790.00/1–1650
Memorandum by the Assistant Secretary of State for Far Eastern Affairs (Butterworth) to the Secretary of State
Subject: Visit of General Romulo2 to discuss a Southeast Asian Association.3
Discussion:
General Romulo first indicated an interest in some kind of Southeast Asian Regional Association after President Quirino’s4 ill-advised meeting at Baguio with Generalissimo Chiang Kai-shek5 and the latter’s meeting with President Rhee6 in Seoul. He discussed this unfortunate approach to the problems with various officers of the Department and subsequently returned to Manila to see what he could do about broadening any Pacific association projects, if possible without participation of Nationalist China. As a result of his conversations with Quirino he received written instructions, later made public, from President Quirino in which he was instructed to explore the possibilities of an overall Pacific and Southeast Asian understanding, based on the self-determination and welfare of the peoples concerned. No mention was made of the Generalissimo.
On his return to the United States General Romulo did in fact undertake exploratory conversations with various diplomatic representatives [Page 2] of the Powers concerned. Because of his new responsibilities as President of the General Assembly of the United Nations however, he was unable to complete the conversations; but the overall reaction has been only lukewarm and cautious. Several of the Powers concerned let it be known that their attitudes would in a large measure be guided by that of the United States. India, on several occasions, has indicated that it has no intention of participating in any meeting which might be called by the Philippine Government. At one stage the picture was further confused by an announcement of the Siamese Government that it intended to call a meeting, unless the Philippines did so. President Quirino has since stated his intention of calling a meeting to be held possibly in February, and nothing more has been heard of the Siamese declaration. Whether President Quirino has in fact already issued formal invitations, and if so, what the response has been, is unknown here.
In the meantime, General Romulo has made several attempts to secure a commitment from the United States that it would support and participate in a Southeast Asian meeting. The position of the Department has been that although it would look with sympathy on the principle of a Southeast Asian association, based on the independence and welfare of the peoples concerned, any such association to be successful would have to be generated spontaneously within the area, and that therefore the United States would reserve judgment pending developments.
It seems altogether possible that both President Quirino and General Romulo find themselves seriously embarrassed by their present predicament and the impetuous action of President Quirino. The Philippines is publicly committed to a position from which it will be difficult to withdraw. On the other hand, it is by no means certain how a Southeast Asian meeting would work out. If Nationalist China is invited to participate it is improbable that India, Burma, and Australia would participate. It is doubtful if India would participate in any event, an omission which would seriously weaken the strength of the association. It is also doubtful what the attitude of Indonesia would be. If Nationalist China is not invited, Siam, Korea, or Indochina might not participate. In brief, President Quirino finds himself committed to a proposal on which he can secure no general agreement; and without general agreement it becomes rather meaningless, a public indication of a lack of community interest within the area concerned. It should be noted, parenthetically, that President Quirino’s outlook and understanding are sufficiently limited so that he may well derive some pleasure from the discomfiture of his Ambassador [Page 3] and attempt to lay the blame on him. President Quirino has never relished any competition for the limelight. In these circumstances General Romulo may well ask for advice as to what he should do.
Recommendations:
In view of the foregoing, and of the probable difficulties of securing general agreement among the Southeast Asian countries, it is recommended that the position of the United States remain what it has been, namely, that it looks with sympathy on the general principle of any spontaneously generated Southeast Asian association, based on the independence and welfare of the peoples concerned, and that it reserves further judgment pending developments. If General Romulo persists it might be added that the United States understands the predicament in which President Quirino finds himself but that it has no suggestions as to how he might extricate himself. At the same time Romulo might be complimented on his cooperative efforts to get the démarche on a more realistic basis, and the hope expressed that no blame would be attached to him because the situation was beyond repair before he became concerned with it. If an opportunity presents itself it might also be intimated casually that the state of President Quirino’s health might suggest possibilities for evasion.7
- Carlos P. Romulo, Permanent Representative of the Philippines at the United Nations; President of the Fourth Session of the General Assembly, 1949.↩
- For documentation on Philippine interest in a regional association, see Foreign Relations, 1949, vol. vii, Part 2, pp. 1115 ff.↩
- Elpidio Quirino, President and Secretary of Foreign Affairs of the Philippines. For documentation on U.S. relations with the Philippines, see pp. 1399 ff.↩
- Former President of the Republic of China. Chiang resumed the Presidency in March 1950. For documentation on the China area, see pp. 256 ff.↩
- Dr. Syngman Rhee, President of the Republic of Korea. For documentation on the Korean War and United States policy toward Korea, see volume vii .↩
- The files of the Department of State provide no evidence of an Acheson–Romulo meeting prior to March 10. On that date, in Washington, they considered the question of a “Pacific Pact” during a discussion which dealt in large part with Indochina. For the memorandum of that conversation, see p. 752. The subject also arose during a meeting at the White House on February 4 between President Truman, Secretary Acheson, and President Quirino. The record of that meeting appears on p. 1412.↩