Foreign Relations of the United States, 1951, Korea and China, Volume VII, Part 2

611.93B/5–2451

The Chargé in India (Steere) to the Department of State

secret
No. 2891

New Delhi, May 24, 1951.

Subject: Relations Between the United States and Tibet

I have the honor to enclose a summary, as well as memoranda of conversation,¹ regarding relations between the United States and Tibet, which resulted from a visit recently made by an Embassy officer² to Kalimpong in West Bengal.

Although I realized that the Consulate General in Calcutta has been able to maintain association with Tibetan authorities from time to time, the Embassy’s direct knowledge of developments in Tibet and acquaintance with Tibetan authorities has been limited in recent months because of the Communist Chinese invasion of Tibet and because Tibetan representatives now refrain from visiting New Delhi for fear of becoming entangled with the Communist Chinese Ambassador here. In order to re-establish our relations with Tibetan officials and to clear up a number of outstanding questions, such as the export of Tibetan wool to the United States and the purchase of gold by Pangdatshang,³ I considered it advisable to dispatch an officer from the Embassy to Kalimpong. Such visit would also provide an opportunity to counteract recent reports which indicated that important Tibetans were of the belief that the United States had no interest in their welfare and therefore the Tibetans had no recourse but to accept the demands of Communist China.

It is believed that the Department will find the enclosed summary and memoranda of conversation of great interest. It is also believed that the visit of an Embassy officer to Kalimpong at this particular time has had a salutary effect on Dzasa Liushar, the Foreign Secretary, and on Yangpel Pangdatshang, the elder brother of one of the most important families of Eastern Tibet and one of Tibet’s wealthy exporters of Tibetan wool.

It was discovered, for example, that while the Tibetan authorities were in the midst of discussions with the Government of India regarding the applicability of an Indian export duty on Tibetan wool, reports had been received that the United States was no longer interested in importing Tibetan wool. As the export of wool is a matter of the highest importance to the foreign trade of Tibet and one on which substantial numbers of the Tibetan people are dependent for a livelihood, the Foreign Secretary was greatly concerned. It was his belief, if the reports were true, that the American restrictions indicated, as did other things, that the United States was no longer interested in Tibet.

It was also reaffirmed that, because Tibet had received no response from the United Nations and some of its member states with respect to its appeal⁴ regarding Communist China’s invasion of Tibet in October 1950, the Tibetan authorities had fallen into a dejected and fatalistic frame of mind and appeared to be convinced that they would have to accede to the demands of Communist China regarding Tibet. Although precise information was difficult to obtain, it seemed likely that Communist China was insisting on control over all of Tibet. Tibet, on the other hand, appeared willing to make every concession, including such important attributes of sovereignty as defense, external affairs and communications, except autonomy for internal affairs.

According to the Foreign Secretary, the Tibetan Delegation, which recently proceeded to Peiping, was on the eve of its talks with the Communist Chinese. It was his belief that, even if the talks were to Tibet’s disadvantage, Tibet would in the long run emerge unscathed. Tibet really desired its full independence and close relations with the United States. Meanwhile, it was the Foreign Secretary’s hope that we would not be disheartened by little actions which they might be forced to take.

In reply to Dzasa Liushar’s statements, he was immediately informed that we were not aware of any important change with respect to the import of Tibetan wool into the United States but was promised that the situation would be investigated at once. Reference is made in this connection to the Embassy’s telegram 3258 of May 17, 1951,⁵ in which the Foreign Secretary’s remarks were reported and it was requested that the Department discuss this matter with the Department of Commerce and the Treasury Department. Since the dispatch of this information, the Embassy has learned that associates of Pangdatshang in Calcutta have received reports from American importers in Boston that Foreign Assets Control regulations have been altered and now require statements from Tibetan exporters and American importers to the effect that they have no cause to believe that specified shipments of Tibetan wool have come from those sections of Tibet which are under the control of the Chinese Communists. As this does not appear to be the case, the Tibetan wool exporters in Calcutta state that they believe Tibetan wool will continue to go forward to the United States as usual.

Meanwhile, however, the Indian export duty of 30% has so cut the margin between cost and sale price of approximately $1.00 per pound that Tibetan wool may be held up for a strictly economic reason. It is recalled, on the other hand, that the Tibetan authorities have already approached the Government of India regarding this matter and they may be able to obtain exemption or set up some form of bonding arrangement. The Embassy, for its part, plans to lend such assistance as is proper to the Tibetan authorities in achieving this objective.

The Foreign Secretary was also informed of the interest which the United States had manifested with respect to its international problems. The statements of United States interest in the continuance of Tibetan autonomy and sympathy regarding its appeal to the United Nations, based on previous instructions from the Department, were recalled and reiterated. It is believed that the Tibetan authorities appreciate the significance of these statements although, for reasons of geography and proximity to the new military power of Communist China, they feel they cannot take advantage of them and rely entirely on the United Nations at the present time.

The Embassy remembers that the Department has in the past expressed the opinion that despite the lateness of the hour it does not believe that Tibet should be lost by default. There seems little doubt that it would be most unfortunate not only for the forces of freedom but also more immediately for India if Tibet were woven into the fabric of Communist China. Remote and unimportant as Tibet may seem to the western mind, it nevertheless occupies a strategic and geographic position to the north of the Himalayas from which countries as far east as Indo China and as far west as Pakistan could become the object of Communist propaganda and infiltration. From Tibet, India—the most important country in Southeast Asia—would be constantly menaced. It therefore seems to us that we should exert every opportunity to be of assistance to Tibet. It is our belief that such assistance will be small and relatively insignificant in comparison with assistance which the United States is supplying elsewhere but that it will yield exceptional benefits. It is therefore suggested that the Department give immediate consideration to various lines of action including the following:

1. The removal or simplification of regulations with respect to the import of Tibetan wool into the United States.

2. Study of the possibility of whether an American market might not be developed for other Tibetan products.

3. Study of the possibility of the preclusive purchase of those strategic Tibetan products which might go to Communist China.

4. Possibility of including Tibet in present programs and proposals of economic and financial assistance for non-Communist China and South Asia.

5. Publication in proper form at a proper time of a statement by the United States Government with respect to its recognition of the autonomy of Tibet.

6. More frequent visits by American representatives to Kalimpong in India for informal liaison with the Tibetan authorities there.

7. The provision of information through USIE to the Tibetan authorities at Kalimpong and assistance to Tharchin, the proprietor of the only Tibetan newspaper.

8. The offer of educational facilities in the United States to Tibetan students.

9. Further consideration of United States willingness to supply military assistance to Tibet if Indian regulations and laws permit.

10. Further support for the Tibetan appeal to the United Nations regarding the Communist Chinese invasion of Tibet.

Subsequent discussion with Tibetan officials in Calcutta on May 24 indicates that the Tibetan-Communist Chinese talks in Peiping were on the verge of a deadlock. This discussion is the subject of an additional despatch which will also be summarized by telegram to the Department.⁶

The contents of this despatch and its enclosures have been discussed with Ambassador Henderson at Mussoorie and have his approval.

Loyd V. Steere

1. The enclosures are not printed.
2. Fraser Wilkins, First Secretary of Embassy in New Delhi.
3. Yangpel Pangdatshang was endeavoring to purchase gold on behalf of the Tibetan Government.
4. Tibet had appealed to the United Nations on November 13, 1950, regarding the Chinese Communist invasion but the United Nations did not discuss the question.
5. Not printed.
6. See telegram 3398 from New Delhi, May 29, p. 1687.