Foreign Relations of the United States, 1961–1963, Volume XXIII, Southeast Asia

181. Memorandum From the Assistant Secretary of State for International Organization Affairs (Cleveland) to Secretary of State Rusk⁰

Washington, July 24, 1961.

SUBJECT

• Proposed Course of Action on West New Guinea Problem

As you know, we have been discussing West New Guinea informally with the Dutch since the end of June.¹ We have reached what may well be an important turning point in our handling of this problem. Mr. Tyler, Mr. Steeves and I met on July 22² and we agreed on the course of action outlined in the attached paper, which we propose to initiate subject to your approval.³

Attachment⁴

THE SITUATION: WEST NEW GUINEA PROBLEM

1. We are exploring informally with the Dutch possible courses of action which might achieve a solution to this problem. It is clear that the U.N. offers the only practical means to this end.

2. The U.S. should not become engaged as a broker between the two parties to negotiate an acceptable resolution of the difficulty at least at this stage. At the same time, we should not be under the illusion that we can encourage the Dutch and Indonesians to take the matter to the U.N. and then divorce ourselves from further involvement in this case. It seems likely that we will be involved in this matter as the drama unfolds at the U.N. Further participation by the U.S. is essentially a question of timing which would have to be determined at a later stage.

3. We should within the next three days talk again with the Dutch and tell them precisely the type of resolution we think most likely to succeed at the U.N. as indicated in the attached draft. We would not, however, give them a piece of paper. We would also state explicitly that this suggestion does not constitute a U.S. commitment to support a resolution containing this language. We would add our understanding that the Dutch will discuss the problem with other U.N. members in terms of a draft resolution of their own which they will not attribute to the U.S. in any manner, although they may state that the U.S. has been informed of their activity. We would consider the discussion with the Dutch concluded for the time being.

4. On the strength of the letter from President Kennedy to Sukarno prior to the latter’s visit to Moscow, we have an obligation to discuss this subject with the Indonesians. We will inform the Dutch that it is our intention to initiate conversations with the Indonesians on an informal, exploratory basis. We will assure the Dutch that talks with the Indonesians will be bilateral and will not advert to the substance of our conversations with them. Hopefully, we will be able to educate the Indonesians to the necessity of modifying their rigid position. We will not undertake joint action with the Indonesians and will leave the talks relatively at the same position as that at which we will break off with the Dutch.

5. With both parties to the dispute presumably considering referring the matter to the UNGA, the U.S. will withdraw from active participation at this stage. We will assess the situation in light of developments between now and the 16th Session to determine what future action may be necessary in our interest.

6. Our discussions with the Dutch have indicated their concern that the Australians be brought into the picture at an early stage. We agree that this is desirable and would recommend that an early opportunity be sought to have a full and frank bilateral review of the West New Guinea situation with the Australians. We would, inter alia, inform them of our talks with the Dutch, and our thinking as to the future. Before talking to the Australians, however, we would inform the Dutch of our intention to hold such bilateral talks.

Attachment⁵

DRAFT RESOLUTION ON WEST NEW GUINEA

The General Assembly,

Having considered item————of its Agenda entitled—————;

Recalling its resolution 1514 (XV) adopted on December 14, 1960;

Bearing in mind the functions and powers of the Assembly under Chapter IV of the Charter and, in particular, the provisions of Article 14 regarding the recommendation of measures for the peaceful adjustment of any situation which it deems likely to impair the general welfare of friendly relations among nations;

Bearing in mind also Chapter XI of the Charter, according to which the Members of the United Nations which have responsibilities for the administration of territories whose peoples have not yet attained a full measure of self-government have recognized the principle that the interests of the inhabitants of those territories are paramount;

Recognizing the desirability of having a full and impartial report on the present conditions in the territory and on the possibilities for determining its future status;

1. Decides to establish a Committee composed of [Argentina, Burma, Denmark, Malaya, Nigeria and Japan];⁶

2. Requests the Committee to consider the question of Western New Guinea, and the conditions in the territory, and to make report to the General Assembly at its seventeenth session as to how this question may be resolved in accordance with the Charter.

0. Source: Department of State, Central Files, 656.9813/7–2461. Secret. Drafted by Beaudry and cleared by Tyler and Steeves. Cleveland proposed this course of action to McConaughy and Tyler in a memorandum of July 21. (Ibid., 656.9813/7–2161)
1. Additional discussions took place among Netherlands Chargé Schiff, Tyler, and others on July 14, 26, 28, and 31. (Ibid., 656.9813/7–1461, 656.9813/7–2761, 656.9813/7–2861, and 656.9813/7–3161, respectively)
2. No substantive record of this discussion has been found.
3. U. Alexis Johnson approved for Rusk.
4. Secret.
5. Confidential.
6. Brackets in the source text.