The Pentagon Papers
Gravel Edition
Volume 1

Chapter I, "Background to the Crisis, 1940-50"
(Boston: Beacon Press, 1971)


Section 2, pp. 12-29


[Enclosure 1]

PROPOSED STATEMENT

The action of the Japanese Government in tearing away the veil with which it for so long attempted to cloak its domination of Indo-China is a direct consequence of the ever-mounting pressure which our arms are applying to the Japanese Empire. It is a link in the chain of events which began so disastrously in the summer of 1941 with the Franco-Japanese agreement for the "common defense" of Indo-China. It is clear that this latest step in the Japanese program will in the long run prove to be of no avail.

The Provisional Government of the French Republic has requested armed assistance for those who are resisting the Japanese forces in Indo-China. In accordance with its constant desire to aid all those who are willing to take up arms against our common enemies, this Government will do all it can to be of assistance in the present situation, consistent with plans to which it is already committed and with the operations now taking place in the Pacific. It goes without saying that all this country's available resources are being devoted to the defeat of our enemies and they will continue to be employed in the manner best calculated to hasten their downfall.


[Response]

THE WHITE HOUSE
Washington
March 17, 1945

MEMORANDUM FOR

The Secretary of State

By direction of the President, there is returned herewith Secretary of State Memorandum of 16 March, subject Indo-China, which includes a proposed statement on the Japanese action in Indo-China.

The President is of the opinion that it is inadvisable at the present time to issue the proposed statement

/s/ William D. Leahy


The French were also actively pressuring the President and his key advisors through military channels. Admiral Leahy reported that, following Yalta:

The French representatives in Washington resumed their frequent calls to my office after our return from the Crimea. They labeled most of their requests "urgent." They wanted to participate in the combined intelligence group then studying German industrial and scientific secrets; to exchange information between the American command in China and the French forces in Indo-China; and to get agreement in principle to utilizing the French naval and military forces in the war against Japan (the latter would assist in returning Indo-China to French control and give France a right to participate in lend-lease assistance after the defeat of Germany.)

Most of the time I could only tell them that I had no useful information as to when and where we might make use of French assistance in the Pacific.

However, we did attempt to give a helping hand to the French resistance groups in Indo-China. Vice Admiral Fenard called me on March 18 to say that planes from our 14th Air Force in China were loaded with relief supplies for the undergrounders but could not start without authority from Washington. I immediately contacted General Handy and told him of the President's agreement that American aid to the Indo-China resistance groups might be given provided it involved no interference with our operations against Japan.

2. Failure of the Trusteeship Proposal

In the meantime, the President's concept of postwar trusteeship status for dependent territories as an intermediate step toward autonomy had undergone study by several interdepartmental and international groups, but had fared poorly. In deference to British sensibilities, the United States had originally sought only a declaration from the colonial powers setting forth their intention to liberate their dependencies and to provide tutelage in self-government for subject peoples. Such a declaration would have been consistent with the Atlantic Charter of 1941 in which the U.S. and the U.K. jointly agreed that, among the "common principles . . . on which they base their hopes for a better future for the world," it was their policy that:

. . . they respect the right of all peoples to choose the form of government under which they will live; and they wish to see sovereign rights and self-government restored to those who have been forcibly deprived of them. . . .

In November, 1942, Secretary Hull submitted to the President a proposed draft US-UK declaration entitled "The Atlantic Charter and National Independence," which the President approved. Before this draft could be broached to the British, however, they submitted a counter-proposal, a statement emphasizing the responsibility of "parent" powers for developing native self-government, and avoiding endorsement of trusteeships. Subsequent Anglo-American discussions in March 1943 addressed both drafts, but foundered on Foreign Secretary Eden's opposition. Secretary Hull reported in his memoirs that Eden could not believe that the word "independence" would be interpreted to the satisfaction of all governments:

. . . the Foreign Secretary said that, to be perfectly frank, he had to say that he did not like our draft very much. He said it was the word "independence" that troubled him, he had to think of the British Empire system, which was built on the basis of Dominion and colonial status.

He pointed out that under the British Empire system there were varying degrees of self-government, running from the Dominions through the colonial establishments which had in some cases, like Malta, completely self-government, to backward areas that were never likely to have their own government. He added that Australia and New Zealand also had colonial possessions that they would be unwilling to remove from their supervisory jurisdiction.

U.S. inability to work out a common policy with the U.K. also precluded meaningful discussion, let alone agreement, on the colonial issue at the Dumbarton Oaks Conversations in 1944. Through March, 1945, the issue was further occluded by debates within the U.S. Government over the postwar status of Pacific islands captured from the Japanese: in general, the War and Navy Departments advocated their retention under U.S. control as military bases, while State and other departments advocated an international trusteeship.

3. Decision on Indochina Left to France

Secretary of State Stettinius, with the approval of President Roosevelt, issued a statement on April 3, 1945, declaring that, as a result of international discussions at Yalta on the concept of trusteeship, the United States felt that the postwar trusteeship structure:

. . . . should be designed to permit the placing under it of the territories mandated after the last war, and such territories taken from the enemy in thi war as might be agreed upon at a later date, and also such other territories as might be voluntarily placed under trusteeship.

Indochina thus seemed relegated to French volition.

Nonetheless, as of President Roosevelt’s death on. April 12, 1945, U.S. policy toward the colonial possessions Of its allies, and toward Indochina in particular, was in disarray:

--The British remained apprehensive that there might be a continued U.S. search for a trusteeship formula which might impinge on the Commonwealth.

-- The French were restive over continued U.S. refusal to provide strategic transport for their forces, resentful over the paucity of U.S. support for French forces in Indochina, and deeply suspicious that the United States—possibly in concert with the Chinese—intended to block their regaining control of Vietnam, Laos, and Cambodia.

B. TRUMAN AND THE OCCUPATION OF INDOCHINA, 1945

Within a month of President Truman's entry into office, the French raised the subject of Indochina at the United Nations Conference at San Francisco, Secretary of State Stettinius reported the following conversation to Washington:

...Indo-China came up in a recent Conversation I had with Bidault and Bonnet. The latter remarked that the French Government interprets [Under Secretary of State] Welles, statement of 1942 concerning the restoration of French sovereignty over the French Empire as including Indo-China, the press continues to imply that a special status will be reserved for this colonial area. It was made quite clear to Bidault that the record is entirely innocent of any official statement of this government questioning, even by implication, French sovereignty over Indo-China. Certain elements of American public opinion, however, condemned French governmental policies and practices in Indo-China. Bidault seemed relieved and has no doubt cabled Paris that he received renewed assurances of our recognition of French sovereignty over that area.

In early June 1945, the Department of State instructed the United States Ambassador to China on the deliberations in progress within the U.S. Government and its discussions with allies on U.S. policy toward Indochina. He was informed that at San Francisco:

...the American delegation has insisted upon the necessity of providing for a progressive measure of self-government for all dependent peoples looking toward their eventual independence or incorporation in some form of federation according to circumstances and the ability of the peoples to assume these responsibilities. Such decisions would preclude the establishment of a trusteeship in Indochina except with the consent of the French Government. The latter seems unlikely. Nevertheless, it is the President’s intention at some appropriate time to ask that the French Government give some positive indication of its intention in regard to the establishment of civil liberties and increasing measures of self-government in Indochina before formulating further declarations of policy in this respect.

The United Nations Charter (June 26, 1945) contained a "Declaration Regarding Non-Self-Governing Territories":

Article 73

Members of the United Nations which have or assume responsibilities for the administration of territories whose peoples have not yet attained a full measure of self-government recognize the principle that the interests of the inhabitants of these territories are paramount, and accept as a sacred trust the obligation to promote to the utmost, within the system of international peace and security established by the present Charter, the well-being of the inhabitants of these territories, and, to this end:

a. to ensure, with due respect for the culture of the peoples concerned, their political, economic, social, and educational advancement, their just treatment, and their protection against abuses;

b. to develop self-government, to take due account of the political aspirations of the peoples, and to assist them in the progressive development of their free political institutions, according to the particular circumstances of each territory and its peoples and their varying stages of advancement; . . .

Again, however, military considerations governed U.S. policy in Indochina. President Truman replied to General de Gaulle's repeated offers for aid in Indochina with statements to the effect that it was his policy to leave such matters to his military commanders. At the Potsdam Conference (July, 1945), the Combined Chiefs of Staff decided that Indochina south of latitude 16' North was to be included in the Southeast Asia Command under Admiral Mountbatten. Based on this decision, instructions were issued that Japanese forces located north of that line would surrender to Generalissimo Chiang Kai-shek, and those to the south to Admiral Lord Mountbatten; pursuant to these instructions, Chinese forces entered Tonkin in September, 1945, while a small British task force landed at Saigon. Political difficulties materialized almost immediately, for while the Chinese were prepared to accept the Vietnamese government they found in power in Hanoi, the British refused to do likewise in Saigon, and deferred to the French there from the outset.

There is no evidence that serious concern developed in Washington at the swiftly unfolding events in Indochina. In mid-August, Vietnamese resistance forces of the Viet Minh, under Ho Chi Minh, had seized power in Hanoi and shortly thereafter demanded and received the abdication of the Japanese puppet, Emperor Bao Dai. On V-J Day, September 2nd, Ho Chi Minh had proclaimed in Hanoi the establishment of the Democratic Republic of Vietnam (DRV). The DRV ruled as the only civil government in all of Vietnam for a period of about 20 days. On 23 September 1945, with the knowledge of the British Commander in Saigon, French forces overthrew the local DRV government, and declared French authority restored in Cochinchina. Guerrilla war beoan around Saigon. Although American OSS representatives were present in both Hanoi and Saigon and ostensibly supported the Viet Minh, the United States took no official position regarding either the DRV, or the French and British actions in South Vietnam. In October, 1945, the United States stated its policy in the following terms:

US has no thought of opposing the reestablishment of French control in Indochina and no official statement bv US GOVT has questioned even by implication French sovereignty over Indochina. However, it is not the policy of this GOVT to assist the French to reestablish their control over Indochina by force and the willingness of the US to see French control reestablished assumes that French claim to have the support of the population of Indochina is borne out by future events.

French statements to the U.S. looked for an early end to the hostilities, and spoke reassuringly of reforms and liberality. In November, Jean Chauvel, Secretary-General to the French Minister for Foreign Affairs, told the U.S. Ambassador that:

When the trouble with the Annamites broke out de Gaulle had been urged by the French Mission in India to make some sort of policy statement announcing France's intention to adopt a far-reaching progressive policy designed to give the native population much greater authority, responsibility and representation in govt. De Gaulle considered the idea but rejected it because in the state of disorder prevailing in Indochina he believed that no such policy could be implemented pending restoration of French authority and would therefore just be considered by everyone as "merely more fine words." Furthermore de Gaulle and the Foreign Minister believe that the present situation is still so confused and they have so little information really reliable on the overall Indochina picture that such plans and thoughts as they held heretofore may have to be very thoroughly revised in the light of recent developments.

Despite the fact that the French do not feel that they can as yet make any general statements outlining specific future plans for Indochina, Chanvel says that they hope "very soon" to put into operation in certain areas programs including local elections which will be designed to grant much greater authority and greater voice in affairs to the natives. This he said would be a much better indication of the sincerity of French intentions than any policy statement. . . . The French hope soon to negotiate an agreement with [the King of Cambodia] which will result in the granting of much greater responsibility and authority to the Cambodians. He mentioned specifically that there would be many more natives integrated into the local administrative services and it was also hoped that local elections could soon be held. The French he said intend to follow the same procedure in Laos when the situation permits and eventually also in Annam and Tonkin. When order is restored throughout Indochina and agreements have been reached with the individual states Chauvel said the French intend to embody the results of these separate agreements into a general program for all of Indochina.

From the autumn of 1945 through the autumn of 1946, the United States received a series of communications from Ho Chi Minh depicting calamitous conditions in Vietnam, invoking the principles proclaimed in the Atlantic Charter and in the Charter of the United Nations, and pleading for U.S. recognition of the independence of the DRV, or--as a last resort--trusteeship for Vietnam under the United Nations. But while the U.S. took no action on Ho's requests, it was also unwilling to aid the French. On January 15, 1946, the Secretary of War was advised by the Department of State that it was contrary to U.S. policy to "employ American flag vessels or aircraft to transport troops of any nationality to or from the Netherlands East Indies or French Indochina, nor to permit use of such craft to carry arms, ammunition or military equipment to these areas." However, the British arranged for the transport of additional French troops to Indochina, bilaterally agreed with the French for the latter to assume British occupation responsibilities, and signed a pact on 9 October, 1945, giving "full recognition to French rights" in Indochina. French troops began arriving in Saigon that month, and subsequently the British turned over to them some 800 U.S. Lend-Lease jeeps and trucks. President Truman approved the latter transaction on the grounds that removing the equipment would be impracticable.

The fighting between the French and the Vietnamese which began in South Vietnam with the 23 September, 1945, French coup d‘etat, spread from Saigon throughout Cochinchina, and to southern Annam. By the end of January, 1946, it was wholly a French affair, for by that time the British withdrawal was complete; on 4 March, 1946, Admiral Lord Mountbatten deactivated Indochina as territory under the Allied Southeast Asia Command, thereby transferring all control to French authorities. From French headquarters, via Radio Saigon, came announcements that a military "mopping-up" campaign was in progress, but pacification was virtually complete; but these reports of success were typically interspersed with such items as the following:

20 March 1946:

Rebel bands are still (wreaking destruction) in the areas south of Saigon. These bands are quite large, some numbering as many as 1,000 men. Concentrations of these bands are to be found . . . in the villages. Some have turned north in an attempt to disrupt (communications) in the Camau Peninsula, northeast of Batri and in the general area south of (Nha Trang). In the area south of Cholon and in the north of the Plaine des Jenes region, several bands have taken refuge. . . .

21 March 1946:

The following communique was issued by the High Commissioner for Indochina this morning: "Rebel activities have increased in the Bien Hoa area, on both banks of the river Dong Nai. A French convoy has been attacked on the road between Bien Hoa and Tan Uyen where a land mine had been laid by the rebels.

"In the (Baclo) area, northwest of Saigon, a number of pirates have been captured in the course of a clean-up raid. Among the captured men are five Japanese deserters. The dead bodies of three Japanese, including an officer, have been found at the point where the operation was carried out.

"A French detachment was ambushed at (San Jay), south Annam. The detachment, nevertheless, succeeded in carrying out its mission. Several aggressions by rebel parties are reported along the coastal road."

Violence abated in South Vietnam somewhat as Franco-DRV negotiations proceeded in spring, 1946, but in the meantime, French forces moved into further confrontation with Vietnamese "rebels" in Tonkin. In February, 1946, a French task force prepared to force landings at Haiphong, but was forestalled by diplomatic maneuver. A Franco-Chinese agreement of 28 February 1946 provided that the Chinese would turn over their responsibilities in northern Indochina to the French on 31 March 1946.

On March 6, 1946, a French-DRV accord was reached in the following terms:

1. The French Government recognizes the Vietnamese Republic as a Free State having its own Government, its own Parliament, its own Army and its own Finances, forming part of the Indochinese Federation and ofthe French Union. In that which concerns the reuniting of the three "Annamite Regions" [Cochinchina, Annam, Tonkin] the French Government pledges itself to ratify the decisions taken by the populations consulted by referendum.

2. The Vietnamese Government declares itself ready to welcome amicably the French Army when, conforming to international agreements, it relieves the Chinese Troops. A Supplementary Accord, attached to the present Preliminary Agreement, will establish the means by which the relief operations will be carried out.

3. The stipulations formulated above will immediately enter into force. Immediately after the exchange of signatures, each of the High Contracting Parties will take all measures necessary to stop hostilities in the field, to maintain the troops in their respective positions, and to create the favorable atmosphere necessary to the immediate opening of friendly and sincere negotiations. These negotiations will deal particularly with:

a. diplomatic relations of Viet-nam with Foreign States
b. the future law of Indochina
c. French interests, economic and cultural, in Viet-nam.

Hanoi, Saigon or Paris may be chosen as the seat of the conference.

DONE AT HANOI, the 6th of March 1946
Signed: Sainteny
Signed: Ho Chi Minh and Vu Hong Khanh

French forces quickly exercise their prerogative, occupying Hanoi on 18 March 1946, and negotiations opened in Dafat in April.

Hence, as of April 10, 1946, allied occupation in Indochina was officially over, and French forces were positioned in all of Vietnam's major cities; the problems of U.S. policv toward Vietnam then shifted from the context of wartime strategy to the arena of the U.S. relationship with France.

II. U.S. NEUTRALITY IN THE FRANCO-VIET MINH WAR, 1946-1949

A. FAILURES OF NEGOTIATED SETTLEMENT

The return of the French to Tonkin in March, 1946, created an explosive situation. North Vietnam, a traditionally rice-deficit area, had experienced an extraordinarily bad harvest in 1945. Severe famine was scarcely helped by the concentration of armies in the Red River Delta-Vietnamese irregular forces, the most numerous belonging to the Viet Minh; some 150,000 Chinese; and then the French Expeditionary Corps. The people were not only hungry, but politically restive; the popular' appetite for national independence had been thoroughly whetted by the Viet Minh and the formation of -the DRV. While feeling against all foreign occupiers ran high, the French remained the primary target of enmity. But the March 6 Accord deferred a reckoning, serving to mollify extremists in Tonkin, and to dampen guerrilla operations in South Vietnam. The accord in any event underwrote peaceful cooperation between France and the DRV in North Vietnam for eight months.

Yet the March 6 Accord constituted an admission of defeat for Ho Chi Minh, because his policy had been directed toward internationalizing the Indochina problem. Ho made repeated overtures to the United States, to the United Nations, and to China, the USSR, and the U.K. His letters presented eloquent appeals for U.S. or U.N. intervention in Vietnam on the grounds of the principles embodied in the Atlantic Charter, the U.N. Charter, and on humanitarian grounds. The last such to be forwarded to the U.S. prior to the Accord of 6 March 1946, is summarized in the following telegram from an American diplomat in Hanoi, received in Washington 27 February 1946:

Ho Chi Minh handed me 2 letters addressed to President of USA, China, Russia, and Britain identical copies of which were stated to have been forwarded to other governments named. In 2 letters to Ho Chi Minh request [sic] USA as one of United Nations to support idea of Annamese independence according to Philippines [sic] example, to examine the case of the Annamese, and to take steps necessary to maintenance of world peace which is being endangered by French efforts to reconquer Indochina. He asserts that Annamese will fi ' ght until United Nations interfere in support of Annamese independence. The petition addressed to major United Nations contains:

A. Review of French relations with Japanese where French Indochina allegedly aided Japs:

B. Statement of establishment on 2 September 1945 of PENW [sic] Democratic Republic of Viet Minh:

C. Summary of French conquest of Cochin China begun 23 Sept 1945 and still incomplete:

D. Outline of accomplishments of Annamese Government in Tonkin including popular elections, abolition of undesirable taxes, expansion of education and resumption as far as possible of normal economic activities:

E. Request to 4 powers: (1) To intervene and stop the war in Indochina in order to mediate fair settlement and (2) to bring the Indochinese issue before the United Nations organization. The petition ends with statement that Annamese ask for full independence in fact and that in interim while awaiting UNO decision the Annamese will continue to fight the reestablishment of French imperialism. Letters and petition will be transmitted to Department soonest.

There is no record that the U.S. encouraged Ho Chi Minh thus to submit his cause to the U.S., beyond the O.S.S. support he received during and immediately after World War II; nor does the record reflect that the U.S. responded affirmatively to Ho's petitions. Rather, the U.S. Government appears to have adhered uniformly to a policy of looking to the French rather than to Vietnamese Nationalists for constructive steps toward Vietnamese independence. On 5 December, 1946, after the November incidents, but before the fighting broke out in earnest, State instructed the U.S. diplomatic representative in Hanoi as follows:

Assume you will see Ho in Hanoi and offer following summary our present thinking as guide.

Keep in mind Ho's clear record as agent international communism, absence evidence recantation Moscow affiliations, confused political situation France and support Ho receiving French Communist Party. Least desirable eventuality would be establishment Communist-dominated Moscow-oriented state Indochina in view DEPT, which most interested INFO strength non-communist elements Vietnam. Report fully, repeating or requesting DEPT repeat Paris.

Recent occurrences Tonkin cause deep concern. Consider March 6 accord and modus vivendi as result peaceful negotiation provide basis settlement outstanding questions between France and Vietnam and impose responsibility both sides not prejudice future, particularly forthcoming Fontainebleau Conference, by resort force. Unsettled situation such as pertains certain to offer provocations both sides, but for this reason conciliatory patient attitude especially necessary. Intransigence either side and disposition exploit incidents can only retard economic rehabilitation Indochina and cause indefinite postponement conditions cooperation France and Vietnam which both agree essential.

If Ho takes stand non-implementation promise by French of Cochinchina referendum relieves Vietnam responsibility compliance with agreements, you might if you consider advisable raise question whether he believes referendum after such long disorder could produce worthwhile result and whether he considers compromise on status Cochinchina could possibly be reached through negotiation.

May say American people have welcomed attainments Indochinese in efforts realize praiseworthy aspirations greater autonomy in framework democratic institutions and it would be regrettable should this interest and sympathy be imperilled by any tendency Vietnam administration force issues by intransigence and violence.

May inform Ho [U.S. Ambassador Paris] discussing situation French similar frankness. For your INFO, [Foreign Office] in DEC 3 conversation stated (1) no question reconquest Indochina as such would be counter French public opinion and probably beyond French military resources, (2) French will continue base policy March 6 accord and modus vivendi and make every effort apply them through negotiation, Vietnam (3) French would resort forceful measures only on restricted scale in case flagrant violation agreements Vietnam, (4) d’Argenlieu's usefulness impaired by outspoken dislike Vietnam officials and replacement perhaps desirable, (5) French Communists embarrassed in pose as guardian French international interests by barrage telegraphic appeals from Vietnam. [Ambassador] will express gratification this statement French policy with observation implementation such policy should go far obviate any danger that (1) Vietnamese irreconcilables and extremists might be in position make capital of situation (2) Vietnamese might be turned irrevocably against West and toward ideologies and affiliations hostile democracies which could result perpetual foment Indochina with consequences all Southeast Asia.

Avoid impression US Govt making formal intervention this juncture. Publicity any kind would be unfortunate.

Paris be guided foregoing.

Acheson, Acting.

For a while, the French seemed genuinely interested in pursuing a policy based on the March 6 Accord and the modus vivendi, and in avoiding a test of arms with the DRV. If there were contrary utterances from some, such as Admiral d'Argenlieu, the High Commissioner Of Indo-China,--who recorded his "amazement that France has such a fine expeditionary corps in Indochina and yet its leaders prefer to negotiate rather than to fight..."--there were many such as General Leclerc, who had led French forces into Hanoi on 18 March 1946, and promptly called on Ho Chi Minh, announcing every intention of honoring the March 6 Accord. "At the present time," he said, "there is no question of imposing ourselves by force on masses who desire evolution and innovation." The French Socialist Party--the dominant political party in France--consistently advocated conciliation during 1946. In December, 1946, even after the armed incidents in November between French and DRV armed forces in North Vietnam, Leon Blum--who had become Premier of France, at the head of an all-Socialist Cabinet--wrote that France had no alternative save to grant the Vietnamese independence:

There is one way and only one of preserving in Indochina the prestige of our civilization, our political and spiritual influence, and also those of our material interests which are legitimate: it is sincere agreement [with Viet Nam] on the basis of independence. . . . -

The Communists, the other major Leftist party in France, were also vocally conciliatory; but, expectant of controlling the government, if not alone at least as part of a coalition, they tended to be more careful than the Socialists of their ability to sway nationalist sentiment. In July of 1946, L'Humanité, the Communist newspaper, had emphasized that the Party did not wish France to be reduced to "its own small metropolitan territory," but warned that such would be the consequence if the colonial peoples turned against France:

Are we, after having lost Syria and Lebanon yesterday, to lose Indochina tomorrow, North Africa the day after?

In the National Assembly in September, 1946, a Communist deputy had declared that:

The Communists are as much as the next person for the greatness of the country. But . . . they have never ceased to affirm that the French Union . . . can only be founded on the confident, fraternal, and above all, democratic collaboration of all the peoples and races who compose it. . . .

However, Ho Chi Minh was unable to capitalize upon this connection with the French Left (Ho had been one of the founding members of the French Communist Party in the early 1920's) to turn the expressed convictions of either the Socialists or the Communists to the advantage of the DRV. The Communists were not prepared to press the case for the Vietnamese at the cost of votes in France. The Socialists in power paid only lip service to conciliation, and allowed the more militant colonialists, especially those in Vietnam, to set France's policy in Indochina; thus, Admiral d'Argenlieu, not General Leclerc, spoke for the French Government.

In mid-December, 1946, as soon as Blum took office, Ho sent him a telegram with proposals for easing tension in Vietnam, but the message did not reach Paris until December 26. By that time the flashpoint had been passed. In Hanoi, on 19 December 1946, Vietnamese troops, after several days of mounting animosity punctuated with violence, cut off the city's water and electricity, and attacked French posts using small arms, mortar and artillery. The issue of who was the aggressor has never been resolved. The fighting flared across North Vietnam, and two days later, the guerrilla war in South Vietnam quickened pace. The French responded to the initial attacks with an occasional savagery which rendered increasingly remote restoration of status quo ante.

On 23 December 1946, Premier Leon Blum addressed the National Assembly on the Indochina crisis. His speech was characteristically principled, and characteristically ambiguous: he talked peace, but endorsed militant French officials in Vietnam. Although he declared that "the old colonial system founded on conquest and maintained by constraint, which tended toward exploitation of conquered lands and peoples is finished today," he also stated that:

We have been obliged to deal with violence. The men who are fighting out there, the French soldiers and the friendly populations, may count unreservedly on the vigilance and resolution of the government.

It was our common task to try everything to spare the blood of our children-and also the blood that is not ours, but which is blood all the same, that of a people whose right to political liberty we recognized ten months ago, and who should keep their place in the union of peoples federated around France. . . .

Before all, order must be reestablished, peaceful order which is necessarily the basis for the execution of contracts.

Premier Blum was succeeded within a week of his speech by the first government of the Fourth Republic under Paul Ramadier. France sent three emissaries to Vietnam at this juncture: Admiral d'Argenlieu, General Leclerc, and the Socialist Minister of Overseas France, Marius Moutet. Admiral d'Argenlieu became the High Commissioner of Indochina, and accused the Vietnamese of breaking faith with France. He stated emphatically that France intended to preserve in Indochina:

. . . the maintenance and development of its present influence and of its economic interests, the protection of ethnic minorities with which it is entrusted, the care of assuring the security of strategic bases within the framework of defense of the Federation and the French Union. . . .

France does not intend in the present state of evolution of the Indochinese people to give them unconditional and total independence, which would only be a fiction gravely prejudicial to the interests of the two parties.

The other two representatives of France were dispatched on fact-finding missions. Their reports contained diametrically opposing policy recommendations. General Leclerc wrote:

In 1947 France will no longer put down by force a grouping of 24,000,000 inhabitants which is assuming unity and in which there exists a xenophobic and perhaps a national ideal. . . .

The capital problem from now on is political. It is a question of coming to terms with an awakening xenophobic nationalism, channeling it in order to safeguard, at least in part, the rights of France.

The General had been sent to examine the military situation, and returned recommending a political solution. The Socialist Marius Moutet had been sent to inquire into the political prospects, and returned with the conclusion that only a military solution was promising. Like Admiral d'Argenlieu, Moutet believed that there could be no negotiations with Ho Chi Minh. He wrote of the "cruel disillusionment of agreements that could not be put into effect...," and he declared that:

We can no longer speak of a free agreement between France and Vietnam. . . .

Before any negotiations today, it is necessary to have a military decision. I am sorry, but one cannot commit such madness as the Vietnamese have done with impunity.

It was the politician's ideas, rather than the general's, which prevailed in Paris. Premier Ramadier-himself a Socialist-spoke of peace in Vietnam, and announced that his government favored independence and unity for Vietnam:

Independence within the French Union [and] union of the three Annamese countries, if the Annamese people desire it.

At the same time, however, his government permitted Admiral d'Argenlieli to launch a military campaign of major proportions and punitive intent.

Very early in the war, the French raised the spectre of Communist conspiracy in Vietnam. Admiral d'Argenlieu in Saigon called for an internationally concerted policy to array the Western powers against the expansion of communism in Asia, beginning with Vietnam. In the National Assembly debated in March, 1947, a Rightist deputy introduced the charge that the violence in Vietnam had been directed from Moscow:

Nationalism in Indochina is a means, the end is Soviet imperialism.

Neither the government nor the people of France heeded General Leclerc's statement of January, 1947:

Anti-communism will be a useless tool as long as the problem of nationalism remains unsolved.

Ho Chi Minh, for his part, issued repeated appeals to France for peace, even offering to withdraw personally:

When France recognizes the independence and unity of Vietnam, we will retire to our village, for we are not ambitious for power or honor.

In February, 1947, the French offered terms to Ho tantamount to unconditional surrender. Ho flatly rejected these, asking the French representative, "If you were in my place, would you accept them? . . . In the French Union there is no place for cowards. If I accepted their conditions I should be one." On I March 1947, Ho appealed again to the French government and the French people:

Once again, we declare solemnly that the Vietnamese people desire only unity and independence in the French Union, and we pledge ourselves to respect French economic and cultural interests. . . . If France would but say the word to cease hostility immediately, so many lives and so much property would be saved and friendship and confidence would be regained.

But the French displayed little interest in negotiations. Premier Ramadier stated in March, 1947, that:

We must protect the life and possessions of Frenchmen, of foreigners, of our Indochinese friends who have confidence in French liberty. It is necessary that we disengage our garrisons, re-establish essential communications, assure the safety of populations which have taken refuge with us. That we have done.

Ramadier and his ministers spoke repeatedly in the spring of 1947 of an imminent end to the "military phase" of the crisis, and of the beginning of a "constructive phase," in which presumably economic and political assistance would supplant the military instrument; but in what was to become a pattern of expectation and frustration, the Fourth Republic discovered that its military forces were incapable of controlling even the principal lines of communication in Vietnam, and that the military solution severely taxed the full resources of the French Union. In March, 1947 an additional division of troops for the French Expeditionary Corps, dispatched to Vietnam per General Leclerc's recommendation, had to be diverted en route to quell an insurgency in Madagascar.

By the summer of 1947, the French Government was aware that the situation in Indochina was at an impasse. Having failed in its attempt to force a military decision, it turned to a political solution, as suggested by General Leclerc. But again the ideas of Admiral d'Argenlieu weighed heavily. In January, 1947, d'Argenlieu wrote that:

If we examine the problem basically, we are led to inquire whether the political form unquestionably capable of benefiting from the political prestige of legitimacy is not the traditional monarchic institution, the very one that existed before the Japanese surrender. . . . The return of the Emperor [Bao Dail would probably reassure all those who, having opposed the Viet Minh, fear they will be accused of treason.

It was with Bao Dai, not Ho Chi Minh, that the French elected to negotiate for a political settlement with Vietnamese Nationalists.

French emissaries approached Bao Dai with terms not unlike those Ho Chi Minh had negotiated on 6 March 1946: unity and independence within the French Union, provided Bao Dai formed a government which would furnish a clear alternative to Ho Chi Minh's DRV. With French encouragement, a group of Vietnamese Nationalists formed a political party advocating the installation of Bao Dai at the head of a non-Viet Minh Vietnamese regime. Bao Dai was at first evasive and skeptical, but was eventually convinced that the French situation in Indochina was sufficiently desperate that they would have to honor commitments they made to him. Bao Dai also seems to have believed that he could attract American support and material aid-a view which may have stemmed in part from a 1947 Life magazine article by William C. Bullitt, the influential former U.S. Ambassador to France, endorsing Bao Dai as a solution to France's dilemma.

France then proceeded to contract with Bao Dai a series of agreements, each of which ostensibly brought Bao Dai closer to genuine autonomy for Vietnam. It was not, however, until February, 1950, that the French National Assembly acceded to political independence and unification for Vietnam. Chronicled below are the principal steps by which France failed on the one hand to reach an accommodation with Ho Chi Minh, and on the other hand erected the "Bao Dai solution" in its stead.

B. U.S. POLICY TOWARD THE CONFLICT, 1947-1949

The U.S. manifested increasing concern over the conflict in Indochina, but through 1949 American policy continued to regard the war as fundamentally a matter for French resolution. It is clear on the record that American policymakers of the day perceived the vacuity of French policies in 1946 and 1947. The U.S., in its representations to France, consistently deplored the prospect of protracted war in Vietnam, and urged meaningful concessions to Vietnamese nationalism. However, the United States always stopped short of endorsing Ho Chi Minh, deterred by Ho's history of communist affiliation. Accordinglv, U.S. policy gravitated with that of France toward the Bao Dai solution. At no point was the U.S. prepared to adopt an openly interventionist course. To have done so would have clashed with the expressed British view that Indochina was an exclusively French concern, and played into the hands of France's extremist political parties of both the Right and the Left. The U.S. was particularly apprehensive lest by intervening it strengthen the political position of French Communists. Moreover, in 1946 and 1947, France and Britain were moving toward an anti-Soviet alliance in Europe, and the U.S. was reluctant to press a potentially divisive policy. Compared with European recovery, and escape from communist domination, the U.S. considered the fate of Vietnamese nationalism relatively insignificant. Further, the dispute in 1946 and 1945 over the Dutch possession in Indonesia had furnished a precedent: there the U.S. had moved cautiously, and only after long delays, to internationalize the conflict. Extensive American and British investments in Indonesia, moreover, afforded common ground for intervention. No similar rationale or commonality existed for intervention in Indochina, since Indochina was almost exclusively a French economic preserve, and a political morass which the U.K. was manifestly interested in avoiding.


Go to Section Three

Return to Section One


Glossary of Acronyms and Terms


Go to Volume 1, Chapter 1 of the Pentagon Papers, "Background to the Conflict, 1940-1950." pp. 1-52

Go to Volume 1, Chapter 2 of the Pentagon Papers, "U.S. Involvement in the Franco-Viet Minh War, 1950-1954," pp. 53-107

Go to Volume 1, Chapter 3 of the Pentagon Papers, "The Geneva Conference, May-July, 1954," pp. 108-178.

Go to Volume 1, Chapter 4 of the Pentagon Papers, "U.S. and France in Indochina, 1950-56," pp. 179-241

Go to Volume 1, Chapter 5 of the Pentagon Papers, "Origins of the Insurgency in South Vietnam, 1954-1960," pp. 242-314

Go to Volume 2, Chapter 1 of the Pentagon Papers, "The Kennedy Commitments and Programs, 1961,"pp. 1-127

Go to Volume 2, Chapter 2 of the Pentagon Papers, "The Strategic Hamlet Program, 1961-1963," pp. 128-159.

Go to Volume 2, Chapter 3, of the Pentagon Papers, "Phased Withdrawal of U.S. Forces, 1962-1964," pp. 160-200.

Go to Volume 2, Chapter 4, of the Pentagon Papers, "The Overthrow of Ngo Dinh Diem, May-November, 1963," pp. 201-276.

Go to Volume 2, Chapter 5 of the Pentagon Papers, "US-GVN Relations, 1964-1967," pp. 277-407.

Go to Volume 2, Chapter 6 of the Pentagon Papers, "The Advisory Build-up, 1961-67," pp. 408-514

Go to Volume 2, Chapter 7 of the Pentagon Papers, "Re-Emphasis on Pacification: 1965-1967," pp. 515-623.

Go to Volume 3, Chapter 1 of the Pentagon Papers, "U.S. Programs in South Vietnam, Nov. 1963-Apr. 1965," pp. 1-105.

Go to Volume 3, Chapter 2 of the Pentagon Papers, "Military Pressures Against North Vietnam, February 1964-January 1965," pp. 106-268.

Go to Volume 3, Chapter 3, of the Pentagon Papers, "The Air War in North Vietnam: Rolling Thunder Begins, February-June, 1965," pp. 269-388

Go to Volume 3, Chapter 4, of the Pentagon Papers, "American Troops Enter the Ground War, March-July 1965," pp. 389-485

Go to Volume 4, Chapter 1, of the Pentagon Papers, "The Air War in North Vietnam, 1965-1968," pp. 1-276.

Go to Volume 4, Chapter 2, of the Pentagon Papers, "U.S. Ground Strategy and Force Deployments, 1965-1968," pp. 277-604.


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