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BRITAIN and the CONGO CRISIS, 196(K)3 Also by Alan James BRITAIN AND THE CONGO CRISIS, 196(k)3 Also by Alan James * PEACEKEEPING IN INTERNATIONAL POLITICS SOVEREIGN STATEHOOD: The Basis of International Society STATES IN A CHANGING WORLD (editor with Robert H. Jackson) THE BASES OF INTERNATIONAL ORDER (editor) THE POLITICS OF PEACEKEEPING From the same publishers Britain and the Congo Crisis, 1960-63 Alan James Research Professor ofInternational Relations Keele University First published in Great Britain 1996 by MACMILLAN PRESS LTD Houndmills, Basingstoke, Hampshire RG21 6XS and London Companies and representatives throughout the world A catalogue recordfor this book is available from the British Library. ISBN 978-1-349-24530-7 ISBN 978-1-349-24528-4 (eBook) DOI 10.1007/978-1-349-24528-4 First published in the United States of America 1996 by ST. MARTIN'S PRESS, INC., Scholarly and Reference Division, 175 Fifth A venue, New York, N.Y. 10010 ISBN 978-0-312-15816-3 Library of Congress Cataloging-in-Publication Data James, Alan, 1933- Britain and the Congo crisis, 1960-63 I Alan James. p. em. Includes bibliographical references and index. ISBN 978-0-312-15816-3 (cloth) I. Zaire-History--Civil War, 1960-65. 2. Zaire-Foreign relations-Great Britain. 3. Great Britain-Foreign relations­ -Zaire. I. Title. DT658.22.J36 1996 967.5103--dc20 95-51248 CIP ©Alan James 1996 Softcover reprint of the hardcover 1st edition 1996 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London WIP9HE. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. 10 9 8 7 6 5 4 3 2 I 05 04 03 02 01 00 99 98 97 96 To Lorna Contents Acknowledgements viii British Policy-Making Arrangements and Personalities x Leading Non-British Personalities xiv Terminology, Sources, and Abbreviations xvi Chronology xviii Map: The Congo and its Neighbours, 1960 xxi Part I Context 1 1 Britain in the Post-War World 3 2 Belgium and the Congo 12 3 United Nations' Peacekeeping: Background and Response 17 Part II Course 27 4 Calling for Law and Order 29 5 Sympathising with Belgium 40 6 Worrying about Communism I: Lumumba 53 7 Leaving it to Dag 64 8 Urging Respect for Congolese Sovereignty 78 9 Complaining about the UN Secretariat I: The Indian 92 10 Complaining about the UN Secretariat II: The Irishman 98 11 Worrying about Communism II: Gizenga 112 12 Equivocating on Force 120 13 Appeasing the Katanga Lobby 133 (a) Preliminary Skirmishes 136 (b) Bombs for the UN? 140 (c) Call for a Ceasefire? 146 (d) UN Observers in Rhodesia? 151 14 Fretting about Afro-Asia 157 15 Bowing to the United States 1: The Build-Up 168 16 Bowing to the United States II: Denouement 184 Part III Consequences 197 17 Britain's Response to a Changing World 199 18 The UN in the Congo: Balance Sheet and Impact 208 Index 215 vii Acknowledgements First, I must acknowledge with very warm thanks the financial sup­ port of Britain's Economic and Social Research Council. My gratitude for its funding is immense, not least because the work which this book has involved has proved even more interesting than I had anticipated. Next, let me thank the staff of the various libraries in which I have conducted the documentary research: Britain's Public Record Office in Kew; the United Nations Archives in New York (where Marilla Guptil went well beyond the call of duty); the Dag Hammarskjold Library at the UN's Headquarters in New York (where Tuan-Sue Kao was particularly helpful); the Dwight D. Eisenhower Library at Abilene, Kansas; the John F. Kennedy Library in Boston; the Royal Library in Stockholm (special thanks being due here to Jack Zawistowski); and the British Library of Political and Economic Science at the London School of Economics. I must add a word of warm gratitude to Jim Sutterlin for drawing my attention to the Yale Oral History of the UN (which I consulted in the Dag Hammarskjold Library). I also thank the staff of the Library of Keele University (especially Bernard Finnemore) and of Congleton Public Library for their unfail­ ing help. I have received permission to quote from the oral histories of Am­ bassador Edmund Gullion (deposited in the John F. Kennedy Library) and of Sir Brian Urquhart and Dr Sture Linner (part of the Yale Oral History of the UN). I am most grateful. I am deeply in the debt of many people who very kindly made time to share with me their memories of the Congo (always on a non-attribut­ able basis). The British ministers and officials (with their offices or locations at the time) are: Lord Home (Foreign Secretary); Robin Byatt, CMG, Peter Foster, CMG, Sir Guy Millard, Ian Samuel, CMG, and Sir Michael Wilford (at the Foreign Office, London); Sir Derek Riches and Sir Ian Scott (Ambassadors to the Congo); F. W. (Tim) Marten, CMG, MC, Lady (Daphne) Park, and John Powell-Jones, CMG (mem­ bers of the Leopoldville Embassy); Sir Derek Dodson and Denzil Dunnett, CMG, OBE (Consuls at Elisabethville); Lord Alport (High Commis­ sioner to the Central African Federation); and Sir Martin le Quesne (Ambassador to Mali). Regrettably, Sir Edward Heath (Lord Privy Seal with Foreign Office responsibilities) could not find time to see me. viii Acknowledgements ix The United Nations officials whom I interviewed are: F. T. Liu, Conor Cruise O'Brien, George Ivan Smith, AO, Sir Brian Urquhart, Col. Ned Doyle and Lt-Gen. Jim Parker. Interviewed United .States officials are: Ambassador McMurtrie Godley, Ambassador Edmund Gullion and Ambassador Monteagle Stearns. I also interviewed Am­ bassador Alfred Cahen (of Belgium) and Lt-Gen. Nils Skold (of Sweden). I benefited from discussing the Congo with Kenneth East, CMG and Adam Watson, CMG, of the British Foreign Service, and Ambas­ sador David Newsom of the United States. I must add special thanks to three of these people: General Nils Skold for his kindness and patience in responding to numerous queries; George Ivan Smith (now, alas, dead) for the frequent and extremely generous assistance he so readily gave; and Sir Brian Urquhart for always being willing to advise me. For other help of various kinds it is my pleasure to thank: the Informa­ tion Section of the Belgian Embassy in London, the Administration Section of the German Embassy in London, Peder and Elizabeth HammarskjOld, Ted Johnson, Ann Livingstone, Torbjom Norman, Philip Norton, James O'Connell, Ritchie Ovendale, Brian Porter, Basil Robinson, Jack Spence, Lady (Drusilla) Scott, Richard Thorpe and Mark Zacher. I also extend my very warm thanks to Andrew Lawrence (Keele's car­ tographer) for drawing the map, and to Angela Vincent for translating some lengthy French documents. The then Vice-Chancellor of Keele University, Brian Fender, CMG, took a friendly interest in the progress of the book, and awarded me a term's special leave so that I could get on with it. I am most grateful to him. When I began this book my wife, Lorna Lloyd, put on my desk a quotation from Winston Churchill: 'Writing a long and substantial book is like having a friend and companion at your side, to whom you can always tum for comfort and amusement, and whose society becomes more attractive as a new and widening field of interest is lighted in the mind' (The Second World War, Vol. 1: The Gathering Storm, Lon­ don: Cassell, 1948, p. 157). It has indeed been so. But the quotation is even more applicable to my relationship with Lorna herself. She has been all these things, and many more - not least a cheerful and invaluable helpmate in the foreign libraries and archives mentioned above, the supplier of advice on Britain's post-1945 foreign policy, and a rigor­ ous and constructive sub-editor of the completed manuscript. I thank her from the bottom of my heart, and - of course - dedicate the book to her. British Policy-Making Arrangements and Personalities Harold Macmillan was Prime Minister throughout the Congo crisis. Especially in its latter stages, as the rift between Britain and the United States deepened, he became quite closely involved in policy making. But his was never an obtrusive role. He left it to the Secretary of State for Foreign Affairs to make the running, and was generally content to follow his lead. At the start of the crisis Selwyn Lloyd was Foreign Secretary. But within a few weeks, on 27 July 1960, he was replaced by the Earl of Home, who remained as Foreign Secretary throughout the rest of the crisis. Home took an extremely close interest in the United Nations' role in the Congo, and felt very deeply - and critically - about what went on. The Foreign Secretary was therefore not just formally in charge of policy. His control was a reality; it extended to details; and it was very distinctive - Home's influence on Britain's stance being clearly discernible at all important points. Had another individual been Foreign Secretary, it is likely that the general orientation of Britain's policy would have been significantly different. As Home sat in the House of Lords, his appointment as Foreign Secretary was accompanied by that of a member of the House of Com­ mons, Edward Heath, as Lord Privy Seal with Foreign Office responsi­ bilities.
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