based upon assumptions that U.S. involvement against the Viet Minh would not provoke massive Chinese intervention, would not lead to direct Soviet involvement, and that there would be no resumption of hostilities in Korea. It acknowledged that any change in these assumptions would seriously jeopardize the success of the alternatives proposed. In particular, it noted that U.S. participation heightened the risk of Chinese intervention, and Chinese entry would alter radically both the immediate military situation and U.S. force requirements.
- h. Army Questions Feasibility of Air–Naval Intervention and Outlines Ground Forces Requirements
The principal result of the discussions on the NSC 177 Special Annex was to bring into the open the issue of the costs in manpower and materiel of a U.S. involvement. The Army was critical of contingency planning that was based on the assumption that U.S. air and naval force could be used in Indochina without the commitment of ground combat forces. General Matthew B. Ridgway, Army Chief of Staff, later wrote in his Memoirs that he was quite disturbed at talk in high government circles about employing air–naval power alone in Indochina. An Army position paper submitted to the NSC in the first week of April, 1954, argued as follows:
- "1. U.S. intervention with combat forces in Indochina is not militarily desirable...
- "2. A victory in Indochina cannot be assured by U.S. intervention with air and naval forces alone.
- "3. The use of atomic weapons in Indochina would not reduce the number of ground forces required to achieve a victory in Indochina.
- "4. Seven U.S. divisions or their equivalent, with appropriate naval and air support, would be required to win a victory in Indochina if the French withdraw and the Chinese Communists do not intervene. However, U.S. intervention plans cannot be based on the assumption that the Chinese Communists will not intervene.
- "5. The equivalent of 12 U.S. divisions would be required to win a victory in Indochina, if the French withdraw and the Chinese Communists intervene.
- "6. The equiyalent of 7 U.S. divisions would be required to win a victory in Indochina if the French remain and the Chinese Communists intervene.
- "7. Requirements for air and naval support for ground force operations are:
- a. Five hundred fighter-bomber sorties per day exclusive of interdiction and counter-air operations.
- b. An airlift capability of a one division drop.
- c. A division amphibious lift.
- "8. Two U.S. divisions can be placed in Indochina in 30 days, and an additional 5 divisions in the following 120 days. This could be accomplished without reducing U.S. ground strength in the Far East to an unacceptable degree, but the U.S. ability to meet its NATO commitment would be seriously affected for a considerable period. The amount of time required to place 12 divisions in Indochina would depend upon the industrial and personnel mobilization measures taken by the government..."11
- i. Defense–JCS "Solution": Rectify French Deficiencies
Faced with estimates that U.S. air–naval action could not turn the tide, and that U.S. ground forces of appropriate size would impinge upon other commitments, DoD and the JCS took the position that an alternative military solution existed within the reach of the French which required no U.S. intervention. DoD argued that the three reasons for France's deteriorating position were (1) lack of the will to win; (2) reluctance to meet Indochinese demands for true independence; (3) refusal to train indigenous personnel for military leadership. Defense believed that premature U.S. involvement would therefore beg the basic question of whether the U.S. was prepared to apply the strongest pressure on France, primarily in the European context, to attempt to force the French in Paris and in Indochina to take appropriate measures to rectify these deficiencies. Only if these measures were forthcoming, DoD held, should the U.S. seriously consider committing ground forces in defense of the interests of France and the Associated States. The net effect of the Defense–JCS position was to challenge the notion that a quick U.S. military action in Indochina would be either feasible or necessary.
- 3. The New Approach: "United Action"
At this juncture the Eisenhower Administration began giving serious consideration to broadening any American military intervention in Indochina by making it part of a collective venture along with its European and Asian allies. Secretary of State Dulles in a speech on March 29 warned the public of the alarming situation in Indochina and called for "united action" — without defining it further — in these words:
- "Under the conditions of today, the imposition on Southeast Asia of the political system of Communist Russia and its Chinese Communist ally, by whatever means, would be a grave threat to the whole free community. The United States feels that the possibility should not be passively acccpted but should be met by united action. This might involve serious risks. But these risks are far less than those that will face us a few years from now if we dare not be resolute today."12
Under Secretary of State W. Bedell Smith's Special Committee on the U.S. and Indochina, to which the Erskine working group had reported, issued a study on April 2. This report went beyond the question of holding Indochina and agreed that whatever that area's fate, the U.S. should begin developing a system of mutual defense for Southeast Asia. For the short term, the Smith Committee favored American sponsorship of a mutual defense treaty directed against Communist aggression in Indochina and Thailand. In the long run, it recommended promotion of a "regional and Asian mutual defense arrangement subscribed and underwritten by the major European powers with interests in the Pacific."13
The State Department's thinking in early April 1954 was not greatly at variance from that of Defense and the Smith Committee. Perhaps more so than Defense, State was concerned about the Chinese reaction to a U.S. military intervention. It urged caution and suggested that in any type of "united action" the U.S. make clear to both the Chinese and the allies that the intervention would not be aimed at the overthrow or destruction of the Peking regime. State recommended: (1) no U.S. military intervention for the moment, nor should it be promised to the French; (2) planning for military intervention continue; (3) discussions with potential allies on possibility of forming a regional grouping in the event of an unacceptable settlement at Geneva.14
- a. Presidential Decision to Support Only "United Action"
Meanwhile, the President decided, following a meeting of Secretary Dulles and Admiral Radford, Chairman of the Joint Chiefs, with Congressional leaders on April 3, that the U.S. would not undertake a unilateral intervention. Any U.S. military involvement in Indochina would be contingent upon (1) formation of a coalition force with U.S. allies to pursue "united action"; (2) declaration of French intent to accelerate independence of Associated States; (3) Congressional approval of U.S. involvement (which was thought to be dependent upon (1) and (2)).
These policy guidelines undoubtedly influenced the NSC which, at a meeting on April 6, developed the somewhat incompatible objectives that the U.S. (a) "intervene if necessary to avoid the loss of Indochina, but advocate that no steps be left untaken to get the French to achieve a successful conclusion of the war on their own" and (b) support as the best alternative to U.S. intervention a regional grouping with maximum Asian participation.15 "
The President accepted the NSC recommendations but decided that henceforth the Administration's primary efforts would be devoted toward: (1) organizing regional collective defense against Communist expansion; (2) gaining British support for U.S. objectives in Southeast Asia; (3) pressing France to accelerate its timetable for Indochinese independence. The President would seek Congressional approval for U.S. participation in a regional arrangement, if it could be put together, and meanwhile contingency planning for mobilization would commence.16
- b. Rejection of Unilateral Intervention
Thus, as the curtain began to fall on the French effort at Dien Bien Phu, and the question of what the U.S. would do became critical, the U.S. Government backed away from unilateral intervention. The Defense Department was reluctant to intervene following the Army's presentation of the view that air–naval action alone would not do the job and ground forces would be needed. The very recent experience of the Korean War mitigated strongly against another American involvement in an Asian land war. Furthermore, the President was not willing to enter into such a venture unless it was cloaked with Congressional approval. Such approval, in turn, depended upon the participation of the allies. Hence, Secretary Dulles undertook the task of persuading Britain, France and the Asian allies to participate in a coalition for "united action" in Indochina.
II. B. 2.
THE ATTEMPT TO ORGANIZE "UNITED ACTION"
TABLE OF CONTENTS AND OUTLINE
|1.||The Berlin Conference of 1954||B-17|
|a.||Viet Minh Strategy and French Attitudes||B-17|
|b.||Early U.S. Opposition to Negotiations||B-18|
|2.||The Ely Mission (March 20 – 24)||B-19|
|a.||Dien Bien Phu Begins||B-19|
|b.||Operation Vulture (Vautour)||B-19|
|3.||"United Action" as an Alternative to Either Negotiations or to Unilateral U.S. Intervention||B-20|
|a.||Formulation of U.S. Policy||B-20|
|b.||Initial Allied Reaction to "United Action"||B-22|
|c.||French Call for U.S. Intervention at Dien Bien Phu (April 4 – 5)||B-22|
|d.||U.S. Decision Not to Intervene Unilaterally||B-23|
|e.||British Oppose "United Action"||B-24|
|f.||French Oppose "United Action"||B-26|
|g.||Aborted Working Group on Collective Defense in Southeast Asia (April 20)||B-27|
|h.||Continued French Prodding for U.S. Intervention (April 21 – 25)||B-27|
|4.||Final U.S. Position Before Geneva||B-28|
|a.||Exchanges with the French||B-28|
|b.||Exchanges with the U.K.||B-29|
|c.||The Washington Viewpoint||B-30|
|5.||Reappraisal of Domino Theory After Dien Bien Phu||B-30|
- 1. The Berlin Conference of 1954
Negotiations for a political settlement of the French–Viet Minh war were practically assured when it was decided at the Big Four meeting in Berlin in February 1954 that the Indochina question would be added to the agenda of an upcoming international conference at Geneva which was to discuss primarily a settlement of the Korean War. The period between the Berlin and Geneva conferences (i.e., between February and May 1954) unexpectedly witnessed a denouement of the Indochina drama with the siege and fall of Dien Bien Phu, the U.S. decision not to intervene, and the unsuccessful U.S. attempt to rally its allies together in order to form a collective force in pursuance of "united action."
- a. Viet Minh Strategy and French Attitudes
The half-year before the Berlin Foreign Ministers conference of February 1954 saw both a marked step up of Viet Minh military activity and the presentation of a peace feeler from Ho Chi Minh. The Vietnam Peoples Army (VPA) began to change its strategy against the French from guerrilla activities to conventional battle deployments. This was accompanied by an increase in the amount of Chinese military assistance, no doubt facilitated by the end of aimed conflict in Korea. Thus, the Viet Minh appeared to be showing a newly found strength and confidence, although at the time the French refused to recognize this either publicly or to themselves.
Meanwhile, Ho Chi Minh put out a peace feeler in late November 1953 in reply to a questionnaire submitted by a correspondent for the Swedish newspaper Expressen. The one pre-condition set by Ho for negotiations was French recognition of Vietnamese independence. In subsequent weeks, the peace feeler was repeated on several occasions, but each time it failed to indicate the place at which talks might be held, nor did it propose a scope for the talks.1
Nothing resulted directly from these peace feelers, but indirectly they added to the mounting public and political sentiment in France for an end to the seemingly interminable and costly war. The armistice agreement negotiated at Panmunjom in July 1953 served as an example which many Frenchmen hoped could be followed in the negotiation of a cease-fire with the DRV. A widespread disenchantment with the Indochina war pervaded France. This was reflected in public statements by Prime Minister Laniel that Paris would be satisfied with an "honorable solution" to the war.
The French then adopted a policy toward the war of "keep fighting — seek talking." There was an increase in French military activity and confidence stimulated by the Navarre Plan, but this was offset by a growth in the size and influence of the peace faction in France, as indicated by the "dovish" votes of the National Assembly favoring an early settlement of the protracted war. Premier Laniel and French officials told the U.S. Embassy that they considered the Ho Chi Minh offer pure propaganda, but said also that Ho's move had produced the intended impact on public and military circles in France and Indochina. Laniel mentioned that President Vincent Auriol had become so excited by Ho's proposal that he told Laniel "to consult representatives of three Associated States immediately with view to seeking earliest possible opening of negotiations with representatives of Ho Chi Minh. Laniel had flatly refused..." But American officials were skeptical. The U.S. Embassy reported that a Laniel speech of November 24, 1953, "left considerable latitude for negotiations," and that Ho's offers had increased the pressure for a settlement.2
- b. Early U.S. Opposition to Negotiations
The consistent U.S. policy was to attempt to steer the French clear of the negotiating table pending substantial military gains on the battlefield. In bilateral U.S.–French talks in July, 1953, while the Korean armistice was being discussed at Panmunjom, Foreign Minister Bidault told Secretary Dulles that parallel talks should be pursued on Indochina. Bidault explained that the French public would never understand why negotiations were fit and honorable for Korea but were not for Indochina. A cease-fire in Korea, with nothing similar in prospect for Indochina, would make his government's position "absolutely impossible."
Secretary Dulles in reply stressed that "negotiations with no other alternative usually end in capitulation." In the Korean case, Dulles said, the alternative was the U.S. threat of "other and unpleasant measures" which the Communists realized we possessed. He urged the French to adopt the Navarre Plan, not only for military reasons, but because it would improve the French negotiating position. Dulles made it clear that the U.S. felt it was inadvisable to have the Indochina war inscribed on the agenda of a post-armistice political conference on Korea.3 The U.S. position at this time foreclosed negotiating on Indochina until after a Chinese decision to eliminate or cut down aid to the Viet Minh.4 In general, the U.S. sought to convince the French that military victory was the only guarantee of diplomatic success.
Dulles wished the French to continue the war because of his deep conviction that Indochina was a principal link in the line of the containment of Communism. In addition, Washington was undoubtedly influenced by optimistic reports on the progress of the war. General O'Daniel reported from Saigon that a French victory was likely if U.S. material support was forthcoming. On February 6, 1954, it was announced that forty B-26 bombers and 200 U.S. technicians to service them would be sent to Indochina. Admiral Radford told a House Foreign Relations Subcommittee, a month before the siege of Dien Bien Phu began (March, 1954), that the Navarre Plan was "a broad strategic concept which within a few months should insure a favorable turn in the course of the war."5
At the Berlin Quadripartite Foreign Ministers meeting in February, however, Secretary Dulles was forced to give in on the French demand that Indochina be placed on the Geneva agenda. Bidault pressured the U.S. by threatening to scuttle the project for the European Defense Community which then was at the top of U.S. priorities. Dulles could not block Paris' determination to discuss Indochina at Geneva for it was, in the last analysis, France's war. He must have realized that the Laniel Government could not completely avoid negotiations without alienating itself from popular opinion and bringing about downfall at the hands of the anti-war opposition parties.
The United States successfully opposed Soviet efforts at Berlin to gain for Communist China the status of a sponsoring power, and successfully held out, furthermore, for the inclusion in the Berlin communiqué of a statement that no diplomatic recognition, not already accorded, would be implied either in the invitation to, or the holding of, the Geneva Conference.6
- 2. The Ely Mission (March 20 – 24)
- a. Dien Bien Phu Begins
On March 13, 1954, the VPA, under the direct command of General Giap, began its assault upon Dien Bien Phu. This fortress in Northern Vietnam was to take on a political and psychological importance far out of proportion to its actual strategic value because of the upcoming Geneva Conference. The Viet Minh correctly foresaw that a show of decisive force, not to mention a victory, would markedly strengthen their hand at the conference. Further, a defeat of the French Union forces would sap the will of the French nation to continue the struggle. The Viet Minh were greatly helped by a substantial increase in the level of Chinese military aid including artillery and radar.7 As the battle developed, the optimism which had pervaded Washington statements, public and private, on the war was replaced with the conviction that unless new steps were taken to deal with Chinese aid, the French were bound to go under.
General Paul Ely, French Chief of Staff, arrived in Washington on March 20 to confer with U.S. officials on the war situation. Ely's principal aims were to obtain American assurance of air intervention in the event of Chinese aerial attack, and to obtain further U.S. material assistance, especially B-26 bombers. Dulles told Ely that he could not then answer regarding U.S. response to Chinese air intervention.8 Ely subsequently contended in his Mémoires that he received a promise from Admiral Radford, Chairman of the Joint Chiefs of Staff, to push for prompt American approval of interdiction should the contingency arise.9 As to the supply of bombers, twenty-five additional B-26's were promised.
- b. Operation Vulture (Vautour)
According to subsequent French reports, General Ely was asked to stay 24 hours longer than planned in Washington, during which time Admiral Radford made an informal but major proposal to him. Radford is said to have suggested a nighttime raid against the perimeter of Dien Bien Phu by aircraft of the U.S. Air Force and U.S. Navy. The plan, named Operation Vulture, called for about sixty B-29's to take off from Clark Field near Manila, under escort of 150 fighters of the U.S. Seventh Fleet, to conduct a massive strike against VPA positions on the perimeter of Dien Bien Phu.10
Operation Vulture, according to French sources, was conceived by a joint American–French military staff in Saigon. It is admitted to have been an informal proposal which had not as yet received full U.S. Government backing as policy. No record of Operation Vulture has been found, in files examined. In an interview in 1965, Admiral Radford stated that no plans for "Operation Vulture" existed, since planning to aid Dien Bien Phu by an air strike never proceeded beyond the conceptual stage.11 Nevertheless, such an operation probably was the subject of informal discussions both in Vietnam, and between Radford and Ely.
- 3. "United Action" as an Alternative to Either Negotiations or to Unilateral U.S. Intervention
- a. Formulation of U.S. Policy
By late March the internal debate within the Eisenhower Administration had reached the point where it was recognized that: (a) unilateral U.S. intervention in the Indochina War would not be effective without ground forces; (b) the involvement of U.S. ground forces was logistically and politically undesirable; (c) preferably, "free world" intervention in Indochina to save the area from communism would take the form of a collective operation by allied forces. This was the import of the NSC deliberations, the Ridgway Report, the Report of Under Secretary of State W. Bedell Smith's Special Committee on the U.S. and Indochina, and President Eisenhower's general train of thought (see Tab 1).
Accordingly, Secretary Dulles in his discussions with General Ely went beyond the question of immediate assistance to the French garrison at Dien Bien Phu and broached the possible establishment of a regional defense arrangement for Southeast Asia.
This proposal was given public exposure in Secretary Dulles' speech of March 29 before the Overseas Press Club. Dulles described the importance of resisting communist aggression in Indochina in these words:
- "If the Communist forces were to win uncontested control over Indo-China or any substantial part thereof, they would surely resume the same pattern of aggression against the other free peoples in that area.
- "The propagandists of Red China and of Soviet Russia make it perfectly apparent that the purpose is to dominate all of Southeast Asia.
- "Now Southeast Asia is an important part of the world. It is the so-called 'rice bowl' ... It is an area that is rich in many raw materials ...
- "And in addition to these tremendous economic values, the area has great strategic value ... Communist control of Southeast Asia would carry a grave threat to the Philippines, Australia and New Zealand ... The entire western Pacific area, including the so-called 'offshore island chain,' would be strategically endangered."
He then went on call for "united action," and after noting Chinese assistance to the Viet Minh, prophesied that aggression would "lead to action in places by means of the free world's choosing, so that the aggression would surely cost more than it would gain."12
In the following weeks the aim of U.S. diplomacy was to secure allied agreement to a collective defense pact consisting of ten nations: the U.S., France, Britain, Australia, New Zealand, Philippines, Thailand, and the three Associated States. Secretary Dulles presented his proposal in discussions with British Ambassador Sir Roger Makins and French Ambassador Henri Bonnet. President Eisenhower addressed a personal message to Prime Minister Churchill explaining the proposed coalition. The President noted that:
- "Geneva is less than four weeks away. There the possibility of the Communists driving a wedge between us will, given the state of mind in France, be infinitely greater than at Berlin. I can understand the very natural desire of the French to seek an end to this war which has been bleeding them for eight years. But our painstaking search for a way out of the impasse has reluctantly forced us to the conclusion that there is no negotiated solution of the Indochina problem which in its essence would not be either a face-saving device to cover a French surrender or a face-saving device to cover a Communist retirement. The first alternative is too serious in its broad strategic implications for us and for you to be acceptable....
- "Somehow we must contrive to bring about the second alternative."
President Eisenhower went on to outline the need for a coalition willing to fight the Communists, if this proved necessary. He concluded with a historical question certain to appeal to Churchill:
- "If I may refer again to history; we failed to halt Hirohito, Mussolini and Hitler by not acting in unit and in time. That marked the beginning of many years of stark tragedy and desperate peril. May it not be that our nations have learned something from that lesson?..."13
In these discussions the United States sought generally to stiffen the will of the free nations in the Indochina crisis. It emphasized both the avowed intention of France to grant real independence to the Associated States, and the condition accepted by the French at Berlin for the United States' agreeing to discuss Indochina at Geneva. That condition was that France would not agree to any arrangement which would directly or indirectly result in the turnover of Indochina to the Communists. The United States sought solid support for this position, especially from the United Kingdom, Australia, and New Zealand. Although the possibility was held out of future involvement of the United Nations in the Indochina problem, there was no thought of immediate UN action.14
- b. Initial Allied Reaction to "United Action"
Thailand and the Philippines gave a favorable response to the call for united action. The British response was one of caution and hesitancy. Churchill accepted Eisenhower's suggestion that Secretary Dulles go to London for further talks, but the British saw dangers in pressing for a defensive coalition before the Geneva conference. Eden was determined not to be "hustled into injudicious military decisions." As Eden later wrote:
- "I welcomed the American proposal for the organization of collective defence in South-East Asia, since this would contribute to the security of Malaya and Hong Kong and would remove the anomaly of our exclusion from the A.N.Z.U.S. Pact, to which the United States, Australia and New Zealand were party. But I felt that to form and proclaim a defensive coalition, before we went to the conference table, would be unlikely to help us militarily and would harm us politically, by frightening off important potential allies. By the beginning of May, the rains would be starting in Indo-China and extensive campaigning by either side would be impossible for several months. Since the complete collapse of the French military effort before then was improbable, I did not think that concern for the immediate military situation should be the guiding factor in our policy."15
- c. French Call for U.S. Intervention at Dien Bien Phu (April 4–5)
The French response to the proposal for united action was overtaken by military events at Dien Bien Phu. Foreign Minister Bidault contended on April 5 that the time for a coalition approach had passed and that the fate of Dien Bien Phu would be decided in the next ten days.16 The previous day Ambassador Douglas Dillon was called to an emergency Sunday cabinet meeting and was informed by Bidault, in the company of Laniel, that "immediate armed intervention of U.S. carrier aircraft at Dien Bien Phu is now necessary to save the situation." Bidault, reporting Navarre's desperate state in the field and the extent of Chinese intervention in support of General Giap's forces, asked the Ambassador point-blank for U.S. action, saying that "the fate of Southeast Asia now rested on Dien Bien Phu," and that "Geneva would be won or lost depending on outcome" of the battle.17 The United States was now being called upon to act quickly and unilaterally to save a local situation, rather than, as Dulles desired, in concert with Asian and Western Allies.
- d. U.S. Decision Not to Intervene Unilaterally
In the first week of April it became clear that the question of U.S. intervention was now crucial. Fighting at Dien Bien Phu reached major proportions as Chinese-supplied artillery pounded the French and drove them backwards. Without an early intervention by an external power, or group of powers, the French position at Dien Bien Phu was likely to be overrun. In anticipation of the French request for intervention, the Eisenhower Administration decided to consult with Congressional leaders. The President appears to have thought that Congressional support was vital for whatever active role the U.S. might now take in Indochina.
Available Government documents do not provide details of the two meetings to be described below. However, on the basis of seemingly reliable published sources, it appears that on April 3 Secretary Dulles and Admiral Radford met with eight Congressmen (three Republicans and five Democrats) at the State Department.18 Radford apparently outlined a plan for an air strike on the Vietnam People's Army (VPA) at Dien Bien Phu using 200 planes from the aircraft carriers Essex and Boxer, stationed on maneuvers in the South China Sea. An unsuccessful air strike might need to be followed by a second air strike, but ground forces were not envisaged at this stage. It has been averred that there were atomic bombs on the aircraft carriers which could be delivered by the planes, but there is no indication that there was any serious consideration given to using nuclear weapons at Dien Bien Phu or elsewhere in Indochina. In the event of a massive Chinese troop intervention, however, it is quite possible that the U.S. would have retaliated with strategic nuclear weapons against targets in China.
The Congressional leaders raised questions about the amount of allied support for such an action, about the position of the other Joint Chiefs, about the need for ground forces if a second air strike also failed, and about the danger of a mammoth Chinese intervention which could transform Indochina into another Korean-type war. Radford apparently was forced to admit that he was the only one of the Joint Chiefs who favored the intervention plan. Dulles conceded that the allies had not as yet been consulted. In consequence, Dulles, who had been thinking of a joint Congressional resolution authorizing Presidential use of U.S. air-naval power in Indochina (which it is alleged he had ready in his pocket) left the meeting without the vital support he needed. The Congressional leaders laid down three conditions necessary for their support: (a) formation of an allied "coalition"-type force; (b) a French declaration indicating an intent to accelerate independence for the Associated States; (c) French agreement to continue their Expeditionary Corps in Indochina. Thus Congressional opposition put the brake on a possible unilateral U.S. intervention.19 According to a subsequent State Department Summary:
- "It was the sense of the meeting that the U.S. should not intervene alone but should attempt to secure the cooperation of other free nations concerned in Southeast Asia, and that if such cooperation could be assured, it was probable that the U.S. Congress would authorize U.S. participation in such 'United Action.'"20
The following day, April 4, Dulles and Radford met with the President at the White House. The President reached the decision to intervene only upon the satisfaction of the three conditions necessary for the U.S. "to commit belligerent acts" in Indochina. There would have to be a coalition "with active British Commonwealth participation"; a "full political understanding with France and other countries," and Congressional approval.21
President Eisenhower clearly did not want the U.S. to intervene alone. He also was very concerned with having broad Congressional support for any step which might involve the U.S. in a war. As Sherman Adams later observed:
- "Having avoided one total war with Red China the year before in Korea when he had United Nations support, he [Eisenhower] was in no mood to provoke another one in Indo-China by going it alone in a military action without the British and other Western Allies. He was also determined not to become involved militarily in any foreign conflict without the approval of Congress. He had had trouble enough convincing some Senators that it was even necessary to send small groups of noncombatant Air Force technicians to Indo-China."22
- e. British Oppose "United Action"
From April 11 to 14, Secretary Dulles visited London and Paris to attempt to obtain British and French commitments to support his proposal for "United Action." According to President Eisenhower, Dulles felt that he had been given assurance of Congressional support for "United Action" if the allies approved his plan.23
Dulles found the British opposed to any type of collective military action prior to the Geneva Conference. Dulles explained, according to Eden's account, that the U.S. had concluded that the French could no longer deal with the situation in Indochina, militarily or politically, alone. If the French position in Indochina collapsed, the consequences in the rest of Southeast Asia would be grave. U.S. air and naval forces were ready to intervene and some aircraft carriers had already been moved from Manila to the Indochina coast. On reflection, said Dulles, he had thought that the U.S. should not act alone in this matter and that an ad hoc coalition might be formed which might develop later into a Southeast Asia defense organization. This in itself would deter China from further interference in Indochina and would strengthen the western position at Geneva by giving evidence of solidarity.24
Eden was not convinced. He drew a distinction between the long term issue of collective security in Southeast Asia — which might well be guaranteed by treaty after Geneva — and the more immediate question of "united action" in Indochina. He was opposed to any military action or warning announcement before Geneva. The British were willing to provide the French with full diplomatic support at Geneva, either, as a guarantor of the final settlement or as a participant in multilateral talks if a settlement failed to materialize. In the latter case, the British were prepared to discuss a collective defense formula that would comprehend any non-Communist portion of Indochina formed as the result of the Geneva deliberations. But they would not, prior to Geneva, commit themselves to united action.
Britain's distinction between the appropriateness of a united approach after, as opposed to before, the Conference was founded on serious doubts about the true import of united action. As Dulles correctly judged, behind Britain's push for a settlement was the "fear that if fighting continues, we will in one way or another become involved, thereby enhancing risk of Chinese intervention and possibility further expansion of war."25 Eden charged that action prior to the Conference would not only destroy chances for a peaceful, settlement, but would critically raise the risk of a wider war. American planning admitted the strong possibility of direct Chinese intervention, and his own intelligence staff had concluded that Western involvement would bring on the Chinese by land and air once the Viet Minh effort became "seriously endangered."26
Thus, while Dulles was angered at the way he felt the British were writing off Indochina, Eden was highly pessimistic about Dulles' militancy in an area of uncertain value for which the United States had ambiguous, high-risk plans. There was considerable difference, in Eden's mind, between warnings to Communist China against direct intervention before the fact (which the British went along with in mid-1953) and united action, which would, despite any allied assurances to Peking, be interpreted by the Chinese as provocatory.27
British suspicions, furthermore, were an extension of the belief that Indochina need not be entirely lost at Geneva in the absence of united action. London was apparently puzzled by American talk of the "loss" of Indochina, for to 10 Downing Street, "French cannot lose the war between now [April 1954] and the coming of the rainy season however badly they may conduct it."28 While Dulles kept telling the British that only united action through the formation of a coalition could ensure against a complete Communist diplomatic triumph at Geneva, Eden was equally convinced that the best way to assure continuation of the war would be united action, and that the French, even after Dien Bien Phu, were still strong enough to prevent the Communists from gaining all Indochina.
Even before Dulles' April flight to London to sound out the British on united action, the Churchill government was closely questioning American evaluations of Indochina. In an April 1 cable, for instance, Dulles vented his disturbance at Britain's refusal to accept the view that the loss of Indochina would ultimately affect their security interests in Malaya, Australia, and New Zealand.29 This was indeed the case, as Dulles discovered for himself once he talked to Eden in London and later at Geneva. Eden steadfastly refused to buy Dulles' analogy between Indochina and Malaya, retorting that the situation in Malaya was "well in hand" while that in Indochina was clearly not.30 Admiral Radford concluded in late April from talks with the British chiefs of staff that the U.K. policy seemed "to be on a very narrow basis strictly in terms of local U.K. interest without regard to other areas of the Far East' such as Japan."31
The British simply could not accept the domino principle even as they admitted Southeast Asia's security value to the free world. By the opening of the Geneva Conference, the U.S.–U.K. relations had reached a low point: Dulles was insisting that the British were the major roadblock to implementation of united, action, while Eden was clinging to the notion that a negotiated settlement leading to partition would be the best outcome of an impossibly complex politico-military situation in Indochina.
- f. French Oppose "United Action"
Secretary Dulles fared little better in selling "united action" in Paris than he did in London, but for somewhat different reasons. The French were seeking a quick action to avoid an imminent military defeat at Dien Bien Phu. Dulles, however, refused to be torn from a collective allied approach to the Indochina War. The French feared that a coalition arrangement would lead to an internationalization of the war and take control of it out of their hands. They, therefore, only desired local assistance at Dien Bien Phu along the lines of Operation Vulture.
Furthermore, another objection to "united action" from the French viewpoint was that it would only delay or impede the very negotiations leading towards a settlement which the French increasingly desired. The U.S. objective was to keep alive the French determination to continue the war. Dulles feared that the French would use Geneva to find a face-saving formula for a French surrender. Premier Laniel reaffirmed to Dulles in Paris that his government would take no action which directly or indirectly turned Indochina over to the Communists. But he also called attention to the increasing desire on the part of many in France to get out of Indochina at any cost. The French stressed that it was necessary to await the results of the Geneva Conference and that they could not give the impression in advance that they believed Geneva would fail.32
- g. Aborted Working Group on Collective Defense in Southeast Asia (April 20)
Immediately upon returning to Washington on April 15 Secretary Dulles invited representatives of the United Kingdom, France, the Associated States, Australia, New Zealand, the Philippines, and Thailand to attend a meeting on the 20th to set up an ad hoc defense group for the Southeast Asia region. The delegates were to work on a draft for a future organization. The Secretary had been under the impression from his talk in London with Eden that the U.K., while rejecting immediate "united action" in Indochina, would have no objection to such a preliminary meeting.
On April 18, just two days before the scheduled meeting, the British Ambassador informed Dulles that there would be no British participation. The reasons: no understanding on the part of the British Foreign Secretary that the working group would go forward at once, and no agreement concerning membership. The Department expressed amazement, but in view of the British attitude the April 20 meeting was transformed into a general briefing for the nations comprising the allied side at the Geneva Conference. In a later explanation of the shift in British attitude, Foreign Secretary Eden said that in agreeing to informal working group talks he had overlooked the pending Colombo Conference and that he felt that it would have been most undesirable to give any public indication of membership in a program for united action before the end of the Colombo discussions.33 It is now clear that the British were restrained by India and by a fear that British attendance at the meeting would be construed as assent to "united action."34 Moreover, London could not have been reassured by a "trial balloon" speech of Vice President Nixon on April 17 in which he suggested that the U.S. might have to "take the risk now by putting our boys in" in order to avoid "further Communist expansion in Asia and Indochina."35
- h. Continued French Prodding for U.S. Intervention (April 21–25)
In preparation for the Indochina phase of the Geneva Conference, tripartite discussions (U.S., U.K., France) took place in Paris in mid-April. In these discussions, the French contended that a successful Geneva settlement was dependent on a favorable outcome of the battle at Dien Bien Phu and that their participation in a Southeast Asian coalition might not be possible if Dien Bien Phu fell. There could be no guarantee what position France would take in the event of a collapse at Dien Bien Phu.
The French argued that only large-scale United States air and naval intervention could retrieve the situation in Indochina. They made no formal request for intervention in the tripartite discussions, but on several occasions suggested or implied to the Americans that such action was necessary.36
On April 21, Marc Jacquet, French Secretary of State for the Associated States, told the American Ambassador to Indochina, Donald Heath, then in Paris, that no French military authority still believed a victory was possible in Indochina without United States air and naval intervention, and that such action should be indicated after the impending failure of the Indochina phase of the Geneva Conference.37
On April 22, Foreign Minister Bidault, with General Ely, suggested to Secretary Dulles that there should be emergency consultation between General Navarre and American military commanders in Indochina. The Foreign Minister indicated that, although he had been opposed to internationalizing the war, he would now favor it with United States participation if that would save Dien Bien Phu.38
On April 23 the French Under Secretary of State, André Bougenot, in the presence of Premier Daniel, suggested to Douglas MacArthur II, Counselor of the Department of State, that the United States could commit its naval aircraft to the battle at Dien Bien Phu without risking American prestige or committing an act of belligerency by placing such aircraft, painted with French insignia and construed as part of the French Foreign Legion, under nominal French command for an isolated action consisting of air strikes lasting two or three days.39
On the same day Foreign Minister Bidault showed the Secretary a message from General Navarre in which the French commander said that the situation at Dien Bien Phu was desperate and that he believed that the only alternatives were (1) Operation VAUTOUR, massive B-29 bombing (which Secretary Dulles understood would be a United States operation from bases outside Indochina), or (2) a French Union request for a cease-fire (which the Secretary assumed would be at Dien Bien Phu only, but which General Navarre, as it turned out, meant should apply to all of Indochina).40
- 4. Final U.S. Position Before Geneva
- a. Exchanges with the French
The American response to these various suggestions was to reiterate to the French the necessary preconditions for American intervention: (1) complete independence for the Associated States; (2) Congressional authorization; (3) a coalition that would include the United Kingdom.41 In relation to the need for a coalition, Secretary Dulles in Paris and Under Secretary W. Bedell Smith in Washington suggested to French officials that France, in the same way as it had asked for American air intervention in Indochina, should appeal for British intervention there.42
Before leaving Paris for Geneva, Secretary Dulles gave Foreign Minister Bidault a letter replying to General Navarre's suggestion that United States air intervention at Dien Bien Phu was the sole alternative to a cease-fire. In this letter, the Secretary stated again the necessary preconditions for United States intervention, and contended that if Dien Bien Phu fell there was no reason that this should make it necessary to plead for a cease-fire.43 The French Foreign Minister, in a letter limited to the military consequences of United States intervention, replied that in the opinion of French military experts "a massive intervention of American aviation would still be able to save the garrison."44
- b. Exchanges with the U.K.
In the discussions with the British, meanwhile, the United States had tried both to induce the United Kingdom to participate in a joint Anglo–American air and naval intervention at Dien Bien Phu and to persuade the United Kingdom that the prompt organisation of a collective defense in Southeast Asia was necessary to bolster the French in Indochina.45
But the British indicated that they would make no commitment to intervene militarily in Indochina and wished to postpone conversations on collective defense arrangements until after the Geneva Conference. Foreign Secretary Eden told Secretary Dulles on April 24 that the British did not want at this juncture to intervene in the Indochina War.46 Immediately afterward Eden returned to London for a special Cabinet meeting on the Indochina crisis which was held on April 25. Prime Minister Churchill reported to the House of Commons two days later that the British Government was "not prepared to give any undertakings about United Kingdom military action in Indochina in advance of the results of Geneva," and had "not entered into any new political or military commitments."47 Before addressing the Commons, Churchill had rejected a plea from French Ambassador René Massigli, made on behalf of Premier Laniel, for a statement that Great Britain would join the United States and France in defense of Dien Bien Phu.48
The United Kingdom was willing, however, to participate in early military discussions to consider measures which might be taken in Southeast Asia if Indochina was lost. Along these lines, Foreign Secretary Eden and Secretary Dulles had discussed tentatively on April 22 the possibility of a secret military appraisal — by the United States, the United Kingdom, Australia, New Zealand and Thailand — of what could be done to bolster Thailand in the event of a French collapse in Indochina. The Foreign Secretary had returned to this proposition in another conversation with Secretary Dulles the next day.49
On April 30, indicating that the British were prepared to defend the area outside Indochina, and possibly the free part of a partitioned Indochina, Eden proposed to Secretary Dulles "an immediate and secret joint examination of the political and military problems in creating a collective defense for Southeast Asia, namely: (a) nature and purpose; (b) membership; (c) commitments." He added that this examination should also cover immediate measures to strengthen Thailand.50
Secretary Dulles raised the question of early military talks that might strengthen the French position at the Geneva Conference at a meeting in Geneva on May 2 with the Foreign Ministers of Australia and New Zealand, partners of the United States in the ANZUS organization. The three agreed at this meeting that there should be five-power military talks in Washington among the ANZUS powers, the United Kingdom, and France, with the possible participation of Thailand.51
- c. The Washington Viewpoint
In Washington in the meantime, the President on April 26, the opening date of the Geneva Conference, told a group of Republican leaders that it would be a "tragic error" for the United States to intervene unilaterally as a partner of France in the Indochina struggle.52 Two days later, in a discussion with Under Secretary W. Bedell Smith, Presidential Assistant Robert Cutler, and Admiral Radford (who had just been to London and had talked with the British Chiefs of Staff and Prime Minister Churchill),53 the President expressed disappointment over the British attitude of refraining from active participation in discussions on a Southeast Asia collective security arrangement before the end of the Geneva Conference. President Eisenhower, in this discussion, reiterated his firm decision that there would be no United States military intervention in Indochina by executive action. He urged his aides to provide help to the French in repairing three airfields in Indochina but to avoid any undue risk of involving the United States in combat operations.54
The feasibility of American intervention at Dien Bien Phu was finally removed with the fall of that fortress on May 7. President Eisenhower sent messages to the President of France, René Coty, and to the Chief of State of Vietnam, Bao Dai, praising the defenders of Dien Bien Phu and stressing the determination of the free world to remain "faithful to the causes for which they fought."55
- 5. Reappraisal of Domino Theory After Dien Bien Phu
The fall of Dien Bien Phu, and the failure to organize an intervention through "united action" prior to the opening of the Geneva Conference in late April, 1954, led to a reappraisal of the "domino theory" which had been at the center of U.S. policy in Southeast Asia since the late 1940's. The loss of Tonkin, or Vietnam, or perhaps even all of Indochina, was no longer considered to lead inexorably to the loss to Communism of all of Southeast Asia.
Accordingly, Secretary Dulles in a press conference on May 11 (four days after the French surrender at Dien Bien Phu) observed that "Southeast Asia could be secured even without perhaps Vietnam, Laos and Cambodia." He went on to note that although he would not want to underestimate the importance of these countries he would not want either to give the impression that "if events that we could not control, and which we do not anticipate, should lead to their being lost that we would consider the whole situation hopeless and we would give up in despair ..."56 In a remark at the press conference that was later deleted from the official transcript, Dulles said that Laos and Cambodia were "important but by no means essential" because they were poor countries with meager populations.57
Later, as the U.S. became reconciled to a political settlement at Geneva which would yield northern Vietnam to the Ho Chi Minh regime, the concept of "united action" was given a new twist. It now was transformed into an attempt to organise a long-range collective defense alliance which would offset the setback in Indochina and prevent further losses. That long-feared setback was now perceived to be less serious than had once been envisaged. The loss of Tonkin was no longer seen as leading necessarily to a Communist take-over of other territory between China and the American shore. Eventually, in SEATO, the U.S. sought to create an alliance which would be strong enough to withstand the fall of one such domino.