The United Nations Operation in the Congo (Operation des Nations Unies au Congo) was one of the largest and most controversial peacekeeping missions. The operation raised significant questions regarding the scope and mandate of future UN peacekeeping missions.
The Congo, a former Belgian colony, became independent on June 30, 1960. Shortly after independence, Congolese soldiers mutinied and fighting soon spread throughout the country. The province of Katanga, the richest province of the Congo, proclaimed its independence during this period. On July 11th, Belgian troops entered the Congo to restore law and order and to protect Belgian civilians. However, they did so without the approval of the Congolese government.
On July 12th, the Congolese government formally requested of Secretary-General Dag Hammarskjold military assistance to protect the Congo against external aggression. On July 14th, the Security Council adopted resolution 143 which called upon Belgium to withdraw its troops. It also authorized the Secretary-General to provide the Congolese government with military and technical assistance until its national security forces were able to fully meet their tasks.
Once resolution 143 was adopted, the Secretary-General appointed Ralph Bunche as his Special Representative in the Congo. He also appointed General Carl von Horn of Sweden as the Supreme Commander of ONUC. The initial force would consist of troops from Ethiopia, Ghana, Guinea, Morocco and Tunisia. These five countries would provide seven battalions, with a total strength of 4,000 troops. In addition, a Swedish battalion from UNEF was transferred to the Congo on a temporary basis. At its peak, ONUC totaled nearly 20,000 officers and civilians.
On July 15th, the first ONUC troops arrived in the Congo. These troops were immediately deployed in Leopoldville at the radio station, power station and along the main thoroughfare of the capital. As more troops arrived, they were gradually deployed throughout the country. ONUC had two primary objectives: to help restore law and order and bring about the withdrawal of Belgian forces. By July 23rd, Belgian troops had withdrawn from Leopoldville and the surrounding area. By August, they had completely withdrawn from the entire country except for three bases, including one in the Katanga province.
On August 9th, the Security Council adopted resolution 146 which reiterated the authority of the Secretary-General to act in the Congo. It also declared that the entry of ONUC into the province of Katanga was necessary for the full implementation of its resolutions. However, it noted that ONUC would not intervene or be used to influence the outcome of any internal conflict. On August 12th, ONUC forces entered the Katanga province and soon took over the Belgian bases. By the end of August, ONUC had brought about the complete withdrawal of Belgian forces from the Congo.
Despite its initial success, ONUC was unable to prevent the gradual deterioration of law and order in the Congo. In September 1960, a constitutional crisis arose when President Kasa-Vubu dismissed Prime Minister Lumumba. For the next 11 months, there was no legal government and the country was divided into opposing groups. ONUC was forced to deal with de facto leaders during this period. Following the murder of Prime Minister Lumumba, ONUC's mandate was significantly strengthened. On February 21, 1961, the Security Council adopted resolution 161 which authorized ONUC to take all appropriate measures to prevent the occurrence of civil war in the Congo. This included the arrangement of cease-fires, the halting of all military operations, the prevention of clashes and, as a last resort, the use of force. In order to properly implement the resolution, the Secretary-General increased the strength of ONUC. New contributions of personnel brought the troop strength to 18,000 by April.
The main problem now facing ONUC was the secession of Katanga. Several clashes between foreign mercenaries and ONUC forces led to numerous casualties on both sides. Secretary-General Hammarskjold conducted extensive negotiations in order to stop the secessionist movement. On September 17, 1961, Secretary-General Hammarskjold was killed when his plane crashed on the way to peace talks at Ndola. His mission was continued, however, by the new Secretary-General, U Thant. After extensive consultations, a Plan of National Reconciliation was proposed and accepted by both sides. However, significant difficulties in implementing the plan occurred. Fierce fighting erupted between ONUC and secessionist forces. It was not until January 1963 that the secession of Katanga was brought to an end.
On February 4, 1963, the Secretary-General reported to the Security Council the extent to which ONUC's mandates had been fulfilled. There was no longer a threat from external sources and the mandate to prevent civil war had been substantially fulfilled. Consequently, a new phase for UN operations developed, one which would give greater emphasis to civilian operations and technical assistance. ONUC military forces would be gradually withdrawn during this final phase.
On June 30, 1964, ONUC completed its withdrawal from the Congo. With the completion of the military phase of ONUC, the civilian operations program was formally discontinued. However, the overall program of technical assistance continued under the responsibility of the Office of the Resident Representative of the United Nations Development Programme.
