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

216. Memorandum of Conversation⁰

Washington, December 22, 1961.

SUBJECT

• Latest Instructions from Dutch Government Regarding Negotiations with Indonesia over West New Guinea

PARTICIPANTS

• For the Netherlands:
  • Ambassador van Roijen, Netherlands Embassy
  • Mr. Schiff, Minister, Netherlands Embassy
  • Mr. Huydecoper, Counselor, Netherlands Emb.
• For the United States:
  • Governor Harriman, Assistant Secretary for Far Eastern Affairs
  • James E. Bell, Director SPA
  • Joseph J. Sisco, Director UNP
  • Arthur B. Emmons, Deputy Director SPA
  • Galen L. Stone, OIC, Swiss Benelux Aff.

Ambassador van Roijen said that he was happy to say that he had received an answer from his government indicating that they have decided they would be prepared to drop the precondition that the talks would be on the basis of providing the inhabitants of West New Guinea with a voice in their own future.¹ The Dutch Government would, however, of course, stick to the principle of self-determination in negotiations with the Indonesians. Furthermore, the Government now really felt that they have done the utmost to show reasonableness. The Ambassador felt it was now about time that the Indonesians made some concessions since up to the present they hadn’t budged an inch. He said he had passed on to his government Governor Harriman’s suggestion that the Dutch Government come up with a number of suggestions of countries who might participate in the talks as a third party. This suggested list might then be passed to the Indonesians who would be given the opportunity of selecting from among them. He said the government was at the present time considering this request. At the moment he had not received a reply.

Foreign Minister Luns had just returned to The Hague from the meetings of the Common Market countries in Paris and the first Cabinet meeting following his return would take place today and tomorrow. There was, of course, no question of dropping the Dutch insistence on third party representation at the talks. Governor Harriman inquired if there had been any indication received at all as to who the Dutch would prefer as a third party. Ambassador van Roijen said as yet he had received no indication. The Dutch Government had not expressed any preference for a participating third party. The only thing that was certain was that the Dutch would wish a third party to be present. This could be, as stated earlier to Mr. Tyler, either representatives from the Decolonization Commission of 17, the President of the Assembly Mongi Slim, the Acting Secretary General of the UN, U Thant, or some other country or countries outside the UN context.

Mr. Bell said that he had discussed this matter with Ambassador Subardjo in New York and that he had expressed opposition to any participation from the Commission of 17 since this would mean bringing the United Nations into the negotiations. From the Indonesian viewpoint they felt that the United Nations had not been particularly helpful to them during the recent General Assembly consideration of the problem, and they would prefer, therefore, that any such representation be outside the UN context.

Governor Harriman said he was very grateful to Ambassador van Roijen for this very prompt answer to his request that the Dutch Government agree to talks without preconditions. He felt that it would be very helpful if the Dutch Government were able to indicate several countries that would be acceptable to them as a third party in any negotiations. He reminded the Ambassador that he had asked that the United States use its influence to curb the inflammatory statements that are coming out of Djakarta, and informed the Ambassador that at the time he had made this request he had told him that while we would do our best we could not make a commitment that these efforts would be successful. We were not in a position to exert any particular control over the activities of President Sukarno. He said he was afraid that today’s ticker reports carried further evidence that the Indonesians were continuing their belligerent statements. Ambassador van Roijen noted that the ticker reports indicated the Indonesians appeared to be maintaining their preconditions that talks be on the basis of transfer of administration of the territory.

Governor Harriman said that he fully understood the view of the Dutch Government that if they agreed to enter into talks with the Indonesians without preconditions the Indonesian Government must agree to enter talks on the same basis.

He said he would not pass the Dutch Ambassador additional ticker reports, in order not to increase his blood pressure. He regretted that he had to show him such statements in the first place. He felt that the time had come for us to transmit to Ambassador Jones in Djakarta the very generous position that the Dutch Government had decided to take. Ambassador van Roijen said he hoped that in presenting the Dutch position Ambassador Jones would take the opportunity to point out that it is now up to the Indonesians to take some constructive steps and to emphasize that inflammatory statements such as those that have recently been made in Indonesia are hardly conducive to the start of negotiations.

Governor Harriman said he had been much impressed by the way that Ambassador Jones was handling the situation. He was convinced that he was doing as well as we could possibly expect in the circumstances. Ambassador van Roijen said that in negotiations the question of self-determination would undoubtedly arise and it was, of course, understood that the Dutch would do all they could to adhere to the principle of self-determination. Perhaps, however, rather than addressing themselves to this principle during the initial phase of the negotiations, it would be better to try and reach agreement on the matter of the structure and set up of the interim authority which would assume control over the territory. Governor Harriman said he was glad to hear the Ambassador express this point. He felt that by approaching the negotiations in this matter the Dutch might well achieve what they are after, yet at the same time not have a head-on confrontation with the Indonesians. Ambassador van Roijen said that even Subandrio realized that there would have to be some form of interim administration. He said that the Indonesians should expect very definite resistance on the part of the New Guinea people and he referred to the statements made in the New Guinea Council. Governor Harriman said he hoped that this matter can now go forward and that the Dutch objectives could be achieved. He sincerely hoped that this matter could be resolved peacefully.

Ambassador van Roijen asked whom he should contact in the event he receives further word from his government regarding the particular third party that they would like to have attend any talks. Governor Harriman said he hoped to get away to join his family for the holiday but that the Ambassador could get in touch with Mr. Tyler. He reiterated that we would make clear to Ambassador Jones the importance the Dutch attached to the third party being present at the talks.

Note: Upon his return to the Dutch Embassy van Roijen called Governor Harriman before he departed to advise him that a further telegram had been received from The Hague indicating that the Dutch preference for third party participation in any talks with Indonesia was as follows:

1) United States, 2) Secretary General of the UN, U Thant, 3) President of the General Assembly, Mongi Slim, 4) one or more countries outside of the UN context.

Ambassador van Roijen said that the Dutch understood the reluctance of the United States to take over the role of the third party, however, the US was the first choice of the Dutch Government. Governor Harriman pointed out that this was a role that the US did not wish to assume. Ambassador van Roijen said he understood this and indicated that with regard to a selection of countries outside of the UN context, that the Dutch Government would gladly accept the formula of three countries, one each to be selected by the Netherlands and Indonesia, and the third to be chosen by the two countries selected.

0. Source: Department of State, Central Files, 656.9813/12–2261. Secret. Drafted by Stone and initialed by Harriman.

1. Van Roijen and other Dutch Embassy officials met with Harriman, Tyler, and other Department officials on December 19 and 20. In both discussions Harriman and Tyler pressed van Roijen to take advantage of the window of opportunity to solve the issue of West New Guinea. According to the memorandum of the December 20 discussion:

   “Governor Harriman said that he had just received a message from the President emphasizing that the role we would like to play is one of assisting in establishing the procedure and framework under which talks would take place. It was hoped that the Dutch would not put any prior conditions on the initiation of such talks, since if they did so we were quite sure that the Indonesians would come up with their own prior conditions. Furthermore, as the Dutch condition was self-determination, he thought the Indonesians would come to ask for it voluntarily. As a friend, therefore, he urged that the Dutch put that pre-condition aside as a principal point.” (Memoranda of conversation; ibid., 656.9813/12–1961 and 656.9813/12–2061)