Foreign Policy of Pakistan - In the Historical Context

Module 15
(Lecture – XV)
1947-1978: Pak-Afghanistan
Relations: Challenging Period

04 December, 2017

Department of History,

Quaid -I-Azam (QAU)

Shahid M G Kiani,
Ambassador/VF
Pakistan –Afghanistan
Pak-Afghanistan Relations: A Synopsis
• After 7 decades, Pakistan relation with its neighbors, especially Afghanistan remained
stormy and estranged due to several reasons, most importantly, Afghanistan claims
over NWFP (KPK), Taliban sanctuaries inside Pakistan & what is seem to be unrealistic
claims of Afghan and Pakistani leaders over each others

• This turned the region into hotbed of terrorist and fundamentalist groups which not
only threatens regional security but poses a grave danger to world security as well

• Pakistan is one of Afghanistan’s most strategically important neighbors. From a geo-

political standpoint, Afghanistan’s location at the crossroads of the south and central
Asia has always been critical

• From its creation in 1947, Pakistan inherited a unique and difficult security situation

• On the other hand its antagonistic relationship with India, much more powerful and
stable, when combined with an unfriendly Afghanistan, increased Pakistani insecurity

• Given this security environment, Pakistan used to look toward Afghanistan, at least
from 1947 till 1979 as a potential friend in the region.
1947 -1978: Pak-Afghanistan Relations: Introduction

• From 1947 to 1979, the issues related to Durand Line & Pashtunistan formed basis
of Afghan/Pakistan relation

• Afghanistan was the only country not to vote in favor of the admission of Pakistan
in the UN

• Pakistan from its birth faced difficult situation in both eastern & western borders

• There was Kashmir problem with India & border disputes with Afghanistan,
created a nightmarish view situation for Pakistan

• Facing with two hostile geo-political environments - it could not afford a second
front toward her west

• With this pre-condition, Pakistan shaped its Afghan policy

• However, Afghanistan did not view the situation in quite the same way – rather,
Afghanistan had its own agendas
1947 to 1951: Durand Line Controversy
• The Durand line, which is legacy of “Great Game” between two major colonial powers, Russia
and Britain, remained in heart of Afghan Government’s strategic thinking toward Pakistan

• From time when Afghan Government signed treaty in 1893- till 1947 - it was reaffirmed three
more times by successive Afghan Governments

• After end of British rule in the subcontinent - Afghan Government argued that treaty is no
longer legitimate and lay claims to all land between border the Indus River

• On other hand - because Pakistan contends that Pashtuns voted for Pakistan in 1947
referendum in Peshawar, it, therefore, refutes validity of Afghanistan’s claim (referendum:
known international law practice to know the desire of a people)

• On the other hand -Pakistan claimed that Afghanistan concern for unity of Pashtuns is not
genuine because it does not include Pashtuns on its side of the line in proposed state of
“Pashtunistan”

• Pakistan’s policy in this period is characterized with the idea of following a policy of restrain and
patience towards Afghanistan

• As Pakistan was tied in two fronts, she was most anxious to avoid any clash with Afghanistan

• Thus, it did not to let any disorder develop on its western border. The only option viable for
Pakistanis was to keep status quo, strengthening its own security & trying to convince Afghan
leaders about the futility of the claims
Durand Line: Legitimate Opinions

• British Government Opinion: “Splitting of the former India into two states - India
and Pakistan - and the withdrawal of British rule from India had not caused the
Afghan Treaty to lapse and it was, hence, still in force”

• US State Department’s Reraffirmation: “Durand Line as internationally recognised

boundary between Pakistan & Afghanistan & rejection of Afghan Government’s
protest over an earlier US statement on Pak-Afghan border”

• International Law: “Law of Treaties between States & International Organisations

(1986) provides likewise that fundamental change of circumstances may not be
invoked, as a ground for terminating or withdrawing from a treaty between two or
more states and one or more international organisations - if the treaty establishes
a boundary”
1947-1963: Pakistan-Afghanistan Relations: In brief

• Durand Line Issue

• Opposition in UNO:

• Reaction in 1948 Kashmir Conflict

• Zahir Shah Speech: v. Exchange & withdrawl of Ambassadors: vi.

• Assassination of Liaqut Ali Khan

• Attack on Pakistan Embassy

1947: Opposition in UN

• Opposition in UNO: In initial era Pak-Afghan relations were in critical phase

• Afghanistan was first Muslim State in the World whose against the membership of
Pakistan in UNO

• Afghanistan put forwarded the anti Pakistan resolution in UNO.  Pakistan joined
the United Nations on September 30 1947

• Afghanistan did not consider Pakistan an independent state – it considered

Pakistan as a colony of Britain
1950-1951: Pak-Afghanistan Relations & Pakhstunistan Issue

• The tension reached to its climax when Afghan king Zahir Shah made an anti
Pakistan speech at a celebration in Kabul

• The Afghanistan’s flag was hoisted and anti Pakistan leaflets were dropped by the
Afghan Air Force

• Afghan Government did not halt on proclamation rather took a step further by
setting up a Pakhtoon parliament inside Pakistan’s territory

• Irregular forces from Afghanistan crossed Pakistan border to fabricate Pakhtoon

uprising in Pakistani tribal areas in 1950-51 were even handedly dealt by Pakistan’s
security forces

• Afghanistan denied its covert involvement in the cross border infiltration

• Pakistan rejected Afghanistan’s claim of neutrality in the cross border infiltration &
both nations withdrew their ambassadors for few months till those were
repositioned

• The assassination of Pakistani Prime minister Liaqat Ali Khan by an Afghan national in
1951 further deteriorated the already fragile relations
 1960: U2 Incident & its Fall out

• American use of Peshawar Air port for U-2 flights prompted Soviets to penetrate further in to
Afghanistan and threatening Pakistan for serious consequences for being accomplices in U-2
flights

• Since happening of U-2 incident - USSR supported every Afghan move to isolate or damage
Pakistan in any aspect

• Indian connivance/Soviet’s support to Afghanistan against Pakistan marked another series of

cross border raids into Pakistan by Afghan tribesmen in fall of 1961

• These incursions led to termination of Pak-Afghan relations & closure of Afghanistan’s

consulates and trade offices in Peshawar/Quetta that were turned to be centers of subversion.

• In retaliation - Kabul broke off diplomatic relations - closed border & suspended transit trade
with Pakistan.

• The new stand off effectively cut land-locked Afghanistan off from most of the world -leaving
it dependent on transportation links with the Soviet Union -extremely limited access through
Iran and with India through air
1963-73: Detente in Pak- Afghanistan Relations

• Following Iran’s successful mediation which resulted in the 1963 Tehran Accord -
Afghanistan & Pakistan agreed to restore diplomatic relations - re-open their
closed borders & resume trade/commercial ties

• Both sides further agreed to ‘approach all mutual problems in accordance with
international law & resume normal relations & mutual trust

• Resumption of bilateral relations & reopening of trade route provided a sigh

of relief to depressed economic environment of Afghanistan

• Onus of responsibility for severing the Pak-Afghan relations was put on Prime
Minister Daud who resigned in March 1963

• These developments diluted Kabul’s focus on Pakhtoonistan issue and made the
Afghan rulers to take more relaxed view of Pakistan

• Relations were improved to such an extent that during the 1965 India -Pakistan
war, Afghanistan sided with Pakistan which enabled Islamabad to fully concentrate
on its war with India & worry less about the security of its western border
 (1973-1978): Reversal of Rapprochement

• The normalization process that commenced in 1963 with resignation of Sardar Daud as Prime
Minister of Afghanistan started gaining currency with every passing year.

• Bilateral relations were about to be matured enough to resolve the historical legacy of mistrust
when these were interrupted by a sudden change in Kabul’s corridors of power

• In July 1973, Sardar Daud, an ardent champion of Pakhtoonistan issue - deposed King Zahir
Shah while he was on visit to Europe with help of leftist forces and in connivance with the
Soviets

• Experiencing rise in Soviet influence in Afghanistan’s internal affairs Daud observed that anti
• Pakistan policies were doing Afghanistan more harm than good.

• Daud succumbed by Pakistan retaliation - decided for reconciliation with Islamabad & invited
Pakistan’s PM Zulifiqar Ali Bhutto for Kabul’s visit – he was given an unprecedented warm
welcome in Kabul in June 1976

• Daud was given red carpet reception in his reciprocal visit to Islamabad in August same year.

• These reconciliatory visits helped in reviving trust, defusing tension, resolve of peaceful
coexistence, and finding pacific settlement of disputes