243. Circular Telegram From the Department of State to Certain Posts1

1517. Re: Working Group of 21 on Financing UN Peacekeeping Operations.2

You requested approach Government to which accredited at high level and advise that U.S. plans make speech in Working Group of 21 on March 6 along following lines:

Begin speech summary:

Since 1957 when UNEF began, UN been unable find single solution peacekeeping financing satisfactory to all.

Believe current session Working Group must-because of time and impossibility of knowing nature of future-limit future financing discussion to Congo and Middle East operations.

Solution must be found by Working Group by March 31 and by GA by June 30 or face necessity discontinuance operations.

Strong case can be made for financing entire cost present operations at regular budget rates:

(a)
rates broadly based on capacity to pay
(b)
U.S. in past had no assistance through voluntary contributions of other members on Congo operation
(c)
U.S. has 33–1/3% legal limit for assessed contributions
(d)
32.02% U.S. assessment rate is more than twice second largest contributor (USSR)
(e)
U.S. contributions to entire UN family of agencies was 47% of budgets in 1962, both assessed and voluntary
(f)
U.S. has paid (when voluntary contributions included) 44–49% of Congo and Middle East costs since 1947
(g)
U.S. cannot agree tha “token” or “symbolic” contributions from developing countries will meet the need this year: nothing token about keeping the peace.

Lack of demonstrated financial support by other members creates great difficulty for U.S. continuing contributions above 32.02%: [Page 537]

(a)
Only 52 countries have paid regular budget in full for 1962; UNEF, only 41; Congo, only 32
(b)
Total arrears $121 million
(c)
Only $74 million of $200 million bond issue subscribed by other nations than U.S. (and $14.3 million of this by non-UN members).

Conclusion: U.S. will assist other members in formulation of cost-sharing proposals to solve financial peacekeeping difficulties, but not in position at this time to accept mandatory assessments in excess regular budget percentage. Contribution of even a little more by U.S. through voluntary contributions dependent on whether vast majority of membership has the will to give financial support absolutely essential to survival. End speech summary.

FYI. Fuller details of U.S. position and support desired Gov’ts expected follow shortly to all non-Bloc posts. Background facts sent all diplomatic posts circular airgram 9150, Feb. 26.3 Present instruction intended give short advance notice to member Gov’ts Working Group of 21 of position U.S. plans take in Plimpton speech March 6 before closed meeting Working Group. Advance notice to capitals Working Group members believed necessary because importance continued financing these peacekeeping operations. Realize some UN missions may report inadequately, if at all. End FYI.

This message being sent U.S. diplomatic posts all Working Group countries: Argentina, Australia, Brazil, Bulgaria, Cameroun, Canada, China, France, India, Italy, Japan, Mexico, Netherlands, Nigeria, Pakistan, Sweden, USSR, UAR, UK. (Mongolia and U.S. other two Working Group members.)

Parliamentary situation in Working Group is that Group is expected come up with solution to future financing of peacekeeping operations, especially UNEF and Congo, by March 31 looking to Special Session of General Assembly in May to deal solely with peacekeeping financing problems. Little progress has been made. Developing nations are urging reductions in assessments for peacekeeping (similar to those they received in the past) through special scale of assessments which would (a) reduce their assessments by 80% or more from regular budget scale and (b) assess U.S. and others they consider able pay higher percentages to make up difference. Friendly nations that more able pay favor combination of assessing portion of budget on regular scale for all nations and either (a) assessing balance on special scale with reductions for developing nations, or (b) making up balance through voluntary contributions from wealthier states. U.S. position stresses reasons why entire budget should be financed on regular scale. USSR, Bulgaria, and [Page 538] Mongolia so far refuse agree or sponsor any method meeting these costs in which they pay any amount. France, although full member, sitting as observer.

FYI. Strong position being taken by U.S. in line with public opinion as to contribution U.S. should make and legal limit on mandatory assessment Executive Branch can accept of 33–1/3%. Only slight hint being given to Working Group at this time that if the member states put their house in order by paying past assessments U.S. might request authority to make additional voluntary contributions above regular budget percentage. U.S. position expected to shake Working Group and hope result will be more businesslike approach and recognition that financial support of peacekeeping collective responsibility of membership. End FYI.

For Ambassadors Moscow and Sofia: Approach Government at your discretion.

For USUN: Use discretion in advising delegations members of Working Group of general outlines Plimpton speech before delivery.

Rusk
  1. Source: National Archives and Records Administration, RG 59, Central Files 1960–63, UN 10. Confidential. Drafted by Wilbur H. Ziehl on March 5; cleared by W. Paul O’Neill, William H. Sullivan, George N. Monsma, James M. Ludlow, and Richard Friedman; and approved by Woodruff Wallner. Sent to Buenos Aires, Canberra, Cairo, The Hague, Karachi, Lagos, London, Mexico City, Moscow, New Delhi, Ottawa, Paris, Rio de Janeiro, Rome, Sofia, Stockholm, Tokyo, Taipei, and Yaounde, and repeated to USUN.
  2. In telegram 3130 from USUN, February 25, Stevenson urgently requested instructions from the Department concerning the U.S. position in the Working Group of 21. (Ibid., UN 10–4)
  3. Not printed. (Ibid.)