Foreign Relations of the United States, 1952–1954, The Geneva Conference, Volume XVI

Conference flies, lot 60 D 627, CF 315

Documents Pertaining to the Arrangements for the International Control Commission, July 22–August 11, 1954¹

August 11, 1954

International Control Commissions in Indochina

1. Text of a Statement on Canadian Membership in the International Commissions for Vietnam, Laos and Cambodia released at 5 E.D.T., July 28, 1954

2. Message from Mr. Eden and M. Molotov to the Governments of Canada and India, dated July 21

3. Message from Mr. Nehru to Mr. Eden, as co-Chairman of the Geneva Conference, dated July 24

4. Text of the Canadian Government’s reply to the Invitation to serve on the International Supervisory Commission for Laos, Cambodia and Vietnam

5. Message from Mr. Nehru to Mr. Eden

6. Reply, dated July 22, of the Government of India to the Message from Mr. Eden and M. Molotov

[Attachment 1]

The Following is the Text of a Statement on Canadian Membership in the International Commissions for Veitnam, Laos and Cambodia Released at 5 E.D.T., July 28, 1954.

The Canadian Government has today transmitted to Mr. Anthony Eden co-chairman, with Mr. Molotov, of the Geneva Conference on Indochina, its acceptance of the invitation forwarded by him on July 21 to designate representatives to form with India and Poland, the International Supervisory Commissions for Vietnam, Laos and Cambodia. Officials are being sent to New Delhi this week to take part in preliminary organizational discussions, prior to the actual establishment of the Commissions in Indochina. The Canadian representatives on the Commissions will be named shortly.

The Government has decided to accept this invitation only after detailed study of the Cease-fire and Armistice Agreements which are to be supervised by the International Commissions, and with full knowledge and appreciation of the responsibilities and difficulties that will go with membership. There are no illusions about the magnitude and complexity of the task.

Canada is geographically remote from Indochina and her collective security responsibilities in Southeast Asia are limited to those that arise from membership in the United Nations. We know from experience, however, that just as local conflicts can become general war so conditions of security and stability in any part of the world serve the cause of peace everywhere. If, therefore, by participating in the work of these Indochinese Commissions, Canada can assist in establishing such security and stability in Southeast Asia we will be serving our own country as well as the cause of peace.

While it is a matter of regret to us that the settlement in Indochina and the supervision of that settlement are not directly under the aegis of the United Nations, the Government is satisfied that Canadian participation will be fully in harmony with our responsibilities as a member of the world organization.

It should be emphasized that acceptance of membership on these Commissions does not mean that we have been called upon to guarantee or enforce the Indochina cease-fire. Nor does it involve any new military or collective security commitments for Canada.

The actual execution of the Cease-fire Agreements is the responsibility of the two sides directly concerned, functioning through joint commissions established by the Armistice Agreements. The International Commissions themselves have no enforcement obligation or responsibility. Their function will be solely supervisory, judicial and mediatory. Under Indian chairmanship, the Commissions will be responsible for supervising the proper execution of the provisions of the Agreements by the parties directly concerned; will assist these parties with the interpretation of those provisions; will be available to settle disputes; and in cases where disputes cannot be settled, will report the matter to the members of the Geneva Conference. India, Poland and Canada are also expected to assume responsibility at a later stage for supervising elections.

In carrying out their tasks the International Supervisory Commissions should be able to function more effectively than the Neutral Nations Supervisory Commission in Korea which because of equal Communist and non-Communist representation, very often had effective action blocked, and which could report only to the two military commands.

The Indochina Commissions will each consist of three members—Indian, Polish and Canadian—and in most cases will be able to take decisions by majority vote. In those special and designated cases where unanimity is required by the Cease-fire Agreements but cannot be obtained, the Commissions will submit majority and minority reports to the Geneva Conference powers. It will then be the responsibility of those powers to deal with the matter.

In addition to providing representatives for each of the three Supervisory Commissions, India, Poland and Canada will supply a number of military officers for the fixed and mobile inspection teams which will supervise the execution of the Cease-fire Agreements in the field, under the direction of the Supervisory Commissioners.

A study of the information available has led us to the conclusion that the Commissions have a reasonable chance of operating effectively and of making a constructive contribution to the successful implementation of the Cease-fire Agreements, and hence to peace in Southeast Asia. If our expectations unfortunately prove ill-founded, and the Commissions are frustrated by obstruction, then of course no useful purpose would be served by continuing their existence.

The exchange of views which we have had with those powers with whom we are especially closely associated in efforts to maintain peace and strengthen security has confirmed our conviction that we ought to accept this onerous but honorable assignment.

Finally we have been conscious of the serious consequences which might follow if we were to decline the invitation, since this could delay and complicate the implementation of the Cease-fire Agreements with unhappy and possibly even serious results. We have no illusions that the task we are undertaking will be either easy or of short duration, but we take satisfaction from the fact that in performing it Canada will be playing a worthy and responsible part in an effort to strengthen peace.

[Attachment 2]

Message From Mr. Eden and M. Molotov to Governments of Canada and India, Dated July 21

[July 21, 1954]

We have the honour to address you as co-Chairmen of the Geneva Conference on Indo-China which concluded its work on July 20, 1954. The Conference took note of agreements ending hostilities in Viet Nam, Laos and Cambodia, and organizing international control and the supervision of the execution of the provisions of these agreements. In particular, it was agreed that an International Commission should be set up in each of the three countries for control and supervision of the application of the provisions of the agreement on the cessation of hostilities in Indo-China. It was further proposed that these Commissions should be composed of an equal number of representatives of Canada, India and Poland, presided over by the representative of India.

2. On behalf of the Conference we accordingly have the honour to invite the Canadian/Indian Governments in consultation with the Governments of Canada/India/Poland, to designate representatives to form the International Supervisory Commissions for Viet Nam, Laos and Cambodia as envisaged in the agreements on the cessation of hostilities and on supervision in those three countries.

3. It is hoped that the three International Supervisory Commissions can be established on the spot as soon as possible from the date on which the ceasefire comes into force.

4. The text of the final declaration adopted by the Conference and of all other agreements and declarations concerning the cessation of hostilities and the organization of supervision in the three countries of Indo-China will be transmitted to you as soon as possible.

5. We have the honour to request an early reply, which we shall at once transmit to the members of the Conference.

[Attachment 3]

Reply, Dated July 22, of The Government of India to The Message From Mr. Eden and M. Molotov

The Government of India have the honour to acknowledge receipt of the communication forwarded by the United Kingdom High Commission conveying a message from Mr. Eden and M. Molotov as co-Chairmen of the Geneva Conference. In this message it is stated that the Conference agreed that an International Commission should be set up in each of the three countries, namely, Viet Nam, Laos and Cambodia, for control and supervision of the application of the provisions of the agreement on the cessation of hostilities in Indo-China. It was further proposed that these Commissions should be composed of an equal number of representatives of Canada, India and Poland, presided over by the representative of India. The Government of India are anxious to help, in every way possible to them, the cause of a peaceful settlement in Indo-China and are prepared to consider favourably assuming responsibilities as suggested, in regard to the control and supervision of the execution of the agreement arrived at Geneva. They would like to have, however, the texts of the agreements as well as of the declarations made in regard to the cessation of hostilities and the organization of supervision, to enable them to find out the exact nature of the functions of the Supervisory Commissions and the responsibilities which the Government of India will have to undertake in regard to them. They will be grateful, therefore, if these texts are supplied to them at an early date, together with such other particulars as may be considered necessary.

[Attachment 4]

Following is The Text of The Canadian Government’s Reply to the Invitation to Serve on the International Supervisory Commission for Laos, Cambodia and Vietnam

I have the honour to acknowledge your message of July 21 which you and Mr. Molotov sent in your capacity as co-chairmen of the Geneva Conference on Indo-China, containing the invitation to the Canadian Government to designate, in consultation with the Governments of India and Poland, representatives to form the International Supervisory Commissions for Vietnam, Laos and Cambodia as envisaged in the Agreements on the cessation of hostilities, and on supervision in those three countries.

Conscious of the grave responsibilities which the task will impose,—but in the hope that it can be discharged in such a way as to contribute to the establishment of peace and security in Indo-China, the Canadian Government accepts this invitation. The Canadian Government has been in touch with the Government of India concerning preliminary arrangements and intends to send representatives to New Delhi in the immediate future to consult with Indian and Polish officials on the setting up of the International Supervisory Commissions provided for in the Agreements drawn up by the Geneva Conference.

The Canadian Government would be grateful if you would transmit the text of this reply to the members of the Geneva Conference on Indo-China, whose continuing interest and support will be required if the Commissions are effectively to carry out their functions and if the Agreements on the cessation of hostilities are to be successfully implemented.

Washington, July 30, 1954.

[Attachment 5]

International Supervisory Commissions Message From Mr. Nehru to Mr. Eden

The Government of India have the honour to inform the co-Chairmen of the Geneva Conference on Indo-China that at the invitation of the Government of India a preliminary conference of the three states constituting the International Commissions for Supervision and Control in Indo-China was convened and met in New Delhi from the 1st of August to the 6th of August, 1954. A final communiqué² of the Conference which embodies the principal decisions arrived and is being sent by air mail.

2. The Government of India are glad that the three Commissions will be installed and begin their work in Phnom Penh (Cambodia), Vientiane (Laos), and Hanoi (Vietnam) on the 11th of August, 1954.

3. The three Armistice Agreements and the issues arising therefrom were, as far as they are applicable to the work of the International Commissions, fully discussed. The Government of India are happy to state that the discussions were frank and cordial and the decisions were unanimous.

Washington, August 11th, 1954.

[Attachment 6]

Reply, Dated July 22, of the Government of India to the Message From Mr. Eden and M. Molotov

The Government of India have the honor to acknowledge receipt of the communication forwarded by the United Kingdom High Commission conveying a message from Mr. Eden and M. Molotov as co-Chairmen of the Geneva Conference. In this message it is stated that the Conference agreed that an International Commission should be set up in each of the three countries, namely, Viet Nam, Laos and Cambodia, for control and supervision of the application of the provisions of the agreement on the cessation of hostilities in Indo-China. It was further proposed that these Commissions should be composed of an equal number of representatives of Canada, India and Poland, presided over by the representative of India. The Government of India are anxious to help, in every way possible to them, the cause of a peaceful settlement in Indo-China and are prepared to consider favorably assuming responsibilities as suggested, in regard to the control and supervision of the execution of the agreement arrived at Geneva. They would like to have, however, the texts of the agreements as well as of the declarations made in regard to the cessation of hostilities and the organization of supervision, to enable them to find out the exact nature of the functions of the Supervisory Commissions and the responsibilities which the Government of India will have to undertake in regard to them. They will be grateful, therefore, if these texts are supplied to them at an early date, together with such other particulars as may be considered necessary.

1. For further documentation on the arrangements and activities of the International Control Commission, see volume xiii.
2. Not printed.