United Nation& FIRST COMMiml, 726t~ GENERAL MEETING ASSEMBLY Tuesday, 23 November 1954, at 3 p.m. NINTH SESSION Official Records New York

CONTENTS that Indonesia consisted of a series of island groups Page including specifically "New Guinea west of ] 41 °E. 1 ~genda item 61 : longitude" . The question of West Irian (West New Guinea) 389 4. There was a contention that the West Irianese, or Statement by the Chairman ...... 397 Papuans, were not Indonesians and had no racial or ethnological links with Indonesians. "Indonesia", how­ ever, was not a racial term, but a national and polit­ Chairman: Mr. Franci1co (Colombia). URRUTIA ical one. Indonesia was inhabited by many kinds of ethnic groups with their own dialects and with more or less different customs. Mr. Sudjarwo recalled, in AGENDA ITEM 61 that connexion, that Mr. van Royen, the represent­ ative of the Netherlands, had referred on 22 Decem­ The question of the West Irian (West New ber 1948, before the Security Council,2 to about seven­ Guinea) (A/2694, A/C.l/L.l09) teen main ethnic and linguistic groups which had been given a sense of Indonesian nationality by common .. The CHAIRMAN stated that on the item now existence under the Netherlands Crown. It did not >efore the Committee it was his intention to interpret matter whether the West Irianese belonged to the same he rules of procedure precisely. When the text of ethnic groups or spoke the same language as other >roposals was being discussed, there should be no re­ Indonesians. In fact, the Irianese used the Indonesian >etition of the general debate. Similarly, when explana­ language as their lingua franca. It was by no means ions of vote were given, general declarations, which necessary, in order to possess a particular nationality, vere more fitting for the general debate, would not be to belong to the same race and speak the same lan­ n order. In view of the delays in the work of the Com­ guage as all the other nationals of the country, as nittee, he hoped that it would not be necessary to sus­ was evident from the examples of Switzerland, India, lend the debate. He asked all prospective speakers to the United Kingdom, the Soviet Union, or even the 1lace their names on the list which he hoped could be Netherlands itself. The Province of Friesland, for allowed without any interruption. instance, took pride in being distinct from other parts of the Netherlands, with its own language and litera­ ' Mr. SUDJARWO (Indonesia) expressed the hope ture. hat in the discussions of the question of West Irian he Committe might find a peaceful solution of a 5. Thus there were two basic, unequivocal facts. lispute which had continued for almost five years, or Indonesia was the national political name of the former .t least could explore the ways in which such a peace­ Netherlands East Indies, including West Irian; and ul solution might be attained. The explanatory memo­ the West Irianese were Indonesians. andum of 17 August 1954 (A/2694) depicted the 6. The question whether West Irian had cultural links tature of the dispute and gave the reasons why the with other Indonesians was irrelevant, since culturally ndonesian Government had found it necessary to sub­ the peoples of the whole of South-East Asia and the 'lit the question to the General Assembly. The decision Pacific were close to one another. Mr. Sudjarwo would o do so had been made only after efforts to reach a therefore refrain from asking what cultural link existed atisfactory solution by negotiations outside the United between the Netherlands and West Irian. Jations had failed. 7. The essence of the issue was the freedom which the . It was unfortunate that West Irian, which for cen­ United Nations sought to promote and the colonialism Ltries had been an integral part of his country, should which the United Nations sought to end. Nevertheless, e disputed by the Netherlands. TheNether lands efforts the Indonesian delegation did not wish to discuss the J separate West Irian from independent Indonesia story of Netherlands colonialism in Indonesia, which nd keep it in colonial bondage constituted a regret­ after three centuries had tragically ended only in a tble and dangerous policy. "Indonesia" was the na­ war of revolution. Nor did it intend to debate the 'tonal name substituted for the unpopular colonial term question why, after all those years, only 7 per cent Netherlands East Indies", and had been recognized of the population was literate. !gaily and constitutionally by the Netherlands. In the 8. West Irian had been the most neglected part of :onstitution of the Kingdom of the Netherlands, as Indonesia under the Netherlands regime. It was almost mended in 1948, the term "the Netherlands Indies" entirely undeveloped economically and socially. Al­ ad been replaced by the term "Indonesia". From that though the territory represented about 413,000 square me on "Indonesia" had become the official name used y the Netherlands for what had formerly been the 1 Non-Self-Governing Territories: Summaries and analvses retherlands Indies, including, of course, West Irian, of information transmitted to the Secretary-General during 1949, Vol. II, p. 158. United Nations Publications, Sales No.: •hich had then been a sub-residency of the Moluccas 1950.VI.B.l. ~sidency. It had therefore been natural for a Nether­ 2 See Official Records of the Security Council, Third Year, :nds report to the United Nations in 1949 to state No. 132, 388th meeting. 389 AjC.ljSR.726 • 390 General Assembly - Ninth Session - Fir!lt Committee kilometres and constituted about 22 per cent of Indo­ and the parties had entered into negottatwns which nesia, it was covered with malarial jungles and moun­ had led to political agreements (S/1417/Add.1) at tains and had not been considered attractive by the the Round Table Conference at The Hague late in Netherlands Goverment. However, it had been thought 1949. good enough as a location for a concentration camp for Indonesian political leaders. 16. From the outset, it had been the policy of the Indonesian Government to settle the conflicts with th~ 9. The territory had not, however, been neglected Netherlands by peaceful negotiations. The Govern­ by the Indonesian Government. West Irian was part ment of the Indonesian Republic had declared tha1 of the country and an integral part of the effort for policy in a political manifesto on 1 November 1946 independence, and the West Irianese had fought for in which it had stated that if force was ever used, i1 freedom from colonial rule. would be the Dutch who would take the initiative, anc 10. For many decades Indonesia had fought for its that what the Indonesians desired was simply a recog­ independence and for a change from its colonial status nition of their independence and the opportunity tc to that of a free national State. The boundaries of perfect the form of government they had chosen. that State could only be the boundaries of the former Netherlands East Indies with whose freedom the na­ 17. It had been clear from the beginning that peac( tional movement had been concerned. From the north­ could only be restored if the Netherlands Governmen• west of Sumatra to the south-east of New Guinea, the was willing to give up its colonial ties. Co-operatior people had been actively engaged in the movement to could then be established in a new relationship betweer establish the sovereign State of Indonesia. In the fight two sovereign States, the Netherlands and Indonesia for freedom there had been no distinction between Whatever form the new sovereign State might take West Irianese, Javanese, Sumatrans or others. Indo­ it was to replace the former Netherlands East Indies nesians from other islands lived in West Irian and the and colonialism was to be abolished throughout th inhabitants of neighbouring islands belonged to the territory. There was no doubt about the boundaries o same racial stock. West Irian had had close trade and the new State. other relations with other parts of the country, and 18. In article 3 of the Linggadjati Agreement, ini historically had belonged to the Sultanate of Tidore. tialled on 30 November 1946 and signed on 25 Marcl Only since the existence of the dispute with the Nether­ 1947, it had been stated that the United States of Indo lands had those natural relations been cut off. nesia should comprise tpe entire territory of th 11. When the people of Indonesia had proclaimed Netherlands Indies. Although that agreement had no their independence on 17 August 1945, they had set been implemented, the basic principle that the terri up an independent republic comprising the former tory of the Netherlands East Indies should be th Netherlands East Indies territories. territory of the United States of Indonesia had no 12. The people of West Irian had participated actively been abandoned. The Netherlands Lieutenant Gov in the struggle against the possible return of the ernor General, Mr. van Mook, at the conference a Netherlands administration. They had set up a new Den Pasar in Bali in December 1946, had stated tha political party, called the Irian Party for the Inde­ it was decidedly not the intention of the Netherland pendence of Indonesia, in 1946. Their leader, now a Government to exclude New Guinea from Indonesi;: member of the Indonesian Parliament, had led resist­ 19. In the Rem1ille Agreement of 17 January 194~ ance groups in West Irian against the Japanese, and the first of the six additional principles had state had been decorated for his war-time activities, which clearly that the sovereignty to be transferred was ~h had included service with the United States and Aus­ sovereignty throughout the Netherlands East Indte! tralian forces. His ideal, and that of his party, had The Renville Agreement, in its turn, had not bee been not merely to help the Allies rid the country of executed. but the principle that the Netherlands Ea1 the Japanese occupation forces, but also to free it from Indies would be replaced entirely by a new Indonesia any foreign domination. State had no longer been in dispute. AccordinglJ 13. TheNether lands colonial administration had failed Mr. van Royen had told the Security Council o to appreciate that movement, and its repressions had 22 December 1948 that all parties agreed that wh< driven the party underground. Even so, the party had used to be the Netherlands East Indies should becorr had 2,000 members by March 1948, and was the largest an independent State. political group in West Irian. Considering the diffi­ culties of political organization in such an under­ 20. The preliminary agreement of 7 May 1949. cor cerning a round table conference had stated that dtscu: developed territory, and the Netherlands repressions, sions would take place in connexion with the trans£( the growth of the party was indicative of the desire of sovereignty in accordance with the Renville prir of the politically literate people of West Irian to end ciples. When the Netherlands had proposed a roun colonialism. The movement had spread rapidly through­ table conference, its representative had informed tl out the whole territory, although it was severely ham­ United Nations, in a letter dated 2 March 1949 (~ pered by the Netherlands troops, who curtailed free­ 1274), that it had reached the conclusion that the be dom of movement and freedom of speech. solution was to be found in an accelerated transfer < 14. The Netherlands parliamentary report of 1954 its sovereignty to an Indonesian federal governme1 had admitted the unsatisfactory conditions and unrest which would be fully representative of the whole < prevailing in West Irian. There could be no peace Indonesia. That decision to transfer complete sove there so long as colonialism continued in an area which eignty unconditionally had promised to _solve the col, belonged to an independent Indonesia. To sustain such nial conflict fundamentally. At the opemng of the co1 an anachronism would be to preserve a threat to the ference, the Netherlands Prime Minister had spok( peace and the democratic development of that area. of the irrevocable resolution of the Netherlands 15. Thanks to the intervention of the Security Coun­ transfer sovereignty so that a new tie between tl cil, the colonial ·war had been stopped in Tndonesia Netherlands and Indonesia would be established at 726th meeting - 23 November 1954 391 the door would be open towards co-operation of both nea shall be maintained" meant "through continuing peoples on the basis of freedom and friendship. under the Government of the Netherlands". That of­ 21. In the new relationship there could be no doubt ficial English text unfortunately was not a complete as to where the West Irianese would be. They were translation of either the Dutch or Indonesian texts. Indonesians, not Netherlanders. No one familiar with However, in none of the three official texts was the the basic idea of the Round Table Conference could word "sovereignty" used. It was clear that the inten­ imagine the exclusion of the Indonesians of West tion had been that the Netherlands should retain over Irian. The co-operation of the Indonesian delegation West Irian something which had purposely not been had therefore been offered by its Chairman, who had termed "sovereignty". Although the Netherlands had concluded his opening statement at the conference with been allowed to retain temporary administration and the thought that both sides should concentrate their control, no claim to sovereignty was supported by the attention on the future of the two nations. Charter of transfer. Netherlands administration in West Irian could be continued temporarily for the 22. The achievement of the declared purpose of the sake of expediency, but a claim to continuing sover­ transfer of sovereignty had been laid down in an agreed eignty over any part of Indonesia would be a violation charter stating that the Kingdom of the Netherlands un­ of the principle of the transfer of sovereignty. conditionally and irrevocably transferred complete sov­ ereignty over Indonesia to the Republic, and recog­ 27. While the round table agreements of 2 Novem­ nized the Republic as an independent State. It had ber 1949 had been correctly regarded as a successful been agreed that the transfer of sovereignty should end of the four-year conflict, the happy occasion had take place at the latest on 30 December 1949. The been obscured by the dispute over \Vest Irian. The Indonesian delegation had then remembered with gra­ head of the Indonesian delegation, therefore, had said titude the declaration of Mr. van Royen before the in his closing speech at the conference that while he United Nations. And it had been satisfied by the state­ welcomed its success, the happiness of his delegation ment of the head of the Netherlands delegation that was rather repressed because not all questions had been the ideal of the freedom of the Indonesian peoples was solved. The fact that the question of West Irian had to be irrevocably realized. No one could have imagined remained in dispute had been of the gravest concern to the exclusion of one group of peoples from the term the Indonesian Government, which had received severe "Indonesian peoples". There could be no room for criticism, and it had been with the greatest difficulty doubt about the idea that sovereignty over Indonesia that the agreements were ratified by the Indonesian meant the whole of Indonesia. Neither the wording Parliament. nor the spirit of the agreement could admit of any 28. After the transfer of sovereignty on 27 December other interpretation. 1949, the Indonesian Government had been determined 23. However, it seemed that the Netherlands, con­ to remove the dispute as soon as possible by negotia­ trary to all previous agreements, had had some idea tions. On the initiative of Indonesia, the first minis­ of retaining its colonial rule in West Irian. Any such ters' con£ erence between Indonesia and the Nether­ idea could only be regarded as contrary to all previous lands, held in Jakarta in April 1950, had done some understandings, and had been emphatically rejected by preliminary work towards negotiating the dispute. An the Indonesian delegation, for the language of article 1 Irian commission composed of Netherlands and Indo­ of the Charter of transfer of sovereignty had been nesian representatives had been set up to investigate clear enough. and report. It had been decided that future negotia­ tions at a second conference during 1950 would be 24. On that question the United Nations Commission continued on the basis of the report of the commis­ for Indonesia had come up with a temporary compro­ swn. mise to save the conference. The Indonesian delegation 29. The second conference had been held in December had not been able to compromise on the substance of 1950 at The Hague. In the course of those negotia­ the question; but, to contribute to the success of the tions, the stipulated one-year period had come to an conference, it had accepted a temporary solution which end. The Indonesian delegation had submitted a note had become article 2 of the Charter of transfer. to the conference proposing that the de jure sover­ 25. That article had provided that in view of various eignty of the Republic of Indonesia over West Irian considerations which it enumerated, the status quo of should be recognized by the Netherlands without delay the residency of New Guinea should be maintained, and that the transfer of the Netherlands administra­ with the stipulation that, within a year from the date tion should be implemented by the middle of 1951. In of transfer of sovereignty, the question of the political addition, the Indonesian delegation had recognized the status of New Guinea should be determined through interest of the Netherlands in West Irian, and had negotiations. Certain points should be noted in con­ undertaken to employ Netherlands officials in the nexion with that article; the Indonesian territorial administration. The counter-proposals submitted by the administrative name of West Irian, namely, the resi­ Netherlands delegation to transfer sovereignty over dency of New Guinea, had been maintained; the ques­ West Irian to the Netherlands-Indonesian Union and tion had been declared to be a dispute; it had been laid to retain the administration in Netherlands hands, with down that the parties would have to solve the question Indonesian members participating on a parity basis in at a later date through negotiations; and the stipula­ a West Irian Council, had been unacceptable to the tion of the one-year period had been agreed upon at Indonesian Government, since that would have meant the request of the Indonesian delegation only to acce­ in practice Indonesian participation in a colonial rule. lerate a solution of the remaining disagreement. 30. The lapse of the one-year period without a settle­ 26. In order to avoid misunderstandings, the parties ment had created a grave situation. The Indonesian had exchanged letters on 2 November 1949 in which it Government had not acquiesced in the prolongation of was agreed, according to the English text, that the the Netherlands colonial administration. However, the phrase "the status quo of the residency of New Gui- lapse of the period had not released the parties from 392 General Auembly - Ninth Seuion - Firat Committee the obligation to seek a solution by peaceful means. the co-operation of the Indonesian people, as had been Between December 1951 and February 1952, another shown by the swift collapse of Netherlands defences conference had been held at The Hague, which had before the Japanese invasion. again failed to bring about a solution. Again the Indo­ nesian Government had offered concessions, propos­ 36. As for negotiating over the political status of ing a joint Indonesian-Netherlands responsibility over West Irian, the Netherlands Government had stated on West Irian as a first step, and putting aside the ques­ 29 October 1952 that it saw no useful purpose in tion of sovereignty for the time being. The Nether­ resuming negotiations with Indonesia on that question. lands, however, had opposed the suggestion, and taken However, the Netherlands Government, having as­ the view that there was no dispute regarding the polit­ sumed arbitrarily sovereignty over West Irian had ical status of the territory. said that it was prepared to co-operate to do away with possible misunderstandings about its intentiom 31. The Netherlands Government should understand, regarding that territory. The issue, however, was no1 however, that the exercise of administration and con­ Netherlands intentions but the political status of Wes1 trol by one of the parties during the period of the Irian. dispute did not give that party de jure sovereignty or derogate from the rights of the other parties. 37. Pursuant to its policy of seeking solutions b) negotiation, the Indonesian Government in its N ott 32. One cause of the reluctance of the Netherlands of 22 March 1954 had invited the Netherlands Gov· to negotiate the final political status of West Irian ernment to discuss not only the question of dissolvin~ might be the fact that on 19 February 1952 the Nether­ the Netherlands-Indonesian Union, but also the ques lands Government had incorporated the territory of tion of West Irian. In its answer of 14 April, th• West Irian into its Constitution as a part of the Netherlands Government had refused to negotiate th• Netherlands Kingdom. Contrary to the round table latter question, but only to co-operate in eliminatin1 agreements, it had thus decided arbitrarily and uni­ misunderstandings with regard to Netherlands in ten laterally the final political status of West Irian. Nor tions. Even when the Indonesian delegation at th had it consulted the Irianese people before making that conference at The Hague in the summer of 1954 ha• move. The Netherlands Government even took pride in suggested that the question of West Irian be place• providing information on that territory as a Non-Self­ on the agenda, the Netherlands Government had re Governing Territory under Article 73 e of the United fused, and so far had not even answered the Indo Nations Charter. It had been agreecl at the Round nesian protest against that act. Accordingly, the Indo Table Conference not only that the question of West nesian Government had had to seek other ways t' Irian remained in dispute, but also that no change in solve the dispute peacefully. its status should be brought about without the con­ sent of the two parties. Thus the round table agree­ 38. The national movement for Irianese freedom wa ments, which had proclaimed the end of Netherlands inextinguishable, although that had not been reporte colonial rule in Indonesia, had been broken by the under Article 73 e of the Charter. Three independenc reimposition of the colonial system on part of that organizations which had fought successfully agaim territory. That arbitrary annexation was a grave chal­ the Japanese had been less successful against th lenge to the letter and spirit of the round table agree­ Netherlands, but nevertheless continued to be activ ments. The dispute was therefore not a legal matter in West Irian. A succession of insurrections had t~ of sovereignty, but a moral political issue of a high ken place, beginning in 1945 and continuing unt order. March 1948. Driving the independence parties undet ground, imprisonment and censureship could not era5 33. The Indonesian delegation did not ask a verdict the fact that the people in West Irian wanted freed01 from the First Committee on the dispute itself, for it from Netherlands colonial domination. still had the intention of seeking a solution by negotia­ tion with the Netherlands Government. It was only 39. The Netherlands had been in West Irian for ov~ because of the recent refusal of the Netherlands Gov­ a century. Prior to the Second World War there ha ernment to resume negotiations that Indonesia had been practically no achievements, and the Netherlane thought it best to bring the matter before the United itself had conceded that the territory was still in tl Nations so that it might find the best way of assisting most primitive condition. A report drawn up by the parties in seeking a peaceful solution. Netherlands Government inter-departmental commi~ sion at the end of 1953 gave an impression of imp< 34. From the beginning, the Netherlands had not tence and a lack of confidence and enthusiasm. En seemed eager to find a speedy solution. After its arbi­ phasis was placed upon the difficulties involved in tl trary action in 1952, it could not feel too happy about development of West Irian, and the conclusion draw further negotiations, since it thought that it had settled was that the primitive conditions were such that deve the matter. That attitude was unacceptable to the Indo­ opment would require generations. The data in tl nesian Government ; but whenever it had sought fur­ report on the political, economic, educational and cu ther negotiations, the Netherlands Government had tural conditions were far from encouraging. It w: avoided talking at all, even on matters of common stated that the primitiveness of the indigenous popul: interest, such as defence. tion excluded it from administrative responsibilit 35. When the Indonesian Government had sought Another difficulty noted was that a large part of tl information regarding projected negotiations on West country had not yet been brought under N etherlan• Irian between the Netherlands and Australian Gov­ administration and that an expansion of administrati< ernments on 24 July 1953, the Netherlands Govern­ was necessary. Mr. Sudjarwo recalled, in that co· ment had altogether refused co-operation. After the nexion, that, according to a Netherlands parliamenta · negotiations with Australia, the Netherlands Govern­ report on the subject, only about half of the 700,()( ment had forgotten the request. It ~eemed to forget Papuans had been brought under the administratio that no defence for West Irian was possible without and that of the rest very little was known. 726th meeting - 23 November 1954 393 40. That parliamentary report was witness to the un­ leges, and 4,000 special schools to train half a million satisfactory conditions and the unrest among the people teachers, had already been established. -Dutch, Eurasians and Natives alike. The report noted 45. For West Irian, the Ministry of Education en­ the bad housing and health conditions and the unsa­ visaged the provision of 2,000 elementary schools and tisfactory relations between the people and the govern­ some 75 teachers' training colleges. ment. Indeed, the present colonial government in West Irian was considered even worse than the former gov­ 46. It was not technical equipment but will and en­ ernment in the other parts of the Netherlands East thusiasm which were decisive. Although there was a Indies. The report took note that the distrust and bit­ shortage of equipment and teachers, technical obstacles terness of the populace towards the government was a were being overcome by determination. Foreign pro­ detrimental factor for the development of the country. fessors had been engaged and technical assistance had It should be clear that the Netherlands Government been welcomed. was incapable of governing the territory in a demo­ 47. The same enthusiasm could be found in Indo­ cratic way, in the interests of the indigenous popu­ nesia in other fields. No longer frustrated by censor­ lation. ship, newspapers and periodicals were able to function 41. The Netherlands Government had never estimated as organs of free expression. There were about fifteen highly the capacity of the Indonesians to govern them­ times as many dailies and about ten times as many selves. During the revolution, when the republican gov­ weekly and monthly publications as there had been dur­ ernment's power to govern had seemed non-existent ing the period of Netherlands rule. because of the Netherlands military occupation, and 48. There had also been a kind of cultural revolu­ when only the voice of the central republican radio tion in the creative arts which was being encouraged had been heard, the Netherlands representative had by private organizations and by the Government. asserted in the United Nations, in August 1947,3 that 49. In co-operation with the United Nations, the Indo­ the republican government had a microphone but no nesian Government had done a great deal in the fields authority, and a voice but no allegiance. History had of social welfare and health, and in the promotion shown that that radio had represented the will and of fisheries, small industries, etc., in all areas of the enthusiasm of a nation to be free. Two or three years country. later, the Republic of Indonesia had been a reality recognized by the world, and had been admitted unani­ 50. It was therefore amazing that the Netherlands mously in 1950 as the sixtieth Member of the United Foreign Minister could assert that West Irian would Nations. become a colony of Indonesia. \Vest Irian was now being treated as a Netherland colony, but when it was 42. Whether or not the Indonesian Government would reunited with the rest of Indonesia it would take its be able to govern its own people, including the people place as one of the territories of Indonesia with the of West Irian, was essentially a matter of will rather greatest possible autonomy. The Irianese would man­ than of technical ability. For over three centuries, the age their own affairs, participate in free and secret Netherlands had had an opportunity to educate and elections and send their representatiYes to the Indo­ develop the Indonesian people. Yet in the end there nesian Parliament. had been a revolution, and only 7 per cent literacy. That was not because the Netherlands had not been 51. The Netherlands colonial government could have equipped or able to set up schools. In West Irian, the no real interest in the welfare of the \Vest Irianese. Netherlands had had over a century, but the situation Despite the inadequacy of education, the Netherlands of the people was miserable. Government spent more on barracks and naval bases than for schools, in accordance with the outmoded 43. Despite the burden of building a new nation on colonial military policy. It was natural that that policy the ruins of war and revolution, the Republic of Indo­ should have aroused hostile feelings among the people nesia had tackled the problem of education vigorously. of Indonesia. Fortunately, many well-informed people Not only was there the will of the Government to build had seen the danger and unreality of that policy. As a better society, but also there was the enthusiasm of early as 1950, a Netherlands liberal newspaper had a free people to acquire the education which had been pointed out that the distance between the Netherlands denied it. and West Irian, both literally and figuratively, was 44. By means of a nation-wide mass campaign, the so great that economic, cultural and political ties were rate of illiteracy had already been successfully reduced no longer natural. Sooner or later, the paper had con­ from 93 per cent to 47 per cent. Whereas there had tinued, opposition and reprisals were to be expected been hardly any libraries under Netherlands rule, over not only from Indonesia, but from all other Asian 245,000 had already been established in Indonesia, countries if the concept of "full possession" was 1lthough not yet in West Irian. Since 1940, the num­ clung to. ber of children attending elementary schools had in­ 52. All those who thought realistically of the many creased threefold. The number of secondary schools remaining Netherlands interests in Indonesia saw the bad risen from 144 in 1940 to 2,846 in 1954. As com­ peril of continuing the colonial policy. For them, the pared with 637 Indonesians students attending college maintenance of friendly relations between Indonesia in 1940, today the two major universities alone had and the Netherlands was worth more than the whole :JVer 12,000 students, and twelve other institutions of West Irian question. In 1950, an Amsterdam financial iligher learning had been established. The Government house had stated in its report that 99 per cent of the ilad provided thousands of fellowships for study both 220,000 Dutch people in Indonesia demanded that in Indonesia and abroad. Four hundred and fifty col- Irian be returned to the Indonesians, for their pos­ sessions in Indonesia were worth a hundred to a a See Official Records of the Security Council, Second Year, thousand times more than Irian. A director of Uni­ No, 82, 192nd meeting. lever, which had vast and prospering interests in Indo- 39( General Assembly - Ninth Session - First Committee nesia, had stated in January 1952 that only if the polit­ 59. The parties involved had repeatedly tried but had ical realities were accepted could the way open for failed to reach agreement. There was nothing the friendly co-operation. United Nations could do to change the situation except 53. Because there were those realistic voices in the to augment confusion and stimulate tension. Netherlands, there was hope for a reasonable solution 60. The Netherlands administration of West New of the West Irian dispute. In essence, it was a colonial Guinea was a peaceful endeavour to create conditions problem, and as such concerned the whole world and for the self-determination of a population. A threat not only Indonesia and the Netherlands. The lessons to the peace could only occur if Indonesia were to from other parts of the world were known, the most resort to aggressive action. Then the matter would be­ recent being Indo-China. West Irian was the last relic long primarily to the competence of the Security of Netherlands imperial prestige, which was a false Council, which at present carried the Indonesian ques­ prestige in the new relations between Asia and the tion on its agenda. Moreover, Article 12 of the Char­ West. ter forbade the General Assembly to make any recom­ 54. That was why the dispute had been brought be­ mendations with regard to the question unless the fore the United Nations, in order to find the best ways Council so requested, which it had not done. and means under the Charter of putting the parties 61. The Netherlands delegation had hoped that the on the road to a negotiated and peaceful solution. To round table agreements of 1949 would open the way to­ that end, the Indonesian delegation had submitted its wards a constructive relationship between two equa':l draft resolution (A/C.1/L.109). nations. However, a few months after the agreements 55. In the preamble, the facts were recalled in a had been ratified, the Federal Republic of the United simple and moderate way. In the operative part. it States of Indonesia, which had accepted the sovereignty transferred by the Netherlands on the basis of the pro­ was asked only that the Governments concerned be called upon to resume negotiations as soon as possible visional Indonesian Federal Constitution, had changed so as to solve the dispute by peaceful means as en­ its constitutional structure into that of a unitary State, yisaged by the Round Table Conference agreement and thereby abolishing those possibilities for the self-deter­ m accordance with the principles of the United Na­ mination of the populations of the component States tions Charter. Although that request hardly expressed for which the agreements had specifically provided. the demands of its people, it was the hope of the 62. Tn 1954, when the Indonesian Government had Indonesian Government that the Netherlands Govern­ expressed the wish to abrogate certain portions of the ment, encouraged by the deliberations in the Commit­ agreements and to dissolve the Union between Indo­ tee, would be able again to enter into negotiations. nesia and the Netherlands, the Netherlands Govern­ ment had decided to meet that desire. 56. The Indonesian delegation felt that the United Nations had a duty to perform in those negotiations, 63. The Indonesian Government at present appealed since negotiations outside the United Nations had for United Nations intervention, with the aim of an­ proved fruitless. That was why the draft resolution nexing Netherlands New Guinea. Arguments had been requested the Secretary-General to assist the parties advanced to show that Indonesia had a legal claim to in the implementation of the resolution. that territory. 64. When legal questions concerning sovereignty were 57. Indonesia claimed that West Irian and the Irianese were a free country and a free people and a part of discussed. it was easy to lose sight of one aspect of free Indonesia, sharing in its sovereignty. The Nether­ paramount importance. That was that the First Com­ lands claimed that West Irian was a colony and that mittee was not a court of law dealing with a dispute the Irianese were subject to colonial rule. The problem about a piece of property, but an organ which, if in­ deed it had a legitimate interest in the matter, should was essentially one of colonialism against freedom. be primarily concerned with the welfare of the human I~donesia sought the road to a peaceful solution and did not ask the United Nations for a solution imme­ being-s concerned. It was with that in mind that the diately. It sought only further negotiations with the Netherlands Government's policy had been formulated, and Mr. von Balluseck asked the members to approach encouragement and guidance of the United Nations. But Indonesia attached great importance to a recom­ the question in that light. mendation of the United Nations. The question was 65. The interior of the eastern part of Netherlands not insoluble, and it should not be beyond the wisdom New Guinea was taken up by two mountain ranges, of t~e Comt;Iittee to find the right and peaceful way v·hich were practicallv inacce~sible except by aeroplane. for Its solution. South of the moutain ranges, the country consisted of jungle swamps. In the western part, there were high 58. Mr. VON BALLUSECK (Netherlands) stated mountain ranges in the north and swamp lands covered that his delegation regretted that the Government of with jungle forests along the south coast. I?Jdonesia had deemed it necessary to bring the ques­ tiOn before the General Assembly. Both in the General 66. It was impossible to state its exact population Committee (72nd meeting) and in the General Assem­ because almost half of the estimated people were bly ( 477th meeting), his delegation had explained why nomads who roamed the jungle. However, there were it considered it both unjustified and harmful to force 262,000 indigenous inhabitants under regular Nether­ a debate which might become a source of unrest if lands administration. and periodical contact had been ill-founded statements were to stir up confusion in a established with another 129,000. It was estimated that the total population numbered somewhat over 700,000. t~rritory which was engaged in a peaceful and legi­ timate process of development towards self-govern­ 67. The inhabitants were partly Papuans, partly pig­ ment. The Netherlands delegation had opposed the in­ mies. Neither from a racial nor from a cultural point c!usion of the item in the agenda for reasons of prin­ of view was there any connexion between those very ciple as well as on grounds of expediency and proce­ primitive people and the highly cultural ethnical groups dure and, as to the substance, on legal grounds, represented by the representative of Indonesia. 726th meeting - 23 November 1954 395 8. Indonesia had been subjected to the influence 77. What Indonesia proposed was that a territory rst of the Hindu and, subsequently, of the Moslem whose people had no ties with it be annexed by Indo­ eligion and culture which, added to the indigenous nesia, and once and for all be deprived of self-deter­ ivilization, had created a pattern of development rich mination. 1 tradition and in ethical and spiritual values. 78. The Indonesian explanatory memorandum (A/ 9. New Guinea's inaccessibility had prevented both 2694) stated that "West Irian's primary importance to 1e Indonesians and the Dutch from penetrating its Indonesia lies in the political and national sphere". 1terior, and for a long time, although officially under That meant that Indonesia regarded its claim as a Jetherlands sovereignty, it had remained a practically matter of its own political ambition and national aspi­ nknown part of the world, in which human develop­ ration. The Netherlands Government, on the other lent had remained primitive. hand, considered that, over and above those arguments, 0. During the nineteenth century, Christian missions the interests of the non-self-governing people con­ ad ventured into the territory, and in 1898 the first cerned should prevail. Chapter XI of the Charter read : "The interests of the inhabitants of these [non-self­ ermanent Netherlands administrative posts had been stablished. Those settlements had been outposts along gowrning] territories are paramount." That concep­ 1e coast. Not until 1907 had the first expedition into tion was not reflected in the Indonesian explanatory 1e then unknown interior been undertaken. The only memorandum. ermanent settlers had been the Dutch missionari"s 79. Turning to the legal aspects of the case, Mr. von nd, with financial support from the Government, they Palluseck recalled that when the round table confer­ ad done a great deal to promote the welfare of the ence was finally convened at The Hague in 1949, rep­ 'apuans. The start had perhaps been slow, but the resentatives of the Kingdom of the Netherlands, the limate and the natural circumstances which had been Republic of Indonesia and the Federal Consultative eferred to had made a flying start impossible. Assembly had been present, and also the United Na­ tions Commission for Indonesia. The Republic of Indo­ 1. Referring to the reports made by an inter-depart­ nesia had been the J ogjakarta Republic. exercising tental commission and by a parliamentary commission, power over Central Java and parts of Sumatra and rhich had been referred to by the representative of wishing to extend its influence over all the other islands. ndonesia, Mr. von Balluseck said that although critical The Federal Consultative Assembly had been a body f the Government, they proved how great an interest composed of the leaders of the populations in other 1e Netherlands people and Government took in the parts, such as West and East Java, parts of Sumatra, evelopment of New Guinea. Celebes, Borneo, etc., who desired to base the Indo­ 2. Mr. von Balluseck then quoted from the report of nesian State on a federal structure and did not wish United Nations Visiting Mission (T/1078) which to be ruled by the J ogjakarta Republic. 1 1953 had visited that part of New Guinea which was 80. On 2 November 1949. ultimate agreement had dministered by Australia, but which had conditions been reached on a number of documents, which were :milar to those in Netherlands New Guinea, to show to come into force at the moment of the transfer of ·hy the start had had to be slow and why modern sovereignty. That transfer had taken place on 27 De­ :ience and technology had first to provide new means cember 1949. > overcome those obstacles. 81. Mr. von Balluseck then read articles 1 and 2 of 3. From the time when exploration by aeroplane the Charter of transfer of sovereignty, and observed ad become a practical possibility and tropical diseases that he would first give the Indonesian interpretation )ntrollable, the Netherlands Government had system­ on each contested point and then the relevant Nether­ tically developed West New Guinea by building the lands counter-argument. )undations for progressive improvement. 82. According to the Indonesian Government, the 4. Mr. von Balluseck's general remarks were not term "Indonesia", mentioned in article 1, covered all ttended to provide a resume of the territory's history, Netherlands territories formerly included in the Nether­ Ltt to emphasize that the only connexion between lands East Indies, and therefore also New Guinea. 1donesia and Netherlands New Guinea was that both 83. The Netherlands Government contended that the ad been nominally administered from Batavia. Even Charter of transfer must be read as a whole. Article 2 ), it was to be noted that the then Gowrnors-General stated clearly that "it has not yet been possible to re­ f the Netherlands East Indies had been authorized to concile the views of the parties on New Guinea. which ~clare certain laws, which had been enacted for the remain, therefore, in dispute". Consequently, the ques­ ·etherlands East Indies, inapplicable to New Guinea, tion as to what was ultimately to happen to West New ~cause of the different conditions prevailing in that nitory. Thus the distinctive character of Nether­ Guinea had been left open. It had been, however, defi­ nds New Guinea had always been recognized. nitely decided that no change in the existing situation would take place unless such a change had been ex­ 5. Mr. von Balluseck denied that the point at issue plicitly agreed on between the parties. Article 2 there­ as that a non-self-governing people wished to obtain fore stated in so many words that "the status quo of tdependence, or that a part of a nation. still unfree, the residency of New Guinea shall be maintained". ~sired to join those that had already obtained inde­ That status quo had been that the Kingdom of the ~ndence. There was no movement for independence Netherlands exercised complete sovereignty over West r for affiliation with Indonesia among the indigenous New Guinea. )pulation. 84. In order to make that perfectly clear, the parties 5. The Netherlands Government proposed to con­ had exchanged letters on 2 November 1949. The letter nue, through a process of education, to develop a signed by the two Indonesian delegations stated that ·ee political consciousness, which was a prerequisite the clause in article 2 of the draft charter of transfer >r ultimate self-determination. of sovereignty, reading "the status quo of the resi- 396 General Assembly - Ninth Session - First Committee dency of New Guinea shall be maintained", meant come of the negotiations envisaged in article 2 to deter­ "through continuing under the Government of the mine whether or not any change in the existing status Netherlands". Moreover, according to the minutes of should be made. In addition, the Note attached to the the conference, the Federal Consultative Assembly had Agreement concerning the assignment of citizens, which declared that the stipulation that New Guinea was to had come into force on the same date as the Charter retain its status quo meant that it would remain "under of transfer, stated that none of the provisions of that Netherlands soyereignty". agreement should apply to the nationality of the inhab­ 85. The Indonesian Government also maintained that itants of New Guinea in case the sovereignty over that the words "complete sovereignty over Indonesia", in territory was not transferred to the Republic of the article 1, confirmed its contention, by reading them as United States of Indonesia. That stipulation would meaning "sovereignty over all territories which pre­ have been senseless if on its effective date the sover­ viously had formed part of the Netherlands East In­ eignty over New Guinea had already been transferred dies, including West New Guinea". to Indonesia. That point of view was confirmed by the fact that Indonesia, during the first year of negotiations 86. However, the words "complete sovereignty over following the round table agreements, had not claimed Indonesia", in article 1, did not refer to the geo­ that sovereignty had been transferred, but had de­ graphical extent of Indonesia, but to the character of manded that it should be transferred. Indonesian sovereignty. In other words, the term "com­ plete" did not qualify "Indonesia" but "sovereignty". 92. Finally, the Indonesian viewpoint was that, since The Netherlands delegation had originally proposed agreement had not been reached by 27 December 1950, that certain organs of the Netherlands- Indonesian the end of the year for which negotiations had been Union should have supra-national powers. That pro­ scheduled, the Netherlands Government from tha1 posal had been rejected by the Indonesian delegations date onward had been illegally occupying West New and the expression "complete sovereignty" had been Guinea. used to indicate that the existence of the Union would 93. However, there was no provision in the Chartet not diminish the sovereign powers of the Government of transfer to the effect that either Netherlands sov· of Indonesia. ereignty over West New Guinea should cease at th~ 87. In that connexion, Mr. von Balluseck referred to end of the one-year period of negotiations, or that a a paragraph in the Indonesian explanatory memoran­ change in the status quo should take place in case th~ dum, quoting a statemente by Mr. van Roven in the negotiations did not bring about agreement. Security Council in 1948.4 At that time, according to 94. The Indonesian Government had rebuked th( the memorandum, the representative of the Netherlands Netherlands Government for its unwillingness to nego· had said : "All parties agree that what used to be the tiate. But the Netherlands Government had negotiate( Netherlands East Indies should become an independent beyond its obligations. State as soon as possible." 95. The first negotiations had started in April 195( 88. Mr. von Balluseck wished to point out that in all and had continued in December 1950. The N e1:herlan& negotiations taking place between 1945 and 1949, and Government had proposed that sovereignty over W es· preceding the final agreements, the Netherlands Gov­ New Guinea should be vested in the Netherlands· ernment had always made a reservation to the effect Indonesian Union. The Indonesian Government, how that it wanted West New Guinea to obtain a special ever, had insisted that sovereignty be handed over to th1 status within the Netherlands-Indonesian Union. Republic of Indonesia. After the negotiations had beet terminated without agreement, the United Nation: 89. Article 2 confirmed that viewpoint. Mr. van Commission for Indonesia had submitted a repor Royen, however, had not been speaking about the New thereon to the Security Council in which it stated tha Guinea question, but had been explaining to the Secu­ "the Indonesian Government was prepared to resum rity Council that the dispute between the Netherlands negotiations only if it were understood in advance tha and Indonesia did not centre on the question as to sovereignty over Western New Guinea would be trans whether Indonesia would become independent, but on £erred to Indonesia" (S/2087, para. 57). It was obviou the question when independence would be granted. His that such a viewpoint could hardly provide a basis fo statement had therefore contained no implication that discussion. the reservations regarding New Guinea had been drop­ ped. Even if the Indonesian Government erroneously 96. For that reason the negotiations in 1950 ha1 read such an implication into his statement, the legal failed. Moreover, the Indonesian Government had de fact remained that the agreements of 1949 contained dared in so many words that article 2 did not provid the final consensus between the parties and were there­ any grounds for a continuation of the discussions fore decisive. Thus Indonesia had made it impossible for either Gov ernment to resume negotiations. Nevertheless the N eth 90. The Indonesian Government had later advanced erlands Government had remained willing to attempt t, a third argument, contending that the sovereignty de negotiate, but had received little encouragement. jure over West New Guinea had already been trans­ ferred to Indonesia on 27 December 1949 and that 97. In December 1950, the Indonesian Governmen that was the meaning of articles 1 and 2. had still claimed that the Netherlands Governmen should transfer sovereignty over New Guinea to Indc 91. "Sovereignty de jure" was a doubtful notion in nesia. Towards the end of 1951, it had advanced th international law; but it was clear, from what Mr. von novel and contrary argument that the transfer ha Balluseck had just said, that the words "complete sov­ already taken place under the round table agreement~ ereignty" did not include West New Guinea. Sover­ Obviously, that contention had made a resumption o eignty over that territory had remained with the N eth­ negotiations impossible. erlands Government, and it had been left to the out- 98. The Netherlands Government had neverthele5 4 See footnote 2 on page 389. consented to new negotiations, after having been a! 726th meeting - 23 November 1954 397 sured by the then Minister of Foreign Affairs that the New Guinea was beyond doubt, and why the possi­ Indonesian Government would drop its a priori condi­ bilities for further negotiations had been exhausted, tion. In spite of that, the Indonesian Government had Mr. von Balluseck wished to make some remarks about renewed its contention about sovereignty. The Nether­ the spirit in which the Netherlands Government viewed lands Government had not been able to accept that its task and its duties towards the territory. argument as a basis for discussion, and had tried to 104. West New Guinea was a Non-Self-Governing find other solutions. It had suggested that if the Indo­ Territory within the meaning of Chapter XI of the nesian Government really believed in the soundness of Charter of the United Nations. The territory presented its new interpretation of the charter, it should seek a extraordinary difficulties. Therefore progress could decision on that point from the International Court only be slow. The primitive indigenous inhabitants of Justice. But the Indonesian Government had rejected needed assistance in every way to develop a more that proposal on the ground that the problem was of modern pattern of organized life. No national con­ a political and not of a legal nature. Yet all its argu­ sciousness existed and certainly no expressed desire for ments had been based on allegedly legal interpretations. political affiliation with Indonesia. The present Vice­ 99. On the last day of the conference of 1952, at a President of Indonesia had admitted in a statement time when the Indonesian delegation had already been of 25 November 1949 that the population of Irian, recalled by its Government, which had resigned, the with the exception of a very small group, was not Indonesian delegation had suggested joint Indonesian­ capable of expressing its political will. The Prime Netherlands responsibility for West New Guinea. Minister of India, Mr. Nehru, had declared in Singa­ Apart from the fact that the suggestion had implied pore, on 17 June 1950, that the decisive touchstone future transfer of sovereignty to Indonesia, it had not for the New Guinea problem was: "What is right for been possible to consider it as the Indonesian delegation New Guinea and what does its population want?" was departing that same day. 105. If West New Guinea were ceded to Indonesia, 100. In November 1952, the Indonesian President had it would become an integral part of the Republic of stated in a radio speech that from now on the Indo­ Indonesia. In fact, it would remain a N on-Self-Gov­ nesians would discuss the future of New Guinea ex­ erning Territory, but Indonesia would not undertake clusively amongst themselves, and would take unilateral the obligations of Chapter XI of the Charter with measures. respect to it. No more information as envisaged in 101. For those reasons, it must be clear to any im­ Article 73 e of the Charter would be forthcoming, and partial observer why the Netherlands Government the population would never be allowed to decide its could not entertain any further proposals for a resump­ own future. tion of negotiations. The Netherlands Government had 106. However, if the status quo were maintained, the therefore stated in a formal declaration in 1954 that Netherlands Government would continue to administer it was no longer prepared to negotiate about West New the territory in the spirit of the Chapter XI and to Guinea. The decision had not been taken a priori, but comply with its specific obligations under Article 73 e. had come as the unavoidable conclusion of a chain of 107. The Netherlands was prepared to go even fur­ developments. The Netherlands Government had pro­ ther than its Charter obligations. Although the Charter, posed a number of possible solutions, which had been in Article 1, paragraph 2, enjoined Members to respect rejected. It had reached the end of its willingness to the principle of self-determination of peoples, it did proceed along a road which could only lead to renewed not attach thereto any specific duties of implementa­ failure. tion. In the case of West New Guinea, the Netherlands 102. At the time when the Charter of transfer had Government had of its own accord repeatedly declared come into force, the Netherlands Government, although that, at the appropriate time, it would give to the inhab­ retaining sovereignty over West New Guinea, had itants of Netherlands New Guinea the opportunity to declared its willingness to explore the possibility of determine their own future. Those declarations had some other solution with its Union partner, for two been made long before the issue of West New Guinea reasons. First, the Republic of the United States of had come before the Assembly. They represented the Indonesia, according to article 1 of its Constitution, policy by which the Netherlands Government would had been "a democratic State of federal structure", abide. which had left to the population of the territories of 108. A foreshadowing of the Netherlands Govern­ which it was composed the possibility of self-deter­ ment's intentions in that respect were to be found in mination. In those circumstances, a suitable place for the report of the United Nations Commission for West New Guinea might have been devised. As arti­ Indonesia of 13 April 1951 to the Security Council :le 1 of the Charter of transfer had formulated, the (S/2087), from which Mr. von Balluseck quoted para­ sovereignty was accepted by the Republic of Indonesia graphs SO and 54. Since then, the Netherlands Govern­ 'on the basis of the provisions of its Constitution ment had confirmed that declaration in two statements, which, as a draft, has been brought to the knowledge which Mr. von Balluseck then quoted, one taken from )f the Kingdom of the Netherlands". Secondly, the the speech made by the Queen of the Netherlands, on Netherlands and the Republic of the United States of the opening of Parliament on 16 September 1952, the [ndonesia had then been joined in a union for the pur­ other from the written reply of the Netherlands Gov­ pose of "friendly co-operation". A solution of the New ernment on 29 October 1952 to the remarks made by ::iuinea question might have strengthened the Union. the Second Chamber of the Netherlands States General Both those reasons had become inoperative through the on the Budget for 1953. :lisappearance of the Republic of the United States of [ndonesia and the dissolution of the Netherlands-Indo- 1esian Union. Statement by the Chairman L03. Having explained the reasons why the Nether­ 109. The CHAIRMAN wished to state, in order to ands Government felt that its legal position in West avoid possible misunderstandings, that he had permitted 398 General Assembly - Ninth Ses1ion - First Committee the representative of Argentina to correct his vote at stance, change its abstention to a negative vote afte the previous meeting only because that representative the result of the vote had been announced, thereb had asked to have his correction included before the entirely changing the result of the vote. After the resu result of the vote was announced, and because the cor­ had been announced, the Chairman would not allm rection could in no way have changed the result of any correction of the vote except in such cases wher the vote. a representative found that the vote had actually bee 110. Chairmen had occasionally permitted a vote to miscounted, in which case he could ask for an imm( be changed after the result of the vote was announced. diate recount. That, however, was an erroneous interpretation of the 112. Mr. ENTEZAM (Iran) proposed that the li~ rules of procedure. of speakers in the general debate should be closed < 1 p.m. on 25 November. 111. The First Committee would now be dealing with two questions where the vote might be very close. It It was so decided. was therefore necessary to interpret the rules of pro­ cedure strictly, so that a delegation could not, for in- The meeting rose at 6.20 p.m.

Printed in Canada A-41889-February 1955-1,9