CFM Files: Lot M–88
Paper Prepared in the Bureau of Near Eastern, South Asian, and African Affairs1
Negotiating Paper for Steering Group for Possible US–UK Talks in November
problem
Continued coordination of US–UK efforts in the United Nations to bring about a settlement of the Kashmir dispute.
us objective
The US objective is the solution of this dispute in order to increase prospects for stability in the area. In the achievement of this objective the US will continue to support UK initiative.
probable positions of other countries
Members of the Security Council, with the exception of the USSR have thus far fully supported the resolutions sponsored by US and UK in the case and eight members spoke in favor of the resolution of March 30, 1951 under which Dr. Graham has worked. There are indications of increasing interest and concern among the Commonwealth countries. Foreign Minister Casey of Australia indicated late in October that he had discussed the Kashmir question in both Karachi and New Delhi on his visit to those capitals. During the summer Canada, Australia, and New Zealand, as did the US and the UK, issued appeals to the governments of India and Pakistan at the high point of tension caused by troop movements along the borders. Governments of Asian countries, including Indonesia, Burma, and Iran, have manifested interest in the Kashmir case, and have indicated their recognition of the dangers inherent in the continuation of the dispute.
position to be presented
The UK has in the past exercised leadership with close UK–US cooperation and a joint sponsorship of resolutions. It has been agreed [Page 1901] that there be similar co-sponsorship of a resolution to be submitted to the Security Council at an early date instructing Dr. Graham to continue mediatory efforts and to report his views to the Security Council within a fixed period.
The following points should be raised:
- a)
- Does the Conservative Government contemplate any change in the UK approach to the Kashmir problem?
- b)
- Are the UK and Commonwealth countries prepared to use pressures or inducements through or in aid of the United Nations in its efforts to secure Indian cooperation?
- c)
- It is too early to formulate a definitive position on lines of action to be adopted in the event that Dr. Graham’s mediatory efforts fail. However, UK–US discussions of this problem have been held at the working level during recent months, and the Department believes it essential that these discussions continue. Are the British prepared to continue these discussions?
discussion
Pakistan has been pressing for a Security Council Resolution which would at a minimum recommend a solution to the parties based on the Graham proposals. We may anticipate considerable pressure from Pakistan along these lines. If India should refuse the Security Council’s recommendations the danger of hostilities would undoubtedly increase and a crisis of serious proportions might well result. On the other hand, unless the Council takes forthright action to recommend a settlement Pakistan may abandon hope of a settlement through the efforts of the United Nations and may take the matter into its own hands. Continuing negotiations by another United Nations Representative would likely be unacceptable to Pakistan. Viewed from the standpoint of the United Nations a comparable dilemma is presented. If the Council makes decisive recommendations as to terms of settlement unsupported by enforcement action, their rejection by India may reduce the Council’s prestige and future effectiveness in the dispute. If, on the other hand, the Council by indecisive action leads the parties to lose confidence in its capabilities, the blow to its prestige and effectiveness may be equally damaging.
In considering possible lines of SC action following Dr. Graham’s next report, the US and the UK will, of course, wish to take into account the contents of this report as well as political factors prevailing at the time of the submission of the report.
- A covering memorandum by Mr. George Denney, Secretary of the Steering Group on Possible U.S.–U.K. Talks in November, indicated that this paper was drafted by Mr. Frank D. Collins of the Office of South Asian Affairs, and was approved at the working level in the Departments of State and Defense. The Foreign Ministers of the United States, the United Kingdom, and France met in Paris and Rome, November 2–30, but there is no record that the Kashmir dispute was formally discussed. In the records of the meetings the paper was designated as document NOV D–5/1b.↩