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 to adopt a strongly repressive domestic program which would prejudice its psychological appeal and political prospects. Barring such repressive Viet Minh policies, the unification issue will continue to be exploited to Communist advantage throughout Vietnam. Meanwhile, the Viet Minh regime will continue to, strengthen the Communist underground apparatus in South Vietnam, Laos, and Cambodia, aware that significant Communist gains in any one of these countries will strengthen the Communist movement in the others. It will seek to develop strong overt Communist political groups where possible and will generally use all available means towards the eventual unification of the country under Communist control.

23. Outlook in South Vietnam. We believe that the Viet Minh will seek to retain sizeable military and political assets in South Vietnam. Although the agreements provide for the removal to the north of all Viet Minh forces, many of the regular and irregular Viet Minh soldiers now in the south are natives of the area, and large numbers of them will probably cache their arms and remain in South Vietnam. In addition, Viet Minh administrative cadres have been in firm control of several large areas in central and south Vietnam for several years. These cadres will probably remain in place. French and Vietnamese efforts to deal with "stay-behind" military and administrative units and personnel will be greatly hampered by armistice provisions guaranteeing the security of pre-armistice dissidents from reprisals.

24. The severe problem of establishing and maintaiing security in South Vietnam will probably be increased by certain provisions of the Geneva agreements which prohibit the import of arms and military equipment, except as replacements, and the introduction of additional foreign military personnel, the establishment of new military bases, and military alliances. These provisions limit the development of a Vietnamese national army to such numbers as may be equipped by stocks evacuated from Tonkin, plus stocks now held in Saigon. However, in the last analysis, Vietnamese security will be determined by the degree of French protection and assistance in the development of a national army, the energy with which the Vietnamese themselves attack the problem, and by the will of the non-Communist powers to provide South Vietnam with effective guarantees.

25. In addition to the activities of stay-behind military and administrative groups, the Viet Minh will make a major effort to discredit any South Vietnam administration, and to exacerbate French-Vietnamese relations, and appeal to the feeling for national unification which will almost certainly continue strong among the South Vietnamese population. The Communist goal will be to cause the collapse of any non-Communist efforts to stabilize the situation In South Vietnam, and thus to leave North Vietnam the only visible foundation on which to re-establish Vietnamese unity. French and anti-Communist Vietnamese efforts to counter the Viet Minh unity appeal and Communist subversive activities will be complicated at the outset by the strong resentment of Vietnamese nationalists over the partitioning of Vietnam and the abandoning of Tonkin to Communist control. It may be difficult to convince many Vietnamese troops, political leaders, and administrative personnel in Tonkin to go south, let alone to assist actively in the development of an effective administration in South Vietnam.

26. Developments in South Vietnam will a]so depend in large part on French courses of action. Prospects for stability in South Vietnam would-be-considerably enhanced if the French acted swiftly to insure Vietnam full independence and to encourage strong nationalist leadership. If this were done, anti-French nationalist activity might be lessened. With French military and economic assistance — backed by US aid — the Vietnamese could proceed to develop gradually an effective security force, local government organization, and a long-range program for economic and social reform. Nevertheless, it will be very difficult for the French to furnish the degree of assistance which will be required without at the same time reviving anti-French feeling to the point of endangering the whole effort. Rh