Foreign Relations of the United States, 1969–1976, Volume E–7, Documents on South Asia, 1969–1972
Document 358
358. Telegram 52513 From the
Department of State
to the
Embassy in Afghanistan
1
2
Washington
,
March 28, 1972, 1542Z
Subject:
Pak-Afghan Relations
Ref:
Kabul 1545
Moscow 2480
Islamabad 2144
Kabul 1654
1.
We are concerned that domestic political pressures in Pakistan and Afghanistan may be pushing both countries contrary to their own interests and desires—toward a confrontation over terrain and loyalties of Pushtun people. Afghanistan has found it expedient to reinvigorate its Pushtunistan propaganda in preparation for convening of Parliament.
Bhutto
government in Pakistan finds its most credible major opposition coming from Wali Khan who is coincidentially most effective spokesman for Pushtuns of
NWFP
. Emotional bond between latter and Pushtunistan irredentists in Afghanistan probably strong as ever in spite of ideological contradictions and conflicting objectives.
2.
Recent agreement between President
Bhutto
and Wali Khan is hopeful sign, but we have also noted disturbing report that Bhutto harbors considerable irritation with Wali and may want another go at him later. If agreement should break down Afghanistan could react through intensified propaganda in manner which would not only be resented by
GOP
but could also lead Afghan Pushtuns and some of
NAP
followers in Pakistan to expect concrete action from
RGA
.

in short, possibility exists for escalation from which it would be hard for
RGA
and
GOP
to withdraw. Seen from the outside, this confrontation makes no sense. We find it difficult to imagine any significant benefit to either side.
3.
We see U.S. interests best served by continuation of improvement in relations between Afghanistan and Pakistan which seemed to be taking place during past few years. We have major interest, therefore, in continuation
Bhutto
-Wali agreement, or in event of breakdown, in facilitating resumption dialogue between President
Bhutto
and recognized leadership of NWFP. Similarly we have interest in continuing recognition by
RGA
of risks in any revival of official encouragement to Pushtun claims, especially during current crisis in Pakistan. Finally we attach considerable importance to continuation of
GOP
-
RGA
dialogue initiated by
Bhutto
visit to Kabul.
4.
For Islamabad: Charge should continue find appropriate occasion compliment
Bhutto
on statesmanlike agreement with Wali and to encourage
Bhutto
to continue cautious approach to
NWFP
politics. You may share with him
USG
assessment that
RGA
’s increased interest in Pushtunistan appears basically designed for domestic political purposes, and that
RGA
ability to restrain parliamentary Pushtuns is inverse function of
Bhutto
-Wali or
GOP
-
NAP
tension. You should also note with Bhutto and other
GOP
officials our appreciation of
Bhutto
’s statesmanship in visit to Kabul and our hope that
GOP
can follow up with concrete measures, particularly in trade and investment, designed to demonstrate that
Bhutto
visit had constructive substantive purpose. Discussions with Wali by consul in Peshawar or Charge should stress same positive theme: Wali-
Bhutto
agreement was statesmanlike and we hope continuing dialogue between two leaders will facilitate development of democratic government in Pakistan.
5.
For Kabul: In discussions with
RGA
, suggest you continue encourage such positive elements of past couple of years as
RGA
thanks to
GOP
for continuation of wheat shipments during war and King’s courtesies to
Bhutto
in January. In particular, you should continue stress need for low key approach to Pushtunistan publicity. Ambassador might find ways discreetly note, that recent Moscow speech and announced revival of issue in public media could fan issue in way that could have unfortunate backlash. We hope recent public announcement will itself be sufficient for political purposes for which it was

apparently designed and follow-up will be held to absolute minimum. We trust moderates in
RGA
aware that Pakistan political situation still very fragile. Hostile propaganda from Afghanistan could encourage foolish behavior in WFP by
NAP
,
GOP
, or both, which could contribute to instability in region and redound against
RGA
’s long term interests. As you find opportunity, you should encourage
RGA
diplomatic initiative to reassure
GOP
on
PM
’s Moscow speech and on announcement of revival of Pushtunistan coverage in press.
6.
Welcome addressee comments.