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Declassified per Executive Order 13526, Section 3.3 NND Project Number: NND 63316. By: NWD Date: 2011 TOP SECRET – Sensitive II. A.

It has been argued that even as the U.S. began supporting the French in Indochina, the U.S. missed opportunities to bring peace, stability and independence to Vietnam. The issues arise from the belief on the part of some critics that (a) the U.S. made no attempt to seek out and support a democratic–nationalist alternative in Vietnam; and (b) the U.S. commanded, but did not use, leverage to move the French toward granting genuine Vietnamese independence.

The record shows that through 1953, the French pursued a policy which was based on military victory and excluded meaningful negotiations with Ho Chi Minh. The French did, however, recognize the requirement for an alternative focus for Vietnamese nationalist aspirations, and from 1947 forward, advanced the "Bao Dai solution." The record shows that the U.S. was hesitant through 1949 to endorse the "Bao Dai solution" until Vietnam was in fact unified and granted autonomy and did consistently support the creation of a genuinely independent, non-communist Vietnamese government to supplant French rule. Nonetheless, the fall of China and the deteriorating French military position in Indochina caused both France and the U.S. to press the "Bao Dai solution." In early 1950, after French ratification of the Elysee Agreement granting "Vietnam's independence," the U.S. recognized Bao Dai and initiated military and economic aid, even before transfer of governmental power actually occurred. Thereafter, the French yielded control only, while the Emperor Bao Dai adopted a retiring, passive role, and turned his government over to discreditable politicians. The Bao Dai regime was neither popular nor efficient, and its army, dependent on French leadership, was powerless. The impotence of the Bao Dai regime, the lack of any perceptible alternatives (except for the communists), the fact of continued French authority and control over the GVN, the fact that the French alone seemed able to contain communism in Indochina — all these constrained U.S. promptings for a democratic–nationalist government in Vietnam. (Tab 1)

The U.S.–French ties in Europe (NATO, Marshall Plan, Mutual Defense Assistance Program) only marginally strengthened U.S. urgings that France make concessions to Vietnamese nationalism. Any leverage from these sources was severely limited by the broader considerations of U.S. policy for the containment of communism in Europe end Asia. NATO and the Marshall Plan were of themselves to be essential to our European interests. To threaten France with economic and military sanctions in Europe in order to have it alter its policy in Indochina was, therefore, not plausible. Similarly, to reduce the level of Rh