Australia and the 1947 United Nations Consular Commission to Indonesia

ABSTRACT

The Netherlands’ colonial empire was a source of wealth, pride and prestige, being seen by some as an essential element of Dutch identity and the key to the Netherlands’ status as a European power. The most prized of the empire’s components was Indonesia. When nationalists declared the independence of the Republic of Indonesia on 17 August 1945, Dutch colonialists refused to take it seriously, but they soon discovered that the Indonesians were willing to fight for their newly-declared freedom. They also found that international opinion, especially as expressed in the new United Nations (UN), defended the Republic’s right to exist. Australia has been acknowledged as an important contributor to international recognition of Indonesian independence through its actions in the UN Security Council and its membership of the UN Committee of Good Offices (CGO). This article, however, focuses on a lesser-known part of the story: Australia’s role in the UN Consular Commission, established at the same time as the CGO. Although the Commission was active for only a short period in late 1947, it deserves recognition on a number of counts: for its pioneering work in UN peacekeeping; as an early example of Australian diplomacy in its region; and for how an examination of its activities, and the responses of the Dutch, the Indonesians and others, can be useful for understanding the course of the Indonesian independence struggle in the years that followed.

KEYWORDS:

• Australia
• Indonesia
• the Netherlands
• United Nations

Notes

1. Moore, “Dutch Decolonization,” 223.

2. For example, Adil, Australia’s Relations with Indonesia; George, Australia and the Indonesian Revolution; Hudson, “Australia and Indonesian Independence.”

3. George, Australia and the Indonesian Revolution, 20.

4. Bolton, “Evatt, Herbert Vere”; Adil, Australia’s Relations with Indonesia, 18.

5. O’Hare and Reid, Australia dan Perjuangan Kemerdekaan Indonesia – Australia and Indonesia’s Struggle for Independence, 14–20. For more on the shipping ban, see Lockwood, Black Armada.

6. See the Linggajati Agreement in Dorling, Diplomasi, 507–9.

7. Document 133, “Bondan to Chifley. Letter. Brisbane, 21 July 1947,” in Dorling, Diplomasi, 134–36.

8. Document 138, “Burton to Evatt. Cablegram 31. Canberra, 23 July 1947,” in ibid., 139–40.

9. Document 144, “Usman to Chifley. Telegram. Melbourne, 23 July 1947,” in ibid., 146.

10. Document 150, “Addison to Australian Government. Cablegram D642. London, 24 July 1947,” in ibid., 150.

11. “Memorandum by the Deputy Director of the Office of Near Eastern and African Affairs (Villard) to the Counselor (Bohlen), Washington, July 29, 1947,” in U.S. Department of State, Foreign Relations, 994–96.

12. UN, “27 (1947) Resolution of 1 August 1947” [S/459].

13. George, Australia and the Indonesian Revolution, 84–85; Taylor, Indonesian Independence and the United Nations, 50–51.

14. UN, “Cablegram from the Vice-Premier of the Republic of Indonesia addressed to the President of the Security Council dated 5 August 1947,” issued on 6 August 1947 as UN Security Council S/469; UN, “Telegram from the Vice-Premier of the Republic of Indonesia to the President of the Security Council dated 6 August 1947,” issued on 7 August 1947 as UN Security Council S/475.

15. Kahin, Nationalism and Revolution in Indonesia, 212–18.

16. Document 282, “Australian Delegation, United Nations, to Department of External Affairs. Cablegram UN775. New York, 13 August 1947,” in Dorling, Diplomasi, 261–62.

17. UN, “30 (1947) Resolution of 25 August 1947” [S/525, I].

18. UN, “31 (1947) Resolution of 25 August 1947” [S/525, II].

19. Document 339, “Department of External Affairs to Eaton. Cablegram 273. Canberra, 19 September 1947,” in Dorling, Diplomasi, 316.

20. “Department of External Affairs to Australian Consul-General. Cablegram 291. 3 October 1947,” in National Archives of Australia (NAA): A1838, 377/1/2 PART 1.

21. Document 430, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 31 aug. 1947,’ in Drooglever and Schouten, Officiële Bescheiden. Deel 10, 706–7.

22. Document 306, “Eaton to Department of External Affairs. Cablegram 294. Batavia, 31 August 1947,” in Dorling, Diplomasi, 288–89.

23. Document 309, “Eaton to Department of External Affairs. Cablegram 295. Batavia, 1 September 1947,” in ibid., 290–1.

24. Document 316, “Eaton to Department of External Affairs. Cablegram 299. Batavia, 7 September 1947,” in ibid., 297–98. See also “Appendix I” in UN, “Report by the Consular Commission,” issued on 22 October 1947 as UN Security Council S/586.

25. UN, “Interim Report from the Consular Commission at Batavia. September 22, 1947,” issued on 3 October 1947 as UN Security Council S/573; Document 372, “Eaton to Burton. Cablegram 360. Batavia, 11 October 1947,” in Dorling, Diplomasi, 352–53; and UN, “Report by the Consular Commission.”

26. Document 264, “Eaton to Department of External Affairs. Cablegram 258. Batavia, 5 October 1948”; and Document 274, “Eaton to Burton. Memorandum. Batavia, 11 October 1948”; both in Dorling and Lee, Documents on Australian Foreign Policy, 313, 321; Eaton, “Journey to Jogja,” 3–6.

27. “Eaton to the Department of External Affairs. Departmental Despatch 2/1949. Batavia, 19 August 1949,” in NAA: A4231, 1949/BATAVIA.

28. Yong, H. J. van Mook, 165.

29. Hudson, “Australia and Indonesian Independence,” 232–33.

30. Document 324, “Eaton to Burton. Letter. Batavia, 8 September 1947,” in Dorling, Diplomasi, 304–5.

31. Farram, Charles ‘Moth’ Eaton; Farram, A Short-lived Enthusiasm.

32. “Francis M. Shepherd to R.H.S. Allen. British Consulate-General, Batavia, 12 September, 1947. 1/331/47,” in National Archives (UK), FO 810/4.

33. “Francis M. Shepherd to R.H.S. Allen. British Consulate-General, Batavia, 16 October, 1947. 30/66/47,” in ibid.

34. Document 324, “Eaton to Burton. Letter. Batavia, 8 September 1947,” in Dorling, Diplomasi, 304–5.

35. Document 102, “Lt.gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 24 sept. 1947”; Document 160, “Lt. gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 11 okt. 1947”; both in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 157–58, 278–79.

36. Document 110, “Van Mook (lt.gouverneur-generaal) aan Beel (minister-president), 26 sept. 1947,” in ibid., 174.

37. Document 110, “Van Mook (lt.gouverneur-generaal) aan Beel (minister-president), 26 sept. 1947,” in ibid., 174.

38. Document 176, “Lt.gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 16 okt. 1947,” in ibid., 312.

39. Document 93, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 22 sept. 1947”; Document 155, “Van Mook (lt. gouverneur-generaal) aan Beel (minister-president), 6/10 okt. 1947”; both in ibid., 142–43, 268–72.

40. Document 430, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 31 aug. 1947,” in Drooglever and. Schouten, Officiële Bescheiden. Deel 10, 706–7.

41. Document 98, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 23 sept. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 154.

42. Document 155, “Van Mook (lt. gouverneur-generaal) aan Beel (minister-president), 6/10 okt. 1947,” in ibid., 269.

43. Personal communication from Charles Stuart Eaton, 20 August 2014.

44. Document 310, “Officer to Burton. Cablegram Hague 152. The Hague, 2 September 1947,” in Dorling, Diplomasi, 291–92.

45. “The Ambassador in the Netherlands (Baruch) to the Secretary of State, The Hague, July 31, 1947,” in U.S. Department of State, Foreign Relations, 1001.

46. Document 52, “Verslag van een onderhoud van chef directie Verre Oosten te Batavia (Elink Schuurman) met consul-generaal van de Verenigde Staten te Batavia (Foote), 12 sept. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 84–86.

47. “Appendix VI” in UN, ‘Report by the Consular Commission.”

48. “The Consul General at Batavia (Foote) to the Secretary of State, Batavia, August 1, 1947,” in U.S. Department of State, Foreign Relations, 1006.

49. “Memorandum of Conversation, by the Under Secretary of State (Lovett), Washington, August 5, 1947,” in ibid., 1013–5.

50. Moore, “Dutch Decolonization,” 269–75.

51. “Appendix VI” in UN, “Report by the Consular Commission.”

52. “Appendix III” in ibid.

53. Document 93, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 22 sept. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 142–53.

54. Document 103, “Tijdelijk zaakgelastigde te Parijs (Star Busmann) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout) 24 sept. 1947,” in ibid., 159–60.

55. Document 376, “Department of External Affairs to Eaton. Cablegram 300. Canberra, 14 October,” in Dorling, Diplomasi, 355–56; “Francis M. Shepherd to R.H.S. Allen. British Consulate-General, Batavia, 16 October, 1947. 30/66/47,” in National Archives (UK), FO 810/4.

56. Document 160, “Lt. gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 11 okt. 1947”; Document 204, “Lt. gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 21 okt. 1947”; both in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 279, 357.

57. Document 102, “Lt.gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 24 sept. 1947”; Document 155, “Van Mook (lt. gouverneur-generaal) aan Beel (minister-president), 6/10 okt. 1947”; both in ibid, 269.

58. Document 309, “Eaton to Department of External Affairs. Cablegram 295. Batavia, 1 September 1947,” in Dorling, Diplomasi, 290–91.

59. Document 360, “Australian Military Observing Officers to Eaton. Batavia, 1 October 1947,” in ibid., 336–42.

60. “Appendix. Tour Report of Sumatra. Summary of Military Observers Reports,” in UN, “Report by the Consular Commission.”

61. “Penindjau-penindjau Belgie dan Fransch tiba,” Keng Po, 20 September 1947.

62. “Pengawas militair Belgie dan Frans,” 1947, Keng Po, 24 September; “Penindjau militair ka Magelang,” 1947, Keng Po, 27 September; “Consulaire Commissie dan penindjau militaire soedah balik,” 1947, Keng Po, 27 September.

63. Document 146, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 9 okt. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 257.

64. “Dengan B–24 penasehat miltair Tionghoa tiba di Djakarta. Doea kapt. pergi ke Djokja ini pagi,” Keng Po, 27 September 1947.

65. “Kuo Fu Pao sebagai wakil ‘Persariketan Pemoeda Islam Tionghoa’ aken hadlirken permoesjawaratan Masjoemi, P.S.I.I. dan G.P.I.I.,” Keng Po, 29 September 1947; “Pai Chung Hsi beroesaha keras menjokong perdjoeangan Republiek. Katerangan Kapitein Kuo Fu Pao,” Keng Po, 30 September 1947.

66. Document 358, “Burton to Evatt. Cablegram E42. Canberra, 30 September 1947,” in Dorling, Diplomasi, 334.

67. Document 357, “Eaton to Department of External Affairs. Cablegram 334. Batavia, 29 September 1947,” in Dorling, Diplomasi, 333; Document 289, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 5 nov. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 542–44.

68. “The Consul General at Batavia (Livengood) to the Secretary of State, Batavia, October 29, 1947,” in U.S. Department of State, Foreign Relations, 1063–64.

69. Document 166, “Commandant A-divisie (De Bruyne) aan legercommandant (Spoor), 14 okt. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 296–300.

70. Document 143, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 7 oktober. 1947,” in ibid., 254.

71. UN, “36 (1947) Resolution of 1 November 1947” [S/597]; UN, “67 (1949) Resolution of 28 January 1949” [S/1234].

72. “Chapter IV” in UN, “Report by the Consular Commission.”

73. Document 129, “Chef directie Verre Oosten te Batavia (Elink Schuurman) aan minister van buitenlandse zaken (Van Boetzelaer van Oosterhout), 2 okt. 1947,” in Drooglever and Schouten, Officiële Bescheiden. Deel 11, 229.

74. Document 176, “Lt.gouverneur-generaal (Van Mook) aan minister van overzeese gebiedsdelen a.i. (Beel), 16 okt. 1947,” in ibid., 312–13.

75. Hudson, “Australia and Indonesian Independence,” 232–33.

76. UN, Security Council Official Records, Second Year, No. 97, 211th meeting, 14 October 1947; UN, Security Council Official Records, Second Year, No. 99, 213^th meeting, 22 October 1947; and UN, Security Council Official Records, Second Year, No. 100, 214^th meeting, 27 October 1947.

77. “Appendix VIII” in UN, “Report by the Consular Commission.”

78. Moore, “Dutch Decolonization,” 226.

79. Document 324, “Eaton to Burton. Letter. Batavia, 8 September 1947,” in Dorling, Diplomasi, 304.

Additional information

Notes on contributors

Steven Farram

Steven Farram is Senior Lecturer in North Australian and Regional Studies (History), Charles Darwin University, Australia. His research interests include the politics and history of northern Australia and Southeast Asia, particularly Indonesia and Timor-Leste. He has published extensively in these areas and is also a regular contributor of book and exhibition reviews in various journals.