PAKISTAN AND THE BANGLADESH WAR

The Indian Perspective

Tremendous though it was at the time, Indira’s power did not attain its peak with the unexpected and overwhelming electoral victory she won for her party in the beginning of 1971. In the following twelve months, she was to face a challenge much bigger than the one the Congress party “Old Guard” had posed, and her remarkable success in tackling it was to impress the world and turn the substantial but routine political support of her own people into what was for many months real, if sometimes frenzied, adulation. The threat to India’s security came from its neighbour and old adversary, Pakistan, but because of the way the situation developed in the subcontinent the United States and the Soviet Union, particularly the former, also got deeply involved, politically and diplomatically, in the conflict.

About the time Indira and her supporters in India were jubilantly watching the announcement of the parliamentary election results, Yahya Khan, Pakistan’s military dictator, and other leaders in that country were confronted with an unnerving situation that threatened to split their country governmentally as drastically as it was split geographically. Yahya Khan had come to power in Islamabad in March 1969, following a coup against his predecessor Ayub Khan. Yahya Khan had promised to hold elections and restore normal political institutions—some, including free elections and an uncontrolled press, abolished as far back as 1958. The general elections held in fulfillment of that promise gave the majority in the Pakistan National Assembly to the Awami League, the dominant party in the country’s distant eastern wing, 1,000 miles away across the intervening territory belonging to India. This party, led by Sheikh Mujibur Rahman, was committed to securing maximum autonomy for East Pakistan. Not surprisingly, the prospects of a national government headed by Sheikh Mujib and autonomy for East Pakistan deeply agitated the ruling groups in West Pakistan, which had until then enjoyed power and economic benefits almost exclusively.

Plainly, Yahya and those who supported the junta had not visualized such a development. (While visiting Islamabad, Henry Kissinger, was asked by a half-drunk Yahya Khan at a banquet, “Do you think I am a dictator?” Reportedly, the U.S. national security adviser quipped, “Mr. President, for a dictator you run a lousy general election.”) Efforts at a compromise between the Awami League and Zulfikar Ali Bhutto who had emerged as the principal leader of the western wing, failed. Yahya then sent several divisions of Punjabi troops to Dacca, the capital city of East Pakistan. There ensued a barbaric attempt to put down the largely Bengali, protesting citizenry, Hindu and Muslim alike. As all those who understood the Bengali mind, but as Yahya Khan apparently did not, the brutal use of force by their countrymen, instead of overawing the East Pakistanis, stiffened East Pakistan’s resolve to end the western wing’s dominance.

Mujib and some other Bengali leaders were arrested. Many others eluded Yahya Khan’s police, however, and went underground in East Pakistan or across the border in India. And as a ragged but fiercely determined guerrilla force came into being, the Awami League’s ultimate objective changed from autonomy within Pakistan to complete independence for the 75 million people in a country that now tentatively adopted for itself the name of Bangladesh.

Mrs. Gandhi vehemently denies the Pakistani charge that the Bengali uprising drew its inspiration from and what was later sustained by India. “India had no part in the internal development of Pakistan—West or East,” she says. The sympathy of the Indian Government however, as well as of the public undoubtedly was with Sheikh Mujib. Pakistan’s Western wing leaders had trod on Indian toes so frequently since the partition of the subcontinent that to see them discomfited and to consider the possibility of Pakistan’s breakup as a nation caused widespread satisfaction in India. Furthermore, at a later stage of the liberation movement, the Mukti Bahini, or Freedom Fighters, received considerable help from India in training and equipment. But in March 1971, when the conflict began, India was distinctly not involved in what Indira described as the “battle that Pakistan was waging against its own citizens.” Those close to Indira testify that there was no link—direct or otherwise—at that time between Indira or any of her authorized representatives and Sheikh Mujib—if for no other reason than she was too deeply engrossed in her own political survival to mastermind a revolt in a neighbouring country. She was then still fighting her political opponents at home with grim earnestness, and so complete was her involvement in that battle that she deferred attention to all other matters, however pressing. While the political drama in Dacca was moving to its bloody second act, Indira was engaged in the hectic election campaign during which she travelled over 40,000 miles. On many days, she was at places deep in the interior of the country where news of what was happening in East Pakistan often did not even reach her.

The Pakistani Army’s vicious crackdown in Dacca began as Indira, after celebrating her victory in the elections, was getting her new government in Delhi on the rails. Most of the Western newsmen who congregated in Dacca to watch Pakistan’s constitutional tussle work itself out were forcibly prevented from witnessing the atrocities that the West Pakistani troops were ordered to commit in the hope of terrorizing the Bengali populace into submission. But before the Military Governor of East Pakistan summarily debarred the press—no exception was made even in the case of correspondents from traditionally pro-Pakistani conservative papers in Britain and the United States—many visiting newsmen had seen enough of what was beginning to occur or evidence of the earliest atrocities to write dispatches that made their readers’ stomach turn. In the organized burning of villages, destruction of crops, mass shooting of innocent people (whose bodies were left to be devoured by vultures), and the rape of tens of thousands of Bengali women, many Western reporters saw terror equaling, perhaps surpassing, that which the Jews had suffered in Hitler’s Germany.

It was inevitable that the Indians would be much more deeply affected by the gory developments in and around Dacca than were people living continents away. Dispatches from British and American newspapers were reproduced in the Indian press, but Indians had even more graphic and moving accounts of what was happening from those East Pakistanis who began crossing into India by the thousands before the Pakistani Army’s “campaign” was a month old. Despite the barrier that partition had erected between them, Indian and Pakistani Bengalis had maintained strong cultural and emotional ties over the years. The Hindus in East Pakistan constituted a defenseless minority and were the special target of the Pakistani Army’s venom. Most of those who now fled to India were, therefore, Hindus. Many Hindus believed that the Pakistani Army repression was designed primarily to rid East Pakistan completely of its non-Muslim population, and the anger aroused was widespread. In Parliament and the press there were some who from the start seriously advocated war with Pakistan to stop the terror and influx of refugees. Indira, deeply affected by the tragedy, later wrote in Foreign Affairs:

We would normally have welcomed the attainment of freedom by any victim of colonial oppression but usually it would have little direct impact on us. Bangladesh, however, was a part of our subcontinent. How could we ignore a conflict which took place on our very border and overflowed into our own territory?

It was only a short time before the conflict between the two wings of Pakistan spread into India. Since the partition of the two countries in 1947, Pakistan had driven out several million of its Hindu citizens, who had crossed into India in periodic waves. Thus, East Pakistani Hindus seeking refuge in the Indian state of Bengal were by no means an uncommon phenomenon. They arrived, destitute and in a state of shock following sudden, inexplicable outbursts of religious hatred or equally inexplicable acts of official highhandedness in their homeland. In the decade following independence, nearly 4 million Hindus from East Pakistan had been reluctantly absorbed into India—their expulsion viewed as an unfortunate extension of the communal frenzy that had seized people in both countries at the time of partition. But over the years the pace had slowed almost to a trickle and by now, twenty-fours after independence, official as well as public attitudes towards having to offer them permanent refuge had changed. In March 1971 over 10 million Hindus were still in East Pakistan. They were citizens of Pakistan. India considered the lengthy chapter in the subcontinent’s history devoted to exchange of persons finally closed. Not that Indians would shut the door in the face of the terror-stricken. Poor in the world’s terms as their country was, they would look after these new refugees from Pakistan as best as they could—but it had to be understood that the refugees’ stay must be short. They were East Pakistanis and in time they must return home.

Indira Gandhi wondered if Pakistan was trying to solve one of its problems by driving out the 10 million people whose presence as citizens it found “inconvenient.” As April gave way to May and June, another aspect of the steadily rising influx that worried her was its possible impact on the area in India into which refugees were streaming. West Bengal bordering East Pakistan was – and still is—among the most thickly populated and politically restive parts of India. The state had a history of administrative instability, and sizable sections of its volatile people had earlier tried to seek power through Maoist attempts at organized violence. The arrival of many refugees was liable to strain the area’s limited economic resources and the ensuing frustration might well encourage further violence. From the very start, therefore, Indira was quite clear in her mind that irrespective of the fact that many of them were Hindus, the East Pakistani refugees must return home. And in the beginning of October 1971, by which time a staggering 9 million refugees had entered India, she told BBC, “We have no intention of absorbing these people here—no matter what. I am absolutely determined about it.”

 

When, during that terrible summer and early autumn, Yahya Khan protested that what his army was doing in East Pakistan was the country’s internal matter and many abroad appeared to agree with him, Indira, through Indian and international news media, reacted strongly. The problem in East Pakistan was not of India’s making: “We have never interfered in any way in the politics of Pakistan,” she said. “But Pakistan can no longer pretend that this is its internal problem.” With millions of helpless Pakistani citizens entering India, “it has become an internal problem for us and it has become a major problem of humanity, a question of conscience and of the protection of people’s lives and rights,” she asserted. India’s Foreign Minister Swaran Singh, whom she dispatched that summer to London, Washington, Moscow, and other major capitals to explain the implications of the refugee influx, told various heads of governments that what India was experiencing was a “civilian invasion.” As the verbal battle mounted, Yahya Khan, equally angry but less decorous, told a correspondent of Le Figaro in August that Indira “is neither a woman nor a head of state by wanting to be both at once.” Should he come face to face with her, he would say to her, “Shut up woman; leave me alone and let refugees come back,” he declared.

Not many even among Yahya Khan’s friends abroad seriously believed that India had any interest in deliberately holding back Pakistani refugees from returning home, as Yahya Khan was now claiming. For one thing, the overwhelming nature of the strain on India’s resources was obvious. Several special taxes, including a substantial surcharge on the postal rates, were levied temporarily to raise additional revenue burdening an already weak economy. India was then spending $5 to $6 million daily to feed the refugees and provide them with some improvised shelter and basic medical care (an outbreak of cholera in epidemic form was narrowly averted). When torrential rains hit West Bengal, the refugee camps turned into vast marshy lakes. The more fortunate among the residents were those who had had the initiative to establish squatting rights in large concrete sewer pipes awaiting installation. U.N. observers, volunteers of numerous relief organizations, visiting U.S. senators and congressman, British M.P.s, and scores of reporters from all over the world wrote or spoke of the miserable conditions in which the refugees had to live and the sacrifice that India was required to make to keep them there at all and alive, even if in misery. Despite these reports there were those who sometimes inquired in apparent innocence why India did not “let the refugees return home” as Yahya Khan had suggested. Snappishly, Indira pointed out the absurdity of the return-home “invitation.” How could any refugees be persuaded to go back when tens of thousands more of their countrymen were arriving every day with new horror stories to tell and with evidence in their blank eyes and scarred bodies of the continuance of the terror from which they had fled?

Even those who expressed admiration for India for the way it offered succor to the terror-stricken did not always please Indira. After a while, in fact, such expression of praise became, she said, “a bit of an irritant.” India’s efforts, she believed, were being dismissed with flattering words. Meanwhile Pakistan was continuing to get material help from the United States and China. The world, she often said with exasperation, even bitterness, as the situation steadily worsened, was not doing its moral duty towards the people of Bangladesh. Instead of condemning Pakistan for the “callous, inhuman, and intemperate” butchery that its military apparatus had organized, most countries were merely appeasing their consciences or their isolated groups of outraged citizens by praising India or offering some food, clothing, and medicines for the refugees.

There could be “only one solution,” she told an Italian journalist:

Conditions must be created in East Pakistan, Bangladesh as it is called, in which there is not military terror but normal democratic functioning of the people’s will, so that the refugees are enabled to return to their homes and their safety is guaranteed. The rulers of Pakistan must be made to see that there is no other way. It is the duty of every country which has any influence with Pakistan to impress the truth upon them.

But Indira’s hope that the world community would exert the required pressure on Pakistan’s military junta was, and all along had been, slender. Early in the conflict in East Pakistan, she had come to feel reasonably certain that the Western wing’s repressive hand would not be withdrawn until too late, and that East Pakistanis, particularly Hindus would continue to flee from terror in massive numbers while the world held back from action to end the tragic situation. Armed conflict with Pakistan, she and her advisers had begun to reason, might become unavoidable if her resolve to send back the refugees was to be fulfilled.

As early as the beginning of April 1971, soon after she had formed her new Cabinet, Indira had issued formal directions to India’s army chief, General S.H.F.J. Manekshaw, to prepare for the eventuality of a war. As he told an interviewer, Manekshaw (who had since been promoted to be India’s first field marshal) was impressed by the “clarity of the briefing issued to me by my political command.” The influx of the refugees he was told, was expected to continue and was creating economic, social, and psychological burdens that India could bear for no more than ten months to a year. If the government’s efforts to find a peaceful solution of the problem failed during that period, the armed forces would be ordered to achieve “the specific objective of opening the door” for the refugees to return home. While preparing for the task, he must keep in view the fact the international situation and the political pressures that India would likely to invite upon itself in the event of a war with Pakistan would permit the army only “three to four weeks” to achieve the objective. Besides allowing herself time to search for a peaceful solution, Indira’s ten-month deadline for the refugees’ return presumably considered the time Manekshaw must need to prepare the army for the conflict and the fact that from June until September the monsoon would make any swift military operation impossible.

While they were helping her make the necessary preparations for a war, the Prime Minister’s advisers also warned her against getting the country involved in battle at a time and place of Pakistan’s choosing. Pakistan could be expected to launch an attack from its Western wing, where its military power was considerable, and to occupy a certain amount of Indian territory before responding to the almost certain Security Council for cease-fire. If that happened, India would find itself in an embarrassing predicament. It would have to pull back its troops from East Pakistan to have its own territory in the western area surrendered by Yahya Khan’s troops. Also, the Bangladesh problem would then be internationalized, which would give Islamabad all the time it would need to put down the Bengali uprising. The Political Affairs Committee of the Cabinet, over which Indira presided, therefore considered that India must be strong enough to deliver a quick, effective blow in the East while defending its borders in the West. It must also acquire a shield against big-power pressure for halting the conflict before the return of the refugees to their homeland was secured.

BY COURTESY: INDIRA BY KRISHAN BHATIA, PRAEGER PUBLISHERS INC., NEW YORK, WASHINGTON, 1974

 

 

 

USA AND INDIRA

The Indian Perspective

In sharp contrast to her success with Moscow, Indira’s attempt to persuade Nixon to exert pressure on Yahya Khan to stop the killing and come to terms with Mujib was a singular failure. Yet in the protracted confrontation between them over the issue, Nixon, not Indira, appeared the real loser. In the view of much of the world—and, indeed, of many Americans—the Nixon Administration seemed to be supporting Pakistan and courting Peking at the expense of the freedom seeking people of Bangladesh.

Neither in their assessment of the real nature of the problem in East Pakistan nor over the correct way to resolve it did the U.S. President and Indian Prime Minister see eye to eye. From the time when the military crackdown began in East Pakistan until the end of the war that established the new state of Bangladesh, the two leaders held a lengthy dialogue through public pronouncements as well as private communication. The whole time, however, they seemed to be talking at cross-purposes. The stubbornness with which Nixon refused to take what Indira regarded as effective action in Pakistan puzzled legislators and political writers in both countries. Perhaps, as some reasoned, Nixon felt morally obliged to stand by a friendly country in the time of its crisis and prevent its disintegration. Perhaps he was irked more than his predecessors in the White House had been by India’s continuing policy of nonalignment, its seeming partiality to Moscow, and often arrogant posture in world politics. However, it is reasonably certain that personality factors also counted for much in the lack of rapport between him and Indira.

Between him and Pakistan, Nixon was known to have feelings of much greater warmth towards the latter. When he visited Pakistan soon after his defeat in the 1960 election, Nixon was accorded a hero’s welcome. Pakistanis remembered his role in the conclusion of a mutual security pact in 1954 and the accompanying supply of U.S. arms that had been part of John Foster Dulles’s policy of containing Communism. That Nixon was no longer in the U.S. Government had seemed scarcely to matter to his Pakistani hosts. In the spring of 1967 he had a similarly heartwarming reception when he returned as a private citizen, to the subcontinent. By the summer of 1969, when, as U.S. President, he passed through the region, an element of slight chill had entered the two countries’ relationship owing to Pakistan’s acceptance of arms from Moscow. Yahya Khan, who had by then displaced Ayub Khan as the country’s military dictator, was also personally unknown to Nixon. However, during the single day that the American visitor spent in Lahore—he had expressed his inability to go up to Pakistan’s capital in Islamabad—the two reportedly developed a strong sense of personal affinity. The bond grew in strength and warmth in 1971 when Yahya Khan’s government agreed to provide the line of communication with Peking as the Nixon Administration sought to re-establish relations with the Communist Chinese Government and enabled Henry Kissinger to take off from a Pakistani military airport on his historic secret mission to China’s capital. Earlier that year, when heads of governments from all over the world assembled in New York to celebrate the twenty-fifth anniversary of the founding of the United Nations, Yahya Khan was among those who readily responded to Nixon’s invitation to travel to Washington for dinner in the White House. At the dinner, other guests noticed that when a noticeable tipsy Yahya Khan indulged in some buffoonery, Nixon, his own normally puritanical ways notwithstanding, looked with amused indulgence.

Nixon’s experience with India has been totally different. During his 1961 visit to the subcontinent he was almost ignored in New Delhi. The only official function in his honour was lunch by the then Finance Minister Morarji Desai, who served him an indifferently cooked vegetarian meal and some blunt, biting comments about the United States and its alliance with Pakistan. During his 1967 global tour his stop in New Delhi brought him a meeting with Indira, who had just been re-elected Prime Minister. But the meeting held at her house was brief, and Indira had little to say to him. She could, in fact, scarcely conceal her boredom with her visitor. After about twenty minutes or so of desultory chat, she inquired of the Indian Foreign Office official escorting Nixon how much longer the interview would last. The question was asked in Hindi, but its tone indicated its purport. In 1970 Indira, also visiting New York for the U.N. celebrations declined Nixon’s invitation to dinner without offering any plausible reason for her inability to accept.

Perhaps inevitably, therefore, as 1971 progressed and the Bangladesh grew in dimension, the dialogue between Nixon and Indira acquired an increasingly shrill, abrasive character. Both looked at the same happenings. But what each saw was quite different from what appeared important to the other. Both claimed and doubtless believed that they were striving to keep peace on the subcontinent and to minimize human suffering. Both felt and behaved self-righteously about the way they were tackling the problem. As the gulf between them widened steadily with every passing month, their mutual dislike and distrust was evident to all.

At the outset Nixon acted with noticeable promptitude in expressing his disapproval of Yahya Khan’s policy of repression. In the beginning of April, the Administration stopped issuing and renewing licenses for military equipment for Pakistan and suspended the processing of a special $80 million arms sale to Pakistan to which the United States had committed itself the previous autumn over strong Indian protests. Economic aid was also stopped. On May 28, when the suspension of U.S.  arms supplies appeared to have little impact on the Pakistan Government, Nixon wrote to Yahya Khan urging him to end “civil strife and restore peaceful conditions in East Pakistan.” He also expressed his “deep concern” over the possibility that events might lead to “international conflict” in the subcontinent. To avert such an occurrence, he suggested that Yahya Khan create “conditions in East Pakistan conducive to the return of refugees from Indian territory as quickly as possible.”

As the American President analyzed it and explained later in his State-of-the-World Message to the U.S. Congress, the Bangladesh problem had three aspects—the humanitarian, the political, and the threat of war it posed in the subcontinent. Of these, he regarded the humanitarian problem involving the care of refugees who had fled to India as “monumental and immediate.” A political settlement between the Yahya Khan regime and Sheikh Mujib’s followers, he felt, would take time. His Administration, Nixon claimed in the message, had obtained assurances from Yahya Khan that Sheikh Mujib would not be executed and that the military governor of East Pakistan would be replaced by a civilian. He said that:

In August, we established contact with Bengali representatives in Calcutta. By early November, president Yahya told us he was prepared to begin negotiations with any representative of this group not charged with high crimes in Pakistan.

Indira showed no interest in the U.S. efforts. She regarded them as totally inadequate and liable to strengthen Yahya’s brutal hold on East Pakistan. Nixon’s action in suspending military and economic aid to Pakistan seemed to her no expression of a sense of moral outrage at the inhuman way Yahya Khan was “pacifying” East Pakistan but merely the compulsion to respond to pressures from the U.S. Congress, many of whose prominent members were shocked at what was happening. Indira was also irritated by the fact that a few days after William Rogers, then Secretary of State, had solemnly assured her Foreign Minister that no U.S. arms were being supplied to Yahya Khan, the New York Times disclosed that several million dollars’ worth of spare parts, some meant for lethal military equipment, were on their way to Pakistan. She found Nixon’s priorities concerning the Bangladesh problem topsy-turvy. By assigning top priority to refugee, relief, the Administration was merely shifting attention away from the basic malady, she contended. Unless there was a satisfactory political settlement in East Pakistan the flow of refugees into India would not and could not stop—and none of the millions who had already entered India could be induced to return home. In any case it was preposterous, as she saw it, for the U.S. Government to advise Yahya Khan, as it apparently did, to grant amnesty for the refugees, instead of asking him to atone for his army’s crimes against them.

Indira was also unimpressed by Nixon’s claim that as part of his quiet diplomacy U.S. officials had established contact with Bengali leaders in Calcutta and that he was hopeful of useful negotiations beginning soon between Yahya khan and Mujib’s men. From India’s own intelligence sources, she learned that the individuals contacted were of low political status and could neither speak on behalf of their imprisoned leader nor even influence the course of the Bangladesh freedom movement. By insisting on talking only to those Bengali leaders who were not accused of “crimes,” Yahya had debarred from such parleys almost all Bengali leaders of any political consequence. Nixon was seen to be knowingly exaggerating Yahya Khan’s willingness to negotiate with East Pakistani leaders or respond to U.S. initiatives. Despite his close friendship with the Pakistani dictator, the U.S. Ambassador to Pakistan, Joseph Farland had been refused permission to meet Mujib in jail. While the White House publicly proclaimed that the U.S. Embassy had been allowed to establish contact with Mujib, all that Farland had in fact been permitted was to talk to Mujib’s lawyer. Even that privilege was rendered useless by the lawyer’s refusal to meet any U.S. Embassy official. But Nixon quietly disregarded the lawyer’s curt no and continued to give the impression that a major political break-through had been secured—one that India, he implied, lamentably chose to ignore. Nixon’s own Ambassador in India, Kenneth Keating who knew about the lawyer’s refusal was puzzled by the White House claim and a cable to the State Department protested the seeming distortion of facts.

What distressed Indira and many others in the country more than anything else was Nixon’s attempt to equate India with Pakistan. It was Pakistan’s military rulers who were responsible for tragedy and turmoil in the subcontinent. India was the indirect victim of their tyrannical actions. Why should the U.S. Government treat India as one of the culprits in the situation and deliver it periodic sermons on the importance of keeping peace? It was asked. About the same time Nixon wrote to Yahya, he sent a personal letter to Indira that “the problems involved in this [Bangladesh] situation can and should be solved peacefully.” He said he was deeply concerned that the situation not develop into a war between India and Pakistan “either because of the refugee flow or through actions which might escalate the insurgency which may be developing in East Pakistan.” Rogers was less circumspect in warning India when he met the Indian Ambassador in Washington on August 11. The United States, he bluntly told the envoy, would stop all economic aid to India should India precipitate a war with Pakistan. To Indians such warnings appeared totally unmerited and unjust and a clear indication of the Nixon Administration’s strong bias in favour of Pakistan and its President.

Irritations, exasperation and suspicions apart, Indira’s attitude remained determined by one basic consideration. The East Pakistani refugees must go back. She pressed for Mujib’s release, because she was convinced only he could negotiate a settlement acceptable to Bangladesh and create the climate of peace and confidence essential for the refugees return. She objected to the timetable for the restoration of civilian rule in East Pakistan that Nixon proposed, because it was so slow-moving that it would take years before any solution to the refugee problem could be found. With passage of time the refugees’ inclination to return to East Pakistan would subside, for they would have begun to grow social, cultural, and economic roots in India. Indira Gandhi told a cabinet colleague in the autumn of 1971 that “if the refugees do not go back soon they will never go.”

Having to feed, clothe, and house 9 to 10 million Pakistanis for an indefinite period was a burden heavier than that of going to war to secure their return. India was dedicated to peace, but it was not committed to preserving peace at all costs. Economic and political stability was more precious than peace, and that is precisely what Indira told Nixon when she met him in Washington in the beginning of November in a final effort to persuade him to use his influence with his friend in Pakistan for a quick and effective solution of the East Pakistan problem.

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In Washington 1971

The meeting got off to an inauspicious start. At the customary reception on the White House lawn, Nixon went out of his way to refer to a news report that morning about monsoon floods in the State of Bihar and to offer Prime Minister Gandhi his sympathy over the hardship that must have caused a portion of her countrymen. However, he pointedly omitted any mention of the Pakistani refugees who had endured much deeper suffering for a considerably longer period than the flood victims in Bihar. To Indira, it seemed a calculated political affront combined with a measure of personal callousness to mention a relatively minor and routine calamity—floods in certain parts of India are an annual occurrence—while ignoring the bigger tragedy. Even though the reception was strictly a protocol function, Indira was not about to let her host get away with it. In a speech quickly redrafted minutes before the ceremony, she pointedly admonished Nixon for referring to a natural disaster while ignoring a “man made tragedy of vast proportions.” She had come to Washington, she told him, “in search of some wise impulse, which, as history tells us, has sometimes worked to save humanity from despair.”

 At other public functions in her honour, too, pleasantries and compliments hid an occasional political barb. The private talks, as the Columbia Broadcasting System reported at the end of her visit, “had many tense moments.” Contrary to the impressions given to newsmen at White House briefings, the Indian Prime Minister never gave Nixon an assurance that India would not resort to war if peaceful efforts failed to give the country relief from the refugee problem. If anything, she told the U.S. President that, should a war start, it would not be a limited one, by which she meant hostilities would not be confined to the eastern wing of Pakistan or merely to the use of ground forces. She refused to accept the U.S. plea for withdrawal of forces from India’s borders with Pakistan. That Pakistan had accepted the suggestion did not impress her. Having been attacked thrice by Pakistan since independence, India, she pointed out, had no faith in Islamabad’s promises or in any assurance that its friends might offer on its behalf. India was not interested in Pakistan’s breakup, but it was also not committed to the preservation of Pakistan’s territorial integrity, she said. Nixon was equally firm in expressing his disagreement with her views. He was not convinced that Mujib alone could negotiate a political settlement with Yahya Khan. Much useful ground, he argued, could be conveyed by any of his nominees. He reportedly urged her to order Indian troops to pull back from the border and to use her influence with the Bengali guerillas forces to end their insurgency. On her return home, she was satisfied with her reception in Washington and that she had had a sympathetic hearing. But much of that was just polite talk. Both Indians and Americans who had followed the course of her talks had little doubt about the failure of her mission.

In London, Bonn, and Paris, cities she visited as part of the same mission that had taken her to Washington, Indira received much greater sympathy and understanding. But in these capitals, too, she sensed little desire to exert any pressure on Yahya Khan. She returned home convinced that a major conflict with Pakistan was unavoidable and that should that war come the Nixon Administration would try its utmost to prevent India from attaining its objective. Those who met her at that juncture noticed little evidence of trepidation or sense of despair on her part. Some recall even an air of buoyancy around her, as if she had been rid of the enormous burden of making a difficult decision. Militarily, the situation had changed in India’s favour in the preceding months. Manekshaw had finalized his plans and had received all he had asked for to prepare his men for the war. The monsoon had ended and a quick and decisive action was possible. India had collected extensive intelligence about deployment of Pakistani troops and the Mukti Bahini, the Bengali freedom fighters, had attained some measure of strength, training and confidence. The West Pakistani troops, conversely, were physically fatigued by their own excesses and demoralized by the sea of venom and hatred that surrounded them. Pakistani aircraft and naval ships had to travel 3,000 miles to bring supplies and replacements from West to East Pakistan. An Indian plan for Bengali insurgency had been in operation for some months, and guerillas trained and equipped on Indian soil—Indira had made no secret of her government’s support for them—had been committing increasingly daring acts of sabotage. Harassed Pakistani soldiers would often cross the border into India chasing them or shell their hide-outs and camps, only to invite upon themselves sharp Indian reprisals. There was no better time for the inevitable trial of strength.

The question, however, remained, and the one over which Indira and her four Cabinet colleagues on the Political Affairs Committee agonized almost daily was: How and at what point should India intervene militarily in the Bangladesh situation? Manekshaw, who was usually invited to attend the committee’s meetings, was quite sanguine. He told them, “Do not worry. . . Yahya Khan will give us what we want without his knowing it . . . He would at any moment commit an obvious folly. Then we would move.”

Yahya Khan committed the expected act of foolishness on December 3, nearly three weeks after the Prime Minister’s return home following her unsuccessful diplomatic endeavour. Pakistani Air Force planes suddenly struck at Indian Air Force stations at Srinagar, Amritsar, Agra, Ambala, Pathankot, and three other points near the western border. Pakistani artillery also began heavy shelling of several strategically important points along the Indian border. Yahya khan had not only offered the justification India needed for its military intervention but had even given a warning of his action. On November 23, he had publicly announced that war with India would begin in ten days.

Though all precautions had been taken against sudden Pakistani attack—the damage to Indian Air Force stations was negligible—Indira apparently had not regarded Yahya Khan’s war timetable too seriously. On the day of the Pakistani air attack she was nearly 1,000 miles away from the capital delivering a speech in Calcutta. The Defense Minister and almost all other members of the Political Affairs Committee, the body supposed to deal with emergency situations, were either abroad or touring different parts of the country. Indira was in the midst of her speech when the news of the Pakistani air attack was conveyed to her. She wound up her address rather abruptly and returned to Delhi by then shrouded in total darkness as a precaution against further Pakistani air raids. When someone in her party expressed concern about her security and pointed out that the Pakistani Air Force might attack her aircraft, she reportedly snapped back, “Well, if it does, what is the Indian Air Force for?” At about ten o’clock that night she went on the air to announce to the country that it was at war with Pakistan and that a state of emergency had been declared. During her brief broadcast she said:

Since last March, we have borne the heaviest burden and withstood the greatest pressure in a tremendous effort to urge the world to help to bringing about a peaceful solution and preventing the annihilation of an entire people . . . But the world ignored the basic causes and concerned itself only with certain repercussions . . . Today the war in Bangladesh has become a war on India. . .. We have no other option but to put our country on a war footing.

The war, as Manekshaw had predicted, was “short and bloody—quick and decisive.” It ended in India’s victory. Pakistani soldiers fought stubbornly, almost ferociously, but the superiority of Indian strength and diverse advantages Manekshaw had over his adversary overwhelmed them. The Indian Army chief knew the terrain in East Pakistan like the palm of his hand. Before his appointment as the head of the Indian Army, Manekshaw had held the Eastern Command. There he was entrusted with the task of watching over security of the entire eastern region from West Bengal and Sikkim to Assam and the region bordering with Tibet and Burma. In that post “I had nothing to do except read maps,” he said, and he never ceased to think of what might need to be done in the event of a war between India and Pakistan. “Sometimes I used to shut my eyes and recall, even in the dark, the map of East Pakistan—its plains, rivers, and cities. The picture was vivid in my mind all the time and in full detail,” he told a visiting editor. He also knew and understood the person against whom he was pitched. Two years before India’s partition Yahya had been a major in the British Indian Army unit that Manekshaw commanded. He knew the Pakistani dictator to be “a very stupid man” who could “not control his nerves.” What was more, his study of the power structure in Pakistan convinced him that at the top “the Pakistani political and military mind was confused.” As a result, their armed forces’ faith in it was shaken. The control of the political and military leadership “was weak and its lines [of communication] were feeble,” he said.

On the Indian side, there was no evidence of confusion in thinking or inadequacy of communication between the political leaders and military commanders. Indira claims that her relations with the chiefs of the Indian Army, Air Force, and Navy were marked by complete mutual trust. She respected their judgment and advice in tactical and technical matters, and they retained confidence in her assessment of the political aspects of the situation. Manekshaw, for example, decided to avoid capturing big cities as the Indian Army moved into East Pakistan, for he felt the control of big urban areas placed an unusually heavy strain on the army’s resources; Indira promptly accepted his reasoning, even though the psychological and political advantages of capturing well-known towns and cities was tremendous. Similarly, when it was decided to deploy the air force to attack targets not only in the East, but also in the West, and that the Navy should shell the Karachi harbour; the service chiefs readily accepted her directive against “terror bombing” or hitting civilian population. In any event, the Indian forces moved forward so steadily and the war ended so quickly that there was scarcely a situation that might require extraordinary “control over nerves” or bring to the surface elements of “confusion in the political and military mind” in New Delhi.

Curiously, it was left to President Nixon to introduce into the conflict the only element of high drama. Four days after the beginning of the war he ordered part of the U.S. Seventh Fleet to sail into the Bay of Bengal. For many this was a startling development, immediately raising the specter of a wider and protracted war. Indian officials and the press angrily denounced the U.S. Government for employing gunboat techniques of a bygone era. The public was in an uproar. But Indira says the news that the U.S.S. Enterprise was heading towards Dacca caused her “amusement,” not worry. What was it that the fleet could have done? She asks. All that its dispatch demonstrated, she recalls, was how little Nixon understood the situation in the subcontinent. She did not give this assessment at the meeting of the Political Affairs Committee summoned urgently late that evening to study the development, but, as those present remember, she was cool and unfluttered. At the meeting Manekshaw said the most that the Seventh Fleet would attempt would be to establish a beachhead to evacuate some of the top Pakistani civilians. Some argued that the U.S. act was nothing but sabre-rattling on Nixon’s part. There was, however, a touch of nervousness and worry in their demeanor even as they said that. Despite the widespread indignation in the country, Indira adjourned the meeting (“we have a busy day ahead of us”) after directing that the conduct of war should remain unaffected by the impending arrival of the U.S. nuclear-armed ship. Perhaps it was an empty threat, or perhaps Washington was impressed by India’s angry response or belatedly noted the hazardous implications of its move, but the fleet was ordered to sail back long before it could come anywhere near Indian or Bangladesh waters.

Indira was not amused by some American actions. As was expected, the United States moved to ask the U.N. Security Council for an immediate cease-fire and withdrawal of troops. While urging this course of action, the U.S. chief delegate to the United Nations, George Bush, accused India, bluntly and repeatedly, of being the aggressor. He not only ignored the fact that Pakistan had taken the first major military step towards war by bombing Indian airfields but also charged that India was anxious to annex territory in the Western wing and was conspiring to bring about Pakistan’s total disintegration. As days passed and the U.S. efforts to secure withdrawal of Indian forces from East Pakistan were thwarted by the Soviet veto, Bush’s diatribe against Indira and Indian leaders acquired a sharper, more wounding tone. In Washington, in the meantime, the administration had summarily adjudged India the aggressor and stopped all economic aid. It even froze the $88 million in assistance for which commitments had already been made and formal contracts signed. Through Kissinger, Nixon also ordered all departments of the government to follow the policy of a “tilt” against India. Kissinger went to the extent of directing that “henceforth we show a certain coolness to the Indians; the Indian Ambassador is not to be treated at too high a level.” Of the Indian Prime Minister, Kissinger said at a secret White House meeting, “the lady is cold-blooded and tough.”

On December 15 Indira reacted to the administration’s anti India stance and in a letter to Nixon asked sorrowfully if he as “President of the great American people will at least let me know where precisely we have gone wrong before your representatives or spokesmen deal with us with such harshness of language.” She told him that “we are deeply hurt by the innuendos and insinuations that it was we who have precipitated the crisis and have in any way thwarted the emergence of solutions.” The letter was not merely a sentimental plea for greater sympathy. Indira also bluntly told Nixon how his administration had failed the people of Bangladesh and must share the responsibility for the tragedy. War between India and Pakistan, she said, could have been avoided “if the power, influence and authority of all the States and above all the United State, had got Sheikh Mujibur Rahman released . . . Lip service was paid to the need for a political solution, but not a single worthwhile step was taken to bring this about.”Nixon, obviously chagrined by the U.S. failure to prevent the breakup of Pakistan and embarrassed by the naiveté of his Seventh Fleet move, refused to accept Indira’s criticism of his role. In a confidential letter, he sent her on December 18, he rebuked India for having “spurned” efforts and proposals that the United States had been making to find a peaceful solution to the Pakistan problem and instead having chosen war as an instrument of policy.” His administration, he wrote, was not against India. What it opposed was the resort to military means when political resources for a solution had not been fully explored. To Indira’s remark in her letter that “there are moments in history when brooding tragedy and its dark shadows can be lightened by recalling great moments of the past,” Nixon responded by remarking curtly that “there are times when statesmanship could turn the course of history away from war.”

That Nixon was mollified scarcely worried the Indian people. Under Indira’s leadership their country had won a war that, apart from being more decisive than the three earlier military conflicts with Pakistan, had led to the breakup of an intensely hated neighbour and secured the creation of a new nation, Bangladesh. Pakistan, as an Indian columnist tritely wrote in a Delhi newspaper, had been “cut to size.” The victory washed away the humiliation the Indian people had nursed for almost a decade since the border war with China. Their adoration of Indira—no other word can be used to describe the public attitude towards her in the beginning of 1972—was heightened by the fact that she could twit a world leader of Nixon’s stature. Throughout the country, as the refugees began to go home to Bangladesh hopes were high that now at last India under Prime Minister Gandhi would be recognized as a power of consequence—a role that many Indians had yearned for in the twenty-five years since independence.

BY COURTESY: INDIRA BY KRISHAN BHATIA, PRAEGER PUBLISHERS INC., NEW YORK, WASHINGTON, 1974

The Crisis Accelerates

The India-Pakistan Crisis of 1971

Just before my departure for Asia, Yahya on June 28 announced a plan to transfer political power to civilians. A new constitution drawn up by experts would be proclaimed within four months; Awami League members not associated with secession would be eligible to participate in the new government. Yahya did not explain to what category of leaders this might apply.

While I was en route, I received disturbing information that the Soviet Union had at last perceived its strategic opportunity. Abandoning its caution, it had informed India of its approval of guerrilla operations into East Pakistan and had promised India protection against Chinese reprisals. A new and ominous dimension had been added to the conflict. (This occurred well before our China initiative.)

In visiting New Delhi, I had two partially contradictory missions. One was to prepare India circumspectly for the news of my visit to China. Noting the Ping-Pong diplomacy and our two-year record of overtures in trade and travel, I stressed that we were bound to continue to improve our relations with Peking. On the other hand, we would take a grave view of an unprovoked Chinese attack on India. If this unsolicited comment did not utterly mystify my interlocutors, it may have given them a brief moment of encouragement–though that moment of euphoria surely ended with the July 15 announcement of my trip to China.

We must await the memoirs of my interlocutors to see whether the Indian ministers considered my reassurances the best we could do given our constraints, or an effort at deception. The major topic of my talks in New Delhi was the crisis in East Pakistan. I reported to the President:

There seems to be a growing sense of inevitability of war or a least widespread Hindu-Muslim violence, not necessarily because anyone wants it but because in the end they fear they will not know how to avoid it . . .

I assured [Mrs. Gandhi] the whole point of our policy has been to retain enough influence to urge creation of conditions that would permit the refugees to go back, although we would not promise results. I asked how much more time she thought there was before the situation became unmanageable, and she replied that it is unmanageable now and that they are “just holding it together by sheer willpower.”

The conversation with Indian leaders, in fact, followed the ritual of the previous weeks. As I had done on many occasions with Indian Ambassador Jha in Washington, I tried to assure them that the United States was eager to maintain good relations with India. We did not oppose Bengali autonomy, and we were confident we could encourage a favourable evolution if we dealt with Yahya as a friend instead of as another tormentor. I invited Mrs. Gandhi to visit the United States for a fundamental review of Indian-American relations with President Nixon.

But Mrs. Gandhi and her ministers were in no mood for conciliation. The invitation to Washington was evaded. They avowed their desire to improve relations with the United States but passionately accused us of deception over arms sales to Pakistan. The stridency of these complaints was in no way diminished by the facts: that almost all arms shipments to Pakistan had been stopped, including the “one-time exception”; that no new licenses were being issued; and that the only items still in transit were the trickle licensed before the ban went into effect. India could have no serious concern about this minuscule flow; it would end automatically as licenses expired; our estimate, indeed, was that nothing would be left in the pipeline after October. Mrs. Gandhi even admitted to me that the amounts were not the issue, but the symbolism. In other words, India wanted the demoralisation of Pakistan through the conspicuous disassociation of the United States. I was pressed to cut off not only arms but all economic aid as well. Indian leaders evidently did not think it strange that a country which had distanced itself from most of our foreign policy objectives in the name of nonalignment was asking us to break all ties with an ally over what was in international law a domestic conflict. The American contribution to refugee relief by July had reached nearly $100 million; this did not keep Mrs. Gandhi from broadening her criticisms to encompass the entire twenty-four-year record of our policies toward Pakistan. I left New Delhi with the conviction that India was bent on a showdown with Pakistan. It was only waiting for the right moment. The opportunity to settle scores with a rival that had isolated itself by its own short-sightedness was simply too tempting.

On my visit to Islamabad, I was preoccupied with my impending journey to Peking. But I had several conversations with President Yahya and Foreign Secretary Sultan Khan. I urged them to put forward a comprehensive proposal to encourage refugees to return home and to deny India a pretext for going to war. I urged Yahya and his associates to go a step farther in the internationalization of relief by admitting the United Nations to supervise its distribution. And I recommended the early appointment of a civilian governor for East Pakistan. Yahya promised to consider these suggestions. But fundamentally, he was oblivious to his perils and unprepared to face necessities. He and his colleagues did not believe that India might be planning war; if so, they were convinced they would win. When I asked tactfully as I could about the Indian advantage in numbers and equipment, Yahya and his colleagues answered with bravado about the historic superiority of Moslem fighters.

There simply was no blinking the fact that Pakistan’s military leaders were caught up in a process beyond their comprehension. They could not conceive of the dismemberment of their country; and those who could, saw no way of surviving such a catastrophe politically if they cooperated with it. They had no understanding of the psychological and political isolation into which they had manoeuvred their country by their brutal suppression. They agreed theoretically that they needed a comprehensive program if they were to escape their dilemmas. But their definition of “comprehensive” was too grudging, legalistic, technical and piecemeal. The result was that never throughout the crisis did Pakistan manage to put forward a position on which it could take its international stand. In fact, its piecemeal concessions, though cumulatively not inconsiderable, played into India’s hands; they proved its case that something was wrong without providing a convincing remedy. Yahya found himself at a tragic impasse. Accused by conservative colleagues of hazarding his country’s unity and by foreign opinion of brutally suppressing freedom, he vacillated, going too far for his conservatives, not far enough for the world, and especially American, public opinion.

At a dinner given for me the night before I left for Peking, I had an opportunity to chide Yahya for the mess that had been created. “Everyone calls me a dictator,” bellowed Yahya in his bluff imitation of the Sandhurst manner. “Am I a dictator?” he asked every guest, American as well as Pakistani, in turn. Everyone protested with varying degrees of sincerity that of course Yahya was not a dictator. When it came to me, I said: “I don’t know, Mr. President, except that for a dictator you run a lousy election.”

 The festering crisis naturally came up in my conversations in Peking. Chou en-lai’s perspective could not have been more different from the conventional wisdom in Washington. He quite simply considered India the aggressor; he spent an hour of our scarce time recounting his version of the Sino-Indian clashes of 1962, which he claimed had been provoked by Indian encroachments. Chou insisted that China would not be indifferent if India attacked Pakistan. He even asked me to convey this expression of Chinese support to Yahya–a gesture intended for Washington, since Peking had an Ambassador in Islamabad quite capable of delivering messages. I replied that the United States had traditional ties with Pakistan, and we were grateful for its arranging the opening to China. We would continue to maintain friendly relations with India, but we would strongly oppose any Indian military action. Our disapproval could not, however, take the form of military aid or military measures on behalf of Pakistan.

I returned to Washington with a premonition for disaster. India, in my view, would almost certainly attack Pakistan shortly after the monsoon ended. Though I was confident that we could succeed in nudging Islamabad toward autonomy for East Pakistan. I doubted that India would give us the time and thus miss an opportunity, which might not soon come again, of settling accounts with a country whose very existence many of its leaders found so offensive. China might then act. The Soviet Union might use the opportunity to teach Peking a lesson. For us to gang up on Pakistan–as our media and Congress were so insistently demanding– would accelerate the danger; it would give India an even stronger justification to attack. It would jeopardize the China initiative. At that time, prior to Nixon’s visit to Peking, we had no way of knowing how firm China’s commitment to the opening to Washington really was.

Nixon called the National Security Council together on July 16, the day after he announced his trip to China. It was a sign of how seriously he took the crisis. He asked me to sum up the issues. I said India seemed bent on war. I did not think that Yahya had the imagination to solve the political problems in time to prevent the Indian assault. On the other hand, 70,000 West Pakistani soldiers (they had been augmented since March) could not hold down 75 million East Pakistanis for long. Our objective had to be an evolution that would lead to independence for East Pakistan. Unfortunately, this was not likely to happen in time to head off an Indian attack. Therefore, immediate efforts were needed to arrest and reverse the flow of refugees and thereby remove the pretext for war.

There was no disagreement with my analysis. Rogers had his judgement that India was doing everything in its power to prevent the refugees from returning. Nixon concluded that we would ask the Pakistanis to do their maximum on refugees. We would not countenance an Indian attack; if India used force, all American aid would be cut off. Every effort should be made to avoid a war.

On July 23, Pakistani Ambassador Agha Hilaly informed us that his government accepted our suggestion of UN supervision of the resettlement of refugees to guarantee them against reprisals. Yahya also went along with our recommendation to appoint a civilian administrator to oversee refugee relief and resettlement. I strongly urged Hilaly to accelerate their efforts.

Unfortunately, India would have none of it. The very reasons that made the strategy of concentrating on refugees attractive to us caused India to obstruct it. As early as July 15, Indian Ambassador Jha told us that India could not accept proposals to curb guerrilla activity from its territory. On July 16, Indian Foreign Secretary Kaul told us ha India would not accept UN personnel on its side of the border even to handle refugees. This was Catch-22 again. Everyone agreed that a condition for political progress in the East was the return of the Pakistani army to its barracks, which was one reason we were pressing for the appointment of a civilian administrator. But there was no way to induce the Pakistani army to do so as long as its neighbour conducted a guerrilla war against it–and proclaimed its determination to escalate that war. Pakistan had agreed to place the resettlement of refugees under UN supervision. But this could not be implemented if the refugees could not even learn of Pakistan’s offers because UN personnel were barred from any contact with them in India to explain their prospects if they returned. In the absence of any outside observers in these camps we could not even be sure of the actual number of refugees.

Two Senior Review Group meetings, on July 23 and July 30, discussed these dilemmas. On no issue–except perhaps Cambodia–was the split between the White House and the departments so profound as on the India-Pakistan crisis in the summer of 1971. On no other problem was there such flagrant disregard of unambiguous Presidential directives. The State Department controlled the machinery of execution. Nixon left it to me to ensure that his policy was carried out and to bring major disagreements to him. But what we faced was a constant infighting over seemingly trivial issues, any one of which seemed too lightweight or technical to raise to the President but whose accumulation would define the course of national policy. Nixon was not prepared to overrule his Secretary of State on what appeared to him minor operational matters; this freed the State Department to interpret Nixon’s directives in accordance with its own preferences, thereby vitiating the course Nixon had set.

No one could speak for five minutes with Nixon, without hearing of his profound distrust of Indian motives, his concern over Soviet meddling, and above all his desire not to risk the opening to China by ill-considered posturing.

Nixon had ordered repeatedly that we should move Pakistan toward political accommodation through understanding rather than pressure. The State Department had every right to a contrary view: that massive public pressure would make Pakistan more pliable. What strained White House–State relations was the effort by State to implement its views when the President had chosen a different course. For example, in early September we found out through the Pakistanis that the State Department had privately opened negotiations with them to cut off even the trivial amount of military equipment licensed before March 25. The White House thought that Pakistan was moving through the painful process of disintegration and wanted to take account of the anguish of an old ally, the limited horizon of its leaders, and its internal stresses; therefore, we wanted to avoid announcing a formal embargo, although our actions amounted to as much. The State Department was more conscious of our critics at home and was loath to antagonise India. My nightmare was that the effort to placate India would generate a war. As I told the Senior Review Group on July 30, “We should urge Yahya to restore an increasing degree of participation by the people of East Pakistan. But the clock of war is running in India faster than the clock on political accommodation. We are determined to avoid war.” I had told the President on July 27 that the State was beginning to throttle even our economic aid to Pakistan: “If anything will tempt the Indians to attack, it will be the complete helplessness of Pakistan.” Whatever the merits of this debate, the fact was that Nixon was President, and that departments, after having stated their case, should carry out not only the letter but also the spirit of Presidential decisions even if they disagree and even if they have to face outside or Congressional criticisms in doing so.

The problem was accentuated by the anomaly that some long-forgotten State Department reorganization had placed the subcontinent in the Near East Bureau, whose jurisdiction ended at the subcontinent’s eastern boundary; it excluded East Asia and any consideration of China. Senior officials who might have been conscious of China’s concerns had been excluded from the opening to Peking. Hence, there was no one at State who felt fully responsible for the “China account” or even fully understood its rationale–this was one of the prices paid for our unorthodox method of administration. In inter agency debates my office was not infrequently accused of an obsession with “protecting the trip to China,” as if preserving that option were somehow an unworthy enterprise. Not a single bureaucratic analysis of India-Pakistan during the period seriously addressed the impact of our conduct on China. Peking was not rejected by our bureaucracy. It was simply ignored. The gulf in perception between the White House and the rest of the government became apparent in an options paper prepared for the July 23 Senior Review Group meeting. It recommended that if China intervened in an India-Pakistan war, the United States should extend military assistance to India and coordinate its actions with the Soviet Union and Great Britain. Nothing more contrary to the President’s foreign policy could have been imagined.

Nixon stated succinctly at his August 4 press conference that we were not going to engage in public pressure on Pakistan: “That would be totally counterproductive. These are matters that we will discuss only in private channels.” Despite this, nearly all operational proposals by the bureaucracy were aimed at increasing pressure on Pakistan. I asked at the July 30 Senior Review Group meeting: “What would an enemy do to Pakistan? We are already cutting off military and economic aid to them. The President has said repeatedly that we should lean toward Pakistan, but every proposal that is made goes directly counter to these instructions.”

As I have mentioned, State had come up with the proposal that the remaining $3-to-$4 million in the military pipeline be cancelled by agreement with Pakistan. The justification was that this would make it easier for us to maintain economic assistance. I reluctantly went along, though I thought it an unworthy response to Pakistan’s assistance on China. The negotiation for drying up the pipeline took two months. It was finally accomplished in early November, woundingly for Pakistan, just in time to create a “good atmosphere” for Mrs. Gandhi’s visit. But no sooner did Pakistan agree to negotiate a total arms cut off than foot-dragging began on economic assistance. No new development loans were made throughout 1971. As I said acidly on September 8 at a Senior Review Group meeting, the State Department sold us a dried-up arms pipeline in return for a dried-up economic aid policy.

And none of these manoeuvres addressed the central issue. I was convinced that East Pakistan would become independent Bangladesh relatively soon. But Yahya could not possibly accomplish this before October or November, when the Indians were most likely to attack. Hence, I thought it imperative to make a massive effort to alleviate the refugee problem immediately and to bring our influence to bear in the direction of constitutional rule at as fast a pace as the Pakistani political structure could stand. Constitutional government, in turn, was almost certain to produce at least Bangladesh autonomy and eventually independence. So, we multiplied our aid contribution, providing some $90 million to India and over $150 million for internationally supervised famine relief in East Pakistan to reverse the tide of refugees. We appointed an able senior official o our Agency for International Development, Maurice Williams, to coordinate all US refugee relief.

But it was to no avail. Our actions were outstripped by India’s deliberate acceleration of tensions. On July 24, Kaul again rejected the idea of UN personnel on the Indian side of the border. On August 4, Ambassador Jha rejected suggestions of Under Secretary of State John Irwin that India control the guerrillas operating from its territory. Jha made a new suggestion–that the United States take up an offer of contact with the Bangladesh exiles in Calcutta. When we did so, as will be seen, it was aborted in part because of Indian obstruction.

By courtesy:

The Military Crackdown

The India-Pakistan Crisis of 1971

What prompted Yahya to his reckless step on March 25 is not fully known. No doubt the Bengali population taunted the Pakistani soldiers drawn almost exclusively from the West. Mujib’s version of autonomy seemed indistinguishable from independence. Almost all nations will fight for their unity, even if sentiment in the disaffected area is overwhelmingly for secession. So, it was during our Civil War, with Nigeria toward Biafra, and with the Congo toward Katanga. Pakistan was unique, however, in that the seceding province was separated from West Pakistan by a thousand miles of Indian territory. There was no likelihood that a small military force owing to loyalty to one wing of the country could indefinitely hold down a population of 75 million of the other. Once indigenous Bengali support for a united Pakistan evaporated, the integrity of Pakistan was finished. An independent Bengali state was certain to emerge, even without Indian intervention. The only question was how the change would come about.

We wanted to stay aloof from this if we could, as did Britain. We even received reports of West Pakistani suspicions that we might favour an independent East Pakistan, but neither the British nor we wished to be made scapegoats for the country’s breakup. We had few means to affect the situation. We had, moreover, every incentive to maintain Pakistan’s goodwill. It was our crucial link to Peking; and Pakistan was one of China’s closest allies. We had sent a message in December through Pakistan accepting the principle of an American emissary in Peking. In March and April, the signs were multiplying that a Chinese response was imminent. April was a month of Ping-Pong diplomacy.

In this first stage of the crisis the consensus of the US government was to avoid precipitate action even among those who knew nothing of our China initiative. At a WSAG meeting on March 26, I repeated my own view that the prognosis was for a civil war, leading to independence fairly quickly. A State Department representative noted that Britain was unwilling to engage itself in pressing Pakistan. I told my colleagues:

I talked to the President briefly before lunch. His inclination is the same as everybody else’s. He doesn’t want to do anything. He doesn’t want to be in the position where he can be accused of having encouraged the split-up of Pakistan. He does not favour a very active policy.”

Yet pressures for an active policy began to mount. There was general and justified outrage as during April, reports began to come in of Pakistani atrocities in Bengal. Our Consul General in Dacca was sending cables to Washington urging a public American stand against Pakistani repression; other members of the consulate staff signed a similar message in early April. Secretary Rogers told me he found it ” outrageous” that his diplomats were writing petitions rather than reports. But in a favourite device of subordinates seeking to foreclose their superiors’ options, the cables were deliberately given a low classification and hence wide circulation. Leaks to the Congress and press were inevitable. A Pakistani editor who visited East Pakistan wrote a firsthand account of army killings for the London Sunday Times. Our Ambassador in New Delhi, Kenneth Keating, reported to Washington that he was “deeply shocked at the massacre” and was ” greatly concerned at the United States’ vulnerability to damaging association with a reign of military terror.” He urged that the United States promptly, publicly, and prominently deplore ” this brutality,” privately intervene with Yahya Khan, abrogate our “one-time exception,” and immediately suspend all military deliveries to Pakistan.

We faced a dilemma. The United States could not condone a brutal military repression in which thousands of civilians were killed and from which millions fled to India for safety. There was no doubt about the strong-arm tactics of the Pakistani military. But Pakistan was our sole channel to China; once it was closed off it would take months to make alternative arrangements. The issue hit Washington, moreover, in the midst of another of the cyclic upheavals over Vietnam. A massive campaign of disobedience was planned for May 1. To some of our critics our silence over Pakistan–the reason for which we could not explain–became another symptom of the general moral  insensitivity of their government. They could not accept that that it might be torn between conflicting imperatives; some had a vested interest in undermining their government’s standing on whatever issue came to hand in the belief that this would collapse our effort in Vietnam. The Administration reacted in the same ungenerous spirit; there was some merit to the charge of moral insensitivity. Nixon ordered our Consul General transferred from Dacca; he ridiculed Keating for having been “taken over by the Indians.” a tragic victim of the war in Vietnam was the possibility of rational debate on foreign policy.

The State Department moved on its own to pre-empt the decisions. Ignorant of the China initiative, heavily influenced by its traditional Indian bias, in early April– without a clearance with the White House– the Department moved toward a new arms embargo on Pakistan. It suspended issuance of new licenses for the sale of munitions and renewal of expired licenses; it put a hold on the delivery of items from Defense Department stocks and held in abeyance the “one-time exception” package of 1970. Some $35 million in arms to Pakistan was cut off, leaving some $5 million trickling through the pipeline. (This $5 million became a contentious issue with the Congress in early July). The State Department also began to throttle economic aid to Pakistan, again without White House clearance, by the ingenious device of claiming that our existing programs could no longer be made effective throughout the entire country because of the civil war. My NSC staff expert Hal Saunders wrote me that State Department was moving from a posture of detachment to one of disassociation from the Pakistani government, but “they are not acknowledging to themselves that is what the are doing. The are justifying their move on technical grounds.”

Anyone familiar with Nixon’s attitudes could not doubt that this was contrary to his wishes; those unfamiliar should have checked with the White House. The pre-emption of Presidential prerogatives goes far to explain Nixon’s (and my) attitude later that year, throughout April, my major task was to get control of the government process with two objectives: to preserve the channel to Peking and to preserve the possibility of a political solution in Pakistan. By then, Islamabad was not only a point of contact but also my likely place of departure for China. And signs began to appear that India’s proposed solution to the undoubted burden of millions of Bengali refugees was not so much to enable them to return as to accelerate the disintegration of Pakistan (or at any rate to identify one objective with the other). On March 31, the Indian Parliament unanimously expressed its wholehearted “sympathy and support” for the Bengalis. As early as April 1, I reported to the President that “the Indians seem to be embarking on a course of public diplomatic and covert actions that will increase the already high level of tension in the subcontinent and run the risk of touching off a broader and more serious international crisis.” On April 14, a Bangladesh government in exile was established in Calcutta. By the middle of April we received reports that India was training Bengali refugees to become guerrilla fighters in East Pakistan (the so-called Mukti  Bahini). By the end of April, we learned that India was about to infiltrate the first 2,000 of these guerrillas into East Pakistan.

I considered a policy of restraint correct on the merits, above and beyond the China connection. For better or worse, the strategy of the Nixon Administration on humanitarian questions was not to lay down a challenge to sovereignty that would surely be rejected, but to exert our influence without public confrontation. In retrospect, I believe that we sometimes carried this basically correct approach to pedantic lengths which antagonised potential supporters. In the case of Pakistan, it seemed appropriate because its government was an ally that, we were convinced, was bound soon to learn the futility of its course. We undertook to persuade Yahya Khan to move toward autonomy, advising him as a friend to take steps that he would surely have rejected had we demanded them publicly. As I wrote the President on April 29, the central government “may recognise the need to move toward greater East Pakistani autonomy in order to draw the necessary Bengali cooperation. What we seem to face, therefore, is a period of transition to greater East Pakistan autonomy and, perhaps, eventual independence.” Yet, I noted, India’s policy was bound to work against such a settlement: By training and equipping a relatively small Bengali resistance force, India can help keep active resistance alive and increase the chances of a prolonged guerrilla war. From all indications, the Indians intend to follow such a course.”

Following the customary procedure, I asked the State Department in April to suggest opinions in preparation for a decision by the President as to what our policy should be in light of the unfolding crisis. A broad policy decision would provide the framework for handling the specific economic and military aid issues with Pakistan; it was especially needed in view of the fact that State had already begun moving in its own desired direction. As usual, the Department placed its preferred option between alternatives so absurd that they could not possibly serve as a basis of policy. (One proposal, for example, was all- out support for Yahya. This was neither the White House conviction nor a feasible course of action.) I distilled a recommendation from the range of options that State proposed. To respond to Congressional and public desires I proposed that the President ratify the State Department’s unauthorised action of early April shutting down the military supply pipeline, allowing only some spare parts and no lethal equipment to move. I also urged that economic aid be used as a carrot to induce political concessions, ” to make a serious effort to help Yahya end the war and establish an arrangement that could be transitional to East Pakistan autonomy.”

Nixon approved my recommendations on May 2, and added a handwritten note:” To all hands. Don’t squeeze Yahya at this time. RN.”

But we ran up against three obstacles: the policy of India, our own public debate, and the indiscipline of our bureaucracy.

On May 18– when we were already in the advanced stage of preparing the secret trip to Peking with Islamabad–Mrs. Gandhi warned Pakistan in a public speech that India was “fully prepared to fight if the situation is forced on us.” Indian ambassadors alerted Britain and France that India ” may be forced to act in its national interest” in view of the flood of refugees. By then an estimated 2.8 million. The burden of refugees was indeed monumental; the danger of communal riots could not be dismissed. But as the weeks passed, we began increasingly to suspect that Mrs. Gandhi perceived a larger opportunity. As Pakistan grew more and more isolated internationally, she appeared to seek above all Pakistan’s humiliation, perhaps trying to spread the centrifugal tendencies from East to West Pakistan. When the United States agreed to assume the major cost of refugee relief, India switched to insisting that the refugee problem was insoluble without a political settlement. But India’s terms for a settlement escalated by the week. When the United States offered to alleviate famine in East Pakistan, India– together with many in the United States–demanded that the relief program be run by an international agency. The reason was ostensibly to ensure its fair distribution, but it would also prevent the Pakistan government from gaining credit with its own population.

In May 1971, we learned from sources heretofore reliable that Mrs. Gandhi had ordered plans for a lightning “Israeli-type” attack to take over East Pakistan. And we had hard evidence that India was dispersing aircraft and moving combat troops and armour to the border. Nixon took the reports seriously enough to order on May 23 that if India launched such an attack, US economic aid to India was to be cut off. I assembled the WSAG on May 26 to review our policy in the event of a war.

Around this time we learned that Indian military leaders thought Mrs. Gandhi’s proposal of an attack on East Pakistan was too risky. They feared Chinese intervention, the possibility of other countries’  military aid to Pakistan (especially Iran’s), the uncertainty of resupply of Soviet weapons, and the likelihood that all of Pakistan might have to be occupied to bring the war to a conclusion. The Indian commanders insisted, at a minimum, on waiting until November when weather in the Himalayas would make Chinese intervention more difficult. While Mrs. Gandhi set about systematically to remove these objections and waited for the snows to fall in the mountains, we had a breathing space. (I must stress that most in the United States government did not credit these reports as I did; most senior officials considered an Indian attack improbable.) We used the interval first of all to step up our assistance to the refugees; the original authorisation of $2.5 million in the spring was eventually multiplied a hundredfold to $250 million. At the same time we pressed Pakistan to take steps of political accommodation, urging Yahya first to internationalize the relief effort in East Pakistan, and then come up with a political proposal. And we recommended the replacement of the military governor in the East by a civilian; we succeeded in securing a general amnesty covering all persons not already charged with specific criminal acts.

On May 28 Nixon sent letters t both Mrs. Gandhi and Yahya Khan outlining our policy. The letter to Yahya was not exactly strong; it reflected our need for Yahya as a channel to Peking. But it left no doubt that we favoured a political and not a military solution to the problem of East Pakistan. Nixon acknowledged Yahya’s readiness to accept the internationalization of relief. He encouraged Yahya to continue on the course of “political accommodation“:” I have also noticed with satisfaction your public declaration of amnesty for the refugees and commitment to transfer power to elected representatives. I am confident that you will turn these statements into reality.” Nixon urged restraint in Pakistan’s relations with India; he deemed it “absolutely vital” to restore conditions in East Pakistan ‘conducive to the return of refugees from Indian territory as quickly as possible.”

The President’s parallel letter to Mrs. Gandhi on May 28 stressed our desire to reduce the refugee flow into India and to help ease the burden on India by financial and technical aid. Nixon informed her of our efforts to move Yahya:

We have chosen to work primarily through quiet diplomacy, as we have informed your Ambassador and Foreign Minister. We have been discussing with the Government of Pakistan the importance of achieving a peaceful political accommodation and of restoring conditions under which the refugee flow would stop and the refugees would be able to return to their homes. I feel that these approaches were at least in part behind President Yahya’s press conference on May 24 and especially his public acceptance of international assistance, offer of amnesty to the refugees and commitment to transfer power to elected representatives.

Nixon complimented India on the vitality of its democracy and its economic and social progress, and added a veiled warning against a military solution: “India’s friends would be dismayed were this progress to be interrupted by war.” on June 3 I explained our strategy to Kenneth Keating. I was convinced that East Pakistan would eventually become independent. Our policy was to “give the facts time to assert themselves.”

During June Indian Foreign Minister Swaran Singh arrived in Washington to urge termination of both military and economic aid to Pakistan. India was increasingly presenting us with a Catch-22 dilemma. It claimed that the enormous flow of refugees would sooner or later force India into drastic measures. But at the same time India would do nothing to curb– indeed, it trained, equipped, and encouraged– the guerrillas whose infiltration from Indian territory guaranteed unsettled conditions that would generate more refugees. Despite Yahya’s proclamation of an amnesty, India made the return of refugees to East Pakistan depend upon a political settlement there. But India reserved the right to define what constituted an acceptable political settlement on the sovereign territory of its neighbour. In mid-June Mrs. Gandhi declared that India would not agree to any solution that meant ” the death of Bangladesh”; in other words, India’s condition for staying its hand was the breakup of Pakistan. With evolution to autonomy rejected, refugees encouraged, and their return precluded, India had made a mounting crisis inevitable.

Many in our country saw it differently. Unfortunately, the debate began to take on some of the bitterness and impugning of motives characteristic of the Vietnam debate. And the Administration, which had a case, did not help matters by enveloping itself in silence. Congressman Cornelius Gallagher of New Jersey, Chairman of the House subcommittee concerned with the problem, declared on the floor of the House on June 10 after a visit to Indian refugee camps, that India had shown “almost unbelievable”  restraint in the face of the refugee burden. (This was three weeks after Mrs. Gandhi’s public threat to go to war.) on June 17, the New York Times took the Administration to task, calling our public statement urging restraint on both sides “belated”, our appeal would be fruitless, said the Times, unless we matched word with deed, that is, cut off all American aid to Pakistan until there was a genuine political accommodation in East Pakistan. The Times, too praised Mrs. Gandhi for having shown “remarkable restraint” in the face of the staggering refugee problem.

Then there occurred one of those media events by which small facts become surrogates for larger debates, focussing and in the process distorting the issues. On June 22, the New York Times carried a story that a Pakistani freighter was preparing to sail from New York with a cargo of military equipment for Pakistan, seemingly in violation of the Administration’s officially proclaimed ban. Soon a second ship carrying military items was reported on its way to Pakistan. There was outrage from the press and Congress, and from India. The next day the New York Times charged that the shipments were a “breach of faith” with the American people and Congress and with India and “further” undermined American credibility. Senator Stuart Symington said that it was either ignorance or deliberate deception. State’s announcement of June 24 that Washington was providing an additional $70 million to India for  refugees was drowned out by reports that a third Pakistani freighter had sailed from New York to Karachi with military equipment. It did not still the charges of government duplicity that all the equipment in question had been purchased under licenses issued before the ban and was thus legally out of control; and that the third freighter had sailed four days before the State Department suspension of licenses went into effect. Here was another of the credibility gaps so cherished during the Vietnam period. We could convince no one that we simply had no mechanism to track down licenses already issued, nor that the amount of “seepage” was minuscule and could affect the military balance neither on the subcontinent nor in Bengal. The Washington Post on July 5 could barely contain its outrage: it was

An astonishing and shameful record. . .[which] must be read in the context of the current controversy over the Pentagon Papers, which turns on the public right to know and the government’s right to conceal. Here we have a classic example of how the System really works; hidden from public scrutiny, administration officials have been supplying arms to Pakistan while plainly and persistently telling the public that such supplies were cut off.

The irony was that the “credibility gap” was caused by the State Department, whose precipitate action in the embargo had so angered the White House. The department most in accord with the media and Congressional criticism became, unintentionally, its focus.

By courtesy:

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Two cyclones

The India-Pakistan Crisis of 1971

Ever since it had come into being, Pakistan had sought a sustained legitimacy. No government after the death of the founder of the state had served out its term. Every change had occurred through some sort of coup; military and civilian governments alternated with the military dominant. The year 1970 was expected to see a constitutional government. Elections would finally take place in December. Pakistan’s President Yahya Khan visited Nixon in October during the United Nation’ twenty-fifth anniversary celebrations, when Nixon gave him the message to Chou En-lai. I took the opportunity to ask Yahya what would happen to the powers of the President after the election. Yahya could not have been more confident. He expected a multiplicity of parties to emerge in both West and East Pakistan, which would continually fight each other in each wing of the country and between the two wings; the President would therefore remain the arbiter of Pakistan’s politics.

Before his prediction could be tested a devastating cyclone struck East Pakistan over November 12-13. By most accounts, I wrote Nixon, this was the greatest disaster of the century in terms of destruction of property and human life; over 200,000 were thought to have died. The all-out relief program that Nixon ordered could only touch the surface of the suffering. Recovery efforts were chaotic and ineffective. The opposition charged the Yahya government with gross incompetence and worse. The political storm turned out in the end to be even more destructive than the natural one.

Whether the cyclone crystallised opposition to the central government and enhanced East Pakistan’s sense of grievance and identity, or whether Yahya had misjudged the mood all along, the elections held on December 7, 1970, turned into a plebiscite on Yahya’s handling of the crisis and produced a catastrophe for the military rulers. The Awami League, dedicated to East Pakistan autonomy, won 167 out of 169 seats contested in the East, giving it a majority of the 313 seats in the National Assembly. Its leader, Sheikh Mujibur Rahman (known as Mujib), was thus bound to be an unchallengeable figure in East Pakistan and a powerful influence in the entire country. To heighten the political drama, Zulfikar Ali Bhutto, leader of the Pakistan People’s Party, emerged in a comparably dominant position in West Pakistan. While opposed to military rule, Bhutto was an advocate of a strong central government and of a united Pakistan; he fiercely resisted Mujib’s insistence on East Pakistani autonomy and in this he was certain to be supported by the military. (Indeed, he may well have adopted this position in order to become more acceptable to the military.) The Awami League had put forward a six-point program for full provincial autonomy for East Pakistan that left the central government some vague responsibility only in the fields of foreign policy and defense. Each of the two constituent units of Pakistan, it proposed, would have its own currency, keep its own separate account for foreign exchange, raise its own taxes, set its own fiscal policy, and maintaòin its own militia and paramilitary units. Yahya and Bhutto rejected this as tantamount to secession. A stalemate-or crisis-was imminent.

On February 16, 1971, I requested an interagency study of the alternatives should East Pakistan try to make a break; on February 22, I sent my own analysis to the President:

[Mujib and Bhutto] have failed so far to forge even the beginning of an informal consensus on the new constitution. President Yahya remains committed to turning his military government over to the civilian politicians, but maintains that he will not preside over the splitting of Pakistan . . .[Mujib] is now planning to stick with his demands for the virtual autonomy of East Pakistan and if he does not get his way– which is very likely– to declare East Pakistan independence.

Yahya was caught between his reluctance to make common cause with Bhutto and his resistance to the quasi-independence of East Pakistan demanded by Mujib. He postponed the convening of the National Assembly set for early March to give the political leaders more time to sort out their differences, but this move further antagonised the East. Yahya ultimately rescheduled the Assembly for March 25, gambling that the two civilian antagonists, faced with a deadlock that might break up the country, would choose to compromise. In this judgement, too, Yahya proved to be mistaken. Bhutto was undoubtedly the most brilliant man in Pakistan politics; he was also arrogant and strong-willed. Later on, he would preside over the recovery of his dismembered country with statesmanship and courage. In early 1971, he feared that compromise would bring down on him the wrath of the very masses in West Pakistan whose support had swept him to the threshold of power. Mujib, for his part, could not arrest the forces he had unleashed. He was far less inclined to do so than Bhutto, and more prone to believe in his own rhetoric. Like figures in a Greek tragedy, each of these two popular Pakistani leaders refused to let the other cross the threshold beyond which lay power for both of them; they would yield to necessity but not to each other.

As the tension increased, our government reviewed its options. The Senior Review Group met on March 6 to consider the interagency study I had requested on February 16. Our consensus was that Pakistan would not be able to hold the East by force. I made it clear to the agencies that the President would be reluctant to confront Yahya, but that the White House would not object to other countries’ efforts to dissuade him from using force. If Pakistan broke up, it should be the result of its internal dynamics, not of American pressures. All agencies agreed that the United States should not get involved. This was also the policy of Great Britain, which had a much longer historical relationship.

During March we experienced the confusions that mark the onset of most crisis. In a major speech on March 7, Mujib stopped short of a total break with West Pakistan, but he demanded an end to martial law and a return to popular rule, making clear his goal remained the “emancipation” of the East. Yahya announced he was flying to Dacca, capital of East Pakistan to negotiate with Mujib on March 15. Meanwhile, in India in early March, Prime Minister Gandhi scored an enormous victory in the Indian general elections. Until then events in Pakistan had been the internal problems of a friendly country; we might have our view but they were not a foreign policy issue. Busy with the election campaign and its immediate aftermath, Mrs. Gandhi adopted a hands-off policy. As late as the middle of March, the permanent head of the Indian Foreign Office, T.N. Kaul, told our ambassador in New Delhi, Kenneth Keating, that India wanted Pakistan to remain united. On March 17, the Indian Ambassador in Washington, the skilful L.K. Jha, spoke in the same sense to me. Neither gave the slightest indication that India would consider the troubles in neighbouring East Pakistan as affecting its own vital interests.

But sometimes the nerves of public figures snap. Incapable of abiding events, they seek to force the pace and lose their balance. So, it was that Yahya Khan, with less than 40,000 troops, decided to establish military rule over the 75 million people of East Pakistan, to suppress the Awami League, and to arrest Sheikh Mujibur Rahman. The crisis in Pakistan then became international.

By courtesy:

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Origins of Tragedy

The India-Pakistan Crisis of 1971

In every administration some event occurs that dramatizes the limits of human foresight. In the year of uncertainty on Vietnam, the opening to China, and the evolving relationship with the Soviet Union, there was almost nothing the Administration was less eager to face than a crisis in South Asia. And as if to underscore the contingent quality of all our planning, it was triggered by, of all things, a cyclone.

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Bordered on the south by the Indian Ocean, on the north by the Himalayas, and on the west by the Hindu Kush mountains that merge with the heavens as if determined to seal off the teeming masses, and petering out in the east in the marshes and rivers of Bengal, the Indian subcontinent has existed through the millennia as a world apart. Its northern plains simmer in enervating heat in summer and are assailed by incongruous frost in winter; its lush south invites a life of tranquility and repose. Its polyglot peoples testify to the waves of conquerors who have descended upon it through the mountain passes, from the neighbouring deserts, and occasionally from the sea. Huns, Mongols, Greeks, Persians, Moguls, Afghans, Portuguese, and at last Britons have established empires and then vanished, leaving multitudes oblivious of either the coming or the going.

Unlike China, which imposed its own matrix of law and culture on invaders so successfully that they grew indistinguishable from the Chinese people, India transcended foreigners not by co-opting but by segregating them. Invaders might raise incredible monuments to their own importance as if to reassure themselves of their greatness in the face of so much indifference, but the Indian peoples endured by creating relationships all but impervious to alien influence. Like the Middle East, India is the home of great religions. Yet unlike those of the Middle East, these are religions not of exaltation but of endurance; they have inspired man not by prophetic visions of messianic fulfilment but by bearing witness to the fragility of human existence; they offer not personal salvation but the solace of an inevitable destiny. Where each man is classified from birth, his failure is never personal; his quality is tested by his ability to endure his fate, not to shape it. The caste system does not attract civilisations determined to seek fulfilment in a single lifetime. It provides extraordinary resilience and comfort in larger perspectives. The Hindu religion is proud and self-contained; it accepts no converts. One is either born into it or forever denied its comforts and the assured position it confers. Foreign conquest is an ultimate irrelevancy in the face of such impermeability; it gives the non-Indian no status in Indian society, enabling Indian civilisation to survive, occasionally even to thrive, through centuries of foreign rule. Of course, so many invasions have had to leave a human, not only an architectural, residue. The Moslem conquerors, representing a proselytizing religion, offered mass conversion as a route for lower-caste Hindus to alleviate their condition. They succeeded only partially, for once converted the new Moslems lost the respect to which even their low-caste status had entitled them. Here were sown the seeds of the communal hatred that has rent the subcontinent for the past generations.

Britain was but one of the latest conquerors, replacing Moslem Mogul and some Hindu rulers in the north and propping up indigenous Hindu rulers in the south– carrying out the cycle, it seemed of the ages. But in one important respect Britain’s conquest was different. True, it was made possible precisely because the British replaced one set of rulers by another in a pattern that had become traditional; its psychological basis was that the concept of nationhood did not exist. But it was Britain that gave the subcontinent– heretofore a religious, cultural, and geographic expression– a political identity as well. The British provided for the first time a homogenous structure of government, administration, and law. They then supplied the Western values of nationalism and liberalism. Paradoxically, it was their implanting of values of nationalism and democracy that made the British “foreign,” that transformed a cultural expression into a political movement. Indian leaders trained in British schools claimed for their peoples the very values of their rulers. And the half-heartedness of Britain’s resistance demonstrated that it had lost the moral battle before the physical one was joined.

As the prospect of nationhood appeared, the polyglot nationalities that the flood of invasions had swept into India now were left alone with their swelling numbers, their grinding poverty, and above all with one another. Nearly a third of the total population was Moslem, concentrated in the West Punjab and East Bengal but with important pockets all over India. Many of these peoples, by now outcasts of Indian society, found it unacceptable to live in a secular state dominated by those who through the centuries had disdained them. The British solution in 1947 was partition along religious lines.

Thus was born, amidst unspeakable horrors and communal riots, the states of India and Pakistan. Pakistan was composed of two units: the West, dominated by the Punjab; and the East Bengal*, separated by a thousand miles of Indian territory, with no common language, held together not by economics or history but by Islam and a common fear of Hindu domination. Pakistan’s very existence was an affront to Indian nationalists who had, like other leaders of independence movements, dreamed of claiming all the territory ruled by the former colonial power. And India saw in the neighbouring Moslem state a potential threat to its own national cohesion. Since more than fifty million Moslems remained under India’s rule, either they would sooner or later claim their own national existence, or else the creation of Pakistan had been in fact the needless British imposition that some Indian nationalists never tired of proclaiming it was. For its part, Pakistan conscious that even the lowest-class Hindus believed themselves part of a system superior to the Moslems, looked on its larger neighbour with fear, with resentment, and occasionally with hatred.

* Bengal was split by the 1947 partition. The eastern portion became East Pakistan; West Bengal remained part of India.

Few old neighbours have less in common, despite their centuries of living side by side, than the intricate, complex Hindus and the simpler more direct Moslems. It is reflected in the contrasts of their architecture. The finely carved Hindu temples have nooks and corners whose seemingly endless detail conveys no single view or meaning. The mosques and forts with which the Moguls have covered the northern third of the subcontinent are vast, elegant, romantic, their resplendent opulence contrasting with the flatness of the simmering countryside , their innumerable fountains expressing a yearning for surcease from a harsh environment and a nostalgia for the less complicated regions that had extruded the invader.

In the 1950s and 1960s, America, oblivious to these new countries absorption with themselves, sought to fit them into its own preconceptions. We took a face value Indian Prime Minister Jawaharlal Nehru’s claim to be neutral moral arbiter of world affairs. We hardly noticed that this was precisely the policy by which a weak nation seeks influence out of proportion to its strength, or that India rarely matched its international pretensions with a willingness to assume risks, except on the subcontinent where it saw itself destined for pre eminence. And we treated Pakistan simply as a potential military ally against Communist aggression. There was no recognition that most Pakistanis considered their real security threat to be India, the very country that we had enshrined in the pantheon of abstract morality and that in turn viewed our arming Pakistan as a challenge undermining our attempt to nurture its favour.

At one and the same time we overestimated the feasibility of obtaining India’s political approbation and misjudged the target of Pakistan’s military efforts. We were overly sensitive to the “world opinion” that India purported to represent. But we also sought to include Pakistan in a conception of containment that it did not share. The legal obligation to the common defense was thought to represent a deterrent to Communist aggression even when the members of the alliances in question could do little to reinforce each other’s strength or had a few shared objectives. Pakistan became our ally in the Southeast Asia Treaty Organisation (SEATO) and in the Central Treaty Organisation (CENTO). Pakistan thus became eligible for US arms aid, which was intended for use against Communist aggression but was suspected by India of having other more likely uses.

The military alliances formed in the Eisenhower Administration became controversial in America when the Democratic opposition attacked them as examples of overemphasising on military considerations. India became the special favourite of the American liberals, who saw in its commitment to democracy the foundation of a notional partnership and in its hoped-for-economic success the best refutation of Communist claims to represent the wave of the future. No wonder that after a change of administrations in 1961, Washington’s interest in Pakistan cooled noticeably; verbal assurances of American protection came increasingly to be substituted for military hardware. (The multiplication of these assurances came back to haunt in 1971). And all the while India worked tenaciously and skilfully to undermine the military relationship between Pakistan and the United States even after India had built up a significant weapons industry of its and established a substantial military supply relationship with the Soviet Union.

The 1965 India-Pakistan war furnished us a pretext to disentangle ourselves to some degree. The United Sates stopped the supply of all military equipment to both sides (this policy was modified somewhat in 1966-1967, to permit the provision of non-lethal items and spares for all equipment). The seeming even-handedness was deceptive, the practical consequence was to injure Pakistan, since India received most of its arms either from Communist nations or from its own armouries. President Johnson, aware of the one-sidedness of the action, promised to arrange a transfer to Pakistan of some obsolescent American tanks through a third party such as Turkey. But he never completed the transaction, in part because he did not want to spend his waning Congressional support on what must have appeared to him a marginally important decision, in part because the third parties developed second thoughts.

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Henry Kissinger

My own experience with the subcontinent should have forewarned me of its fevered passions. In January 1962, while I was still technically a consultant to President Kennedy, the United States Information Agency arranged a series of lectures for me on the subcontinent. Our Ambassador to India, John Kenneth Galbraith, a good friend of mine, was not a little disquieted about the impact on his presumptively sensitive and pacifist clients of a Harvard professor whose chief claim to fame at that time was a book called Nuclear Weapons and Foreign Policy. I promptly put his mind at ease by getting myself embroiled with Pakistan upon my arrival at the New Delhi airport. At the inevitable press conference, I replied to a question about Kashmir with what I thought was a diplomatic answer–that I did not know enough about it to form a judgement. When queried bout Pakistan’s budding flirtation with China, I was loath to admit my ignorance of a development that, in the light of the prevalent view of China’s congenital aggressiveness, seemed preposterous. I therefore opined that I could not imagine Pakistan doing such a foolish thing. Pakistan’s leaders already felt discriminated against because a Harvard professor had been assigned as Ambassador to New Delhi while Islamabad rated “only” a career appointment. But they had been too circumspect to attack a personal friend of Kennedy. My airport interview was a godsend. It enabled the Pakistani press to vent its disappointment against another Harvard professor and lesser associate of Kennedy. My confession of ignorance about Kashmir was transmuted into a symbol of American indifference. Using the word “foolish” in the same sentence as “Pakistan”–even to deny that Pakistan was foolish–became a national insult. There was one compensation. The Pakistani press campaign turned me fleetingly into a figure of consequence in India. Thus in 1962, at least, the charge was that I was tilting toward India.

Matters eventually calmed down enough so that I could show my face in Pakistan on the same trip. I proved immediately that I had not lost my touch. Returning to Peshawar from sight-seeing at the Khyber Pass, I was waylaid by a Pakistani journalist who asked me whether I had seen any sign of Pushtoon agitation.* on the theory that the subcontinent had been deprived of my wisecracks long enough, I replied: “I would not recognise Pushtoon agitation if it hit me in the face.” the resulting headline, “Kissinger Does Not Recognise Pushtoonistan,” triggered an official Afghan protest in Washington, but at least it made me a momentary hero in Pakistan. There is no telling what else I might have achieved had I followed my wanderlust to visit Afghanistan. But the USIA judged that it had more than gotten its money’s worth of cultural exchange and that home was a safer place for my talents.

*this referred to a movement to detach the border region from Pakistan and connect it with people speaking a similar language on the Afghan side of the Khyber Pass. Thus, perhaps I should have known better than to become involved in the frenzies of the subcontinent in 1971.

When the Nixon Administration took office, our policy objective on the subcontinent was quite simply to avoid adding another complication to our agenda. In their uneasy twenty-two years’ coexistence India and Pakistan had fought two wars. We sought to maintain good relations with both of them. Nixon, to put it mildly, was less susceptible to Indian claims of moral leadership than some of his predecessors; indeed he viewed what he considered their alleged obsequiousness toward India as a prime example of liberal soft headedness. But this did not keep him from having a moderately successful visit to New Delhi in 1969 on his round-the-world trip. He quickly abandoned his vision of crowds comparable with Eisenhower’s in 1956. The reception was restrained; crowds were merely adequate; the discussions were what in communique language would be called “constructive” and “businesslike.” Nixon gave a very eloquent dinner toast, paying tribute to the wisdom of Mahatma Gandhi and ruminating thoughtfully on the nature of peace in the modern wold.

But Nixon and Mrs. Gandhi, Indian Prime Minister and daughter of Nehru, were not intended by fate to be personally congenial. Her assumption of almost hereditary moral superiority and her moody silences brought out all of Nixon’s latent insecurities. Her bearing toward Nixon combined a disdain for a symbol of capitalism quite fashionable in developing countries with a hint that the obnoxious things she had heard about the President from her intellectual friends could not all be untrue. Nixon’s comments after meetings with her were not always printable. On the other hand, Nixon had an understanding for leaders who operated on an unsentimental assessment of the national interest. Once one cut through the strident, self-righteous rhetoric, Mrs. Gandhi had few peers in cold-blooded calculation of the elements of power. The political relationship in substance was thus far better than the personal one.

Whatever Nixon’s personal qualms about its Prime Minister, India continued throughout his first Administration to enjoy a substantial constituency in the Congress and within the US government. Mrs. Gandhi had not yet disillusioned Americans by her nuclear test and assumption of authoritarian rule.
Emotional ties with the world’s most populous democracy remained. Large annual aid appropriations were proposed by the Administration and passed by the Congress with little opposition. Between 1965 and 1971 India received $4.2 billion of American economic aid, about $1.5 billion of it during the Nixon years.

If India basked in Congressional warmth and was subject to Presidential indifference, Pakistan’s situation was exactly the reverse. Pakistan was one of the countries where Nixon had been received with respect when he was out of office; he never forgot this. And the bluff, direct military chiefs of Pakistan were more congenial to him than the complex and apparently haughty Brahmin leaders of India. On the other hand, Pakistan had never found the sympathy in America that India enjoyed, at least among opinion-making groups. It did not represent principles with which Americans could identify as readily as with the ” progressive” slogans and pacifist-sounding morality of the world’s largest democracy. Moreover, India was much larger and had four or five times the population of Pakistan. There were thus hard headed reasons for the priority attached to our relations with India.

Nixon made few changes in the policies he inherited on the subcontinent except to adopt somewhat warmer tone toward Pakistan. He and I–as the only senior officials who knew the facts- were profoundly grateful to Pakistan’s role as the channel to China. It was a service for which Pakistan’s leaders, to their lasting honour, never sought any reciprocity or special consideration. The only concrete gesture Nixon made– and it was also to maintain the promise of his predecessor–was to approve in the summer of 1970 a small package of military equipment for Pakistan. This was to be a “one-time exception to the US arms embargo. It included some twenty aircraft and 300 armoured personnel carriers, but no tanks or artillery. The package amounted to $40 to $50 million (or somewhat more, depending on the type of aircraft chosen). India, which was increasing its military procurement at the average rate of $350 million a year–nearly ten times this amount– raised a storm of protest. At the same time,  India was accusing us of interfering in its domestic affairs because some of our Embassy personnel–in perhaps the most overstaffed Embassy of our diplomatic service– occasionally saw opposition leaders. This was not fulfilling a Washington-designed strategy but was a natural activity in a country with free institutions; it was an old accusation for the leaders of a democracy to make. But the storm soon blew over.

By 1971 our relations with India had achieved a state of exasperatedly strained cordiality, like a couple that can neither separate nor get along. Our relations with Pakistan were marked by a superficial friendliness that had little concrete content. On the subcontinent, at least, alliance with the United States had not been shown to produce significant benefits over non-alignment.

At the beginning of 1971 none of our senior policy makers expected the subcontinent to jump to the top of our agenda. It seemed to require no immediate decisions except annual aid programs and relief efforts in response to tragic natural disasters in late 1970. It appeared to be the ideal, subject for long-range studies. I ordered three of these in late 1970. Two addressed Soviet naval strength in the Indian Ocean and its implications; the third examined our long- term policy onward India and Pakistan, including the objectives of the Soviet Union and Communist China and the interplay between them.. Each of these studies was given a due date far ahead; no serious crisis was expected.

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The Memoirs of Richard Nixon

The Presidency 1971
On the morning of November 4,  I met in the Oval Office with the Prime Minister of India, Indira Gandhi. Her visit to Washington came at a critical time. Eight months earlier there had been a rebellion in East Pakistan against the government of President Yahya Khan. Indian officials reported that nearly 10 million refugees fled from East Pakistan into India. We knew that Yahya Khan eventually would have to yield to East Pakistan’s demands for independence, and we urged him to take a more moderate and conciliatory line. We could not have known the extent to which India would seize this opportunity not just to destroy Pakistan’s control of East Pakistan but to weaken West Pakistan as well.
Mrs. Gandhi complimented me highly on the way I was winding down the war in Vietnam and on the boldness of the China initiative. We talked about the uneasy situation in Pakistan, and I stressed how important it was that India not take any actions that would exacerbate it.

She earnestly assured me that India was not motivated in any way by anti-Pakistan attitudes. “India has never wished the destruction of Pakistan or its permanent crippling,” she said. “Above all, India seeks the restoration of stability. We want to eliminate chaos at all costs.”

I later learned that, even as we spoke, Mrs. Gandhi knew that her generals and advisers were planning to intervene in East Pakistan and were considering contingency plans for attacking West Pakistan as well.

Even though India was officially neutral and continued to receive foreign aid from us, Mrs. Gandhi had gradually become aligned with the Soviets, and received substantial economic and military aid from Moscow. President Ayub Khan and his successor, Yahya Khan had responded by developing Pakistan’s relations with the People’s Republic of China. With Moscow tied to New Delhi and Peking tied to Islamabad, the potential for the subcontinent’s becoming a dangerous area of confrontation between the Communist giants was great.
In our conversation that morning I was disturbed by the fact that although Mrs. Gandhi professed her devotion to peace, she would not make any concrete offers for de-escalating the tension. Yahya Khan had agreed to move his troops away from the border if India would do the same, but she would not make a similar commitment.

I said, “Absolutely nothing could be served by the disintegration of Pakistan. For India to initiate hostilities would be almost impossible to understand.” I said that in some respects the situation was similar to that in the Middle East: just as American and Soviet interests were involved there, so Chinese, Soviet and American interests were at stake in South Asia and the Indian subcontinent. “It would be impossible to calculate precisely the steps which other great powers might take if India were to initiate hostilities,” I said.
A month later, primed with Soviet weapons, the Indian army attacked East Pakistan. Fighting also erupted along the border with West Pakistan, but it was impossible to tell whether the Indian objective there was to pin down Pakistani forces or whether the action was the prelude to a full-scale attack. Battle plans of such dimensions are not formulated in less than a month, and I could not help thinking that Mrs. Gandhi had purposely deceived me in our meeting. I was also concerned that the Soviets had ignored several, clear signals from us that we would react very unfavourably if they supported India in an invasion of Pakistan. I felt that one of the primary Soviet motives was to show the world that, despite the much-heralded Sino-American rapprochement, the U.S.S.R. was still the premier Communist power. In fact, the Soviets moved troops to the Chinese border in an unsubtle attempt to tie up Chinese forces and prevent them from going to the aid of Pakistan.

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In the Lincoln Sitting Room with Henry Kissinger

I felt it was important to discourage both Indian aggression and Soviet adventurism, and I agreed with Kissinger’s recommendation that we should demonstrate our displeasure with India and our support for Pakistan. To coordinate our planning, Kissinger convened a meeting of the Washington Special Action Group (WSAG), composed of representatives from State, Defense, CIA, and the NSC. He found that the State Department felt that independence for East Pakistan was inevitable and desirable, and that India had limited aims in East Pakistan and no designs on West Pakistan. The risk of Soviet or Chinese intervention, according to this reasoning, was small. The State Department, therefore, argued that we should keep calm, sit back, and let the inevitable happen.

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In the Oval Office in 1970 with staff aides John Ehrlichman, Henry Kissinger and Bob Haldeman (seated)

I completely disagreed with this bland assessment. I wanted to let the Soviets know that we would strongly oppose the dismemberment of Pakistan by a Soviet ally using Soviet arms. Kissinger, therefore, summoned Soviet Charge Vorontsov to the White House and told him that this crisis had once again brought our relations to a watershed because we considered that promoting a war in the Indian subcontinent was inconsistent with improved relations with us.
Kissinger said that we wanted a cease-fire and the withdrawal of all Indian troops from Pakistan. Once the fighting had stopped, the parties could begin to negotiate a political settlement of the problem. We recognized that political autonomy for East Pakistan would be the probable outcome of a political solution, and we were willing to work in that direction. The main point was that the fighting should stop and the danger of a great power confrontation should be removed.

The next day I wrote a letter to Brezhnev that left no doubt about my feelings:

The objective fact now is that Indian military are being used in an effort to impose political demands and to dismember the sovereign state of Pakistan. It is also a fact that your government has aligned itself with this Indian policy . . .
I am convinced that the spirit in which we agreed that the time had come of us to meet in Moscow next May requires from both of us the utmost restraint and the most urgent action to end the conflict and restore territorial integrity in the subcontinent.

At eleven that night, Vorontsov delivered a note replying to the points Kissinger had made the day before. It accused the United States of not being active enough in maintaining peace, and it proposed an immediate cease-fire coupled with a demand that Pakistan immediately recognise the independence of East Pakistan. The Soviets clearly intended to play a hard line. What we had to do, therefore, was remain absolutely steadfast behind Pakistan. If we failed to help Pakistan, then Iran or any other country within the reach of Soviet influence might begin to question the dependability of American support. As Kissinger put it, “We don’t really have any choice. We can’t allow a friend o ours and China’s to get screwed in a conflict with a friend of Russia’s.”

On December 9 Vorontsov arrived with a long letter from Brezhnev. In an attempt to put the shoe on the other foot, he said that the crux of the problem lay in finding ways to exert influence on Yahya Khan to give up East Pakistan. Kissinger felt that the cordial tone of the letter at least indicated some responsive movement on the Soviet side, but I expressed my doubts.

In the meantime, the crisis had taken a disturbing turn. Through intelligence sources we learned that at a meeting of the Indian Cabinet Mrs. Gandhi had led a discussion of plans to expand the war on the western front and to invade West Pakistan. Kissinger called the Indian Ambassador, virtually told him that we knew his government’s plans, and demanded that the Ambassador urge New Delhi to reconsider any precipitate action.

The Soviet Minister of Agriculture happened to be visiting Washington at this time. I knew he was a close friend of Brezhnev’s, so I asked him to carry back a personal message to Brezhnev from me, conveying my seriousness in saying that it was incumbent upon the two of us as the leaders of the two nuclear superpowers not to allow our larger interests to become embroiled in the actions of our smaller friends.
Late that afternoon I authorised Admiral Moorer to dispatch a task force of eight ships, including the nuclear aircraft carrier Enterprise, from Vietnam to the Bay of Bengal.

The military situation in East Pakistan was hopeless. The numerically superior Indians had been joined by fierce Bengali rebels, and Yahya Khan’s forces were in total retreat. The almost unbelievable cruelty of the fighting on both sides had turned the situation into a nightmare. Millions of people were left homeless before the fighting ended.
Finally, Yahya recognised that he should follow the course of action we had been recommending: that he could no longer defend East Pakistan and that he should concentrate his forces in the defence of West Pakistan, in which event I indicated he would have my complete support. On December 9 Pakistan accepted the UN General Assembly’s call for a cease-fire. India rejected it, however, and tension was still rising along the border in West Pakistan, as I wrote another letter to Brezhnev calling on him to join me in ending the crisis before we ourselves were dragged into it. I began by stating that, in our view, his proposal for the political independence of East Pakistan had been met by Pakistan’s own action. Then I wrote:

This must now be followed by an immediate cease-fire in the West. If this does not take place, we would have to conclude that there is in progress an act of aggression directed at the whole of Pakistan, a friendly country toward which we have obligations.
I therefore propose an immediate joint appeal for a complete cease-fire. Meanwhile, I urge you in the strongest terms to restrain India with which, by virtue of your treaty, you have great influence and for whose actions you must share responsibility.

On December 11 we waited all day for a reply from Brezhnev. This delay was intolerable, since the possibility of an Indian attack on West Pakistan increased with each passing hour. On December 12, shortly before I was to fly to the Azores for a Franco-American Summit with President Pompidou on the international monetary crisis, a brief reply arrived from Moscow, stating simply that the Government of India had no intention of taking any military action against West Pakistan.
I immediately sent back a message that the Indian assurances lacked any concreteness. In view of the urgency of the situation and the need for concerted action, I proposed that we continue consultations through the secret Kissinger-Dobrynin channel. I added that I could not emphasise too strongly that time was the essence to avoid consequences that neither of us wanted.
Despite the urgent tone of my message, the hot-line wires were cold until 5 A.M. the next day, when a three-sentence message arrived that the Soviets were conducting a “clarification” of the circumstances in India and would inform us of the results without delay.
In Washington on December 14, Vorontsov handed Haig another message from the Kremlin. Once again it offered only vague assurances that India had no intention of taking any military action against Pakistan. Since this reply offered no improvement over the earlier message, I agreed with Kissinger that Haig should call Vorontsov and tell him so.
On the flight from Azores back to Washington, Kissinger talked to the three pool reporters flying aboard Air Force One. One of them asked if there was any danger that the crisis might deteriorate to the point that it would affect my plans to go to the summit. “Not yet,” Kissinger replied, “but we will have to wait and see what happens in the next few days.the reporters immediately realised that they just been given a big story. “Should we infer from statement that if the Russians don’t begin to exercise a restraining influence very soon, the plans for the President’s trip might be changed?” one asked.
Kissinger replied, “We are definitely looking to the Soviets to become a restraining influence in the next few days, and if they continue to deliberately encourage military actions, we might have to take a new look at the President’s plans.”
As soon as the plane landed, the reporters rushed to share their notes with their colleagues and file their stories. The early evening news programs flashed the report around the country and around the world.

Kissinger summoned Vorontsov to the White House and told him that I had been concerned that the Soviet leaders were not doing everything possible to arrive at a settlement. In view of their continued delays, I had begun to believe that they were dealing only in words, with the intention of letting events on the ground dictate the ultimate outcome.
“It is not President Nixon’s style to threaten, ” Kissinger said. “He has long sought a genuine exchange in U.S.-Soviet relations. Despite his desire, however, your government has proceeded to equip India with great amounts of sophisticated armaments. If the Soviet government were to support or to pressure other foreign leaders to dismember or to divide an ally of the United States, how can they expect progress in our mutual relationships?”

The next day, Kissinger called Vorontsov back and showed him the text of a letter I had written to Kosygin urging that our countries take prompt and responsible steps to ensure that the military conflict not spread and that assurances be given against territorial acquisition by either side.

Vorontsov complained that the Indians were proving very resistant to Soviet pressure. Kissinger replied, “There is no longer any excuse. The President has made any. Umber of personal appeals, all of which have been rejected, and it now time to move.”

Vorontsov said that the Soviets were prepared unconditionally to guarantee that there would be no Indian attack on West Pakistan or on Kashmir. But to do this publicly would mean that they were, in effect speaking for a friendly country. In other words, the Soviets would urge the Indians to accept a cease-fire as long as they did not have to do so publicly. Without the prospect of Soviet support and aid, the Indians were almost certain to agree to a settlement.

The next day Yahya Khan’s forces in East Pakistan surrendered unconditionally. On December 17, the explosive situation on the western front was also resolved when Pakistan accepted the Indian offer of a cease-fire there. By using diplomatic signals and behind-the-scenes pressures we had been able to save West Pakistan from the imminent threat of Indian aggression and domination. We had also once again avoided a major confrontation with the Soviet Union.

The Indo-Pakistan war involved stakes much higher than the future of Pakistan–and that was high enough. It involved the principle of whether big nations supported by the Soviet Union would be permitted to dismember their smaller neighbours. Once that principle was allowed the world would have become more unstable and unsafe.

The Chinese played a very cautious role in this period. They had troops poised on the Indian border, but they would not take the risk of coming to the aid of Pakistan by attacking India, because they understandably feared that the Soviets might use this action as an excuse for attacking China. They consequently did nothing, but the presence of their forces probably had a deterrent effect on India.
Three days after the cease-fire was arranged, we sent the Chinese a brief description of its major points. We concluded, “It is the U.S. view that recent events in South Asia involve sobering conclusions. The governments of the People’s Republic of China and the United States should not again find themselves in a position where hostile global aims can be furthered through the use of proxy countries.”
As a result of the Indo-Pakistan crisis, my respect and regard for Mrs. Gandhi diminished. A few months later, in March 1972, after having seen a film biography of Mahatma Gandhi–who was no relation to her–during a weekend at Key Biscayne, I dictated a brief reflection in the diary I had begun keeping in November 1971.

Diary
As I saw Gandhi’s assassination and heard his words on violence, I realised how hypocritical the present Indian leaders are, with Indira Gandhi talking about India’s victory wings being clipped when Shastri went to Tashkent and her duplicitous attitude towards us when she actually made up her mind to attack Pakistan at the time she saw me in Washington and assured me she would not. Those who resort to force, without making excuses, are bad enough– but those who resort to force while preaching to others about their use of force deserve no sympathy whatever.

One of the most serious incidents of the Indo-Pakistan crisis occurred on our domestic front. On December 14, while we were still uncertain whether India would attack West Pakistan, syndicated columnist Jack Anderson published verbatim excerpts of the minutes of the WSAG meetings of December 2,4, and 6. The minutes revealed Kissinger’s statements to the group relaying my strong pressure to “tilt” toward Pakistan, which differed from the posture that had been adopted by some State Department sources as well as from the more neutral public position we embraced in order to exercise greater leverage on all parties. From a diplomatic point of view, the leak was embarrassing; from the point of view of national security, it was intolerable.
The leak came as a shock because WSAG meetings had been attended by only the highest-ranking members of the military intelligence organisations and the State Department. We learned that Rear Admiral Robert O. Welander believed that one of the leaked documents had to have come from his office, which handled liaison between the Joint Chiefs of Staff and the National Security Council. Bud Krogh and David Young were assigned to investigate.
Suspicion centred on a young Navy yeoman assigned to Welanders’s office. In the course of questioning, Young learned that for some time the yeoman has been making copies of secret NSC documents. He had rifled burn bags for carbon or xerox copies, and in some cases, he actually took documents for copying out of Kissinger’s and Haig’s briefcases. On one occasion, he copied a memo of Kissinger’s conversation with Chou En-lai during the first secret mission to Peking. He passed the documents to his superiors in the Pentagon.
We were not able to establish beyond doubt that the yeoman was Anderson’s source. However, circumstantial evidence was strong. They were personally acquainted and had met on several occasions. Whether or not he had disclosed classified information to Anderson, the fact remained that he had jeopardised the relationship of the JCS to the White House.
I was disturbed–although not perhaps really surprised–that the JCS was spying on the White House. But I was, frankly, very reluctant to pursue this aspect of the case because I knew that if it were explored, like so many other sensitive matters it would wind up being leaked to the media where it would be completely distorted, and we would end up doing damage to the military at a time when it was already under heavy attack.
The yeoman himself presented a similar problem. I felt the circumstantial evidence that he had provided information to Anderson was convincing, and I knew that such actions could not be tolerated.

Diary
What concerns me about this story is the Ellsberg complex that drove the yeoman to put out the information. His spying on the White House for the Joint Chiefs is something that I would not particularly be surprised at, although I don’t think it’s a healthy practice. But his proceeding to put out top secret information to a newspaper columnist, because he disagreed with the policy on India is the kind of practice that must, at all costs, be stopped.

I felt, however, that it would be too dangerous to prosecute the yeoman. He had travelled with Kissinger and others on a number of secret missions and had had access to other top-secret information, which if disclosed, could have jeopardized our negotiations with China and with North Vietnam. In this respect, he was a potential time bomb that might be triggered by prosecution. We had him transferred to a remote post in Oregon and kept him under surveillance, including wiretaps for a time, to make sure that he was not dispensing any more secret information. It worked: there were no further leaks from him.

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