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1. To find a way to resolve the numerous conflicting factors of the Indochina problem in a way which will preserve Indochina to the free world.

2. The loss of Indochina to Communist control, either by negotiation at Geneva or by force of Vietminh arms, would have grave consequences to the free world.

3. The United States might be willing to intervene in Indochina if the following problems could be resolved:


 * . The U.S. must not be supporting "colonialism" in such intervention.


 * . The U.S. must intervene in some sort of allied action.


 * . The United Kingdom and the Asian nations related to her, particularly India, appear to be opposing U.S. intervention. This opposition is presently being manifested by "Asia for Asians" proposals based on the Colombo nations supervising and guaranteeing an Indochina settlement.

4. There are two further factors bearing on U.S. intervention:


 * . The need for Congressional agreement. This is at least partially contingent upon a clear resolution of the "colonialism" factor.


 * . The possibility of Red Chinese intervention. This is a somewhat separate issue presently allowed for in NSC 5405.

5. The U.S. is endeavoring to avoid the loss of Indochina and to resolve the colonialism problem, by the creation of a regional grouping. It is not clear that a grouping adequate to resolve the colonialism problem could be used for intervention in Indochina.

6. To date there has been some lack of understanding amongst our Allies, "in Europe and Asia" as to firm U.S. intentions with regard to Indochina. This may arise because of a lack of an overall concept which will guide the U.S. as to its objectives and actions.

7. The following is an admittedly imperfect attempt to set forth a possible concept.


 * . The U.S. is unwilling to permit the loss of Indochina to Communist control by whatever means.

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