4. Telegram From the Delegation at the SEATO Council Meeting to the Department of State 1

Secto 24. Paris pass USRO. Department pouch Baghdad. Second closed session Fourth SEATO Council.2

Summary:

Agenda Item 6: Council approved Report and Recommendations of Military Advisors including 1958–9 budget of $101,610.00. Chief Delegates expressed views that passage of another year without overt hostilities in treaty area no reason for complacency and that preparedness should be increased. All commented on usefulness of SEATO military exercises and urged their continuance and expansion. Arrangement between U.S. and Philippines for establishment Pacific Military Defense College cited by most delegates as substantial addition to defense planning. France requested further information on subject.

Delegates congratulated General Santos 3 for accomplishments as Chief, Military Planning Office, expressing regret Santos leaving SEATO for post in Philippine Defense Department. Gratification expressed at obvious progress made by Military Planners during first year.

New Zealand Delegate emphasized that Manila Treaty primarily a defense pact and envisions forces fully prepared to resist attack. He commended military advisors for recognition insurgent threat and intention conduct further planning with civil organization on this subject.

Pakistan Delegate stressed Pak determination “fight for justice and peace.” Increased fighting power of Pak Armed Forces attributed mainly to SEATO. Emphasized Pakistan had manpower for SEATO defense effort but needed increased military aid. Reminded colleagues of double Pakistan responsibility to meet threat posed not only by Communists but by “some neighbors” and asked SEATO members seriously consider increasing military aid.

Phil Delegate commended work of Military Advisors with Committee of Security Experts in coordinating SEATO intelligence activities.

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Thai Delegate noted an increase in military accord among member states and encouraged increased exchanges of military and security information. He said Thailand has shortage of communications facilities and recommended establishment of permanent SEATO communications center at Bangkok.

UK Delegate approved report and budget but expressed regret that procedures for civil organization review of military budget had not been settled. Recommended this be done prior next Council meeting. He expressed view that non-member observers to military exercises should be invited by sponsoring country and not by SEATO.

French Delegate suggested invitations to military observers be cleared with other SEATO members.

UK Delegate objected, restating view that invitations be matter within sole discretion of sponsoring state and not be made “responsibility” of other members or of SEATO as an organization. Said “UK preferred not to be consulted.”

U.S. and Australian Delegates supported UK position.

French Delegate yielded but recommended Council examine results of this policy at next meeting.

The UK position on invitations to non-member observers was agreed upon and made a matter of record.

Council proceeded to agenda item 7—“Exchange of Views” with agreement that Thai Delegation speak first.

Summary of Exchanges:

Thailand (Prince Wan):

Birth of SEATO caused Communists to substitute subversion for armed aggression in Treaty area, but possibility of reversion to violence ever present. Communists continue employ subterfuges such as urging ban on nuclear tests, identifying selves as true friends of Asians, pretending encourage neutralism and nationalism and offering economic aid. These and other tactics designed cloak Communists with “respectability” but have as main aims reduction of domestic opposition to Communism and weakening ties between Asia and West. Peoples must become aware that subversion directed towards all fields—economic, educational, cultural, religious—and that subtle methods veil true motives.

Thailand intensely interested in developments in neighboring countries. Was gravely concerned over Laos but believes Lao PriMin now aware Communist danger and will remain strictly neutral. Recent statements by Prince Sihanouk indicate Cambodia already aware Communist danger and intends resist it.

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Vietnam openly interested in SEATO and participates whenever possible in its activities, such as Baguio Seminar last November and Bangkok Round Table last month.4

Malaya cooperating with Thai on problem of border terrorists and agreement now reached for effective joint border operation.

During January visit to Bangkok, President Sukarno reaffirmed Indonesian faith in UN charter. Thai views with regret present internal strife in Indonesia which attributable to Communist influence.

Believe stability is returning to Burma. Recent surrenders of various insurgent groups to Burmese forces an encouraging sign.

Thailand internal security constantly improving. Overwhelming defeat of left-wingers in December election and present government’s adherence to UN Charter and alignment with SEATO and with free world in foreign policy matters is encouraging. Public criticism of SEATO greatly decreased; subject has not become campaign issue in approaching by-elections. Thai aware that danger of Communist subversion still exists in Thailand and that Muslims, large Chinese minority group, and Vietnamese refugees are main subversion targets.

Soviets attempting propagandize Thais through cultural and educational exchanges and offers of medical equipment. Red China inviting newsmen and student leaders to visit mainland. Thai Government watching these moves with extreme care. Thailand hopes danger of subversion can be eliminated from area through SEATO help.

Pakistan (Minister Qizilbash):

Pakistan happy to note that general situation in Treaty area has remained relatively quiet. South Vietnam under leadership of Diem earnestly applying itself to solution internal problems.

Situation in Cambodia seems improved. While government “remains wedded to neutralism”, press and PriMin displaying more sympathetic attitude towards free world and more cautious one towards Communist bloc.

Malayan situation encouraging. Malaya applying self to political and economic problems with vigor and enthusiasm. Malaya membership in SEATO would be mutually beneficial but decision is for Malaya and outside pressure should be avoided. Malaya–Pakistan relations being strengthened with opening of Pakistan High Commission in Kuala Lumpur near future.

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Pakistan shares anxiety over situation in Laos. Believe Laos Government took calculated risk with Pathet Lao but hope government will maintain strict controls through enforcement of recently enacted anti-subversion law.

Developments in Indonesia most disturbing; situation confused. Due to mistakes of Indo leaders, Communists seem to be emerging as major political faction. Some indications that “true democratic forces” are attempting assert themselves. Best prospect for stability is revival of constitutional democracy in Indonesia. Concerned over Indonesian position on territorial waters which insupportable under international law and not acceptable to Pakistan.

In India Communists doubled their voting strength during last general elections. Have formed government in Kerala and making headway in some other states. Growth of Indian Communism due largely to New Delhi acceptance of Moscow propaganda, patronage of Commie front organizations and acceptance of some $270 million of Soviet aid.

By contrast, Burma situation stabilizing as government seems to be shedding its illusions about Communism.

Communist penetration increasing somewhat in Ceylon. Govt accepted $20 million in Soviet aid and may accept more.

Communist infiltration in Afghanistan is serious threat to Pakistan. Soviets have given Afghans some $145 million and are assisting build-up of armed forces and facilities. Soviet influence on Afghans has created situation where tribes on both sides of Pakistan–Afghanistan border becoming vulnerable to Soviet subversion.

Pakistan continues to enforce legal ban on Communists but efforts to infiltrate political, labor and student groups continue under sponsorship of Communist Party of India. Communists continue to exploit economic problems and discontent amongst Pakistan people caused by unsettled disputes with India.

Principal threat to Treaty area generally is international Communism. Basic military threat is from Soviet Union although military power of Communist China and North Vietnam considerable. Determined stand of SEATO coupled with economic problems in USSR and Red China has deterred Soviet aggression.

While military threat decreased, subversion has increased, Communists attempting by every propaganda means of demonstrating greater compatibility between selves and Asians than between Asians and free world. Formidable economic offensive coupled with slogans of peaceful co-existence and anti-colonialism have had significant effect.

Council agrees SEATO countries must continue take vigorous action and show more vigilance individually and collectively. A foremost danger to collective pacts in Treaty area arises from Communist encouragement [Page 11] of “neutralism”. Soviet offensive cannot be countered by free countries increasing aid to Soviet recipients. Many free countries, particularly the U.S., were giving generous help before Soviets even thought of it. Economic offensive can be countered only by “cooperation within the free world”.

All SEATO countries share the U.S. view expressed by Mr. Dulles in recent speech at National Press Club Washington when he said “President Eisenhower’s letter to Chairman Bulganin should dissipate once and for all any impression that the United States does not want to negotiate, or is afraid to negotiate with the Soviet rulers”.5 It seems obvious Soviets have no intention of adhering to their theme of peaceful coexistence.

Communist propaganda support of anti-colonialism in Asia can be countered by adherence to spirit of Pacific Charter, by promotion of self-government and securing of independence of all countries whose peoples desire it and are able to undertake its responsibilities.

Philippines (Senator Sumulong):6

Vietnam a strong opponent of Communist aggression and subversion.

Situation in Laos more unstable and bears watching.

Trust that new Cambodian Government will be aware of Communist danger and follow Sihanouk’s expressed intention to counter sub-version.

Free China is Philippines closest neighbor to north. Its fall into Communist hands would place Philippines in grave danger.

Deeply concerned with fate of “blood-brothers” in Indonesia. But will remain completely neutral in this fight. Announced policy of non-intervention by Philippines should be followed by all other nations. However, distressed to learn Indonesian forces receiving Soviet arms and aid. Though not a SEATO member, Indonesia an important part of Southeast Asia. Indonesia lies along Philippines first line of defense. If Communists in control, subversion of Muslims on Philippine Island of Mindanao a serious threat. Physical penetration of Philippines possible due to inability of Philippine sea and air forces to patrol adequately.

Domestically Philippines attempting put own house in order by enforcement anti-Communist law and controls. Primary Philippine hope is for continued closer friendship with free nations.

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New Zealand:

Mr. Nash confirmed that the recently elected New Zealand Government considered SEATO relationships of greatest importance. Continuing exchanges by Council Representatives in Bangkok are of great value. While past year one of relative quiet in Treaty area dramatic developments elsewhere were of significance to SEATO. Soviets made large gains in scientific fields and armaments race. Developments tend give rise to feeling of despair. Ordinary people unable understand why nuclear tests cannot be ended and disarmament effected. But their expressed concern indicates the strength of freedom and democracy in contrast acquiescence Soviet people in all policies Soviet Government.

The very lack of freedom of Communist peoples to question policies will eventually stall progress of Communist powers. Failure of Soviet leaders to disclose facts to their people or grant them adequate rewards for the sacrifices which have made possible recent Soviet successes will work against them.

Soviet leaders fear war as the end of civilization but are prepared to use all other means to gain their ends. These include subversion, insurrection and political and economic penetration. Communists are aware that SEATO countries not vulnerable to overt propaganda or political or economic penetration. Accordingly they are concentrating on unaligned countries. Eventually these countries may “recognize the Trojan horse” and become suspicious of Communists bearing gifts. Economic and political penetration can be countered by free world aid given in genuine friendship. We must continue to best of ability to satisfy urgent needs of such countries. If their economies fall into chaos the need to regain stability will cause them to follow in steps of Russia and China.

The Treaty area in comparison with Middle East and North Africa is relatively quiet. Developments in Indonesia are of great concern to New Zealand but outsider should take part in this domestic problem. Whatever the outcome of present Indonesian situation, standard of living must be raised unless we wish to witness a complete Communist takeover. All Western nations should continue and expand their aid to this distressed country.

Indonesian claim to “territorial waters” worries New Zealand which has joined other countries in formally protesting this claim. Attempted arbitrary restriction of high seas by Indonesia is of direct concern to SEATO nations.

In Vietnam Diem is doing remarkable job with land reform and resettlement programs but will need economic aid for some time to come. U.S. is to be commended for its continuing assistance to free Vietnam.

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While recent developments in Laos are disturbing there is indication government becoming aware dangers inherent in Pathet Lao agreement. Believe Laotian Government taking steps to counter subversive activities. On this it should receive SEATO support.

New Zealand has close ties with Malaya and is gratified with work of new Malay Government. UK deserves tribute for preparing Malaya for self government.

Only real answer to Communism lies in raising standards of living, advancing education, and encouraging free labor organizations, efficient administration and democratic institutions. Destructive criticism or “mere exposure” of subversive aims and methods is no solution.

Emergence of Communist China as great power was reason for establishment of SEATO. SEATO has been effective in countering Chinese military threat. However, rise of China brings with it the delicate question of recognition of its government. Time eventually must come when we must face up to question of recognition. New Zealand is aware of serious consequences flowing from act of recognition and will face this problem with great deliberation. We cannot escape fact Peking Government will continue effective control of China mainland in foreseeable future. Its influence on events in Asia and Pacific will increase. Rapid growth of Chinese political power and accompanying pressures will affect SEATO profoundly. Settlement of outstanding Far Eastern problems may become impossible unless Communist China is made party to the settlement.

Member nations of SEATO must bring about a relaxation of present tensions by showing “flexibility” and recognizing just claims of others. Firmness must be coupled with patience.

Dulles
  1. Source: Department of State, Central Files, 396.1–MA/3–1258. Secret; SEATO. Drafted in the political section of the Embassy in Manila. Repeated to London, Paris, Karachi, Bangkok, Canberra, and Wellington.
  2. Held March 12, from 10 a.m. to noon.
  3. Secto 24 originally read “Castro;” it was corrected in Secto 16, March 13.
  4. Reference is to the SEATO Seminar on Countering Communist Subversion, held at Baguio, Philippines, and the Southeast Asian Round Table, a cultural exchange held under SEATO auspices.
  5. For text of Secretary Dulles’ address made before the National Press Club on January 16, see Department of State Bulletin, February 3, 1958, p. 159.
  6. Senator Lorenzo Sumulong, Vice Chairman of the Philippine Delegation and Chairman of the Foreign Affairs Committee of the Philippine Senate.