690D.91/3–1453
Memorandum by the Assistant Secretary of State for Near Eastern, South Asian, and African Affairs (Byroade) and by the Assistant Secretary of State for United Nations Affairs (Hickerson) to the Secretary of State
Subject:
- Attached Memorandum for the President on Kashmir.1
For five years attempts have been made to resolve the India–Pakistan dispute over Kashmir through the Security Council. Dr. Graham, the UN Representative, recently concluded conversations in Geneva which produced no progress since both parties held firmly to their established positions. Without prejudicing further UN action, we believe it is time that a new and fresh approach be undertaken.
A proposal for the partition of Kashmir between India and Pakistan made by a special emissary of the President would provide such a new approach. It is believed that the emissary should conduct his discussions in privacy and secrecy. He should proceed to the subcontinent for some unrelated purpose and should be of sufficient stature so that he would have easy access to the Prime Ministers of India and Pakistan and be listened to by them. Thus he should be a man of influence within the present Administration. Although his mission would appear to be non-official he should be able to inform the two Prime Ministers that he had the blessing and full support of the President in making an attempt to settle the problem. Mr. Paul Hoffman appears to fit these requirements. Furthermore, the Ford Foundation has achieved remarkable success in India and Pakistan and, as the president of that organization during the achievement of this record, he should be very well received in both countries.
Mr. Hoffman, or some other emissary if he is not available, could be given a preferred plan for the partition of Kashmir. He would also be given alternative proposals and informed that any solution for which he could obtain the agreement of the parties would be acceptable to us. He should in fact be given the broadest flexibility in the manner of approach, in the discussions which it is hoped would follow, and in the specific terms of the solution. We will have suggestions for the emissary at the appropriate time. During the period the emissary is consulting with the parties, we will discourage Security Council action so that failure of a partition proposal will not preclude continued efforts thereafter within the framework of the UN.
The attached memorandum to the President requests his approval of a course of action involving proposals to partition Kashmir and suggests that he ask Mr. Hoffman to accept the assignment. Late March or early April appears to be the preferable time for making the approach in the two countries.
Recommendations
- 1.
- That you approve the above course of action subject to consultation with Ambassador Lodge. You may wish to undertake this consultation; if not, we will undertake the consultation, if you so desire.
- 2.
- Following this consultation, that you transmit the attached memorandum to the President and discuss the proposal with him.