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 Both the tenor of the thinking and the policies that emerged from the meetings of early December are reflected in the draft instructions from the President to Ambassador Taylor possibly written by Taylor himself. These were first drawn up on 30 November 1964, revised on 2 December and used at the meeting of the principals on 3 December.

During the recent review in Washington of the situation in South Vietnam, it was clearly established that the unsatisfactory progress being made in the pacification of the VC was the result of two primary causes from which many secondary causes stemmed; first, the governmental instability in Saigon and the second, the continued reinforcement and direction of the VC by the North Vietnamese government. To change the downward trend of events, it will be necessary to deal adequately with both of these factors.

It is clear however that these factors are not of equal importance. There must be a stable, effective government to conduct a campaign against the VC even if the aid of North Vietnam for the VC should end. While the elimination of North Vietnamese intervention will raise morale on our side and make it easier for the government to function, it will not in itself end the war against the VC. It is rather an important contributory factor to the creation of conditions favoring a successful campaign against the VC within South Vietnam. Since action against North Vietnam is contributory, not central, we should not incur the risks which are inherent in expansion of hostilities until there is a government in Saigon capable of handling the serious problems involved in such an expansion and of exploiting the favorable effects which may be anticipated from an end of support and direction by North Vietnam.

It is this consideration which has borne heavily on the recent deliberations in Washington and has conditioned the conclusions reached. There have been many expressions of admiration for the courage being shown by the Huong government which has the complete support of the U.S. government in its resistance to the minority pressures which are attempting to drag it down. However, the difficulties which it is facing raise inevitable questions as to its capacity and readiness to discharge the responsibilities which it would incur if some of the new measures under consideration were taken.

There are certain minimum criteria of performance in South Vietnam which must be met before any new measures against North Vietnam would be either justified or practicable. At a minimum the government should be able to speak for and to its people who will need guidance and leadership throughout the coining critical period. It should be capable of maintaining law and order in its principal Rh