501.BC/7–2947
Memorandum by the Deputy Director of the Office of Near Eastern and African Affairs (Villard) to the Counselor (Bohlen)
Problem:
To determine what action the U.S. Government might take in view of the Indian intention to present the Indonesian case to the UN Security Council, as a means of avoiding further alienation of friendly relations with India and other Asian countries. The Indian Government repeatedly requested the US and UK to take action to bring hostilities in Indonesia to an end. In view of US and UK failure to act, the Indian Government intends today to submit the issue to the UN Security Council.
Discussion:
Indians already doubt sincerity of American declarations in support of self-determination of peoples throughout the world. Many suspect American “economic imperialism”. Failure of the United States to respond to Indian appeal on Indonesia may further alienate India from western democracies and increase Indian tendency to disparage reliance upon American declarations or promises. Nehru has stated that “failure for whatever reason of these two great powers (US and UK) to intervene effectively in cause of peace and on side of people struggling for freedom cannot but create most unfortunate impression in India and all Asian countries.” NEA agrees with that statement. Mr. Jinnah59 has declared to the press that “Muslim India will consider this (Dutch action in Indonesia) an unfriendly act on the part of the Government of Holland, calculated to crush the freedom of the democratic Muslim nation of Indonesia.”
The Inter-Asian Conference at New Delhi in March 1947 clearly indicated desire for greater integration of Asian countries to protect Asian interests against domination by western powers. American indifference or opposition to Indonesian cause will strengthen the move toward Asiatic federation which might be detached from or even antagonistic toward the western democracies. The Secretary General of the External Affairs Department, Government of India, has said that India’s intended appeal to the UN re Indonesia is a bid for political leadership in Asia.
Moslem countries of the Near and Middle East have already displayed an interest in Indonesian affairs. The Foreign Minister of Indonesia has recently been touring the capitals of the Arab world [Page 995] with the objective of enlisting their support for an appeal to the United Nations if no direct solution to the Dutch Indonesian impasse can be found. American prestige would suffer in these countries in the event of American indifference or opposition to Indonesian cause. Egypt and Syria have already concluded agreements with the Indonesian Government. Our Embassy at Tehran reports that the Iranian press has unanimously condemned the Netherlands Government’s action in sending troops into Indonesia. Likewise reports from Manila, Ceylon, and Cairo clearly indicate that the Dutch policy is vigorously deplored in those areas.
Under present circumstances, the U.S. might be placed in an extremely unfortunate position of opposing Indonesia and her supporters. Such a position could do immeasurable damage to American prestige in the Near, Middle and Far East.
It has been NEA’s position for the past ten days that the US should take the initiative on presenting the Indonesia situation to the UN. It is, however, too late for such action now. Nevertheless, the US may still be able to alleviate the damage to American prestige in Asia by lending active support to a fair consideration of the case by the Security Council. Such action may also enable the US to guide the tone of UN discussion and lessen the attack on the Netherlands.
Recommendation:
If talks with the Netherlands Ambassador prove unproductive or if the Indian Government submits the case to the UN Security Council the United States might as an initial step submit a letter to the Secretary General of the UN,60 following the Indian appeal, stating that (a) we share the anxiety of other nations over the breakdown of negotiations between the Netherlands Government and the Indonesian Republic; (b) we, therefore, earnestly hope that the parties to the dispute will cease hostilities as soon as possible and undertake to resolve their differences either through a resumption of negotiations or by other means of their own choice; (c) but pending a peaceful settlement of their differences by the parties or the conclusion of an agreement to endeavor to reach such a settlement, the United States will support a full and fair hearing of the matter by the Security Council with a view to obtaining a speedy and just settlement of the case.
Such a course of action as envisaged in the preceding paragraph would accomplish several purposes:
- 1.
- It would indicate to the world that the US wishes to secure a cessation of hostilities and supports every effort to obtain a peaceful solution.
- 2.
- The door would be left open for an immediate resumption of negotiations or resort to some other method of pacific settlement of the parties’ own choice.
- 3.
- It would be a step on the part of the United States to set the pattern of the Council consideration of the case. (It is already quite apparent that the Council discussion will take a serious tone. The Colombian delegate has today stated in the Council that there is “undeclared war” in Indonesia.61)
- 4.
- It would not “rob” the Indian Government of its position in the case but instead would place the US in a role similar to that which it has occupied outside the Security Council vis-à-vis the disputant parties during the past twenty months.