Page:Pentagon-Papers-Part IV. A. 5.djvu/8

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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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of both sides who were fearful that the armistice would be used to conceal construction of military bases or other preparations for aggression; but these provisions depended on a credible international supervision which never materialized. Partition and regroupment pitted North against South Vietnam, and arms control failed patently and soon. Geneva traded on long-run risks to achieve short-run disengagement. France withdrew from Vietnam, leaving the Accords in the hands of Saigon. Lasting peace came between France and the Viet Minh, but the deeper struggle for an independent, united Vietnam remained, its international implications more grave, its dangers heightened.

The Southeast Asia policy of the U.S. in the aftermath of the Geneva Conference was conservative, focused on organizing collective defense against further inroads of communism, not on altering status quo. Status quo was the two Vietnams set up at Geneva, facing each other across a demilitarized zone. Hanoi, more than other powers, had gambled: hedged by the remaining Viet Minh, it waited for either Geneva's general elections or the voracious political forces in the South to topple the Saigon government. In South Vietnam, Diem had begun his attempt to gain control over his people, constantly decried DRV subversion and handling of would-be migrants as violations of the Geneva Accords, and pursued an international and domestic policy of anti-communism. Both Vietnams took the view that partition was, as the Conference Final Declaration stated, only temporary. But statements could not gainsay the practical import of the Accords. The separation of Vietnam at the 17th parallel facilitated military disengagement, but by establishing the principle that two regimes were separately responsible for "civil administration" each in distinct zones; by providing for the regroupment of military forces to the two zones, and for the movement of civilians to the zone of their choice; and by postponing national elections for at least two years, permitting the regimes in Hanoi and Saigon to consolidate power, the Geneva conferees in fact fostered two governments under inimical political philosophies, foreign policies, and socio-economic systems.

The Geneva powers were imprecise — probably deliberately indefinite — concerning who was to carry out the election provisions. France, which was charged with civil administration in the "regrouping zone" of South Vietnam, had granted the State of Vietnam its independence in June 1954, six weeks before the Accords were drawn up. Throughout 1954 and the first half of 1955, France further divested itself of authority in South Vietnam: police, local government, and then the Army of Vietnam were freed of French control, and turned over to the Saigon government. Concurrently, the U.S. began to channel aid directly to South Vietnam, rather than through France. The convolution of French policy then thrust upon the U.S. a choice between supporting Diem or the French presence in Indochina. The U.S. opted for Diem. By the time the deadlines for election consultations fell due in July 1955, South Vietnam was sovereign de facto as well as de jure, waxing strong with U.S. aid, and France was no longer in a position to exert strong influence on Diem's policy or actions.

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