276. Memorandum of a Conversation, Department of State, Washington, October 15, 19571
SUBJECT
- West New Guinea
PARTICIPANTS
- Sir Percy Spender, Australian Ambassador at Washington
- Mr. M.R. Booker, Counselor, Australian Embassy
- Mr. Walter S. Robertson, Assistant Secretary for FE Affairs
- Mr. John Gordon Mein, Director, Office of Southwest Pacific Affairs
The Ambassador stated that he wished to follow up the conversation Minister Casey had had with Mr. Robertson in New York2 and to clarify a couple of points on the West New Guinea issue. Minister Casey had apparently inferred from the conversation that the United States Government’s position on West New Guinea was not yet firm and that the statements made on the subject in the recent ANZUS meeting may have represented the opinion of some officials but not necessarily the final U.S. position.
Mr. Robertson said that the Department does not put forward “individual” positions; that the position stated at the ANZUS Council Meeting represented the U.S. position and not that of any particular official. He said that he had told Minister Casey that we had reviewed our policy on West New Guinea and concluded that it was in the best interests of the free world that we not change our position at this time. As the Secretary had said at the Council meeting, we would prefer to see New Guinea in the hands of the Dutch rather than the Indonesians, but a change now would liquidate our influence with those with whom we must work to stop the drift in Indonesia towards Communism. Mr. Robertson said all the information we have indicates that West New Guinea is the one issue on which all elements in Indonesia are united. He said that is our view at the present time but that if there were any indication that Sukarno were going to take Indonesia into the Communist orbit we would of course change that position since we do not wish to see additional areas being taken over by the Communist bloc.
Ambassador Spender asked Mr. Robertson whether he personally was satisfied that all elements in Indonesia are united on this one issue or whether that was merely the judgment of some persons in the field. Mr. Robertson replied that we must of course rely on the judgment of our representatives in the field. He added that although there were differences of opinion within the Department and the Government concerning developments in Indonesia, there are no differences within the Government on this point and that all agree on the basis of the information available that all Indonesians are united on this one issue.
Sir Percy then asked whether it would not be possible for the U.S. to help covertly by letting some friendly governments know [Page 482] that the United States would not object to their opposing any resolution introduced by the Indonesians. Mr. Robertson stated that it was our view that such action could not be kept secret and that if we are going to desert our neutrality it would be preferable to throw our full influence behind our real position. To do what the Ambassador was suggesting would likely result in our getting the worst of both worlds.
Sir Percy stated that Minister Casey had gotten the impression that the Secretary was still of an open mind on this matter. He gave Mr. Robertson a list of the countries he thought we might be able to approach on this basis. The countries listed were Turkey, Thailand, Philippines, Spain, Argentina, Brazil and/or Colombia.
Mr. Robertson pointed out that the other countries know exactly where the U.S. stands and that the mere fact that the U.S. has taken a neutral position is in itself a green light to those countries to take any position they wish. He said he personally would prefer that we take a forthright position than to take any covert action. Mr. Robertson agreed, however, that the Secretary is of an open mind on the subject and said he would inform the Secretary of the Ambassador’s call and of the list of suggested countries, at the same time pointing out to him what he had pointed out to the Ambassador—that any approach to Thailand and the Philippines would certainly become known to the Indonesians. This might be true of other countries as well.
The Ambassador stated that he would report to his Government that he had discussed the matter with Mr. Robertson, who had pointed out that the United States Government has decided to maintain its position of neutrality; that he fears that no covert approach can be undertaken without it becoming generally known; that he would inform the Secretary of the Ambassador’s visit; and that he would express to the Secretary his personal opinion that no approach can be made to governments like Thailand and the Philippines without it becoming known to the Indonesian Government.
The Ambassador stated that in his opinion the matter is becoming more serious and that if the United States can do nothing during the current General Assembly session it should not wait until the next session before taking action. Mr. Robertson indicated he did not share this view and that in his opinion the issue might possibly die through attrition.