237. Telegram From the Department of State to the Mission to the United Nations1
2147. For Plimpton. Revised draft instructions.
Consultation with number of Congressional leaders, several friendly governments and further consideration within Executive Branch, lead to following conclusions and instructions which should govern USUN on UN financing issue under consideration in Committee of Twenty-One:
UN Congo and Middle East operations continue to serve national interest of U.S. and our financial support must be continued even in face of opposition by communist bloc members, certain non-communist powers, and financial incapacity or limited sense of responsibility of [Page 523] certain less developed governments. Support for this assistance will be on increase as favorable developments continue in Congo and size and cost of UN Congo forces are reduced.
However, measure of support for our financial assistance for Middle East and Congo operations, particularly in Congressional arena, will also be influenced by extent to which our negotiations successfully
- (a)
- enable substantial reductions from level of 47–1/2% (assessed and voluntary contributions) to a maximum contribution of less than 40% for U.S.,
- (b)
- eliminate system whereby our voluntary contributions have, in effect, provided reductions to smaller countries—including communist countries,
- (c)
- provide for increased contributions over regular budget scale for other major powers, including USSR,
- (d)
- establish ad hoc “peace and security scale or scales,” to apply not beyond 1964 and only for existing operations, and
- (e)
- provide for a control mechanism which affords greater voice to the U.S. in UN financing of large scale peace-keeping operations.
USUN is urged support general criteria which recognize: that whenever special circumstances make such financing possible, peace-keeping operations shall be financed primarily by the nations most directly concerned (for example, the present split in costs for West New Guinea between the Netherlands and Indonesia); that minor peace-keeping operation shall, as at present, be financed through the regular budget at the regular scale (as is now done for armistice supervision teams in Kashmir, Korea, and the Middle East); and the collective financial responsibility of all UN members for approved operations.
Ideally, U.S. contribution based on regular UN scale, should be used as basis for supporting UN peace-keeping operations. Dept. fully aware of conditions that will not enable achievement this objective. USUN should, however, stress our strong views this position in view all other U.S. contributions to international organization, magnitude our foreign assistance and support regional defense arrangements.
Mission should seek to secure acceptance of principle that a minimum amount for Congo and Middle East operations should be financed at regular budget scale rates. Dept. believes this minimum should be set at $10 million for each operation.
Basic point of departure for amounts above $10 million per operation should be effective rates which experience has shown to be maximum which could be assessed, by nation, in 1962 for Congo and Middle East. (For example, 1962 Afghanistan regular budget rate was 0.05%. Effective assessment peace-keeping rate was 0.01%.)
Remaining unassessed percentage (after above computations) to be distributed over UN membership based on criteria which assures that [Page 524] costs are shared as widely as possible among major contributors and holds the U.S. percentage of total costs as close to 32.02% as possible. In no event should U.S. cost reach 40% of total cost.
USUN should urge 21-Committee to ask SYG for forecast soonest of budget requirements, separately for Congo and Middle East, for periods July thru December, 1963; January–June 1964; and July–December, 1964. Magnitude believed partial key to construction of special scale.
Every effort shall be made to provide a control mechanism which affords greater voice to the U.S. in the financing of large-scale peace-keeping operations. (A small Committee, preferably of 15 nations or less, seems preferable.)
P.L. 87–731 (bond authorization legislation),2 especially sections 1, 4, and 5 contain guidance and prohibitions and are to be considered a part of these instructions. They should be strictly construed. Similarly the law restricting budget commitments to 33–1/3% must be carefully observed by USUN in its negotiations and public statements.
USUN shall urge the inclusion of a strong section in 21-Committee’s report on the need for immediate, effective emphasis on collection of back debts and 1963 assessments. Consider also whether a formal recommendation from the Committee for a “Finance Minister” is advisable.
USUN authorized use own discretion in discussing these instructions in advance with friendly nations and reporting reactions prior unveiling position in 21-Committee.
- Source: National Archives and Records Administration, RG 59, Central Files 1960–63, UN 10. Confidential; Priority; Limit Distribution. Drafted by Woodruff Wallner and Wilbur H. Ziehl and cleared and approved by Frank Hefner.↩
- An Act to promote the foreign policy of the United States by authorizing a loan to the United Nations and the appropriation of funds therefor, signed into law on October 2, 1962. (76 Stat. 695)↩