Pakistan which heretofore has not necessarily been supported in India. Yahya was mistaken in trying to suppress Mujib.

India, on the other hand, has always reflected a degree of forebearance toward its own separatist elements. The pattern has been clear. West Pakistan has dealt with the Bengali people in a treacherous and deceitful way and has always relegated them to an inferior role. As the situation worsened, India attempted to ameliorate it by maintaining communication with all the parties.

The Prime Minister then turned to the great numbers of refugees who continue to stream across the border from East Pakistan. She noted that there were many estimates of what the totals might be and that precise calculations had to be inconclusive due to the confusion and the possibility of miscalculation.

President Nixon stated that this tragic situation demanded prompt and extensive humanitarian assistance and that for this reason he would continue to pressure the U.S. Congress to provide this assistance.

The Prime Minister noted that India had been accused of supporting guerrilla activity but that the situation was not that clear. She drew a parallel to the problems the U.S. Government had when Cuban refugees based in Florida launched forays against the Cuban mainland.

The Prime Minister then cited the additional problems which had resulted from the severe cyclone. She noted that the situation was aggravated by the differences in religion and background between the refugees and the local population in India on which they were superimposed. This situation demanded the utmost efforts on the part of the Indian Government to prevent communal riots and bloodshed.

President Nixon stated that U.S. policies were predicated upon the need to have the refugees return to their homes. The Prime Minister emphasized the great dilemma facing India. She noted that India does not object to observers but has difficulty in understanding what role they would play. She stated that, contrary to current criticism, foreign observers were free to go where they pleased.

President Nixon expressed sympathy with India's dilemma and noted that the U.S., and other nations as well, were greatly concerned with the problems posed by the flood of refugees from East Pakistan. He noted, however, that many of the tactics which were being employed by the Bangla Desh were increasing the dilemma. For example, it was difficult to understand their motives in harassing and destroying the flow of humanitarian supplies being carried in ships to Chittagong Harbor. Also it would seem that guerrilla activity of this type must involve sophisticated training and equipment.

The Prime Minister then described in detail the atrocities which were occurring in East Pakistan. She noted that despite oppressive measures, the Pakistani military had been unable to establish control in the area.

There were, of course, continuing accusations that India had instigated the guerrilla movement and continued to support it. However, the realities were that it was no longer realistic to expect East and West Pakistan to remain together. The pressures for autonomy are overwhelming.

The President agreed that accusations and counter-accusations on both sides made progress most difficult. It also complicated the U.S. Government's efforts to be helpful. There was no doubt that Pakistan must ultimately do more to relieve the situation.

The Prime Minister stated that President Yahya continued to speak of a Holy War. It may well be that the presence of Indian forces along Pakistan's frontier had deterred the initiation of military action by Pakistan thus far. This tense situation had influenced India toward making its treaty with the Soviet Union as a means of creating an additional deterrent. Stability in India was an important objective to the Soviet Union and, therefore, the Soviet Union had been pressing for a political solution. Many in India have been opposed to the Soviet treaty and the majority of the Parliament was concerned about this.

President Nixon asked the Prime Minister for her views on how a solution could be achieved. The Prime Minister stated that India's major concern was the impact of the situation on India itself.

President Nixon stated that U.S. efforts with respect to Pakistan were designed to alleviate the situation along constructive lines. The U.S. Government had always admired the people of India and shared its concerns. This had been clearly demonstrated. The restrictions we had placed on military assistance to East Pakistan had been undertaken with our relationships with India clearly in mind.

The Prime Minister replied that the crucial issue remained the future of Mujib who was a symbol of the imperative for autonomy.

The President reassured the Prime Minister that the U.S. Government had thus far placed great pressure on Pakistan. It had urged President Yahya to move his forces back from the border with India unilaterally as a deescalatory step. While the U.S. Government understood that India must make its own judgment in this regard, based on its national interests, some disengagement would serve the interests of lessening tensions.

Mr. Haksar noted the difficulties for India posed by the displacement of Indian forces.

The President expressed his understanding for India's problem in undertaking the displacement of forces, but he noted that President Yahya had indicated a willingness to undertake some pullback. If India now believed that such a step would not contribute to the lessening of tensions, it would be necessary for the U.S. to reconsider its efforts to effect such a pullback by Pakistani forces. Up to now, the U.S. had been urging President Yahya to take the first step and President

Yahya had expressed a willingness to do so on a unilateral basis. It had been the U.S. Government's view that if Yahya would undertake such a step we could then anticipate similar moves on the part of India. Obviously, however, India would have to make its own decision.

President Nixon assured the Prime Minister that the U.S. Government would continue to pursue all avenues to improve the situation. The U.S. Government would:

-continue to assist with humanitarian relief efforts, both through multilateral organizations and bilateral programs.

-continue to urge restraint on the Pakistan Government. -explore with all parties measures to facilitate a political solution.

However, the President stated, nothing could be served by the disintegration of Pakistan. The initiation of hostilities by India would be almost impossible to understand. In some respects, the situation was similar to that in the Middle East, where the U.S. Government had told the Israeli Government that it could not support the initiation of hostilities by that government, despite our long established ties of friendship and respect. It would be impossible to calculate with precision the steps which other great powers might take if India were to initiate hostilities.

As the meeting concluded, President Nixon expressed the U.S. Government's continuing sympathy and support for the Government of India at this most difficult and trying time.

180. Editorial Note

President Nixon and Henry Kissinger met in the Oval Office of the White House on the morning of November 5, 1971, to discuss Nixon's conversation with Prime Minister Gandhi on the previous day. Kissinger's overall assessment was that "the Indians are bastards anyway. They are starting a war there.... To them East Pakistan is no longer the issue. Now, I found it very interesting how she carried on to you yesterday about West Pakistan." He felt, however, that Nixon had achieved his objective in the conversation: "While she was a bitch, we got what we wanted too.... She will not be able to go home and say that the United States didn't give her a warm reception and therefore in despair she's got to go to war." Kissinger judged that Gandhi had been thwarted in her objective: "She would rather have had you give her a cool reception so that she could say that she was really put upon." Nixon agreed: "We really slobbered over the old witch." Kissinger felt that on matters of substance, nothing of importance had

been conceded: "You slobbered over her in things that did not matter, but in things that did matter, you didn't give her an inch." Nixon and Kissinger agreed that in the upcoming conversation with Gandhi the approach to take was to be "a shade cooler" and allow her to do more to carry the conversation than had been the case in the initial conversation. (National Archives, Nixon Presidential Materials, White House Tapes, Recording of conversation between Nixon and Kissinger, November 5, 1971, 8:51-9:00 a.m., Oval Office, Conversation No. 615-4) A transcript of this conversation is published in Foreign Relations, 1969-1976, volume E-7, Documents on South Asia, 1969-1972, Document 150.

President Nixon and Prime Minister Gandhi met in the Oval Office at 11:20 a.m. on November 5. Kissinger and Haksar were also present. Nixon opened the conversation by discussing the objectives of his planned trip to China. Thereafter the conversation, which lasted an hour, became a diplomatic tour d'horizon, touching on many of the trouble spots of the world, but with scant reference to South Asia. Gandhi did not respond to Nixon's proposal of the previous day to consider a withdrawal of forces from the borders of India and Pakistan. (Ibid., Recording of conversation between President Nixon and Prime Minister Gandhi, November 5, 1971, 11:20 a.m.-12:20 p.m., Oval Office, Conversation No. 615–23) Kissinger prepared a memorandum of the conversation (ibid., White House Special Files, President's Office Files, Box 2, Memoranda for the President, Beginning October 31, 1971) which is published in Foreign Relations, 1969–1976, volume E-7, Documents on South Asia, 1969-1972, Document 151.

181. Telegram From the Department of State to the Embassy in India1

Washington, November 8, 1971, 2045Z.

203187. Subject: Secretary's Meeting with Prime Minister Gandhi; East Pakistan Problem. Following is Noforn, FYI only, uncleared and subject to revision on review:

Summary: In response Secretary's request, PriMin described manner in which East Pak situation was threat to Indian security and very

1 Source: National Archives, RG 59, Central Files 1970-73, POL 15-1 INDIA. Secret; Exdis. Drafted by Schneider on November 5, cleared by Laingen, and approved by Van Hollen. Repeated to USUN, London, Paris, Moscow, Bonn, Islamabad, Calcutta, Dacca, and Tehran.

great domestic pressures on her to take firmer action. Secretary indicated steps USG had taken: dried up arms pipeline; secured Yahya's agreement to unilateral withdrawal; and obtained Yahya's agreement meet with Awami League representative and consider meeting with Awami Leaguer designated by Mujib. Said we hoped India would respond if there was unilateral withdrawal. PriMin described problems in way of withdrawal and raised questions regarding Bangla Desh/ Yahya talks. Sisco responded if there was merit in ideas we have suggested, such questions can be worked out. PriMin questioned that Yahya genuinely sought political solution. Secretary and Sisco affirmed our evaluation that he did and Secretary pointed out USG has done its utmost to assist. End summary.

1. Secretary met with PriMin Gandhi at 10 AM November 5. Secretary accompanied by Ambassador Keating, Sisco and Schneider. PriMin accompanied by Ambassador Jha, Haksar and Sathe.

2. Secretary opened conversation by expressing interest in Mrs. Gandhi's views on East Pak problem. PriMin replied Indian security threatened by East Pak development. Threat caused not only by presence Pak armed forces on Indian borders but by massive refugee flow and GOP continuing actions in East Pak causing flow. This creates not just economic burden but also political and social problems which can affect Indian stability and integrity. PriMin pointed out crisis has created great pressures on her. Even within Cabinet there is feeling that by following "weak-kneed policy” PriMin is jeopardizing security of India. PriMin explained that she had had some experience with war, having been in London during worst period of World War II blitz. Said she understands larger ramifications of conflict, but India has been pushed step by step to confrontation. Most of her colleagues and leaders other parties had thought she should not make current trip. She concluded tensions would have become more severe if she had canceled. Therefore she concluded she had to go. She had told army even if there were casualties it should refrain from action, but this would be difficult to explain to Parliament. She was sending daily messages to Delhi. Even from here, she explained, she was trying to hold back pressures for more action. Said she had large majority in Parliament but on this issue it was not absolutely in her control.

3. Secretary replied he agreed with PriMin's judgment that tensions should be curbed. As President had told Mrs. Gandhi it would be world tragedy if there were India-Pakistan war. We understand India's problem, which caused by others. We want to assist and have taken certain steps which we hope are in accord with Indian views. First, we have dried up arms pipeline to Pakistan. Some $160,000 worth of items remain on docks in New York. Arms matter is now behind us. We wish to brief Congressional leaders next week and thereafter make