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less desirable peripheral bases. Soviet exploitation of the naval and air bases in mainland Southeast Asia probably would be limited by the difficulties of logistic support but would, nevertheless, increase the threat to existing lines of communication.

II.

8. The continued integrity of the individual countries of Southeast Asia is to a large extent dependent upon a successful coordination of political and military measures for the entire area. The development of practical measures aimed at preventing the absorption of these countries into the Soviet orbit must therefore recognize this interdependence and must, in general, seek courses of action for the area as a whole.

9. However, it must be recognized that the governments and peoples of Southeast Asia have little in common other than their geographic proximity and their newly awakened nationalism and anti-colonialism. For the most part, their economies are competitive rather than complementary. The countries are divided internally and from each other by language and ethnic differences. The several nationalities and tribal groups are the heirs of centuries of warfare, jealousy, and mutual distrust. In addition, their present governments are sharply divided in their attitudes toward the current East-West struggle. The governments of the three Associated States of Indochina are not recognized by any other Asian states except Nationalist China and Thailand.

10. In the strategic sense, the defense of Tonkin is important to the defense of mainland Southeast Asia. If Communist forces should succeed in driving the French Union forces from Tonkin, military action in the remainder of Indochina might have to be limited to delaying action and the perimeter defense of certain coastal areas pending reinforcement or evacuation. With the appearance of communist success, native support would probably swing increasingly to the Viet Minh.

11. Thailand has no common border with China and no strong internal communist element. It adjoins areas of Indochina now controlled by the Viet Minh, but the border areas are remote and difficult. Hence, communist seizure of Thailand is improbable except as a result of the prior loss of either Burma or Indochina.

12. Communist control of Indochina or Burma would expose Thailand to infiltration and severe political pressures, Rh