724.3415/2037a: Circular telegram
The Secretary of State to the Diplomatic Representatives in Argentina, Brazil, Chile, and Peru
The Neutral Commission yesterday asked the Argentine, Brazilian, Chilean and Peruvian representatives to meet with them and informed them very fully of everything that the Neutrals have done in the Paraguay-Bolivia matter. The text of every telegram sent and received was read to them in full. They were told that the Neutrals, who have been working on this matter for 4 years now, have a very definite plan of action which they are carrying out, which was fully explained to them. They were told that the Neutrals welcome support from the neighboring countries and the closest cooperation. When the Neutrals last consulted with these representatives, namely on July 29 and 30, it was agreed that both sides would keep the other fully informed. In accordance with this promise copies of the replies of Bolivia and Paraguay to the collective note of August 3 were sent as soon as received on August 5 to the representatives of all the signing countries. Furthermore, on August 8 the Neutral Commission advised by telegraph the Ministers of Foreign Affairs of all the American countries of the developments up to that time. On August [Page 173] 10 the representatives of the countries above mentioned were called in and the text of all telegrams read to them. The Neutrals desire to cooperate with and to have the support of these four countries and to present a united front. The neutral representatives told them in consonance therewith that they will send the representatives in Washington of those countries copies of telegrams received and sent by them and will be glad to receive any suggestions they or their Governments may have to make. On the other hand, they desire this cooperation to be mutual and they feel it essential that they be kept advised of what these four countries are doing on their part. While they are advised that negotiations are going on in both Buenos Aires and in Santiago, they do not know the tenor of those negotiations, whether they represent the individual countries concerned or whether they are being carried out in those two capitals by common agreement of the four countries mentioned, and whether they have a well defined plan and what it is. In order that there may be no crossing of wires, it is very essential that all work together and if possible only one set of negotiations be carried on. Otherwise Bolivia or Paraguay or both may try to play off one group against the other if, in fact, the four countries have formed an effective group, or else one of those countries, acting independently, may well thwart the goal to which the five Neutrals are working, which is that outlined in the collective telegram of August 3.
Bolivia desired to keep the actual positions in an evident desire to render nugatory the categoric statement of the 19 American countries of August 3 that the latter will not recognize territorial occupations made by force of arms. While the Neutrals are not fully informed of just what Argentina has done, its information indicates that Argentina has supported this Bolivian thesis on the ground that unless something of this sort is done there will be a revolution in Bolivia, that Salamanca will be overthrown and a military Government come in which will be much worse than the present one. On the other hand, information received from Asunción indicates that unless Bolivia gives back the four Paraguayan forts last taken by her the military there will get out of control.
The Neutrals are endeavoring to the best of their ability to work out a plan that will be acceptable to both sides and they earnestly hope that they will have the support and cooperation of the other countries. Please report any developments or information as to how close an organization the four countries have, what independent negotiations or conversations they may be carrying on with Paraguayan and Bolivian officials, and whether these conversations or negotiations represent independent action of the country concerned or [Page 174] whether they represent the considered and concurrent opinion of the four countries. Urge the necessity of keeping the Neutral Commission as fully informed as the Neutral Commission is keeping the representatives of those countries in Washington advised of all they are doing.
For your information the Neutrals suggested the line of occupations of June 1st as the basis for cessation of hostilities because the first incident complained of to the Neutrals was that of June 15. In the absence of the complete details regarding this and following combats which, although requested, have never been furnished the Neutrals, it was impossible for them to make suggestions for the solution of these incidents. For this reason they indicated a basis which implied no prejudgment of the matter. Furthermore it offered a basis on which there could be immediate cessation of hostilities. If line of present occupations is taken it appeared possible that Paraguay might delay acceptance until it could attempt to retake the forts, after which Bolivia possibly might not agree to the then line of actual occupations until it could endeavor to show a military conquest, and hostilities would drag on for weeks, severely aggravating the situation and perhaps bringing about an actual state of war. Furthermore, the statement of the American nations of August 3 clearly indicated that they were opposed to force, renounced it for the solution of their controversies and as an instrument of national policy, and on this basis every attack in the Chaco whether original or by way of reprisals is necessarily considered by the American nations as illegal and they have categorically declared that no position won by arms would be recognized by them.
The Neutrals considered it absolutely essential to maintain that position and also to bring about as quickly as possible a definite cessation of hostilities and agreement for arbitration. They have already succeeded in bringing about a temporary suspension of hostilities and have received a definite statement from the Bolivian Government that it “in proposing the existing situation as the basis for the suspension of hostilities did not intend to decide questions of territorial sovereignty. The legal situation of the fortines captured from one and the other country touches the fundamentals of the subject.”40 In view of the express assent given by the Minister of Foreign Affairs of Bolivia to the principles of the note of August 3 and particularly the statement quoted above, the Neutrals on August 941 inquired of the Bolivian Government first, whether it proposes the immediate cessation of hostilities on the basis of the present positions with the [Page 175] understanding that such positions do not alter the legal situation of Bolivia and Paraguay of the 1st of June, 1932; second, whether it agrees to submit immediately the controversy concerning the Chaco to arbitration, negotiations for an arbitral arrangement to begin not later than September 15, next; third, whether it agrees that by June 15, 1933, positions taken in the Chaco subsequent to June 1, 1932, shall have been abandoned unless the two countries agree differently, and whether, in the meantime, they will maintain in those positions only the minimum custodial guard; and fourth, whether Bolivia agrees to give facilities to representatives of the Neutral Commission whom the latter may desire to send to the Chaco for such investigation as they may consider pertinent.
The above inquiry to Bolivia is confidential but may be communicated to the Government to which you are accredited. It has already been given to their representative in Washington. This shows the desire of the Neutral Commission to maintain the principle of August 3, to bring about a prompt cessation and not merely suspension of hostilities, to have an agreement to settle their questions definitely by arbitration, and their endeavor to cooperate with the two countries in an attempt to find a way out for both which may possibly be required by the exigencies of their local political situations. The Neutrals would warmly appreciate the support of this proposal at La Paz. If the four countries neighboring Bolivia and Paraguay have consulted together and drawn up any definite program of action which covers the essentials of the situation, the Neutrals would appreciate being advised thereof.