Foreign Relations of the United States, 1955–1957, East Asian Security; Cambodia; Laos, Volume XXI

139. Memorandum of a Conversation, Canberra, March 10, 1957, 3—4:40 p.m.¹

USDel/MC/4

Canberra, March 10, 1957, 3—4:40 p.m.

PARTICIPANTS

• The United States
  • The Secretary of State
  • Assistant Secretary Walter S Robertson
  • Mr. G. Frederick Reinhardt²
  • Mr. Avery F. Peterson³
• Australia
  • The Prime Minister, Mr. R.G. Menzies
  • Mr. R. G. Casey, Minister for External
  • Affairs
  • Mr. A. H. Tange, Secretary, Department of External Affairs
  • Sir Allen Brown, Secretary, Prime Minister’s Department

SUBJECTS

• 1. Afro–Asian Bloc
• 2. United Nations Functions
• 3. Suez
• 4. Civil Aviation
• 5. Antarctica
• 6. SEATO

The opening discussion concerned the enforced absence of certain Foreign Ministers at the SEATO meeting and the difficulties faced by the British and French. The Prime Minister expressed appreciation that the Secretary found it possible to attend. The Secretary observed that the United States had interests in the Pacific as well as the Atlantic.

Afro-Asian Group

The Prime Minister expressed Australian concern over the growing self-confidence and potential increase in strength of the Afro-Asian bloc in the United Nations General Assembly. Mr. Casey observed that soon another twelve to twenty “new nations”, such as Ghana and, in a few months, Malaya, would be pressing for UN admission where, upon entry, they could be expected to echo the “claptrap of colonialism”.

The Prime Minister said that he had always considered the General Assembly, in contrast to the Security Council, to be a debating body rather than an executive agency. If, he continued, the GA made decisions and issued directives, the Afro-Asian group together with the Soviet bloc would be in a position to exercise command in a manner contrary to Western interests. He questioned the desirability of allowing such a situation to develop. Mr. Menzies said that Papua and New Guinea were of strategic importance to Australia. In a General Assembly dominated by the Afro-Asian bloc, he felt that these interests would be imperiled. He was particularly critical of the UN resolution⁴ regarding the so-called time-table for developing self-government by the administering powers in Trust Territories.

The Secretary said he believed the solidarity of the Afro-Asian bloc to depend in a large degree upon the particular issues involved. Citing, as an example, the number of anti-Soviet votes on the Hungarian resolutions, he pointed out that the “degree of command” exercised by the potentially decisive votes of a joint Afro-Asian and Soviet bloc varied considerably and that the Soviet bloc alone could not defeat a motion in the GA. At any rate, it now appeared difficult, if not impossible, to remedy the potential imbalance of votes in the GA through the introduction of “weighted voting” procedures. The U.S. had successfully endeavored to obtain a Charter review; and it might now be somewhat too late as membership is eighty nations.

[Here follows discussion of United Nations functions, the Suez problem, civil aviation, and Antarctica.]

SEATO

Mr. Casey referred to press reports which stated that Mr. Dulles was hoping that the SEATO Treaty Area could be enlarged. The Secretary said he did not think such a move presently feasible. He looked forward, however, to a time when SEATO might be enlarged to include Japan, Taiwan, Korea and Indochina.

The Secretary agreed with the Australians as to the desirability of bolstering the Government of Vietnam, short of membership in SEATO, and without transgressing the authority of the ICC. He said he was prepared to receive a call from the Vietnamese observer who was in Canberra for the SEATO meeting.

Mr. Casey said he understood Pakistan might raise the matter of increased economic support at the Council meeting in order to ameliorate a difficult domestic political problem. The Secretary said that although he had not reached a firm conclusion on this matter, several considerations presently came to mind. The Congress appeared disposed to cut foreign aid appropriations this year. Since in its present stage of development SEATO lacked an economic pattern or formal structure comparable to the OEEC in Europe, favorable Congressional action might be difficult to obtain.

The administration of some of the present bilateral economic support to SEATO countries under the so-called “SEATO label” was discussed as a possible inexpensive way to meet the expressed desires of certain of the Pact countries to have a more tangible evidence of the advantage of SEATO membership.

The Secretary pointed out that even if administratively feasible this was basically an artificial proposition unlikely to produce the desired effect among the SEATO nations receiving aid.

Mr. Casey explained the manner in which he proposed to call on the speaker at the forthcoming opening session of the SEATO Council. The Secretary expressed a preference to address the Council on the second rather than the first day.

1. Source: Department of State, Conference Files: Lot 62 D 181, CF 850. Top Secret. Prepared by the U.S. Delegation to the SEATO Council Meeting, which arrived in Canberra March 10. Sessions of the SEATO Council were held March 11–13.
2. Coordinator of the U.S. Delegation. Reinhardt became Counselor of the Department of State on March 14.
3. Chargé d’Affaires in Australia.
4. Apparent reference to Resolution 1064 (XI), adopted by the General Assembly on February 26, 1957. For text, see Yearbook of the United Nations, 1956, p. 333.