Page:Pentagon-Papers-Part IV. A. 3.djvu/28

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Declassified per Executive Order 13526, Section 3.3
NND Project Number: NND 63316. By: NWD Date: 2011


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best interests but with almost unwavering support from Secretary of State John Foster Dulles. And it is the period during which the anticommunist moralism of Dulles and Diem rejected any rapprochement with the North, ultimately ensuring that the temporary military demarkation line would become a permanent division of Vietnam.

B. Initial U.S. Policy Toward Indochina

The U.S. began revising policy toward Indochina as the Geneva Conference closed. The exercise was marked by urgency dictated by the belief that Geneva had been a disaster for the free world. Geneva gave Communist China and North Vietnam a new base for exploitation of Southeast Asia; it enhanced Peking's prestige to Washington's dismay and detriment; it restricted free world room to maneuver in Southeast Asia. And its grant of Vietnamese territory above the seventeenth parallel to the communist Ho Chi Minh was a painful reminder of the scarifying French defeat by the Viet Minh, the first defeat of a European power by Asians (Asian communists at that), a defeat shared by the United States to the tune of more than $1.5 billion in economic and military assistance granted France and the Associated States of Indochina.7

1. SEATO: The New Initiative?

The first step toward countering this disaster had been discussed with Britain and France since the spring of 1954 and Walter Bedell Smith's comment as Geneva closed, "We must get that pact!," heralded its inauguration.8 The Southeast Asian Collective Defense Treaty was to be a "new initiative in Southeast Asia" to protect the U.S. position in the Far East and stabilize "the present chaotic situation...to prevent further losses to communism" through subversion or overt aggression.9 But the Manila Pact, signed on September 8, 1954, proved to be neither the new initiative nor the strong anti-communist shield called for by Secretary Dulles. Vice Admiral A. C. Davis, deputy assistant secretary and Defense Department representative at Manila, reported the Pact left Southeast Asia "no better prepared than before to cope with Communist aggression."10 The failure was largely of American making. While Dulles wanted to put the communists on notice that aggression would be opposed, the Joint Chiefs of Staff insisted the United States must not be committed financially, militarily or economically to unilateral action in the Far East and that U.S. freedom of action must not be restricted.11 The two objectives conflicted and one cancelled out the other. Thus, Article IV of the treaty, the mechanism for collective action in case of enemy threat, did not pledge automatic response with force to force. Instead, each signatory promised to "act to meet the common danger in accordance with its constitutional processes." The United States,

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