751G.00/4–1654: Circular telegram
The Acting Secretary of State to Certain Diplomatic Offices1
368. In discussing Secretary’s trip to London and Paris with officials of govt to which you are accredited, you should base your discussion on communiqués issued London and Paris which have been sent you separately thru USIA wireless file.
As both communiqués indicate, there was full exchange of views re importance of security of Southeast Asia to UK, France, US, and other friendly govts whose vital security interests, freedom, and independence are directly involved. There was large measure of acceptance by both British and French of our view that danger was such that there was necessity for united will now so that if need arose we could immediately take united action and that without loss of time we should informally consult with other like-minded nations as to what best could be done. British and French agreed with our suggestion [Page 1343] that informal working group should be established in Washington to exchange views and develop means of expressing united will of participants that Southeast Asia would not be permitted to fall to Communists.
Both British and French are obviously reluctant to formalize any arrangements which might be construed as taking final action prior to full discussion of Indochina at Geneva. However it is clear that as result Secretary’s trip there now exists an understanding of need for unity of purpose among three powers acting with other interested countries, and this fact should strengthen position of free nations at Geneva Conference.
British are thinking primarily in terms of NATO form of pact for Southeast Asia but as result of Secretary’s visit they now realize negotiation and ratification of any such arrangement might require months. If situation should deteriorate in near future, British concept of NATO-type pact as point of departure for united action would obviously not meet exigencies of situation. French views less advanced and colored by desire avoid any action giving public impression Geneva has been prejudged as failure. French affirmed intention proceed with completion independence Associated States but clearly assume their continuing association with France on basis of their free choice.
Following his return to Washington April 19 [17] and prior his departure for Paris night of April 20 Secretary will see following Ambassadors together to outline briefly to them results his recent trip and suggest establishment informal working group: UK, France, Associated States, Australia, New Zealand, Philippines, Thailand.
In summary, Secretary’s trip resulted in extremely useful exchange of views. He rectified misunderstandings which had arisen through press speculation that we envisaged issuing some form joint ultimatum to Communist China. This was never our concept. What we had in mind was possibility of issuing prior to Geneva some form of declaration of common purpose showing determination of signatories not to permit Communist domination Southeast Asia and also providing for some form ad hoc consultative machinery which would enable common action to be taken should this become necessary, pending development of more formalized collective self-defense arrangement within framework Article 51 of UN Charter. While time will probably not permit taking definitive action along these lines before Geneva, we believe substantial progress already made as indicated by London and Paris communiques and statements by other govts concerned. With this as start we hope further consultations among interested govts will result in early progress on best means implementing united action concept.
- Drafted by MacArthur and Merchant. Sent to Embassies in London, Paris, Canberra, Wellington, Bangkok, Manila, and Saigon (to be passed to Phnom Penh and Vientiane). Repeated for information to Karachi, New Delhi, Colombo, Seoul, Taipei, Tokyo, Rangoon, Djakarta, and The Hague, and to Ottawa by pouch.↩