Proposed Resolution 161 - The Congo Crisis

[Zealous]

Statement by the Representative of the Union of Soviet Socialist Republics to the United Nations Security Council
Introducing Draft Resolution 161 (1961)
New York – May 1961

Mr. President, distinguished members of the Council,

The delegation of the Union of Soviet Socialist Republics rises today not in haste, but in the gravest recognition of the deteriorating situation in the Republic of the Congo.

For weeks now, this Council has received reports—of unrest, of interference, of tragedy. But more dangerous than unrest alone is the manner in which this international institution has been slowly, methodically, maneuvered away from its mandate and towards serving the interests of unilateral action and foreign military adventurism.

Let us remind ourselves of what the United Nations Mission in the Congo—ONUC—was created to do. Resolution 143 authorized the presence of UN forces only to assist the legitimate government of the Congo in restoring order, only at its request, and only to prevent foreign intervention. Resolution 146 made it unmistakably clear that ONUC shall not intervene in Congo’s internal affairs or participate in internal political conflict. That mandate has not changed—no matter how many headlines or warships suggest otherwise.

And yet, what do we see?

We see foreign aircraft in Congolese skies without mandate. We see naval battle groups approaching its shores, absent any authorization from this Council. We see new military deployments—some announced, some concealed—introduced without consultation, let alone consent.

Even more troubling, we now hear proposals from certain member states that these actions, already taken, should be legitimized retroactively. That this chamber should not be the initiator of peace, but the rubber stamp for decisions made in capitals far removed from the African continent.

This cannot stand. It would be a betrayal—not only of the Congo—but of the very principles upon which this Council was founded.

Mr. President,

This morning, the Soviet Union submits for the Council’s consideration a new draft resolution, numbered 161 (1961). It is not a resolution of imposition, but of restoration—restoration of law, of mandate, and of neutrality.

This resolution is guided not by geopolitics, but by the voices that have too long been sidelined in these chambers. The voices of Africa.

The resolution incorporates in full the appeals made by the distinguished representatives of Liberia and Ghana, whose statements were clear, principled, and deeply rooted in the cause of self-determination. It also reflects the growing support among members of this august body for a return to impartiality, for a halt to unmandated foreign intervention, and for an end to the slow erosion of ONUC’s neutrality.

Specifically, the resolution:

Demands the immediate withdrawal of all foreign forces deployed to the Congo without Security Council authorization;

Reaffirms that ONUC shall not participate in internal political disputes under any pretext;

Recognizes India’s properly submitted forces as eligible for structured reinforcement of ONUC, while forbidding unilateral expansion;

Endorses the call for a full, impartial investigation into all acts of foreign interference and violence, including the murder of Prime Minister Lumumba and recent attacks in Stanleyville and Léopoldville;

And most importantly, calls for the preparation of a United Nations-supervised referendum, so that the Congolese people—not mercenaries, not foreign powers—may determine the path of their nation’s future.

Mr. President,

This is not a resolution of condemnation. It is a resolution of course correction.

The world stands at a crossroads. Either the Congo becomes another stage for great-power confrontation—or it becomes a model for international responsibility, restraint, and respect for sovereignty.

We urge the members of this Council—particularly those who have committed forces to the region outside the mandate—to support this resolution not as a concession, but as a reaffirmation of their own professed commitment to international peace and legality.

Let us show that the Congo is not to be governed by aircraft carriers and jet engines, but by the will of its own people.

The Soviet Union is prepared to work with all members of this Council, in good faith, to adopt Resolution 161 and return this body to the path of law, neutrality, and peace.

We submit this resolution to the Council.
We await your deliberation.
And, if I may say so—the Congolese people await your courage.

Valerian Zorin
Permanent Representative of the Union of Soviet Socialist Republics
United Nations Security Council – May 1961

Full proposed resolution below;

United Nations Security Council
S/RES/161 (1961)
Adopted by the Security Council at its __th meeting, on __ May 1961

The Security Council,

Recalling its previous resolutions 143 (1960), 145 (1960), and 146 (1960), and reaffirming the mandate of the United Nations Operation in the Congo (ONUC) as defined therein,

Recognizing the worsening situation in the Republic of the Congo, and the continued threat to international peace and security posed by civil unrest and foreign interference,

Gravely alarmed by the illegal detention and assassination of Prime Minister Patrice Lumumba, and of Ministers Joseph Okito and Maurice Mpolo, as well as recent armed attacks in both Léopoldville and Stanleyville,

Taking note of the statements made by the Permanent Representatives of Liberia and Ghana, and acknowledging the support of numerous non-aligned and Eastern Bloc states for the principles therein expressed,

Affirming the sovereign right of the Congolese people to determine their own political future without pressure, manipulation, or military coercion from any foreign power,

Deeply concerned by the unauthorized deployment of foreign military forces, aircraft, naval units, personnel, and matériel into the Congo without the consent of this Council or the Congolese people,

Determined to restore the neutrality, legitimacy, and lawful limits of ONUC’s mandate,

1. Reaffirms that the United Nations Operation in the Congo (ONUC) shall remain strictly impartial and shall not take any action intended to influence the outcome of internal political conflicts, constitutional arrangements, or civil disputes in the Republic of the Congo;

2. Declares that any military, naval, aerial, or intelligence deployment into Congolese territory not expressly authorized by the Security Council shall not be considered part of any approved international force or mission, and shall be deemed a violation of Congolese sovereignty;

3. Demands the immediate and unconditional withdrawal of all such unauthorized foreign forces from Congolese territory, including but not limited to those operating under unilateral or bilateral arrangements outside ONUC command;

4. Requests the Secretary-General to report to the Council within fourteen (14) days of adoption of this resolution on all known deployments, categorizing them as authorized or unauthorized under current UN mandates;

5. Recognizes that the Government of India, having submitted its proposed reinforcement contingent through proper channels and received prior approval, shall be considered the first eligible contributor for expanded ONUC participation, with any future reinforcements subject to full Security Council authorization;

6. Endorses the joint proposal of the Permanent Representatives of Liberia and Ghana, and calls for the immediate establishment of a neutral international commission, composed solely of Member States with no military presence in the Congo, to investigate:

(a) The death of Prime Minister Patrice Lumumba and his colleagues;
(b) The explosion at Léopoldville International Airport and related casualties;
(c) The attack on the training center in Stanleyville;
(d) All acts of foreign covert or overt intervention in Congolese political affairs since 1 January 1960;

7. Decides that all military, logistical, or intelligence support to any Congolese faction outside of ONUC’s structure must cease immediately, and that any state failing to comply may be considered in breach of the Charter’s obligation to maintain international peace;

8. Directs the Secretary-General to prepare, in consultation with the Congolese regions and relevant African stakeholders, a plan for a United Nations–supervised national referendum to be held under neutral international observation, guaranteeing freedom of political expression and self-determination to all Congolese citizens;

9. Reasserts that the authorized structure and scale of ONUC shall remain within the limits originally defined by Resolutions 143 and 145, unless otherwise expanded by formal Security Council decision;

10. Calls upon all Member States to respect fully the sovereignty, territorial integrity, and political independence of the Republic of the Congo, and to refrain from any actions that may further destabilize or militarize the region;

11. Requests the Secretary-General to report to the Security Council within thirty (30) days on the progress of implementation of the present resolution, including the withdrawal of unauthorized forces, status of the investigation, and referendum preparations.

[Rezim]

Adlai Stevenson II
Permanent Representative to the United Nations
United States of America

The proposed Soviet resolution is not without some merit, though I do believe there are some significant matters missing from the proposal, as it stands.

We would propose the following resolution, admittedly borrowing from the Soviet proposal:

Recalling its previous resolutions 143 (1960), 145 (1960), and 146 (1960), and reaffirming the mandate of the United Nations Operation in the Congo (ONUC) as defined therein,

Recognizing the worsening situation in the Republic of the Congo, and the continued threat to international peace and security posed by civil unrest and foreign interference,

Alarmed by the deaths of Prime Minister Patrice Lumumba, and of Ministers Joseph Okito and Maurice Mpolo, as well as recent explosions in Léopoldville,

Deeply concerned by the unauthorized deployment of foreign military forces, personnel, and matériel into the Congo without the consent of this Council or the sovereign Congolese government,

Recognizing the General-Secretary’s authority as provided under resolutions 143, 145, 146 to determine the limitations and authority of ONUC’s mandate,

1. Reaffirms that the United Nations Operation in the Congo (ONUC) has the authority to take the necessary steps, in consultation with the government of the Republic of the Congo, to provide the government with such military assistance as may be necessary;

2. Urges that the United Nations Operation in the Congo (ONUC) take immediate and appropriate measures to prevent occurrence of civil war in the Congo, including arrangements for ceasefires, the halting of all military operations, the prevention of clashes, and the use of force, if necessary, in the last resort;

3. Urges measures be taken for the immediate withdrawal of foreign military, paramilitary, and mercenary personnel and political advisors not under the United Nations command;

4. Calls upon all states to take immediate and energetic measures to prevent the departure of military equipment to the Congo through a comprehensive arms embargo upon the Republic of The Congo;

5. Requests a reinforcement of the United Nations Operation in the Congo (ONUC) of up to an additional 8,000 personnel;

6. Further requests that in light of a movement towards a unity government between Katanga and the government in Leopoldville, that the United Nations Operation in the Congo (ONUC) be expanded to include operation in the Orientale province;

7. Supports an investigation by the United Nations Operations in the Congo (ONUC) into the deaths of Patrice Lumumba and the explosions at Leopoldville International Airport;

8. Calls upon the Congolese government and rebel forces led by Antoine Gizenga to enter into a ceasefire for the purpose of entering peace negotiations;

9. Directs the Security Council to remain actively seized on the matter.

[Kane]

Armand Bérard
Permanent Representative
Republic of France

Honorable representatives,

France remains gravely concerned by the continued instability in the Republic of the Congo. We commend the efforts of the United Nations and the Secretary-General in navigating this complex situation and affirm our full support for the mandate of the United Nations Operation in the Congo (ONUC) as established in Resolutions 143, 145, and 146.

The recent escalation of violence, including attacks in Léopoldville and Stanleyville, underscores the urgent need for stronger international coordination, not unilateral action. France believes that the only path forward lies in reaffirming both Congolese sovereignty and the impartial authority of the United Nations.

To this end, France supports the following urgent measures:

1. The establishment of a No-Fly Zone over Congolese territory, permitting only flights authorized by the United Nations, including domestic civilian flights and international commercial routes. This is essential to prevent the movement of unauthorized military assets and to restore public security.
2. A comprehensive arms embargo on all Congolese factions not expressly approved by the United Nations Security Council. In the current environment, limiting the influx of weapons is vital to prevent further bloodshed.
3. The registration and monitoring of all foreign operatives and military advisors currently in the Congo. Transparency and legality must guide all international activity within the country’s borders.
4. The deployment of international police advisors, under UN command, to assist in restructuring and professionalizing Congolese national security forces. France is prepared to contribute technical support and expertise to this initiative.

France also welcomes the announcement by the United States that its naval presence, namely the USS Independence, will be placed under UN coordination. We encourage all nations currently involved in the region to follow the example of countries such as India or Sweden, which have contributed modest and well-targeted deployments in full coordination with the United Nations.

We therefore recommend that, once the airspace is securely monitored by UN-authorized air assets, any large-scale unilateral deployments, particularly naval battle groups, be scaled down in coordination with the Secretary-General to reduce tensions and restore confidence among all parties, including the African and non-aligned delegations.

Regarding the draft resolutions presented by the Soviet Union and the United States, France notes with interest the principles advanced in each proposal. We appreciate the emphasis on legality, impartiality, and non-intervention expressed by the Soviet delegation, as well as the concrete efforts by the United States to contain the risk of civil war and provide operational reinforcement to ONUC.

Nevertheless, France believes that neither resolution fully satisfies the balance required between restoring security, preserving Congolese sovereignty, and ensuring that the United Nations acts not as a substitute for national governance, but as a facilitator of peace.

We therefore call for a redrafted, consensus-based resolution, grounded in the appeals made by African delegations, including those of Liberia and Ghana, and coordinated closely with the Secretary-General. Such a resolution should integrate security measures, legal accountability, and a realistic roadmap for national political normalization under Congolese ownership.

Finally, France supports a political transition process guided by the Congolese themselves, under UN facilitation. While elections or referendums may ultimately be necessary, they must follow, not precede, security, institutional consolidation, and national reconciliation.

France stands with the people of the Congo, not with factions or spheres of influence. We are ready to work with our African partners, and with all members of this Assembly, to ensure that peace, sovereignty, and dignity prevail.

Thank you.

[Zealous]

Valerian Zorin
Permanent Representative of the Union of Soviet Socialist Republics to the United Nations
Security Council Chamber – Response to Security Council Deliberations on Resolution 161

Mr. President, fellow members of the Security Council,

We have listened closely to the remarks made by the representatives of the United States and the Republic of France concerning the draft of Resolution 161 submitted by the Soviet Union to this Council.

Let us begin by acknowledging areas of common cause. It is clear that the delegations of both the United States and France recognize, at last, the deteriorating situation in the Congo and the urgent need for action. This is a welcome, if long overdue, shift. The Soviet Union has long argued that the presence of foreign forces, clandestine operatives, and external economic pressure threaten to turn the Congo from a decolonized nation into a battleground for competing interests.

Where we diverge is in how to interpret legality, legitimacy, and peacekeeping.

The representative of the United States suggests that any future measures in the Congo must be undertaken “in consultation with the government of the Republic of the Congo.” One wonders—which government, precisely?

The current arrangement in Leopoldville is not the product of elections, nor of national consensus, but of foreign military guarantees and sudden political rearrangements. A “unity government” hastily announced between President Kasa-Vubu and Mr. Tshombe—himself recently the symbol of secession—is now to be taken, unquestioned, as sovereign authority?

The Soviet Union respectfully submits that this Council should think carefully before setting the precedent that the party holding the capital city, with the backing of the strongest foreign power, shall henceforth be recognized as the only legitimate representative of a nation.

If so, we must ask: does this mean that control of territory and populations alone now defines legitimacy? If so, might we hear from the esteemed representative of the Republic of China on whether they would accept such a standard being applied universally? We note that the People’s Republic of China controls more than six hundred million people and the entirety of mainland China. Should they then hold this Security Council seat?

We raise this not to provoke, but to ask whether the United States is proposing a new doctrine of legitimacy based on expedience. If so, let us be honest about the implications.

The representative of France, to their credit, has approached this matter with a more balanced tone. We appreciate France’s reaffirmation of the need for ONUC to act in accordance with the Charter, and its emphasis on legality and restraint. We agree that arms embargoes and no-fly zones are worth consideration—if applied impartially. We also take note of France’s measured suggestion that the presence of the USS Independence—an aircraft carrier battle group—may not be sustainable under the guise of peacekeeping, and should be scaled back once UN-authorized assets are deployed.

We welcome this clarity, and in that spirit, let us be direct:

• The Soviet Union cannot support any resolution that retroactively legitimizes the deployment of overwhelming foreign military assets that were inserted into the region without consultation or authorization from this Council.
• We support the introduction of an arms embargo—so long as it applies to all parties equally, and not merely those who happen to challenge the current occupants of Leopoldville.
• We welcome the United States’ sudden support for an investigation into the murder of Patrice Lumumba—though we note with irony that this demand emerges only after American intelligence networks were discovered and publicized by independent observers in the very regions under investigation.

As for the suggestion that Gizenga and his supporters be required to enter negotiations under duress, we remind this Council that the Soviet Union was among the first to withdraw all advisors following the request of the Secretary-General and in accordance with Resolution 146. We expect the same from all parties.

Mr. President,

The Soviet Union submitted Resolution 161 not as a weapon, but as a shield—for the people of the Congo and for the authority of this Council. We accept that modifications may be necessary. We are not opposed to reinforcement of ONUC, nor to peace enforcement under strict neutrality. But we must insist that no version of this resolution turn the United Nations into a rubber stamp for prior illegal deployments, or for the suppression of Congolese voices inconvenient to certain capitals.

This Council stands at a crossroads. It can choose to endorse a resolution grounded in impartiality, self-determination, and neutrality, or it can choose to endorse the most heavily armed party as the sole legitimate voice—no matter how they came to power.

We urge our fellow members of this Council—particularly those from Africa and the non-aligned world—to consider what precedent is being written here, and whose peace we are about to define.

Thank you.