656.56D/1–3152: Telegram
No. 182
The Ambassador in Indonesia (Cochran) to the Department of State
priority
1095. Eyes alone for Secretary from Ambassador. Called on Foreign Minister Subardjo 29th. He raised question Netherlands relations. He expressed concern lest Netherlands delegate give such definite rebuff to Indonesian delegation Hague on NNG issue Indonesian Govt would decide recall Indonesian delegation and Parliament then proceed with unilateral abrogation Union Statute. In answer my question Subardjo said he thought majority Cabinet would favor unilateral action in such circumstances. Subardjo said he had always opposed unilateral action and had taken course he thought most likely avoid it namely entering conversations with Netherlands Govt at Hague. He still thinks right in making this attempt. If this attempt fails, however, he fears his people might “run amuck”. He said his govt could look to no one but US for assistance.
I said my govt did not favor unilateral abrogation of international engagements. I warned against examples of Iran and Egypt. I suggested possibility strong reprisals from Netherlands. I said costly confusion could result.
Again Subardjo said his government had never wanted unilateral action but pressure had now become so strong government would not be able resist it if obliged call Supomo1 completely defeated on NNG issue. When I reminded him breaking union would not solve NNG question, he admitted this but said already active movement in favor setting up “government in exile” for province or state Irian on Java itself.
[Page 252]I told Foreign Minister my government always hoped amicable solution NNG could be achieved through direct conversations and favored such discussions. My government had recently transmitted to Netherlands Government message which Indonesian Government had given me when it appeared conversations might not be started at Hague because of Netherlands insistence on intermixing question arms seizures. US had shown complete willingness use its good offices this manner, but Netherlands Cabinet had taken decision to be [continue?] conversations on Indonesian terms before US intervention took place. I said Indonesians should know by this time there is no prospect of Netherlands Government agreeing prior June elections to transfer sovereignty over NNG.
Subardjo hoped it might still be possible for Netherlands delegate come forward with some proposal which would leave Indonesian delegation in position to report outlook for hopeful results in a later conference. I said I had not yet seen any evidence on side either Indonesia or Netherlands to be willing compromise on NNG issue. I told Subardjo if he had any ideas whatever on this subject I would be glad discuss them with him and see if I could make anything out of them. When I mentioned trusteeship of some sort he said his country would not accept.
While we are seeking some way out, I feel it essential Department bring home to Netherlands and Australian Governments seriousness of consequences Subardjo and I think might result from complete breakdown negotiations.
Both sides firmly entrenched. Both sides virtually requesting US open support.
While Netherlands may be reconciled to dissolution Union, it should be earnestly concerned lest this be accomplished in circumstances that would endanger continuing economic interests.
Indonesian Government on its side concerned lest unilateral action would bring international criticism of new states so deeply indebted to UN for its sovereignty and so anxious to reach position importance in world affairs. At same time Indonesians would oppose any compromise which smacked of yielding to colonial authority and of perpetuating western influence on their new state. They can become quite fanatic on this subject.
US not likely be able influence Indonesia against unilateral abrogation unless US in position promise Indonesia hopeful outcome NNG. Statements Netherlands and Australian leaders as they now stand rule out such possibility foreseeable future.
Parties obviously cannot settle their difficulties by direct bilateral negotiations. They might both be relieved to have outside force take over some responsibility.
[Page 253]What would Dept think of encouraging Netherlands Government now come out with offer abide by decision any international body parties might decide upon to adjudicate NNG once Union question settled by direct negotiations?
Had just completed foregoing paragraphs when called to Foreign Office this noon by Subardjo. Am not changing above since it provides background for following:
Foreign Minister said Supomo had reported no progress on NNG, outlook hopeful on Union negotiations, and some possibility Netherlands might be willing delay action on constitutional amendment on Irian until after Netherlands elections. Subardjo anxious avoid deadlock and asked if I could submit any “formula” to prevent it.
I asked Foreign Minister how he would look upon arrangement whereunder: (1) Irian question would remain on Hague agenda; (2) Netherlands would agree suspend Parliament action on amending constitution on Irian pending elections; (3) delegations would proceed with revision Union; and (4) two parties would agree that if they could not by direct bilateral negotiations reach agreement within fixed period time, say one or two months, after concluding revision Union, they would submit Irian question to international body to be selected jointly by two parties, and they would pledge themselves to abide by decision of that body with respect Irian.
Subardjo and his general adviser, Hanifah, who was present, indicated interest. Foreign Minister said he would sound out Cabinet colleagues and let me hear. I asked whether it would be easier for Indos present above proposal or for it to come from Netherlands delegate if my government might see fit pass suggestions to Netherlands Government and latter accepted it. Subardjo said he would also get Cabinet’s opinion on this point.
I made clear that my “formula” was purely personal and unofficial and advanced upon request.
Will report promptly any developments. This message should not, of course, be repeated Hague or elsewhere.
- Head of the Indonesian Delegation to the bilateral discussions taking place at The Hague.↩