Foreign Relations of the United States, 1955–1957, Near East Region; Iran; Iraq, Volume XII

124. Telegram From the Embassy in Iran to the Department of State¹

Tehran, April 18, 1956—11 p.m.

1631. Baghdad Pact from Head US Delegation. Third meeting second session Baghdad Pact Ministerial Council held 1000 today. Meeting devoted to review international situation. Heads delegations read prepared statements with single exception Turk who announced he would make his statement at his afternoon’s restricted session. Summaries of various statements follow:

1. Iranian Hosein Ala expressed his gratification at progress made in organizing BP since Ministerial Council meeting in Baghdad and his hope that existing difficulties re Secretariat may soon be removed. He also expressed his pleasure US Government’s adherence to Economic Committee. Pact in his view must achieve two interrelated objectives (a) increase defensive capability of member states in order to be able deter aggression and (b) take effective steps improve conditions of people and raise their standard of living. Fact is however that most member countries, Iran included, lack means move towards both objectives simultaneously. Ala felt those powers who assist free countries might usefully pay greater attention to BP members and that increased aid to neutralists can only cause doubts among members. True and loyal allies, Ala insisted, should be recognized.

Speaking of Middle East situation, Ala stated Iran had voted for SC resolution sending UN Secretary General Hammarskjold to area to try to make peace. He hoped Hammarskjold would be able help and “facilitate application of UN decision”. Great powers he stated had no right seek impose solutions to Middle Eastern problems unilaterally. Elsewhere in the Middle East it seemed to him there had been some improvement and he rejoiced at independence of Morocco, Tunis and Sudan. Algerian problem however still required solution. He believed UN would be strengthened now that 16 new members admitted and expressed hope peace-loving nations might be able reach agreement on armaments in order eliminate danger of war. Iran, he said favored plan for mutual supervision. He hoped too that atomic energy might in future be increasingly diverted from wartime to peaceful uses.

Iran, Ala continued, sparing no effort to cooperate and has adopted its own internal program including:

(A) Balancing budget which it is hoped can be done in 3 years time;

(B) Educational program to wipe out illiteracy;

(C) Encouraging public health and sanitation;

(D) Prohibiting production, use and distribution opium;

(E) Modernizing agricultural methods;

(F) Encouraging development of industries and mines.

He emphasized however that success of program depended upon foreign capital and know-how being combined with Iranian capital and manpower.

He concluded by urging greater contact among member states and settlement of their outstanding problems by negotiation.

2. Iraqi Nuri Said first alluded to danger of Communist subversion in ME area pointing our recent Soviet tactics do not portend any real change Communist policy. Efforts of Communists still directed at attacking BP which had been organized pursuant Article 51 UN Charter and is based upon legitimate right of self-defense. Communists he said are exploiting Syrian, Egyptian, Arab-Israel and Palestinian refugee problems for their own ends and are now even hinting at possible Soviet Moslem volunteers to assist Arabs. Soviets also offering military aid to various states in area. He concerned lest tragedy of Korea and Indochina be repeated here. Recent strike among oil employees in Syria and weak attitude adopted by Syrian authorities towards strikers was one such instance which could serve only Communist interest. Nuri stressed need for immediate adoption of measures to combat subversion but urged that these measures take into account deep-rooted grievances of ME which Communists are now able exploit, viz: Palestine, Algeria, Kashmir, Pushtunistan problems. Although pact basically defensive Nuri felt its economic aspects are growing in importance and that public opinion in pact member states wants see progress in both these spheres. Indigenous resources however inadequate to meet both military and economic commitments of member countries. He hoped therefore outside economic and military aid might gradually be increased.

Nuri next recalled that Iraq had invited Ministerial Council’s attention to Palestine problem at pact session in Baghdad and stated danger had grown since that time. Israel he charged had been found guilty by SC several times and had ignored UN resolution of 1947 as well as orders of UN truce observers. There were rumors too that Israel planning early large scale offensive in order present West with fait accompli. Unless UN resolutions can be enforced Palestine (including refugee) problem remains fertile ground for Communist exploitation. Re Algerian issue Nuri decried French policy there and suggested France follow more reasonable course avoiding use NATO for purpose having no connection with NATO’s real objective. France he felt should at early stage arrive at settlement along lines achieved in Tunis and Morocco.

Great powers in NATO must use their influence with France to induce latter adopt more peaceful and realistic policy. Nuri then turned to Kashmir issue and expressed his conviction that Kashmiris should be allowed determine their own destiny pursuant right of self-determination. SC resolution on subject, he felt, should be implemented. UN Palestine and Kashmir resolutions in his view stand as acid tests for future of UN. He also believes Pushtun problem should be solved peacefully on basis historical and legitimate right which had devolved upon Pakistan. All these problems, Nuri reiterated, provide subversive elements with exploitable material and prevent pact member countries from concentrating on objectives of pact.

He next referred to peaceful aims of BP and to malicious campaign to which it subjected in area. Soviet and neutralist propaganda, he charged, have from outset sought to misrepresent to public pact’s peaceful intentions. All member countries, and Iraq in particular, have been subject to such attacks, some of which have even come from “great leaders” in nearby countries who have failed take into account that particular circumstances may require particular policies. He regretted too that some responsible elements of the Western press had also attacked pact. Communists, Zionists and neutralists are united in this purpose. Attacks facilitated by naivete “certain country” which squandering its oil wealth to provide support for destructive elements. Nuri concluded by expressing hope that equipment and technical assistance from West will be forthcoming to meet member states’ deficiencies and stated member states impatiently waiting for us to join pact as full member.

3. Pakistan’s Mohamed Ali alluded briefly to remarks made earlier by Ala re need for increased defensive capabilities, productive capacities and outside assistance to accomplish pact objectives. He, too, expressed pleasure over Moroccan, Tunisian and Sudanese freedom. Re Algeria, he hoped French statesmanship might rise to situation and that Algeria would soon join ranks of countries like Morocco and Tunis.

Mohamed Ali then examined what he called new phase Soviet diplomatic activity special target of which seemed be ME. Soviet campaign, he pointed out, now spreading gospel peace and friendship, warning that third world war will only bring universal destruction. Soviets likewise willing become supplier of capital goods and arms to any nations that will take them. At same time, they urging Asiatic states refrain from joining BP, charging that it aimed at aggression against USSR. Asiatic nations urged be neutralists if they would win Soviet friendship. Neutralists, he explained, who are drawing on certain existing anti-Western sentiment in area and seeking spread gospel “Asia for Asiatics” are most effective exponents Soviet line. Their propaganda has much greater effect than outside Communist propaganda since it comes from neighbors who know local mentalities. Neutralist propaganda has likewise had some effect on certain press elements in both US and UK. Such neutralists’ propaganda, he insisted, must be met if pact is to be successful. To meet it, however, it will be necessary provide tangible evidence that BP is serving best interests of region. Neutralists’ propaganda, he continued, exploiting Arab-Israel dispute. It would, therefore, be tremendous factor for peace if Arab-Israel dispute could be solved in accordance with UN resolution. Afghanistan’s policy also represents serious problem to whole region and Council might rightly concern itself with seeking solutions for it. Re Kashmir, UN resolution calling for plebiscite should be implemented if that dispute is to be resolved. Meantime existing Pakistan-India tension makes heavy demands on defensive capacity of Pakistan and precludes Pakistan making full contribution to objective of BP. Pakistan, he recalled, has sought resolve Kashmir problem by direct negotiations but without result.

If BP to be made living factor members should coordinate policy in all matters affecting security and prosperity of region and then pursue such policy with vigor and determination without fear of offending any country or group of countries.

Mohamed Ali concluded by reiterating his pleasure that US had become full member Economic Committee and stated he, too, looked forward to day when US becomes full member.

4. British Monckton next gave brief review UK position. Central point of interest to UK, he said, is continued expansion of USSR in all fields and finding adequate means contain it. While Soviet tactics may recently have changed British do not feel there had been any alteration in ultimate Soviet strategy. He doubted that Soviets would start war now or later but felt reason for this probably belief on part USSR that its objectives can be attained without risk entailed in open conflict.

Execution of Soviet intentions likely be continued by economic and political penetration as well as by subversion. When European unity had checked Soviet efforts, latter turned to ME where it was now exploiting such things as existing disparity of wealth, anti-Westernism and intra-area resolves.

Turning to current Bulganin-Khrushchev visit to UK, Monckton admitted there had been some misgivings on this score but stated it finally decided some advantage could perhaps be made of visit by allowing Soviet leaders see British strength, self-confidence and belief in freedom. He promised that when visit concluded BP members will be given account of it.

Re Europe, Monckton stated UK feels principal preoccupation there is Germany and dangers inherent in failure thus far effect its reunification. Re Cyprus, UK believes order and security must first be restored and terrorists eliminated before constitutional issues can be discussed. Britain regrets that this policy had caused difficulties with Greece but is convinced there is no alternative.

He passed over Arab-Israeli problems quickly merely emphasizing that UK recognizes need for peaceful settlement and that Eden’s Guild Hall speech had given some indication of Britain’s thinking on subject. Eden, he recalled, had mentioned UN resolutions.

Re Algeria, Monckton said Moroccan and Tunisian settlements have shown that France gradually coming around on North African issue. Problem complicated by large French element in Algeria but UK hoped that after order restored there and elections have been held negotiations to effect settlement may take place.

Monckton observed that some states of Middle East were opposed to BP and that Egyptian propaganda combined with Saudi Government actively attacking it. British are countering this wherever necessary but do not feel full-scale publicity war against Egypt desirable. He thought something might perhaps be done convince Saudi Arabia of folly tying itself to Egyptian ambitions and that wedge may in this way ultimately be inserted between them.

Re Jordan, UK regretted Glubb’s dismissal and circumstances surrounding it but feels that interests of all can best be served if Arab Legion is maintained as a useful fighting force. He admitted, however, that this might not be easy.

He said he preferred discuss Afghan problem at restricted session this afternoon. As for Kashmir, he believed Pakistan Prime Minister understood problem. UK anxious seek settlement but both Pakistan and India are members of Commonwealth and Britain does not wish discuss merits of case affecting two such members.

Continuing extemporaneously, Monckton emphasized it essential free world retain capability retaliation with overwhelming nuclear power against any Soviet surprise attack and explained UK planning for this by adding thermonuclear bombs and strategic bombing increment to its military forces. He emphasized too importance of what he called “complementary deterrent to global war” in form building shield of air, land and sea defenses along Soviet frontier. UK, he said, will maintain overseas bases and garrisons as well as necessary communications connecting them in order be able to contribute effectively to defense. It likewise establishing strategic reserve in UK available for quick transport by jet aircraft to any troubled area. He concluded by stating UK ready to discuss any disarmament proposal put forth by Soviets in genuine spirit but would not be lured into relaxing its efforts until real sincerity of Soviets evident.

5. I spoke next. After expressing my pleasure be able participate in this review of international developments I emphasized that we aware BP under attack and wished, therefore, reaffirm assurance already given by highest officials of USG of strong US support for pact. I said we believe along with pact members that it represents most effective grouping for area defense and that maintenance of sustained and strengthened pact organization is of great importance both to countries of area and to free world. Referring to participation of American military observers in discussions affecting common defense of area and to Seager’s review of economic measures which we may be able take in common and bilaterally, I expressed hope that such measures would demonstrate to other nations in area significance and value of our cooperation. I stated US had studied carefully reports of Gallman and other observers to pact committees and looked forward to increased participation in pact deliberations during months to come. Referring to bilateral cooperation which we currently enjoying with member states, I said we beginning increasingly consider this bilateral cooperation to be directly related to US support of Northern Tier collective security arrangement.

I then alluded to security arrangements which US already has with various member states and said we hoped assist member governments build up effective military forces by furnishing equipment and training without overburdening local economies with military costs which would weaken their economic strength so essential to effective defense. I warned that Soviet bloc intentions and current Soviet tactics had unfortunately succeeded in lulling some into belief that change had occurred in Soviet thinking. Fallacy thereof shown by Soviet day-to-day activity. Soviet rulers merely seeking new means to obtain identical goals. It behooves all free nations therefore keep up guard against Soviet threat.

Situation in certain Middle Eastern areas had deteriorated since first Council meeting. Two interacting factors might be distinguished in this: (A) Intensification Soviet activity and (B) further growth of false nationalism accompanied by irrational neutralism. Result was that some countries had been weakened and had become increasingly susceptible to Soviet Communist intrigue. Leaders of certain countries apparently willing reply [rely?] on Soviet promises [garble] to achieve success. In doing so however they unleashing forces whose purpose is to devour their own country and erode security of neighbors. Road of pact I felt was steep and narrow but [garble] solid path marked by realistic awareness and constant attention to Soviet maneuvers. Progress along road requires constant and increasing cooperation and cohesiveness as well as avoidance of illusion that either neutralism or extremism offers anything but a mirage of success. Full text will be pouched. Meeting adjourned 1215.²

Chapin

1. Source: Department of State, Central Files, 780.5/4–1856. Secret. Repeated to Karachi, London, Ankara, Baghdad, Rome, and Paris.
2. The sixth and final meeting of the second session of the Ministerial Council of the Baghdad Pact was held on April 19. A report of the meeting was transmitted to the Department of State in telegram 1642, April 19. (Ibid., 780.5/4–1956) For texts of the final communiqué, released on April 20, see Department of State Bulletin, May 7, 1956, pp. 753–754. For texts of statements made by Loy Henderson on April 17; by Cedric Seager at the closing session of the Council’s Economic Committee on April 11; and by Loy Henderson on April 20, see Ibid., pp. 754–756.