by B Krishna
The Times of India, 29 August 1947
13
COULD INDIA HAVE SAVED TIBET?
Patel’s Historic Letter to Nehru
New Delhi
7 November 1950
My dear Jawaharlal,
Ever since my return from Ahmedabad and after the Cabinet meeting the same day which I had to attend at practically 15 minutes’ notice and for which I regret I was not able to read all the papers, I have been anxiously thinking over the problem of Tibet and I thought I should share with you what is passing through my mind.
I have carefully gone through the correspondence between the External Affairs Ministry and our Ambassador in Peking and through him the Chinese Government. I have tried to peruse this correspondence as favourably to our Ambassador and the Chinese Government as possible, but I regret to say that neither of them comes out well as a result of this study. The Chinese Government have tried to delude us by professions of peaceful intentions. My own feeling is that at a crucial period they managed to instil into our Ambassador a false sense of confidence in their so-called desire to settle the Tibetan problem by peaceful means. There can be no doubt that during the period covered by this correspondence the Chinese must have been concentrating for an onslaught on Tibet. The final action of the Chinese, in my judgment, is little short of perfidy. The tragedy of it is that the Tibetans put faith in us; they chose to be guided by us; and we have been unable to get them out of the meshes of Chinese diplomacy or Chinese malevolence. From the latest position, it appears that we shall not be able to rescue the Dalai Lama. Our Ambassador has been at great pains to find an explanation or justification for Chinese policy and actions. As the External Affairs Ministry remarked in one of their telegrams, there was a lack of firmness and unnecessary apology in one or two representations that he made to the Chinese Government on our behalf. It is impossible to imagine any sensible person believing in the so-called threat to China from Anglo-American machinations in Tibet. Therefore, if the Chinese put faith in this, they must have distrusted us so completely as to have taken us as fools or stooges of Anglo-American diplomacy or strategy. This feeling, if genuinely entertained by the Chinese in spite of your direct approaches to them, indicates that even though we regard ourselves as friends of China, the Chinese do not regard us as their friends. With the Communist mentality of “whoever is not with them being against them,” this is a significant pointer of which we have to take due note. During the last several months, outside the Russian camp, we have practically been alone in championing the cause of Chinese entry into the UNO and in securing from the Americans assurances on the questions of Formosa. We have done everything we could to assuage Chinese feelings, to allay its apprehensions and to defend its legitimate claims in our discussions and correspondence with America and Britain and in the UNO. In spite of this, China is not convinced about our disinterestedness; it continues to regard us with suspicion and the whole psychology is one, at least outwardly, of skepticism, perhaps mixed with a little hostility. I doubt if we can go any further than we have done already to convince China of our good intentions, friendliness and goodwill. In Peking, we have an Ambassador who is eminently suitable for putting across the friendly point of view. Even he seems to have failed to convert the Chinese. Their last telegram to us is an act of gross discourtesy not only in the summary way it disposes of our protest against the entry of Chinese forces into Tibet but also in the wild insinuation that our attitude is determined by foreign influences. It looks as though it is not a friend speaking in that language but a potential enemy.
In the background of this, we have to consider what new situation now faces us as a result of the disappearance of Tibet, as we knew it, and the expansion of China almost up to our gates. Throughout history we have seldom been worried about our north-east frontier. The Himalayas have been regarded as an impenetrable barrier against any threat from the north. We had a friendly Tibet which gave us no trouble. The Chinese were divided. They had their own domestic problems and never bothered us about our frontiers. In 1914, we entered into a convention with Tibet which was not endorsed by the Chinese. We seem to have regarded Tibetan autonomy as extending to independent treaty relationship. Presumably, all that we required was Chinese counter-signature. The Chinese interpretation of suzerainty seems to be different. We can, therefore, safely assume that very soon they will disown all the stipulations which Tibet has entered into with us in the past. That throws into the melting pot all frontier and commercial settlements with Tibet on which we have been functioning and acting during the last half a century. China is no longer divided. It is united and strong. All along the Himalayas in the north and north-east, we have on our side of the frontier a population ethnologically and culturally not different from Tibetans or Mongoloids. The undefined state of the frontier and the existence on our side of a population with its affinities to Tibetans or Chinese have all the elements of potential trouble between China and ourselves. Recent and bitter history also tells us that communism is no shield against imperialism and that the Communists are as good or as bad imperialists as any other. Chinese ambitions in this respect not only cover the Himalayan slopes on our side but also include important parts of Assam. They have their ambitions in Burma also. Burma has the added difficulty that it has no McMahon Line round which to build up even the semblance of an agreement. Chinese irredentism and Communist imperialism are different from the expansionism or imperialism of the Western Powers. The former has a cloak of ideology which makes it ten times more dangerous. In the guise of ideological expansion lie concealed racial, national or historical claims. The danger from the north and north-east, therefore, becomes both communist and imperialist. While our western and northwestern threat to security is still as prominent as before, a new threat has developed from the north and north-east. Thus, for the first time, after centuries, India’s defence has to concentrate itself on two fronts simultaneously. Our defence measures have so far been based on the calculations of a superiority over Pakistan. In our calculations we shall now have to reckon with Communist China in the north and in the north-east, a Communist China which has definite ambitions and aims and which does not, in any way, seem friendly disposed towards us.
Let us also consider the political conditions on this potentially troublesome frontier. Our northern or north-eastern approaches consist of Nepal, Bhutan, Sikkim, the Darjeeling [area] and tribal areas in Assam. From the point of view of communications, they are weak spots. Continuous defensive lines do not exist. There is almost an unlimited scope for infiltration. Police protection is limited to a very small number of passes. There, too, our outposts do not seem to be fully manned. The contact of these areas with us is by no means close and intimate. The people inhabiting these portions have no established loyalty or devotion to India. Even the Darjeeling and Kalimpong areas are not free from pro-Mongoloid prejudices. During the last three years we have not been able to make any appreciable approaches to the Nagas and other hill tribes in Assam. European missionaries and other visitors had been in touch with them, but their influence was in no way friendly to India or Indians. In Sikkim, there was political ferment some time ago. It is quite possible that discontent is smouldering there. Bhutan is comparatively quiet, but its affinity with Tibetans would be a handicap. Nepal has a weak oligarchic regime based almost entirely on force; it is in conflict with a turbulent element of the population as well as with enlightened ideas of the modern age. In these circumstances, to make people alive to the new danger or to make them defensively strong is a very difficult task indeed and that difficulty can be got over only by enlightened firmness, strength and a clear line of policy. I am sure the Chinese and their source of inspiration, Soviet Russia, would not miss any opportunity of exploiting these weak spots, partly in support of their ideology and partly in support of their ambitions. In my judgment, therefore, the situation is one in which we cannot afford either to be complacent or to be vacillating. We must have a clear idea of what we wish to achieve
and also of the methods by which we should achieve it. Any faltering or lack of decisiveness in formulating our objectives or in pursuing our policy to attain those objectives is bound to weaken us and increase the threats which are so evident.
Side by side with these external dangers, we shall now have to face serious internal problems as well. I have already asked [H. V. R.] Iengar to send to the E. A. Ministry a copy of the Intelligence Bureau’s appreciation of these matters. Hitherto, the Communist Party of India has found some difficulty in contacting Communists abroad, or in getting supplies of arms, literature, etc. from them. They had to contend with the difficult Burmese and Pakistan frontiers on the east or with the long seaboard. They shall now have a comparatively easy means of access to Chinese Communists and through them to other foreign Communists. Infiltration of spies, fifth columnists and Communists would now be easier. Instead of having to deal with isolated Communist pockets in Telengana and Warangal we may have to deal with Communist threats to our security along our northern and north-eastern frontiers where, for supplies of arms and ammunition, they can safely depend on Communist arsenals in China. The whole situation thus raised a number of problems on which we must come to an early decision so that we can, as I said earlier, formulate the objectives of our policy and decide the methods by which those objectives are to be attained. It is also clear that the action will have to be fairly comprehensive, involving not only our defence strategy and state of preparations but also problems of internal security to deal with which we have not a moment to lose. We shall also have to deal with administrative and political problems in the weak spots along the frontier to which I have already referred.
It is, of course, impossible for me to be exhaustive in setting out all these problems. I am, however, giving below some of the problems which, in my opinion, require early solution and round which we have to build our administrative or military policies and measures to implement them.
a) A military and intelligence appreciation of the Chinese threat to India both on the frontier and to internal security.
b) An examination of our military position and such redisposition of our forces as might be necessary, particularly with the idea of guarding important routes or areas which are likely to be the subject of dispute.
c) An appraisement of the strength of our forces and, if necessary, reconsideration of our retrenchment plans for the Army in the light of these new threats.
d) Long-term consideration of our defence needs. My own feeling is that, unless we assure our supplies of arms, ammunition and armour, we should be making our defence position perpetually weak and we would not be able to stand up to the double threat of difficulties both from the west and north-west and north and north-east.
e) The question of Chinese entry into UNO. In view of the rebuff which China has given us and the method which it has followed in dealing with Tibet, I am doubtful whether we can advocate its claims any longer. There would probably be a threat in the UNO virtually to outlaw China in view of its active participation in the Korean war. We must determine our attitude on this question also.
f) The political and administrative steps which we should take to strengthen our northern and north-eastern frontiers. This would include the whole of the border, i.e. Nepal, Bhutan, Sikkim, Darjeeling and the tribal territory in Assam.
g) Measures of internal security in the border areas as well as the States flanking those areas, such as UP, Bihar, Bengal and Assam.
h) Improvement of our communications, road, rail, air and wireless, in these areas and with the frontier outposts.
i) Policing and intelligence of frontier posts.
j) The future of our mission at Lhasa and the trade posts at Gyangtse and Yatung and the forces which we have in operation in Tibet to guard the trade routes.
k) The policy in regard to the McMahon Line.
These are some of the questions which occur to my mind. It is possible that a consideration of these matters may lead us into wider questions of our relationship with China, Russia, America, Britain and Burma. This, however, would be of a general nature, though some might be basically very important, e.g. we might have to consider whether we should not enter into closer association with Burma in order to strengthen the latter in its dealings with China. I do not rule out the possibility that, before applying pressure on us, China might apply pressure on Burma. With Burma, the frontier is entirely undefined and the Chinese territorial claims are more substantial. In its present position, Burma might offer an easier problem for China and, therefore, might claim its first attention.
I suggest that we meet early to have a general discussion on these problems and decide on such steps as we might think to be immediately necessary and direct quick examination of other problems with a view to taking early measures to deal with them.
Yours,
Vallabhbhai Patel
Prime Minister Nehru’s Note on China and Tibet dated 18 November 1950
[The note was obviously forwarded to Sardar Patel as it answered indirectly some of the matters raised in Sardar’s letter of 7 November 1950.]
1. The Chinese Government having replied to our last note, we have to consider what further steps we should take in this matter. There is no immediate hurry about sending a reply to the Chinese Government. But we have to send immediate instructions to Shri B. N. Rau as to what he should do in the event of Tibet’s appeal being brought up before the Security Council or the General Assembly.
2. The content of the Chinese reply is much the same as their previous notes, but there does appear to be a toning down and an attempt at some kind of a friendly approach
3. It is interesting to note that they have not referred specifically to our mission [at] Lhasa or to our trade agents or military escort at Gyangtse etc. We had mentioned these especially in our last note. There is an indirect reference, however, in China’s note. At the end, this note says that “As long as our two sides adhere strictly to the principle of mutual respect for territory, sovereignty, equality and mutual benefit, we are convinced that the friendship between China and India should be developed in a normal way and that problems relating to Sino-Indian diplomatic, commercial and cultural relations with respect to Tibet may be solved properly and to our mutual benefit through normal diplomatic channels.” This clearly refers to our trade agents and others in Tibet. We had expected a demand from them for the withdrawal of these agents etc. The fact that they have not done so has some significance.
4. Stress is laid in China’s note on Chinese sovereignty over Tibet, which we are reminded, we have acknowledged, on Tibet being an integral part of China’s territory and therefore a domestic problem. It is however again repeated that outside influences, have been at play obstructing China’s mission in Tibet. In fact, it is stated that liberation of Changtu proves that foreign forces and influences were inciting Tibetan troops to resist. It is again repeated that no foreign intervention will be permitted and that the Chinese army will proceed.
5. All this is much the same as has been said before, but it is said in a somewhat different way and there are repeated references in the note to China desiring the friendship of India
6. It is true that in one of our messages to the Chinese Government we used “sovereignty” of China in relation to Tibet. In our last message we used the word “suzerainty”. After receipt of the last China’s note, we have pointed out to our Ambassador that “suzerainty” was the right word and that “sovereignty” had been used by error.
7. It is easy to draft a reply to the Chinese note, pressing our viewpoint and countering some of the arguments raised in the Chinese note. But before we do so we should be clear in our minds as to what we are aiming at, not only in the immediate future but from a long-term view. It is important that we keep both these viewpoints before us. In all probability China, that is present-day China, is going to be our close neighbour for a long time to come. We are going to have a tremendously long common frontier. It is unlikely, and it would be unwise to
expect, that the present Chinese Government will collapse, giving place to another. Therefore, it is important to pursue a policy which will be in keeping with this long-term view.
8. I think it may be taken for granted that China will take possession, in a political sense at least, of the whole of Tibet. There is no likelihood whatsoever of Tibet being able to resist this or stop it. It is equally unlikely that any foreign power can prevent it. We cannot do so. If so, what can we do to help in the maintenance of Tibetan autonomy and at same time avoiding continuous tension and apprehension on our frontiers?
9. The Chinese note has repeated that they wish the Tibetan people to have what they call “regional autonomy and religious freedom”. This autonomy can obviously not be anything like the autonomy verging on independence which Tibet has enjoyed during the last forty years or so. But it is reasonable to assume from the very nature of Tibetan geography, terrain and climate, that a large measure of autonomy is almost inevitable. It may of course be that this autonomous Tibet is controlled by communists alone in Tibet. I imagine however that it is, on the whole, more likely that what will be attempted will be a pro-communist China administration rather than a communist one.
10. If world war comes, then all kinds of difficult and intricate problems arise and each one of these problems will be inter-related with others. Even the question of defence of India assumes a different shape and cannot be isolated from other world factors. I think that it is exceedingly unlikely that we may have to face any real military invasion from the Chinese side, whether in peace or in war, in the foreseeable future. I base this conclusion on a consideration of various world factors. In peace, such an invasion would undoubtedly leas to world war. China, though internally big, is in a way amorphous and easily capable of being attacked on its sea coasts and by air. In such a war, China would have its main front in the South and East and it will be fighting for its very existence against powerful enemies. It is inconceivable that it should divert its forces and its strength across the inhospitable terrain of Tibet and undertake a wild adventure across the Himalayas. Any such attempt will greatly weaken its capacity to meet its real enemies on other fronts. Thus I rule out any major attack on India by China. I think these considerations should be borne in mind, because there is far too much loose talk about China attacking and overrunning India. If we lose our sense of perspective and world strategy and give way to unreasoning fears, then any policy that we might have is likely to fail.