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THE DEPARTMENT OF STATE
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VOL. Xlil, NO. 328
OCTOBER 7, 1945
/?! this issue
THE COUNCIL OF FOREIGN MINISTERS
Address by the Secretary of State
Statement by the Secretary of State
CONTROL OF GERMANY
Agreement Between the Allied Representatives
AN AMERICAN'S VIEW OF FRANCE
By Camden H. McVey
DISPLACED POPULATIONS IN JAPAN AT THE END OF THE WAR
By Jane Perry Clark Carey
OUR OCCUPATION POLICY FOR JAPAN
A Radio Broadcast
*
^ENT o^
•^XES O
*
For complete contents
see inside cover
U. S. SUPERINTENDENT OF DOCUMENTS
THE DEPARTMENT OF STATE
BULLETIN
Vol. XIII-No.328«
POBI.ICATIOH 2327
October 7, 1945
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Research and
Publication, Office of Public Affairs,
provides the public and interested
agencies of the Government with
information on developments in the
field of foreign relations and on the
work of the Department of State and
the Foreign Service. The BULLETIN
includes press releases on foreign
policy issued by the ff'hite House and
the Department, and statements and
addresses made by the President and
by the Secretary of State and other
officers of the Department, as ivell as
special articles on various phases of
international affairs and thefunctions
of the Department. Information con-
cerning treaties and international
agreements to which the United States
is or may become a party and treaties
of general international interest is
included.
Publications of the Department, cu-
mulative lists of which are published
at the end of each quarter, as well as
legislative material in the field of inter-
national relations, are listed currently.
The BULLETIN, published tiith the
approval of the Director of the Bureau
of the Budget, is for sale by the Super-
intendent of Doctiments, United States
Government Printing Office, Wash-
ington 25, D. C., to ichom all pur-
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scription price is $3.50 a year; a single
copy is 10 cents.
OCT 30 1945
(Contents
American Republics Page
Consideration of Emergency Controls on Coffee 527
Suggestion for Postponement of Inter-American Conference
for Maintenance of Peace and Security 552
Argentine Situation. Statement by Acting Secretary
Acheson 552
Compensation for Petroleum Properties Expropriated in
Mexico 553
Europe
Report on First Session of the Council of Foreign Ministers.
Address by the Secretary of State 507
Statement by the Secretary of State on the Meetings of the
Council of Foreign Ministers 513
An American's View of France. By Camden H. McVey. . 523
Arrangements for Housing Americans in Paris 552
Far East
Displaced Populations in Japan at the End of the War. By
Jane Perry Clark Carey 530
Regarding Philippine Independence. Statement by the
President 537
Our Occupation Policy for Japan 538
Statement on the Establishment of a Far Eastern Commis-
sion To Formulate Policies for the Carrying Out of the
Japanese Surrender Terms . . . ' 545
CuLTtlRAL COOPER.'LTION
Visit of Bolivian Educator 521
Economic Affairs
Financial and Trade Discussions With United Kingdom.
Joint Statement by the United States and the United
Kingdom 512
Economic Affairs
Report on UNRRA Shipments to Liberated Areas. ..... 546
General
International Control of Atomic Energy: Excerpts From the
President's Message to the Congress 514
The United Nations
United States Delegation to Conference on Food and Agri-
culture 522
Discussions on Draft Constitution for Educational and Cul-
tural Organization:
Group Meeting at the Department of State 548
Remarks by Assistant Secretary Benton 548
Treaty Information
Chartcrof the United Nations: China, Turkey 513
Arrangements for Control of Germany by Allied Representa-
tives 515
Termination of Treaties: Siam-Japan 521
St. Lawrence Seaway and Power Project:
Message From the President to the Congress 528
Statement by Acting Secretary Acheson 529
■ Discussions With Mexico on Air-Transport Agreement . . . 537
Agreement Between United States and Norway Relating to
Air-Transport Services 550
The Department
Division of International Conferences 553
Appointment of Officers 554
The Foreign Service
Emliassy at Warsaw 549
Publications
Department of State 554
Foreign Commerce Weekly 522
The Congress 554
Report on First Session
Of the Council of Foreign Ministers
Address by THE SECRETARY OF STATE
[Released to the press October 5]
The first session of the Council of Foreign Min-
isters closed in a stalemate. But that need not,
and should not, deprive us of a second and better
chance to get on with the peace.
In the past I have been both criticized and com-
mended for being a compromiser. I confess that
I do believe that peace and political progress in
international aifairs as in domestic affairs depend
upon intelligent compromise. The United States
Delegation acted in tliat spirit at Berlin. We
acted in that spirit at London. And we shall con-
tinue to act in that spirit at future conferences.
That spirit is essential in international confer-
ences where action can be taken only by unanimous
agreement. When any one member can prevent
agreement, compromise is a necessity. Men and
women who have served on a jury can ajjpreciate
that.
Compromise, however, docs not mean surrender,
and compromise unlike surrender requires the as-
sent of more than one party.
The difficulties encountered at the London con-
ference will, I hope, impress upon the peoples of all
countries, including our own people, the hard
reality that none of us can expect to write the peace
in our own way. If this hard reality is accepted by
statesmen and peoples at an early stage of the
peacemaking process, it may at later stages save
us and save the peace of the woi'kl from the dis-
astrous effects of disillusionment and intransi-
gences.
Regardless of how Americans may differ as to
domestic policies, they desire unity in our foreign
policies. This unity will be essential in the days
ahead of us when we may expect differences in
views by various governments as to peace settle-
ments. However, the political party in power can-
not expect this unity unless it freely consults repre-
sentatives of the opposing political party.
Believing this, I requested Mr. John Foster
Dulles, one of the best-informed Americans in
the field of foreign relations and a loyal Repub-
lican, to accompany me to London in an advisory
capacity. He has been more than an adviser;
he has been a partner. Between us there have been
no secrets. At the Council table and in private
conference he has participated in the making of
all decisions. Our accord serves to show that in
foreign affairs Republicans and Democrats can
work together and that in vital matters of foreign
policy we Americans are united.
When it was agreed at Berlin to establish the
Council of Foreign Ministers ^ I think we all had
in mind tlie precedent of the Dumbarton Oaks
Conference. There, representatives of Great
Britain, the Soviet Union, China, and the United
States worked together to prepare draft proposals
for the United Nations Charter as a basis for dis-
cussion with other nations. France was not pres-
ent at Dumbarton Oaks only because France had
not yet been liberated. Her right to permanent
membership on the United Nations Security
Council was not questioned.
Experience reveals that a certain degree of
understanding among the major powers is essen-
tial to secure general agreement among many
nations. When understanding among the great
powers is not achieved in advance of a conference
participated in by many nations, it usually has
to be secured informally during the conference.
At the Versailles Conference, for example, it
took the Big Three and the Big Five so long to
agree among themselves that the complaint was
' Broadcast over the Columbia Broadcasting System
from Wasliington on Oct. 5, 1945 at 9 :30 p.m. E.S.T.
^ BuiXETi.\ of Aug. 5, 1945, p. 153.
507
508
DEFARTMEiyT OF STATE BULLETIN
made that the smaller powers had little more time
to consider the treaty than was given to the
Germans.
The Berlin agreement envisaged the naming of
highranking deputies who could carry on the work
of the Council in tlie absence of their chiefs, the
Foreign Secretaries. The Council, as President
Truman and I understood it, was to be a sort of
combined staff to explore the problems and pre-
pare proposals for the final peace settlements.
At Berlin it certainly was never intended that
tlie three powers present or the five powers consti-
tuting the Council should take unto themselves the
making of the final peace. The Berlin declaration
setting up the Council begins with the statement
"The Conference reached the following agreement
for the establishment of a Council of Foreign
Ministers to do the necessary preparatory work
for the peace settlements."
The Council was not to make the peace settle-
ments but to do the necessary preparatory work
for the peace settlements. It certainly was not
my intention to agi'ee to any final treaty without
first getting the views of the Foreign Relations
Committee of the Senate which must pass upon
all treaties before ratification.
The first session of the Council, so far as the per-
sonal participation of the Foreign Ministers was
concerned, was intended to provide directives for
the deputies in the preparation of treaties for
Italy, Rumania, Bulgaria, Hungary, and Finland.
This woi'k was exploratory — to find out on what
points we were in agreement, on what points we
differed, and on what points further study and
data were required. It is a little naive to sup-
pose that when really vital differences emerge,
one nation or another is likely to abandon its posi-
tion on the first interchange of views.
At this stage it is as important to know and
understand wherein we and our Allies differ as
wherein we agree. We must understand our
points of difference before we can intelligently
consider means of reconciling them.
So far as the Italian treaty was concerned I
tliink we made very good progress toward agree-
ment on directives to govern the work of our
deputies.
There was ready acceptance of our proposal that
Italy should undertake to maintain a bill of rights
which will secure the freedoms of speech, religious
worship, political belief, and public meeting en-
visaged for Italy in the Moscow declaration of
November 1943 and which will confirm the human
rights and fundamental freedoms set forth in the
Charter of the United Nations.
There was some difference among the confei'ees
at the start as to providing for the limitation of
armaments. But it was our feeling that Italy
should rely on the United Nations for protection
against aggression and should not engage in com-
petition in armaments when all her resources are
badly needed to restore her civilian economy. And
this view gained general acceptance.
While the very controversial boundary dispute
between Yugoslavia and Italy was not settled, it
was encouraging to find that it was possible to
agree that the line should in the main be governed
by ethnic considerations and that regardless of
its sovereignty there should be a free port at
Trieste under international control.
The Council was in general agreement that the
Dodecanese Islands should go to Greece although
the assent of one member was qualified pending
the study of certain questions by his government.
There was general agreement that the Italian
colonies should come under the trusteeship pro-
visions of the United Nations Charter. Various
views were expressed as to the preferred form of
trusteeship for the colonies.
The American Delegation was particularly
gratified that the directive to the deputies, while
not restricting their studies, called for special
consideration of the American proposal for a truly
international administration directly responsible
to the United Nations with a view to the attain-
ment of the greatest degree of independence of
the inhabitants of two of. the colonies at the end
of ten years and independence for the people of
a third colonj^ at as early a date as possible.
This proposal was presented by the American
Delegation when the Italian treaty first was taken
up and was consistently adhered to.
It is our view that the object of a trusteeship
should be to promote the self-government of the
people of a colonj' and not to enrich a trustee or
increase its economic or military power.
It was also agreed that Italian sovereignty
should be restored on the conclusion of the treaty
so that foreign troops may be withdrawn and, ex-
cept as STjecially provided in the treaty, foreign
controls within Italy terminated.
OCTOBER 7, 1945
509
There was no definite understanding on rep-
arations. The United States took the position
that Italy could not pay anything like $600,000,-
000. Aj^art from certain foreign assets, she should
be required to pay as reparations only such factory
and tool equipment designed for the manufacture
of war implements which are not required for the
limited military establishment permitted to her
and which cannot be readily converted to peaceful
purposes. If she is stripped of more, then her
economy cannot be restored.
We have contributed several hundred million
dollars for the relief of the Italian people. Their
condition is deplorable. We must continue to help
them. But we cannot contribute more millions,
if those millions are to be used to enable Italy to
pay reparations to other governments. We did
that for Germany after the last war. We shall
not do it again.
Substantial jjrogress was also made on the di-
rectives for the preparatory work on the Finnish
treaty and the treaties with Rumania and Bul-
garia. The principles suggested by the American
Delegation and accepted for the Italian treaty
for the safeguarding of human rights and funda-
mental freedoms are also to be incorporated in
these treaties.
The directives concerning the limitation of
armament for Rumania and Bulgaria are expected
to follow the same general Ime as those accepted
for Italy.
Before work could be commenced upon the di-
rectives for the Hungarian treaty the Soviet Dele-
gation announced they felt obliged to withdraw
their assent to the procedure previously accepted
by the Council for dealing with peace treaties.
Before taking up these procedui'al difficulties I
should say a few words about the Soviet Delega-
tion's disappointment with the failure of Great
Britain and the United States to recognize the Bul-
garian and Rumanian Governments.
The thought apparently exists in their mind that
our government objects to these governments be-
cause they are friendly to the Soviet Union and
that our unwillingness to recognize these govern-
ments is a manifestation of unfriendliness to the
Soviet Union.
There could be no greater misconception of our
attitude. I was at Yalta. The Yalta declaration
on the liberated and ex-satellite countries was
based on a proposal submitted by President Roose-
velt. Under it the Allied Powers, including the
Soviet Union, assumed the responsibility of con-
certing their policies to assist in the establishment
of interim governments broadly representative of
all important democratic elements in the popula-
tion and pledged to the earliest possible establish-
ment through free elections of governments re-
sponsive to the will of the people. That pledge
cannot be fulfilled in countries where freedom of
speech and of assembly are denied.
That policy sponsored by President Roosevelt
was America's policy and remains America's
policy.
We are well aware that no government is per-
fect and that the representative character of any
provisional government will always be subject to
debate. We do not demand perfection where per-
fection is unobtainable.
In an effort to concert our policies with our Al-
lies we have tried to show a spirit of conciliation.
Certainly we did not make unduly exacting the re-
quirements we set before we recognized the Pro-
visional Polish Government or the conditions
which we have proposed as a basis for the recogni-
tion of the Provisional Hungarian Government.^
And I hope that as the result of efforts now being
made by the Provisional Austrian Government to
broaden its representation, we may soon be able to
recognize that Government.
At Berlin we stated we would examine in the
near future, in the light of prevailing conditions,
the question of recognition of Rumania and Bul-
garia. We have investigated and we shall continue
to investigate. But we cannot know whether con-
ditions justify recognition unless our political rep-
resentatives are fully informed and unless our news
correspondents are permitted freely to enter coun-
tries and freely to send their stories uncensored.
We do not seek to dictate the internal affairs of
any people. We only reserve for ourselves the
light to refuse to recognize governments if after
investigation we conclude they have not given to
the people the rights pledged to them in the Yalta
agreement and in the Atlantic Charter.
Tlie peace of Europe depends upon the existence
of friendly relations between the Soviet Union and
its European neighbors, and two wars in one gen-
eration have convinced the American people that
they have a very vital interest in the maintenance
of peace in Europe.
' BuiXETiN of July 8, 1945, p. 47.
510
DEPARTMENT OF STATE BULLETIN
The American Government shares the desire of
the Soviet Union to have governments friendly to
the Soviet Union in eastern and central Europe.
But lasting peace depends not only upon friend-
ship between governments but upon friendship
between peoples.
Had it not been for the difficulties experienced
by the Allied governments in agreeing upon a com-
mon policy in regard to the recognition of the
governments of Rumania and Bulgaria a more con-
ciliatory spirit might possibly liave prevailed and
might greatly have helped to overcome the pro-
cedural difficulties of the Council.
No one present at the Council on September 11
questioned the decision taken by the Council that
day inviting all five members to be present at all
meetings.
Directives for the Italian treaty were under dis-
cussion for several days with China, not a party
to the surrender terms, present, participating in
the discussion, but not voting. No one objected.
Directives for the Finnish treaty were then con-
sidered, with the United States, France, and China
present but not voting. No one objected.
Directives for the Eumanian treaty and then for
the Bulgarian treaty were considered, with France
and China present but not voting. No one ob-
jected.
It was only on September 22 that the Soviet
Delegation took the position that the decision of
the Council on September 11 violated the Berlin
agreement.
It will be recalled that the Berlin agreement
set up a Council of the Soviet Uni<m, Great Brit-
ain, France, China, and the United States to un-
dertake the necessary preparatory work for the
peace settlements. It provided that the Council
should draw up with a view to their submission to
the United Nations peace treaties with Italy, Ru-
mania, Bulgaria, Hungary, and Finland.
It provided that in the discharge of these tasks
the Council will be composed of members i-epre-
senting those states which were signatory to the
terms of surrender imposed upon the enemy state
concerned, and for the purpose of the Italian set-
tlement France should be regarded as signatoiy
to the surrender terms.
The Berlin agreement further provided that
other members of the Council will be invited to
participate when matters directly concerning them
are under discussion.
This distinction between members of the Coun-
cil who were parties to the surrender terms and
those who were not, was not part of the original
American proposal and was reluctantly accepted
by us. We were fully aware that a member would
not have the right to vote if not a party to the
surrender terms, but we understood from the ex-
change of views at the table that all members
would be allowed to participate in all discussions
in the Council.
It certainly never occurred to President Tru-
man or myself that any of the five members of
the Council who are also the five permanent mem-
bers of the United Nations Security Council, which
is chai'ged with the responsibility for maintain-
ing the peace which the Council of Foreign Min-
isters is preparing, would not be invited to be
present during the discussions of the treaties.
Such exclusion of two permanent members of
the Security Council would not promote the har-
monious relations essential to the success of the
United Nations Organization.
The Soviet Delegation's position was not simply
that they wished to withdraw the invitation to
China and France to participate without right to
vote. Their position was that it was bej'ond the
authority of the States signatory to the surrender
terms to extend the invitation.
Although this construction of the Berlin agree-
ment did not accord with the understanding of
the American Delegation or the British Dele-
gation or the President of the United States or
the Prime Minister of Great Britain, the Soviet
Delegation insisted that they could no longer
discuss treaty matters in the presence of members
who were not parties to the surrender terms.
Thereafter the meetings of the Council for a
number of days were confined to the discussion of
other items on the agenda such as international
inland waterways, the Ruhr, acceleration of
German rejiaratioiis, restitution, repatriation of
Allied nationals, and the Austrian food supply.
"\^nien the general items on the agenda were
exhausted, agreement had not been reached for
solving the procedural obstacles which, in the
view of the Soviet Delegation, made further dis-
cussion of treaty matters impossible until the
decision of September 11 should be rescinded.
Since it had always been my view that the Ber-
lin agreement contemplated a broadening out of
the partici^Dants before the final conclusion of a
OCTOBER 7, 1945
peace treaty, I sought to find a compromise aloftg
that line.
The Berlin agreement expressly provided in
section 4 of the article establishing the Council
that the Council may adapt its procedures to the
particular problems under discussion; that in
some cases it may hold its own discussions prior
to the participation of other interested states; and
m other cases it may convoke a formal conference
of states interested in particular problems.
I therefore proposed, with considerable reluc-
tance, that we ask our French and Chinese col-
leagues to accept the position of the Soviet Dele-
gation that the preparatory and exploratory work
of the Council for the peace settlements be confined
to the signatories of the surrender terms in ques-
tion, provided that at the same time it should be
agreed that a truly representative peace conference
should be convoked before the end of the year. To
ensure the calling of such a conference we thought
that France and China, in the interest of peace,
might make even this sacrifice.
This conference would be convoked for the
purpose of considering the peace treaties with
Italy, Kuraania, Bulgaria, Hungary, and Finland.
To the conference would be invited :
(1) The five members of the Council of For-
eign Ministers which are also the five permanent
members of the United Nations Security Council ;
(2) All European members of the United
Nations;
(.3) All non-European members of the United
Nations which supplied substantial military con-
tingents in the war against the European mem-
bers of the Axis.
The American Delegation took the position that,
in an interdependent, democratic world, peace
cannot be the exclusive concern of a few presently
powerful states; that unless we were to revert to
a world of isolationism none of the states which
we wanted invited to the peace conference could
be said to be not directly concerned in the peace.
We urged that those states, both large and small,
which had fought and suffered in the war must
make the peace. This has been a peoples' war and
it must be a peoples' peace.
The Soviet Delegation stated, however, that
they could not agree to the American proposal for
a peace conference until they had returned to Mos-
cow and had personal consultations with their
Government.
511
It therefore became obvious that there could
be no agreement unless the other delegations were
prepared to yield their views and convictions to
those of the Soviet Delegation. This none of the
other delegations was prepared to do.
The United States is willing to dictate terms of
peace to an enemy bvit is not willing to dictate
terms of peace to its Allies.
Our task then became one of arranging an ad-
journment until the Soviet Delegation could re-
turn to Moscow. It is customary before adjourn-
ment to adopt and have all conferees to sign a
protocol containing a record of the agreed deci-
sions of a conference. The Soviet Delegation
would not agree to the inclusion in the protocol of
the decision of September 11 that the five members
should participate in all meetings, even though
it included a statement of the action taken by the
Soviet Delegation on September 22 to withdraw
their assent to that decision.
On the last day of the session the Soviet Dele-
gation announced it would offer a compromise
proposal. The proposal was that there should be
four separate protocols without recording in any
of them the decision of September 11 which had
been agreed to by them but which they later wished
to rescind. This was the same position that they
had urged for days. The only thing new about it
was the suggestion that on the following day they
would discuss unsettled questions including the
American proposal for a peace conference and the
disputed September 11 decision.
In answer to a question the Soviet Foreign
Minister stated that while he could discuss the
proposal for a peace conference, he still was with-
out authority to act upon it. The proposal had
been discussed for a week. Further discussion
without action was futile.
It was also obvious that once the four protocols
were signed, it would be useless on the following
day to discuss the question of inserting in the
protocols the decision of September 11. An ob-
jection by the Soviet Delegation would prevent
its insertion.
The Soviet Delegation also reiterated their posi-
tion that they would not discuss the treaties in the
presence of members they now believed to be in-
eligible. This would have excluded China from
the" consideration of all treaties and France from
the consideration of all but one, without any as-
surance of participation in a peace conference.
572
DEPARTMENT OF STATE BULLETIN
It became apparent that agreement was im-
possible and further meetings were useless. The
Chinese Foreign INIinister, who was presiding
when the Council adjourned and at whose instance
the Council had remained in session from Sunday
until Tuesday, stated that under the circumstances
he could not ask the Council to continue in session
longer.
As the record stands the Foreign Minister of
the Soviet Union has not rejected our proposal
for a peace conference. During the discussions he
admitted it was correct in principle. My hope is
that, after he has conferred with his government,
his government will agree that tlue nations that
fought the war — the World War — shall have a
chance to make the world peace.
The matter that caused the suspension of our
work is no trivial or technical question. It pre-
sented an issue that had to be met. It is whether
tlie peace shall be made by three or even five na-
tions to the exclusion of other nations vitally con-
cerned in the maintenance and enforcement of the
peace which is being prepared.
The issue goes even deeper. The Council of
Foreign Ministers acts under the unanimity rule
just as the Security Council of the United Nations
must act in many important matters, but in the
Securit}' Council no nation has the veto power in
procedural matters while in the Council of For-
eign Ministers one nation can veto all action.
The veto power is a great power and should not
be lightly exercised. We are willing to make many
concessions but the United States does not believe
in agreement at any price.
The power of veto in procedural matters should
not be used by the United States or any other
nation to coerce the judgment and conscience of
fellow nations.
Peace must be based ujion mutual understand-
ing and nuitual respect. It can not be secured by
procedural maneuverings which obscure from the
people the real and vital issues upon which their
peace depends.
Undeterred by temporary set-backs and ever
willing to accord to others that tolerant under-
standing that we wish others to accord to us, we
must not relax in our efforts to achieve a just and
lasting peace for ourselves and all nations. "With
firmness in the right as God gives us to see the
right, let us strive on to finish the work we are
in."
Financial and Trade
Discussions With
United Kingdom
JOINT STATEMENT BY THE UNITED STATES
AND THE UNITED KINGDOM
[Rcloaspd to the press October 1]
The initial meeting of the Commercial Policy
Committee of the United States - United Kingdom
economic negotiations was held at 11 a.m. today in
the Department of State. The Honorable William
L. Clayton, Assistant Secretary of State for eco-
nomic affairs, jsresided. The other members of the
United States Delegation at the meeting were the
Honorable Henry A. Wallace, Secretary of Com-
merce; Dr. Harry White, Assistant Secretary of
the Treasury; the Honorable Oscar B. Ryder,
Chairman of the Tariff Commission ; and ilr. Les-
lie Wheeler, Director of the Oflice of Foreign Ag-
ricvdturul Relations of the Department of Agri-
culture.
The members of the United Kingdom Delega-
tion at the meeting were the Right Honorable the
Earl of Halifax, K.G., Ambassador to the Unite<l
States; Lord Keynes, Adviser to the Chancellor of
the Exchequer; Sir Percivale Liesching of the
Board of Trade ; Mr. R. H. Brand, Head of the
United Kingdom Treasury Delegation in Wash-
ington; Professor Lionel Robbins of the Cabinet
Offices; and Mr. R. J. Shackle of the Board of
Trade.
The purpose of the meetings of the Commercial
Policy Committee will be to discuss, within the
framework of article VII of the United States -
United Kingdom mutual-aid agreement, the broad
aspects of futui-e trade relations between the two
countries. The Committee will discuss tariffs and
discriminatory arrangements, quantitative re-
strictions, and other barriers to trade; inter-
national policy with respect to commodity agree-
ments and the control of international cartels; the
establishment of an intei'national trade organiza-
tion; and international cooperation in the mainte-
nance of employment.
OCTOBER 7, 1945
513
Statement by the Secretary of State on the
Meetings of the Council of Foreign Ministers'
[Released to the press October 3]
The Council of Foreign Ministers at its initial
series of meetings dealt with many matters in ac-
cordance with the directive from the Berlin Con-
ference to continue the preparatoiy work for the
peace settlements with a view to submitting their
conclusions to the United Nations. The present
meeting is the first meeting of the principal Allies
to be held since the fighting has stopped, and there
emerged differences of views which had not ap-
peared so long as the fii'st imperative was to pre-
serve fighting unity. There was a considerable
area of agreement. The differences which devel-
oped were explored in a spirit of conciliation, and
there is good reason to believe that with con-
tinued patience and understanding on all sides
agreement on essentials can be attained. We are
determined upon that outcome. Toward the con-
clusion of the present series of meetings proced-
ural difliculties arose. The Soviet Delegation came
to feel that treaty discussions should be confined
in each case to the signatories of the surrender
terms as contemiDlated by the first and narrow
provision of article II 3. (ii) of the Berlin agree-
ment rather than under other and broader provi-
sions of the Berlin agreement.^
The Soviet Delegation on September 22 took the
position that the Council should rescind or with-
draw its September eleventh decision whereby
France and China were invited to participate in
all discussions.^ This would have meant the elimi-
nation of China from the pending discussion of
the European peace treaties and the similar elimi-
nation of France except in the case of the treaty
with Italy. The Secretary of State of the United
States took the position that he would be reluctant
to see such narrowing of participation in the pend-
ing work on the European peace treaties and the
elimination therefrom of two permanent members
of the United Nations Security Council. He
would, however, accept any preliminary treaty-
making procedure which was consistent with the
Berlin agreement provided the Council agreed as
authorized by article II 4. (ii) of the Berlin
agreement to call a peace conference of the prin-
cipally interested states. Such a conference should
include the permanent members of the Security
Council, the European members of the United
Nations, and non-Eui'opean members which sup-
plied substantial military contingents against the
European members of the Axis. The conference
would review the preliminary treaty work of the
Council. The Soviet Delegation took the position
that without personal consultation with their Gov-
ernment they could not make any commitment
with reference to such a future peace conference.
In the circumstances, work of the Council will be
held in abeyance. If, as we confidently hope,
agreement regarding future procedure is obtained,
the drafting work of the deputies can then go for-
ward on the basis of dii'ectives already given the
deputies by the Council.
' Made in London on Oct. 2, 1945.
' BuixBH-iN of Aug. 5, 1945, p. 153.
' BULLBON of Sept. 16, 1945, p. 392.
668925—45 2
Charter of the United Nations
[Released to the press October 1]
China
Wei Tao-ming, Ambassador of China, de-
posited with the Department of State on Septem-
ber 28 the Chinese instrument of ratification of
the Charter of the United Nations and the an-
nexed Statute of the International Court of
Justice.
Turkey
Hiiseyin Ragip Baydur, Ambassador of Tur-
key, deposited with the Department of State on
September 28 the Turkish instrument of ratifi-
cation of the Charter and Statute.
Ten nations have now deposited their instru-
ments of ratification of the Charter in the order
listed: United States, France, Dominican Re-
public, Nicaragua, New Zealand, Brazil, Argen-
tina, El Salvador, China, and Turkey.
514
DEPARTMENT OF STATE BULLETIN
International Control of Atomic Energy
EXCERPTS FROM THE PRESIDENT'S MESSAGE TO THE CONGRESS
[Released to the press by the White House October 3]
To the CongrcHS of the United States:
Almost two months have passed since the atomic
bomb was used against Japan. That bomb did not
win the war, but it certainly shortened the war.
We know that it saved the lives of untold thou-
sands of American and Allied soldiers who would
otherwise have been killed in battle.
The discovery of the means of releasing atomic
energy began a new era in the history of civiliza-
tion. The scientific and industrial knowledge on
which this discovery rests does not relate merely
to another weapon. It may some day prove to be
more revolutionary in the development of human
society than the invention of the wheel, the use
of metals, or the steam or internal-combustion
engine.
Never in history has society been confronted
with a power so full of potential danger and at
the same time so full of promise for the future
of man and for the peace of the world. I think
I express the faith of the American people when
I say that we can use the knowledge we have won,
not for the devastation of war, but for the future
welfare of humanity.
To accomplish that objective we must proceed
along two fronts — the domestic and the interna-
tional.
• • • ■ •
The other phase of the problem is the question
of the international control and development of
this newly discovered energy.
In international relations as in domestic affairs,
the release of atomic energy constitutes a new force
too revolutionary to consider in the framework of
old ideas. We can no longer rely on the slow
progress of time to develop a program of control
among nations. Civilization demands that we
shall reach at the earliest possible date a satisfac-
tory arrangement for the control of this discov-
ery in order that it may become a powerful and
forceful influence towards the maintenance of
world peace instead of an instrument of
destruction.
Scientific opinion appears to be practically
unanimous that the essential theoretical knowledge
upon which the discovery is based is already
widely known. There is also substantial agi'ee-
ment that foreign research can come abreast of
our pi-esent theoretical knowledge in time.
The hope of civilization lies in international
arrangements looking, if possible, to the renuncia-
tion of the use and development of the atomic
bomb, and directing and encouraging the use of
atomic energy and all future scientific information
toward peaceful and humanitarian ends. The dif-
ficulties in working out such arrangements are
great. The alternative to overcoming these diffi-
culties, however, may be a desperate armament
race which might well end in disaster. Discussion
of the international problem cannot be safely de-
layed until the United Nations Organization is
functioning and in a position adequately to deal
with it.
I therefore propose to initiate discussions, first
with our associates in this discovery. Great Britain
and Canada, and then with other nations, in an ef-
fort to effect agreement on the conditions under
which cooperation might replace rivalry in the
field of atomic power.
I desire to emphasize that these discussions will
not be concerned with disclosures relating to the
manufacturing processes leading to the production
of the atomic bomb itself. They will constitute
an effort to work out arrangements covering the
terms under which international collaboration and
exchange of scientific information might safely
proceed.
The outcome of the discussions will be reported
to the Congress as soon as possible, and any result-
ing agreements requiring congressional action will
be submitted to the Congress.
But regardless of the course of discussions in the
international field, I believe it is essential that leg-
islation along the lines I have indicated be adopted
as promptly as possible to insure the necessary re-
search in, and development and control of, the pro-
duction and use of atomic energy.
Harry S. Truman
The White House
October J, 1H5
OCTOBER 7, 1945
515
Arrangements for Control of Germany by
Allied Representatives
AGREEMENT BETWEEN THE GOVERNMENTS OP
THE UNITED KINGDOM, THE UNITED STATES
OF AMERICA, AND THE UNION OF SOVIET
SOCIALIST REPUBLICS, AND THE PROVI-
SIONAL GOVERNMENT OF THE FRENCH RE-
PUBLIC ON CERTAIN ADDITIONAL REQUIRE-
MENTS TO BE IMPOSED ON GERMANY"
The Governments of the U.K., U.S.A., and
U.S.S.E. and Provisional Government of French
Republic have reached the following agreement
regarding instructions to he issued hy the Allied
representatives in Germany :
We, the Allied Eepresentatives, Commanders-
in-Chief of the forces of occupation of the United
Kingdom, the United States of America, the
Union of Soviet Socialist Republics and the
French Republic, pursuant to the Declaration
regarding the defeat of Germany, signed at Berlin
on 5th June, 1945," hereby announce certain addi-
tional requirements arising from the complete
defeat and unconditional surrender of Germany
with which Germany must complj', as follows: —
Section I
1. All German land, naval and air forces, the
S.S., S.A., S.D. and Gestapo, with all their organi-
zations, staffs and institutions, including the Gen-
eral Staff, the Officers' Corps, Reserve Corps, mili-
tary schools, war veterans' organizations and all
other military and quasi-military organizations,
together with all clubs and associations which
serve to keep alive the military tradition in Ger-
many, shall be completely and finally abolished in
accordance with methods and procedures to be
laid down by the Allied Representatives.
2. All forms of military training, military prop-
aganda and military activities of whatever nature,
on the part of the German people, are prohibited,
as well as the formation of any organization ini-
tiated to further any aspect of military train-
ing and the formation of war veterans' organiza-
tions or other groups which might develop mili-
tary characteristics or which are designed to carry
' Slacie in Berlin Sept. 20, 1945.
^ Bulletin of June 10, 1945, p. 1051.
on the German military tradition, whether such
organizations or groups purport to be political,
educational, religious, social, athletic or recrea-
tional or of any other nature.
Section II
3. (a) German authorities and officials in all
territories outside the frontiers of Germany as
they existed on 31st December, 1937, and in any
areas within those frontiers indicated at any time
by the Allied Representatives, will comply with
such instructions as to withdrawing therefrom
as they may receive from the Allied Representa-
tives.
(b) The German authorities will issue the nec-
essary instructions and will make the necessary
arrangements for the reception and maintenance
in Germany of all German civilian inhabitants of
the territories or areas concerned, whose evacua-
tion may be ordered by the Allied Representatives.
(c) Withdrawals and evacuations under sub-
paragraphs (a) and (b) above will take place at
such times and under such conditions as the Allied
Representatives may direct.
4. In the territories and areas referred to in
paragraph 3 above, there shall immediately be,
on the part of all forces under German command
and of German authorities and civilians, a com-
plete cessation of all measures of coercion or forced
labor and of all measures involving injury to life
or limb. There shall similarly cease all measures
of requisitioning, seizure, removal, concealment or
destruction of property. In particular, the with-
drawals and evacuations mentioned in paragraph
3 above will be carried out without damage to or
removal of persons or property not affected by the
orders of the Allied Representatives. The Allied
Representatives will determine what personal
property and effects may be taken by persons
evacuated under paragraph 3 above.
Section III
5. The Allied Representatives will regulate all
matters affecting Germany's relations with other
516
DEPARTMENT OF STATE BULLETIN
countries. No foreign obligations, undertakings
or commitments of any kind will be assumed or en-
tered into by or on behalf of German authorities
or nationals without the sanction of the Allied
Representatives.
6. The Allied Representatives will give direc-
tions concerning the abrogation, bringing into
force, revival or application of any treaty, con-
vention or other international agreement, or any
part or provision thereof, to which Germany is or
has been a party.
7. (a) In virtue of the unconditional surrender
of Germany, and as of the date of such surrender,
the diplomatic, consular, commercial and other
relations of the German State with other States
have ceased to exist.
(b) Diplomatic, consular, commercial and other
officials and members of service missions in Ger-
many of countries at war with any of the four
Powers will be dealt with as the Allied Represent-
atives may prescribe. The Allied Representatives
may I'equire the withdrawal from Germany of
neutral diplomatic, consular, commercial and other
officials and members of neuti'al service missions.
(c) All German diplomatic, consular, commer-
cial and other officials and members of German
service missions abroad are hereby recalled. The
control and disposal of the buildings, property
and archives of all German diplomatic and other
agencies abroad will be prescribed by the Allied
Representatives.
8. (a) German nationals will, pending further
instructions, be prevented from leaving German
territorj' except as authorized or directed by the
Allied Representatives.
(b) German authorities and nationals will
comply with any directions issued by the Allied
Representatives for the recall of German nationals
resident abroad, and for the reception in Germany
of any persons whom the Allied Representatives
may designate.
9. The German authorities and people will take
all appropriate steps to ensure the safety, main-
tenance and welfare of persons not of German na-
tionality and of their property and the property
of foreign States.
Section IV
10. The German authorities will place at the
disposal of the Allied Representatives the whole
of the German inter-communication system (in-
cluding all military and civilian postal and tele-
communication systems and facilities and con-
nected matters) , and will comply with any instruc-
tions given by the Allied Representatives for
placing such inter-communication systems under
the complete control of the Allied Representatives.
The German authorities will comply with any in-
structions given by the Allied Representatives with
a view to the establishment by the Allied Repre-
sentatives of such censorship and control of postal
and telecommunication and of documents and
other articles carried by persons or otherwise con-
veyed and of all other forms of inter-communica-
tion as the Allied Representatives may think fit.
11. The German authorities will comply with
all directions which the Allied Representatives
may give regarding the use, control and censor-
ship of all media for influencing expression and
opinions, including broadcasting, press and publi-
cations, advertising, films and public perform-
ances, entertainments, and exhibitions of all kinds.
Section V
12. The Allied Representatives will exercise
such control as they deem necessary over all or
any part or aspect of German finance, agriculture
(including forestry) production and mining, pub-
lic utilities, industry, trade, distribution and econ-
omy generally, internal and external, and over all
related or ancillary matters, including the direc-
tion or prohibition of the manufacture, produc-
tion, construction, treatment, use and disposal of
any buildings, establishments, installations, pub-
lic or private works, plant, equipment, products,
materials, stocks, or resources. Detailed state-
ments of the subjects to which the present provi-
sion applies, together with the requirements of
the Allied Representatives in regard thereto, will
from time to time be communicated to the German
authorities,
13. (a) The manufacture, production and con-
struction, and the acquisition from outside Ger-
many, of war material and of such other products,
used in connection with such manufacture, pro-
duction or construction, as the Allied Representa-
tives may specify, and the import, export and
transit thereof, are iirohibited, except as directed
by the Allied Representatives.
(b) The German authorities will immediately
place at the disposal of the Allied Representatives
all research, experiment, development and design
OCTOBER 7, 1945
517
directly or indirectly relating to war or the pro-
duction of war material, whether in government
or private establishments, factories, technological
institutions or elsewhere.
14. (a) The property, assets, rights, titles and
interests (whether situated inside or outside Ger-
many) of the German State, its political subdi-
visions, the German Central Bank, State or semi-
State, provincial, municipal or local authorities
or Nazi organizations, and those situated outside
Germany of any person resident or carrying on
business in Germany, will not be disposed of in
any way whatever without the sanction of the
Allied Representatives. The property, assets,
rights, titles and interests (whether situated in-
side or outside Germany), of such private compa-
nies, corporations, trusts, cartels, firms, partner-
ships and associations as may be designated by
the Allied Eepresentatives will not be disposed of
in any way whatever without the sanction of the
Allied Representatives.
(b) The German authorities will furnish full
information about the property, assets, rights,
titles and interests referred to in sub-paragraph
(a) above, and will comply with such directions
as the Allied Representatives may give as to their
transfer and disposal. Without prejudice to any
further demands which may be made in this con-
nection, the German authorities will hold at the
disposal of the Allied Representatives for de-
livery to them at such times and places as they
may direct all securities, certificates, deeds or
other documents of title held by any of the insti-
tutions or bodies mentioned in sub-paragraph (a)
above or by any person subject to German law,
and relating to property, assets, rights, titles and
interests situated in the territories of the United
Nations, including any shares, stocks, debentures
or other obligations of any company incorporated
in accordance with the laws of any of the United
Nations.
(c) Property, assets, rights, titles and interests
situated inside Germany will not be removed out-
side Germany or be transferred or disposed of to
any person resident or carrying on business out-
side Germany without the sanction of the Allied
Represent atives.
(d) Nothing in sub-paragraphs (a) and (b)
above shall, as regards property, assets, rights,
titles and interests situated inside Germany, be
deemed to prevent sales or transfers to persons
resident in Germany for the purpose of maintain-
ing or carrying on the day-to-day national life,
economy and administration, subject to the pro-
visions of sub-paragraph 19 (b) and (c) below
and to the provisions of the Declaration or of any
proclamations, orders, ordinances or instructions
issued thereunder.
15. (a) The German authorities and all per-
sons in Germany will hand over to the Allied
Representatives all gold and silver, in coin or
bullion forms, and all platinum in bullion form,
situated in Germany, and all such coin and bullion
situated outside Germany as is possessed by or
held on behalf of any of the institutions or bodies
mentioned in sub-paragraph 14 (a) above or any
j^erson resident or carrying on business in
Germany.
(b) The German authorities and all persons in
Germany will hand over in full to the Allied
Representatives all foreign notes and coins in the
possession of any German authority, or of any
corjioration, association or individual resident or
carrying on business in Germany, and all mone-
tary tokens issued or prepared for issue by Ger-
many in the territories formerly occupied by her
or elsewhere.
16. (a) All property, assets, rights, titles and
interests in Germany held for or belonging to any
country against which any of the United Nations
is carrying on hostilities, or held for or belonging
to the nationals of any such country, or of any
persons resident or carrying on business therein,
will be taken under control and will be preserved
jDending further instructions.
(b) All property, assets, rights, titles and in-
terests in Germany held for or belonging to pri-
vate individuals, private enterprises and com-
panies of those countries, other than Germany and
the countries referred to in sub-paragraph (a)
above, which have at any time since the 1st
September, 1939, been at war with any of the
United Nations, will be taken under control and
will be preserved pending further instructions.
(c) The German authorities will take all neces-
sary steps to ensure the execution of the provisions
of sub-paragraphs (a) and (b) above, will comply
with any instructions given by the Allied Repre-
sentatives for that pui-pose, and will afford all
necessary information and facilities in connection
therewith.
17. (a) There shall, on the part of the German
518
DEPARTMENT OF STATE BVLLETIN
authorities and people, be no concealment, destruc-
tion, scuttling, or dismantling of, removal or trans-
fer of, nor damage to, sliips, transport, ports or
harbours, nor to any form of building, establish-
ment, installation, device, means of production,
supply, distribution or communication, plant,
equipment, currency, stocks or resoui-ces, or, in gen-
eral, public or private works, utilities or facilities
of any kind, wherever situated.
(b) There sliall be no destruction, removal, con-
cealment, suppression or alteration of any docu-
ments, records, patents, drawings, specifications,
plans or information, of any nature, atlectcd by the
provisions of this document. They shall be kept
intact in their present locations until further di-
rections are given. The German authorities will
afford all information and facilites as required by
the Allied Kepresentatives in connection there-
with.
(c) Any measures already ordered, undertaken
or begun contrary to the provisions of sub-para-
graphs (a) and (b) above will be immediately
countermanded or discontinued. All stocks, equip-
ment, plant, records, patents, documents, draw-
ings, specifications, plans or other material already
concealed within or outside Germany will forth-
with be declared and will be dealt with as the Al-
lied Representatives may direct.
(d) Subject to the provisions of the Declara-
tion or any proclamations, orders, ordinances, or
instructions issued thereunder, the Gennan au-
thorities and people will be responsible for the
preservation, safeguarding and upkeep of all forms
of i^roperty and materials affected by any of the
said provisions.
(e) All transport material, stores, equipment,
plant, establishments, installations, devices and
property generally, which are liable to be sur-
rendered or delivered under the Declaration or any
proclamations, orders, ordinances or instructions
issued thereunder, will be handed over intact and
in good condition, or subject only to ordinary wear
and tear and to any damage caused during the
continuance of hostilities which it has proved
impossible to make good.
18. There shall be no financial, commercial or
other intercourse with, or dealings with or for
the benefit of, countries at war with any of the
United Nations, or territories occupied by such
countries, or with any other country or person
specified by the Allied Representatives.
Section VI
19. (a) The German authorities will carry out,
for the benefit of the United Nations, such meas-
ures of restitution, reinstatement, restoration, rep-
aration, reconstruction, relief and rehaljilitation
as the Allied Representatives may prescribe. For
these purposes the German authorities will effect
or i^rocure the suri-ender or transfer of such prop-
erty, assets, rights, titles and interests, effect such
deliveries and carry out such repair, building and
construction work, whether in Germany or else-
where, and will provide such transport, plant
equipment and materials of all kinds, labour, per-
sonnel and specialist and other services, for use
in Germany or elsewhere, as the Allied Repre-
sentatives may direct.
(b) The German authorities will also comply
with all such directions as the Allied Represent-
atives may give relating to property, assets, rights,
titles and interests located in Germany belonging
to any one of the United Nations or its nationals
or having so belonged at, or at any time since, the
outbreak of war between Germanj' and that Na-
tion, or since the occupation of any part of its
territories by Germany. The German authorities
will be responsible for safeguarding, maintain-
ing, and preventing the dissipation of, all such
proi:)erty, assets, rights, titles and interests, and for
handing them over intact at the demand of the
Allied Representatives. For these purposes the
German authorities will afford all information and
facilities required for tracing any projDerty, assets,
rights, titles or interests.
(c) All persons in Germany in whose posses-
sion such property, assets, rights, titles and in-
terests may be, shall be personally responsible for
reporting them and for safeguarding them until
they are handed over in such manner as may be
25rescribed.
20. The German authorities will supply free of
cost such German currency as the Allied Repre-
sentatives may require, and will withdraw and re-
deem in German currency, within such time limits
and on such terms as the Allied Representatives
may specify, all holdings in German territory of
currencies issued by the Allied Representatives
during military ojjerations or occupation, and will
hand over the currencies so witlidrawn free of cost
to the Allied Representatives.
21. The German authorities will comply with
all such directions as may be issued by the Allied
OCTOBER 7, 1945
519
Representatives for defraying the costs of the pro-
visioning, maintenance, paj', accommodation and
transport of the forces and agencies stationed in
Germany by authority of the Allied Representa-
tives, the costs of executing the i-equirements of un-
conditional surrender, and payment for any relief
in whatever form it may be provided by the United
Nations.
22. The Allied Representatives will take and
make unrestricted use (whether inside or outside
Germany) of any articles referred to in paragraph
12 above, which the Allied Representatives may
require in connection with the conduct of hostili-
ties against any country with which any of their
respective Governments is at war.
Section VII
23. (a) No merchant ship, including fishing or
other craft, shall put to sea from any German port
except as may be sanctioned or directed by the Al-
lied Representatives. German ships in ports out-
side Germany shall remain in port and those at sea
shall proceed to the nearest German or United
Nations port and there remain, pending instruc-
tions from the Allied Representatives.
(b) All German merchant shipping, including
tonnage under construction or repair, will be made
available to the Allied Representatives for such
use and on such terms as they may prescribe.
(c) Foreign merchant shipping in German
service or under German control will likewise be
made available to the Allied Representatives for
such use and on such terms as they may prescribe.
In the case of such foreign merchant vessels which
are of neutral registration, the German authori-
ties will take all such steps as may be required by
the Allied Representatives to transfer or cause to
be transferred to the Allied Representatives all
rights relative thereto.
(d) All transfer to any other flag, service or
control, of the vessels covered by sub-paragraphs
(b) and (c) above, is prohibited, except as may
be directed by the Allied Repi-esentatives.
24. Any existing options to repurchase or reac-
quire or to resume control of vessels sold or other-
wise transferred or chartered by Germany during
the war will be exercised as directed by the Allied
Representatives. Such vessels will be made avail-
able for use by the Allied Representatives in the
same manner as the vessels covered by sub-para-
graphs 23 (b) and (c) above.
25. (a) The crews of all German merchant ves-
sels or merchant vessels in German service or
under German control will remain on board and
will be maintained by the German authorities
pending further instructions from the Allied Rep-
resentatives regarding their future employment.
(b) Cargoes on board any such vessels will be
disposed of in accordance with instructions given
to the German authorities by the Allied Represent-
atives.
26. (a) Merchant ships, including fishing and
other craft of the United Nations (or of any
country which has broken off diplomatic relations
with Germany) which are in German hands,
wherever such ships may be, will be surrendered
to the Allied Representatives regardless of
whether title has been transferred as the result of
prize court proceedings or otherwise. All such
ships will be surrendered in good repair and in
seaworthy condition in ports and at times to be
specified by the Allied Representatives, for dis-
posal as directed by them.
(b) The German authorities will take all such
steps as may be directed by the Allied Repre-
sentatives to eifect or complete transfers of title to
such ships regardless of whether the title has been
transferred as the result of prize court proceed-
ings or otherwise. They will secure the discon-
tinuance of any arrests of, or proceedings against,
such ships in neutral ports.
27. The German authorities will comply with
any instructions given by the Allied Representa-
tives for the destruction, dispersal, salvaging, rec-
lamation or raising of wrecked, stranded, derelict
or sunken vessels, wherever they may be situated.
Such vessels salvaged, reclaimed or raised shall
be dealt with as the Allied Representatives direct.
28. The German authorities will place at the
unrestricted disposal of the Allied Representa-
tives the entire German shipping, shipbuilding
and ship repair industries, and all matters and
facilities directly or indirectly relative or ancil-
lary thereto, and will provide the requisite labour
and specialist services. The requirements of the
Allied Representatives will be specified in instruc-
tions which will from time to time be communi-
cated to the German authorities.
Section VIII
29. The German authorities will place at the
unrestricted disposal of the Allied Representa-
520
DEPARTMENT OF STATE BULLETIN
tives the wliole of the German inland transport
system (road, rail, air and waterways) and all
connected material, plant and equipment, and all
repair, construction, labour, servicing and run-
ning facilities, in accordance with the instructions
issued by the Allied Representatives.
30. The production in Germany and the pos-
session, maintenance or operation by Germans of
any aircraft of any kind or any parts thereof,
are prohibited.
31. All German rights in international trans-
port bodies or organizations, and in relation to
the use of transport and the movement of traffic
in other countries and the use in Germany of the
transport of other countries, will be exercised in
accordance with the directions of the Allied
Representatives.
32. All facilities for the generation, transmis-
sion and distribution of power, including estab-
lishments for the manufacture and repair of such
facilities, will be placed under the complete con-
trol of the Allied Representatives, to be used for
such purposes as they may designate.
Section IX
33. The German authorities will comply with
all such directions as the Allied Representatives
may give for the regulation of movements of
population and for controlling travel or removal
on the part of persons in Germany.
34. No person may leave or enter Germany
without a permit issued by the Allied Represent-
atives or on their authority.
35. The German authorities will comply with
all such directions as the Allied Representatives
may give for the repatriation of persons not of
German nationality in or passing through Ger-
many, their property and effects, and for facilitat-
ing the movements of refugees and displaced per-
sons.
Section X
36. The German authorities will furnish any
information and documents, and will secure the
attendance of any witnesses, required by the Allied
Representatives for the trial of
(a) the principal Nazi leaders as specified by
the Allied Representatives and all persons from
time to time named or designated by rank, office
or employment by the Allied Representatives as
being suspected of having committed, ordered or
abetted war crimes or analogous offences :
(b) any national of any of the United Nations
who is alleged to have committed an offence
against his national law and who may at any time
be named or designated by rank, office or employ-
ment by the Allied Representatives;
and will give all other aid and assistance for these
purjDoses.
37. The German authorities will comply with
any directions given by the Allied Representatives
in regard to the property of any person referred
to in sub-paragraphs 36 (a) and (b) above, such
as its seizure, custody or suiTender.
Section XI
38. The National Socialist German "Workers'
Party (NSDAP) is completely and finally abol-
ished and declared to be illegal.
39. The German authorities will comply
promptly with such directions as the Allied Rep-
resentatives may issue for the abolition of the
National Socialist Party and of its subordinate
organizations, affiliated associations and super-
vised organizations, and of all Nazi public insti-
tutions created as instruments of Nazi domina-
tion, and of such other organizations as may be
regarded as a threat to the security of the Allied
forces or to international peace, and for prohibit-
ing their revival in any form; for the dismissal
and internment of Nazi personnel ; for the control
or seizure of Nazi property and funds; and for
the suppression of Nazi ideology and teaching.
40. The German authorities and German na-
tionals will not allow the existence of any secret
organizations.
41. The German authorities will comply with
such directions as the Allied Representatives may
issue for the repeal of Nazi legislation and for
the reform of German law and of the German
legal, judicial, administrative, police and educa-
tional systems, including the replacement of their
personnel.
42. (a) The German authorities will comply
with such directions as the Allied Rej^resentatives
may issue for the rescinding of German legislation
involving discrimination on grounds of race,
colour, creed, language or political opinions and
for the cancellation of all legal or other disabil-
ities resultina therefrom.
OCTOBER 7, 1945
521
(b) The German authorities will comply with
such directions as the Allied Representatives may
issue regarding the property, assets, rights, titles
and interests of persons affected by legislation in-
volving discrimination on grounds of race, colour,
creed, language or political opinions.
43. No person shall be prosecuted or molested by
the German authorities or by German nationals on
grounds of race, colour, creed, language or political
opinions, or on account of any dealings or sympa-
thies with the United Nations, including the per-
formance of any action calculated to facilitate the
execution of the Declaration or of any proclama-
tions, orders, ordinances or instructions issued
thereunder.
44. In any proceedings before any German
Court or authority judicial notice shall be taken of
the provisions of the Declaration and of all procla-
mations, orders, ordinances and instructions issued
thereunder, which shall override any provisions of
German law inconsistent therewith.
Section XII
45. Without prejudice to any specific obligations
contained in the provisions of the Declaration or
any proclamations, orders, ordinances or instruc-
tions issued thereunder, the German authorities
and any other person in a position to do so will fur-
nish or cause to be furnished all such information
and documents of every kind, public and private,
as the Allied Representatives may require.
46. The German authorities will likewise pro-
duce for interrogation and employment by the
Allied Representatives upon demand any and all
pei'sons whose knowledge and experience would
be useful to the Allied Representatives.
47. The Allied Representatives will have access
at all times to any building, installation, establish-
ment, property or area, and any of the contents
thereof, for the purposes of the Declaration or any
proclamations, orders, ordinances or instructions
issued thereunder, and in particular for the pur-
poses of safeguarding, inspecting, copying or ob-
taining any of the desired documents and informa-
tion. The German authorities will give all neces-
sary facilities and assistance for this purpose, in-
cluding the service of all specialist staff, including
archivists.
" See Bulletin of Sept. 30, 1945, p. 498.
668925—45 3
Section XIII
48. In the event of any doubt as to the meaning
or interpretation of any term or expression in the
Declaration and in any proclamations, orders,
ordinances and instructions issued thereunder, the
decision of the Allied Representatives shall be
final. ,,., i
Termination of Treaties
Siani-Japan
The Siamese Legation informed the Department
in a note dated October 1, 1945 that on September
26, 1945 the Siamese Minister of Foreign Affairs
announced by cable to the Japanese Minister of
Foreign Affairs the termination of certain agree-
ments concluded between Siam and Japan. The
first was the treaty concerning the continuance of
friendly relations with, and mutual respect of,
each other's territorial integrity, signed at Tokyo
on June 12, 1940. Also terminated was the proto-
col concerning guaranties and political under-
standing of May 9, 1941 as well as all existing
agreements of a political nature.
The Legation stated that in announcing the
above-mentioned action the Minister of Foreign
Affairs of Siam declared that the formal denun-
ciation of all treaties, agreements, and arrange-
ments of a i^olitical nature concluded with Japan
during the period of Luang Pibul's premiership
had now been completed.^
Visit of Bolivian Educator
[Released to the press October 3]
Dr. Martin Cardenas, Rector of the Univer-
sity of Cochabamba, in Bolivia, is guest of the
Department of State while conferring with agri-
cultural experts on plant breeding techniques,
with especial reference to the potato and Indian
corn. His present visit will include several
weeks' study of the work in plant exploration
and introduction carried on by the Department
of Agriculture at Beltsville, Mai-yland. He will
also visit the Virginia University Experimental
Farm at Boyce, the Botanical Museum and Gray
Herbarium at Harvard, the College of Agricul-
ture of Cornell, similar centers of agricultural re-
search, and western potato-producing regions.
522
DEPARTMENT OF STATE BULLETIN
United States Delegation to Conference on
Food and Agriculture
[Released to the press by the White House October 3]
The President has designated the following per-
sons as members of the United States Delegation
to the first session of the Conference of the Food
and Agriculture Organization of the United Na-
tions, to be held at Quebec, Canada, October 10,
1945.
United States Member:
Clinton P. Anderson, Secretary of Agricultin-e
Deputy United States Memier:
Wn-UAM L. Clayton, Assistant Secretary of State
Alternate United States Memher:
Howard K. Tolley, Uuited States Representative on the
United Nations Interim Commission on Food and
Agriculture
Congressional Advisers:
Elmee Thomas, United States Senate, Chairman,
Committee on Agriculture and Forestry
Raymond E. Wiii-is, United States Senate, Member,
Committee on Agriculture and Forestry
John W. F^annagan, Jr., United States House of
Representatives, Chairman, Committee on Agri-
culture
CLifTOBD R. Hope, United States House of Representa-
tives, Member, Committee on Agriculture
Advisers:
Andkew W. Anderson, Fish and Wildlife Service,
Department of the Interior
Paul Appleby, Assistant Director, Bureau of the Budget
H. G. Bennett, President, Oklahoma Agricultural and
Mechanical College
Hugh Bennett, Soil Conservation Service, Department
of Agriculture
HoMEE L. Brinkley, President, National Council of
Farmer Cooperatives
R. E. Buchanan, Director, Agricultural Experiment
Station, Ames, Iowa
Edward G. Gate, Acting Associate Chief, Commodities
Division, Department of State
P. V. Cardon, Agricultural Research Administration,
Department of Agriculture
A. L. Deehing, Dean, College of Agriculture, University
of Maine
MoRDECAi EzEKiEL, Bureau of Agricultural Economics,
Department of Agriculture
Albert S. Goss, Master, the National Grange
Henry' S. Graves, College of Forestry, Yale University
L. Wendell Hayes, Divisional Assistant, Division of
International Organization Affairs, Department of
State
Edward I. Kotok, Forest Service, Department of Agri-
culture
Edward A. O'Neal, President, American Farm Bureau
Federation
Thomas Parkan. Surgeon General, United States Pub-
lic Health Service
James G. Patton, President, National Farmers Union
Hazel K. Stiebeung, Bureau of Human Nutrition and
Home Economics, Department of Agriculture
Leroy D. Stinebower, Deputy Director, Office of In-
ternational Trade Policy, Department of State
Anna Lord Strauss, President, National League of
Women Voters
Clifiord C. Taylor, Agricultural Attache, American
Embassy, Ottawa, Canada
Lyle F. Watts, Forest Service, Department of Agri-
culture
L. A. Wheeler, OflBce of Foreign Agricultural Relations,
Department of Agriculture
M. L. Wilson, Extension Service, Department of Agri-
culture
Press-Relations Officer:
Henby Jarrett, Special Assistant, Bureau of Agricul-
tural Economics, Department of Agriculture
Secretaries of Delegation:
James G. Maddox, Department of Agriculture
One officer from the Department of State
Foreign Commerce Weekly
The following articles of interest to readers of
the Bulletin appeared in the September 29 issue
(if Foreign Commerce Weekly, a publication of the
Department of Commerce, copies of which may be
obtained from the Superintendent of Documents,
Government Printing Office, for 10 cents each :
"Italian Economy Today", from the American
Embassy at Rome.
"An Egyptian Industry", from the American
Legation at Cairo.
The following article appeared in the issue for
Oct. 6:
"Insecticide Output Grows in U.K. and Eire",
by Mulford A. Colebrook, second secretary, con-
sul, and Irven M. Eitreim, third secretary, vice
consul, American Embassy, London, and by
Charles M. Gerrity, vice consul, American Lega-
tion, Dublin.
OCTOBER 7, 1945
523
An American's View of France
BY CAMDEN H. McVEY ^
THERE IS NO SECRET aboiit the fact that
our rehitions with France in recent
months have been far from smooth.
The question that has troubled us all,
French and American alike, is how, in view of
our historic friendship, this could have come
about. The explanation must be sought in the
developments of the past few years.
To understand the France of today we must,
in my opinion, accept the premise that she is re-
covering not only from great physical damage but
also from deep emotional wounds. The French
Government's decision in 1940 to capitulate rather
than suffer a possible massacre of its Army and
civilian population, unpopular as it was with the
rest of the Allied world, left an even deeper mark
on the sensibilities of the French. I do not believe
that the American people, individually or collec-
tively, could even approach the depths of shame
and humiliation which the French have suffered,
and from which, in ways scarcely understandable
to us, they are trying to recover. I am inclined to
believe that the typical American reaction to a
total collapse in the face of an ovei'whelming
enemy would be first disbelief, then hot anger at
our leaders and our friends as well as our foes, and
ultimately a dogged concentration on a revenge
that would be as sure in our own minds as it would
be sweet. I doubt that anj' deep sense of shame
would form even a subconscious part of our emo-
tions. Not so with France. Almost every action
she has taken in the past four years indicates that
France is trying to erase the memory of the first
tune in lier history that she has laid down her arms
before it was obviously inevitable. Because France
was a great power, this action was, more to her than
to anyone else, Use majeste. It did not occur to
France, or to the rest of the world, to blame smaller
countries for exactly similar actions; but, because
' Mr. McVey is an adviser in tlie War Areas Economic
Division, Office of International Trade Policy, Department
of State.
great things were expected of France, France took
the disappointment of the world deep into her
soul as her personal shame and humiliation. Her
behavior, both national and individual, has
been plainly conditioned by this psychological
depression ever since. Her emphasis on rearma-
ment, for instance, and on taking an active and
important role in Allied military operations was
a work of supererogation — not demanded of her
or any other prostrate nation. But to France it
was redemption and salvation, the only road to
recovery of an honor viewed as lost.
Heartsick as France may be, this is not her only
wound. The French estimate of loss of national
wealth, 45 percent, may be pessimistic ; but there
can be no doubt that she has been so ravaged by
war that her economic convalescence will be slow
and faltering. Unable and unwilling to build up
her productive capacity under German rule, she
finds herself far behind those nations whose very
contribution to the war carried with it a super-
human effort to increase production. Wliile other
nations were growing stronger, France was of
necessity growing weaker. Add to this the direct
devastation of the years of bombing and the months
of fighting on her soil and one can understand that
no other nation of her pre-war stature has suffered
so great a loss in competitive position. This war-
borne economic retrogression is, in my opinion, one
reason, in addition to the psychological effects of
her capitulation, why France has sought solace in
the more spectacular field of military exploits,
where she felt her endeavors could be measured in
terms of courage and skill rather than of compara-
tive contribution.
France asked for and received well over a billion
dollars in lend-lease armaments. Taking this
materiel into battle, she has suffered nearly 330,000
casualties in killed, missing, and wounded, not
counting the million-odd prisoners still not all
accounted for. With 140,000 killed and missing
and 187,000 wounded, her sacrifices will bear com-
parison, proportionately, with those of any of her
524
Allies except the Union of Soviet Socialist Repub-
lics.
She has sacrificed her civilian economy time and
again in an effort to recoup her military prestige,
frequently against the strong protests of her Al-
lies — as in the case of her mass mobilizations —
rather than play a lesser role in military opera-
tions. Her willingness to subordinate her civilian
interests to military demands is illustrated further
by the fact that France has supplied, from a mini-
mum civilian economy maintained in part by im-
ports for which she will pay largely in cash, around
$500,000,000 worth of reverse lend-lease for our
own Army. Her military lend-lease and civilian
import accounts with the United States from 1942
to V-J Day would be in round figures about as
follows :
Militai-y lend-lease received $1,000,000,000
Reverse lend-lease to United States Ai-niy . 500, 000, 000
Civilian lend-lease received . 150,000,000
Civilian imports — cash reim-
bursement 400,000.000
Total civilian imports $550, 000, 000
North Africa
Wlien we landed in North Africa we cut off
continental Europe, the main source of supply for
all manufactured products. We had no ready
substitute to replace these vital imports. Straight
lend-lease of civilian goods to North Africa was
rejected on the theory, as later noted in the modus-
vivendi agreement, that the dollar expenditures
of our forces in that theater would obviate the
need for civilian lend-lease. It was months before
we moved in goods in any substantial quantities,
and our shipments (outside of coal from the United
Kingdom) never exceeded an average of 40,000
tons a month. There were dire shortages of food,
clothing, shoes, and other consumer goods and of
industrial materials, automotive equipment, and
agricultural machinery. The shelves were bare
when we went into North Africa and remained
so throughout our stay. Military needs for ship-
ping and the general world shortage of supiDlies
tell part of the story ; but there is the additional
fact that here, as later in France, we did not count
upon any substantial industrial contribution from
local sources and consequently had not planned
on civilian imports beyond those necessary to main-
tain a minimum civilian economy essential to mili-
DEPARTMENT OF STATE BULLETIN
tary operations. Naturallj-, so negative an ap-
proach to the civilian economy, inevitable as it
was, could scarcely be expected to evoke any great
gratitude on the part of individual civilians; and
it is understandable that our economic relations
were conducted in an atmosphere of less than com-
plete harmony. The situation was probably ag-
gravated by our insistence, on supply grounds,
that the few goods we delivered to North Africa
(which the French were paying for in cash) should
be distributed under our supervision. I think it
is only fair to say, however, that the French Gov-
ernment in North Africa was not geared to deal
adequately with the distribution of these sup-
plies itself. Not only was it understaffed, but also,
even within the limited staff, there was a great
divergence of views, ranging from whole-hearted
cooperation with the Allies to downright obstruc-
tionism on the part of a few collaborationists.
The net result was a considerable amount of con-
fusion, some friction, and a rather uneven record
in the full utilization of North Africa's limited
resources in the war effort. Nevertheless, the
major services essential to the Tunisian campaign
and the preparations for the landings in Sicily,
Italy, and metropolitan France were successfully
mobilized and made available to the Allied mili-
tary authorities. Operation of all the major ports
was turned over entirely to American and British
authorities, who operated them at such a high level
of efficiency that they often exceeded by an almost
incredible margin the pre-war rated unloading ca-
pacity. The railroads, telephone facilities, and
power plants, operated by the French themselves,
were likewise placed under Allied military priori-
ties, which absorbed from 50 to 70 percent of all
traffic. Other major industries were also substan-
tially converted to military use, including (at esti-
mated percentages) the cement plants (90 per-
cent), cable plants (80 percent), and oxygen and
welding plants (75 percent). In addition, in-
numerable small machine shops and almost all
caragcs and warehouses were turned over for Al-
lied military use. Furthermore, in all the major
cities most of the hotels and larger stores and
many of the big schools were requisitioned for bil-
lets and headquarters. In short, almost all the
public facilities in the major urban areas were
taken over by our military forces and the local
population was left to shift for itself in a restricted
OCTOBER 7, 1945
525
economy that scarcely surpassed the bare subsist-
ence level.
Nevertheless, the North African oiDeration must
be called a success. As a vital link in our lines of
communications, particularly for the Air Trans-
port Command, and as a Mediterranean terminus
for our sea lanes, North Africa more than lived
up to expectations. Partly as a result of the
sacrifices by the civilian population, our military
forces were able to achieve a really outstanding
record of efficiency in utilizing to the utmost North
Africa's limited facilities.
Metropolitan France After D Day
There was one tremendous economic and psycho-
logical difference between our landings in North
Africa and our landings in France. France, un-
like North Africa, had been occupied by enemy
troops for many weary years. The people of
France had thus been almost universally subjected
to the hardships imposed by an army of occupa-
tion, with transport and other utilities substan-
tially restricted to military use, and food and shel-
ter subject to enemy requisition. Thus the impact
of the Allied landings was less of a shock to France
than it had been to North Africa. Furthermore,
unlike the situation in North Africa, the landings
in France opened the last phase of the war, and
early deliverance from a hated and omnipresent
enemy was a reasonable hope. Had it not been,
therefore, for the terrible destruction caused by the
fighting, and the displacement of expected civilian
imports by the necessities of war, there would prob-
ably have been few major disappointments in our
economic relations with France after D Day.
The French understandingly and willingly went
cold and hungi-y in the winter of 1944—45 in order
that the war might be pressed quickly to a success-
ful conclusion. They arranged without hesitation
to provide the necessary port facilities, coal,
transportation, public utilities, warehousing, quar-
ters, and other immediate services which were
available. They also undertook substantial pro-
grams for the production of supplies for our
troops — including tires, cotton duck, uniforms,
gasoline "jerri-cans," and assault boats for the
Ehine crossing. Generally speaking, the services
the French placed at our disposal for military pur-
poses were limited only by physical ability.
Conversely, our engineers achieved outstanding
performances in restoring damaged port, rail, and
communication facilities. The fact that these
services were largely for military purposes, even
though it be borne in mind that they were neces-
sarily only a partial restoration in the face of
tremendous and wide-spread devastation, does not
detract from the fact that they were of substantial
economic benefit to the French.
In general it can be said that on the one hand
the French did what they could to devote their
civilian economy to the war, and our military
forces for their part did their utmost to restore
damaged facilities for the combined use of the
military and the civilian population. The chief
difficulty from the beginning lay in shipping,
which was totally inadequate to carry on both
the European and the Pacific wars and still
leave enough to provide for the liberated popula-
tions of western Europe. Port facilities and in-
land transport, badly damaged in the course of
the invasions, were another major handicap. De-
spite our hopes for the prompt provisioning of
liberated areas, the military found it possible to
deliver to France during the entire year from
D Day to May 31, 1945 only about 400,000 tons of
food, clothing, medical supiDlies, and other civilian
consumers' goods. Coal and petroleum accounted
for another million tons of military imports for
civilian use, but conversely the military consumed
over a million tons of coal above what they could
import. Any imports, of course, were of some
help to the French economy; but the military au-
thorities were unable to bring in more than a mere
trickle of civilian goods through 1944, and they
averaged only about 35,000 tons a month over the
entire period of military supply — less than even
North Africa had received and a minute fraction of
what France normally imported before the war.
These military imports of civilian goods were,
however, supplemented in 1945 by an increasing
amount of purely civilian shipments. Ranging
from 5 ships in January to 40 in June, an average
of 20 ships a month was achieved for the 6
months — equivalent to approximately 150,000 tons
a month, or nearly 1,000,000 tons for the first half
year. Most of this tonnage, worth about $150,-
000,000, went out under lend-lease.
Civilian imports into France were fast improv-
ing when the end of the Japanese war and the ter-
mination of lend-lease raised the difficult problem
of financing additional shipments. The lend-lease
program, based on the war's lasting well into 1946,
526
DEPARTMENT OF STATE BULLETIN
called for imports worth approximately $2,500,-
000,000. At the termination of lend-lease about
$150,000,000 worth of civilian goods had been
shipped (and was thus straight lend-lease goods),
and more than $250,000,000 had been contracted
for and could thus go under the long-term credit
of the 3 (c) clause of the lend-lease agi-eements.
Of the balance, about $450,000,000, although in req-
uisition form, was not eligible for existing credit
under the lend-lease agreement, and about $1,700,-
000,000 (which was already being scaled down to
a 1945 delivery program), had not even been req-
uisitioned. The French were thus faced with the
problem of arranging emergency financing to
maintain the flow of vitally needed goods.
Our Future Relations With France
The present financial position of France is not
an uncommon one in business experience. Even
the soundest of companies may lose most of its
physical plant in a fire or other catastrophe and
suddenly find itself in the position of having to
meet its payroll, rebuild its plant, and set aside
some working capital all at the same time. Even
though the company has been foresighted enough
to acciunulate a small surplus, the available funds
may not be sufficient for all these emergency needs.
The company therefore seeks a loan to tide it over
the crisis. If someone with capital has confidence
in the company's ability to recover its earning
power, it will get the loan.
There can be no doubt that the gold and foreign-
exchange position of France has suffered less as
a result of the war than has that of Great Britain,
for instance. On the other hand, France entered
the war with a comparatively weak economic posi-
tion and has ended it with an even weaker one.
It is difficult to estimate the loss of wealth suffered
by France in the war, and it would be even more
difficult to find an equitable basis on which to com-
pare her loss with that of other nations. It is cer-
tain, however, that her present economic position
is extremely weak, that she is badly in need of sub-
stantial dollar imports, and that, although she can
spend some of her gold and foreign exchange, she
cannot hope to make a start at national recovery
without some help.
The tremendous economic importance of France
to us and to the stability of the world's economy
cannot be measured by the mere value of her pre-
war imports and exports. Metropolitan France
imported from us only about $150,000,000 worth
of goods a year before the war and exported about
$50,000,000. The trade of other French territories
was on an even smaller scale. North Africa, for
example, importing in pre-war years about
$8,000,000 worth and exporting around $6,000,000.
Due to the enormous demands of France for re-
habilitation of her industry, however, our exports
over the next few years will undoubtedly exceed by
many times the pre-war level. Since any loans
granted by our Government will be used to pay
American firms for these exports, these loans will
obviously be helpful in providing an outlet for
the hugh productive capacity built up in the
United States during the war. This Govern-
ment financing of our exports cannot, however,
go on indefinitely. It is essentially an emergency
measure based on the assumption that the ultimate
earning power of France will be restored to a
point where she can not only repay the loan but
also pay for the lesser but still substantial scale of
imports which she will need after her emergency
rehabilitation needs have been met. France is just
as interested as we that any loan negotiated should
be well within her ultimate ability to repay.
How long it will take France to reach and sur-
pass her pre-war productive capacity' depends on
so many complex factors that it is idle to guess.
Given prosperity here, however, there would seem
to be no limit to our capacity to absorb luxury
goods, which are France's export specialty. It is
certainly safe to predict that, if the proposed inter-
national economic programs are successfully
launched, France, along with other nations, will be
able to inci'ease her exports very substantially over
pre-war quantities. Moreover, the return of her
normal tourist trade, possibly greatly increased
through post-war travel, would provide an impor-
tant dollar income. If France can adjust her econ-
omy to the demands of modern competition, her
financial future need not be dark.
In her efforts to regain economic health, one of
the important questions which France must de-
cide is whether she should endeavor to maintain a
large army. It takes no exhaustive study to un-
derstand why France, invaded time and again
across her eastern border and supported by her
Allies invariably too late to protect her from in-
vasion, has good historical reasons for feeling that
she needs an unusually big army. Tliis feeling is
no doubt enhanced by the obvious desire of the
OCTOBER 7, 1945
527
United States to maintain minimum occupation
forces in Germany no longer than necessary. On
the other hand, the Frencli press has recently
brought to light a substantial difference of opinion
on whether, in view of her present position vis-a-
vis tlie vast military strength of some of her sister
nations, France would be well advised to sacrifice
further her civilian economy in order to build up
a great army.
Essentially, the leadership that France can still
best provide is political, scientific, and cultural.
Our own close ties with France have always been
based on these intellectual attributes rather than
on her military or economic strength. Ideolog-
ically, the democracy of France has been especially
close to ours in both form and substance. Scien-
tifically, she has given the world new concepts
which, frequently carried to practical success in
our own laboratories, have revolutionized our way
of living. Culturally, she enjoys in the aggregate
of her music, art, philosophy, and literature per-
haps a more loved and respected position than
that of any other nation.
These are the things for which France stands,
today as always, and these are the things on which
she may again concentrate her efforts, for her bene-
fit and the benefit of the world. A sound economy
for France, in which these qualities can flourish,
deserves our hopes and our thoughtful support.
Consideration of Emergency
Controls on Coffee
[Released to the press October 1]
On October 1, in a letter from Acting Secretary
of State Dean Acheson to Eurico Penteado,
Chairman of the Pan-American Coffee Bureau,
the State Department indicated the channels
through which questions of international concern
relating to coffee would be considered by this
Government.
A number of communications urging elimina-
tion, suspension, or modification of the coffee
price ceilings now in effect have recently been ad-
dressed to the President, the Secretary of State,
the Price Administrator, the Secretaries of Agri-
culture and Commerce, and the Director of War
Mobilization and Reconversion from the Fourth
Pan-American Coffee Conference recently held in
Mexico City.
Replying, in behalf of the other government au-
thorities as well, Mr. Acheson made it quite clear
that the State Department felt it proper that the
question of ceiling prices, like other international
matters concerning coffee, should be considered
by the United States Government through the
Inter- American Coffee Board or directly with the
countries signatory to the Inter-American Cof-
fee Agreement. The text of Mr. Acheson's letter
follows :
My Dear Mr. Penteado :
This is in reply to the telegrams dated Septem-
ber 11 received from the Chairman of the Fourth
Pan American Coffee Conference and submitting
for consideration to the Office of Price Administra-
tion, this Department and various other agencies
of the United States Government a resolution re-
garding emergency controls on coffee adopted by
the delegates to the Fourth Pan American Coffee
Conference recently held in Mexico City under
the auspices of the Pan American Coffee Bureau.
Tlie telegram of September 13 on the same subject
addressed to the President by the Chairman of
the Conference has been referred to the Depart-
ment of State for reply and is also hereby ac-
knowledged.
As you know, the Inter- American Coffee Board
was duly constituted by inter-governmental action
to centralize consideration of coffee matters of
interest to the countries signatory to the Inter-
American Coffee Agreement. On this Board, the
Governments of the producing countries and the
United States have representation. This Depart-
ment feels it is proper for the United States Gov-
ernment to consider matters relating to emergency
controls on coffee through the good offices of the
Inter-American Coffee Board and, if necessary,
directly with the governments signatory to the
Agreement. You are assured that through these
channels the coffee situation will continue to be
explored with the greatest possible sympathy and
attention.
I understand that the Board has asked its
United States member to discuss the coffee situa-
tion with this Department.
Sincerely yours,
Dean Achesokt
Acting Secretary
\
528
DEPARTMENT OF STATE BULLETIN
St. Lawrence Seaway and Power Project
MESSAGE FROM THE PRESIDENT TO THE CONGRESS^
[Released to the press by the White House October 3]
To the Congress of the United States:
As a part of our program of international coop-
eration, expanding foreign trade, and domestic
progress in commerce and industry, I recommend
the speedy approval by the Congress of the agree-
ment of March 19, 1941 between the United States
and Canada for the development of the Great
Lakes - St. Lawrence Basin. When approved, the
two countries will be able to harness for the public
benefit one of the greatest natural resources of
North America, opening the Great Lakes to ocean
navigation and creating 2,200,000 horsepower of
hydroelectric capacity to be divided equally be-
tween the people of the United States and Canada.
The development, utilization, and conservation
of our natural resources are among those fields of
endeavor where the Government's responsibility
has been well recognized for many generations.
During the war we were forced to suspend many
of the projects designed to harness the waters of
our great rivers for the promotion of commerce
and industry and for the production of cheap elec-
tric power. We must now resume these projects
and embark upon others.
The Congress and the people of our country can
take just pride and satisfaction in the foresight
they showed by developing the Tennessee and
Columbia Rivers and the rivei's in the Central
"Valley of California. Without the power from
these rivers the goal of 50,000 airplanes a year —
considered fantastic only five short years ago, but
actually surpassed twice over — would have been
impossible. Nor could we have developed the
atomic bomb as early as we did without the large
blocks of power we used from the Tennessee and
Columbia Rivers.
The timely development of these rivers short-
ened the war by many years and saved countless
American lives. We must ever be grateful for
the vision of the late President Franklin D. Roose-
velt and the wisdom of the Congress in urging and
approving the harnessing of these priceless natural
resoui'ces.
One of the great constructive projects of the
North American continent, in fact, one of the great
projects of the world, which was delayed by the
exigencies of war, is the St. Lawrence Seaway and
Power Project.
For 50 years the United States and Canada un-
der botli Republican and Democratic administra-
tions, under Liberal and Conservative govern-
ments, have envisioned the development of the
project together, as a joint enterprise.
Upon the expectation that we would join with
them in completing tliis great engineering project,
Canada has already built more than half its share
of the undertaking.
We. however, still have our major contribution
to make.
Every engineering investigation during the past
50 years, every economic study in the past 25
years has found the project feasible and economi-
cally desirable. The case has been proved; the
plans are ready.
The St. Lawrence Seaway will make it possible
to utilize our war-expanded factories and shipping
facilities in the development of international eco-
nomic cooperation and enlarging world commerce.
New and increasing opportunities for production
and employment by private enterprise can be ex-
pected from this cheap water transportation.
It is the kind of useful construction which will
furnish lucrative employment to many thousands
of our people.
The completion of the Seaway will bring many
benefits to our great neighbor and Ally on the
north. The experience of two wars and of many
years of peace has shown beyond question that the
prosperity and defense of Canada and of the
United States are closely linked together.
By development of our natural water-power re-
sources, we can look forward with certainty to
greater use of electricity in the home, in the fac-
' Read before the Senate and the House of Representa-
tives on Oct. 3, 1945.
OCTOBER 7, 1945
529
tory, and on the farm. The national average an-
nual consumption of electricity by domestic con-
sumers has almost doubled in the past 10 years.
Even with that increase, the national average is
only 65 percent as high as in the Tennessee Valley,
where electric rates are lower. Increase in the
consumption of electricity will mean more com-
forts on the farms and in city homes. It will mean
more jobs, more income, and a higher standard of
living. We are only on the threshold of an era
of electrified homes and mechanical aids to better
living. We can encourage this trend by using the
bounty of nature in the water power of our rivers.
If we develop the water power of the St. Law-
rence River, the United States share of that jDower
will be available for distribution within a radius
of 300 miles. This will include most of New York
State and its neighbor States to the east. Public
and private agencies will be able to pass on to the
consumers in that area all the advantages of this
cheap power.
Under the leadership of Governor and later
President Roosevelt, the State of New York
created the framework of a state power program.
I have always been, and still am, in favor of that
program.
Under it, the power facilities are to be con-
structed by the Federal Government and turned
over by it to the State of New York. The terms
of allocation of costs to the State of New York
have been agreed upon in a memorandum of agree-
ment dated February 7, 1033, recommended for
execution by the United States Army Corps of
Engineers and the Power Authority of the State
of New York. This basis of allocation is fair and
acceptable.
It has always been ilnderstood by the responsible
proponents of this development that the water-
power project should become the property of the
State of New York, and that the electric power
should be developed and handled by the State.
That should continue to be the policy, and I recom-
mend that it be so declared by the Congress.
Any agreement with the State of New York to
this end must protect the interests of the United
States as well as the intei-ests of neighboring
states, and will, of course, have to be submitted
for approval by the Congress before it can become
effective.
I urge upon the Congress speedy enactment of
legislation to accomplish these objectives so that
work may start on this great undertaking at the
earliest possible time.
Harry S. Truman
The White House
October S, 1945
STATEMENT BY ACTING SECRETARY ACHESON
[Released to the press October 4]
The Department of State welcomes the intro-
duction of legislation to approve the agreement
with Canada covering the St. Lawrence Seaway
and Power Project. The Department is now, and
always has been, strongly in favor of the approval
of this agreement. While the project will be of
great immediate benefit to the Great Lakes - St.
Lawrence area, we are convinced that it will bring
long-range benefits to the country as a whole.
The St. Lawrence Seaway will give the great
and productive midlands of this continent direct
access to the sealanes of the world. The rapids of
the St. Lawrence have always constituted a na-
tural barrier to our foreign trade. At a time when
we are making every effort to clear the channels
of world commerce as a step toward world peace,
we should remove this natural barrier. So also
we should take advantage of this great natural
resource by harnessing the International Rapids
of the St. Lawrence River for power purposes.
For well over a century the United States and
Canada have worked together in peace and part-
nership. One of the few pending matters between
the two countries is the approval of the 1941
agreement with Canada providing for the con-
struction of the St. Lawrence Seaway and Power
Project. Canada has already expended substan-
tial sums in constructing works related to this
project. The approval of the agreement and the
completion of the project will strengthen our tra-
ditionally friendly ties with Canada. It will con-
siderably broaden the basis for mutually profit-
able trade between ourselves and our good
neighbor.
668925—45-
530
DEPARTMENT OF STATE BULLETIN
Displaced Populations in Japan
at the End of the War
BY JANE PERRY CLARK CAREY
EVEN BEFORE THE FINAL ENTRY of the Ameri-
can forces into Japan, word was sent to
General MacArthiir by the Japanese Gov-
ernment that Koreans anxious to get back
to Korea from Japan were pouring in great num-
bers into Shimonoseki, located on the island of
Honshu, and its vicinity, only 120 miles across
from Korea, while Fusan in Korea was crowded
with home-bound Japanese, including women and
children. Both places were "faced by scarcity of
food and difficulty in the maintenance of law and
order." In these circumstances, the Japanese Gov-
ernment requested permission to operate two un-
armed vessels as ferries between Fusan and Ha-
kata. General MacAi'thur granted the request
immediately.
This was the first time any word of displaced
persons had come through officially during the
years of war with Japan. During the war tlirough
various means — chiefly through broadcasts' —
knowledge had seeped through about the displaced
in both Japan and the Japanese Empire.^
The total number of uprooted and displaced
people in Japan today, including all nationalities,
probably runs over 12 million. Included in this
number are probably some 2 million Korean labor-
ers and their families, an unknown number of
Chinese workers, some 38 thousand Formosan-
Chinese laborers, and perhaps many displaced
Japanese nationals returning from Formosa,
China, Manchuria, and the Japanese Mandated
Islands before the end of the war.
In Germany one of the most important cate-
gories of displaced population was that of forced
labor. By contrast, Japan, for all its manpower
shortage, never imported quite such large armies
of men, largely because of bottlenecks in transpor-
tation and food production. Japan repeatedly an-
nounced the decentralization of its industry and
the removal of factories to Manchuria, although
some were sent to China where manpower and ma-
terials were used at their sources. Repoi-ts came
through in the spring of 1945 that a number of
Japanese were being sent outside the country from
their homes in bombed Japanese areas, going par-
ticularly to Manchuria, to be used in food and
industrial production. The number of these was
not great, due largely to lack of transportation
facilities.
The Koreans form the largest group among the
foreign displaced in Japan. Higher living stand-
ards in. Japan than Korea have always brought
about some regular immigration of Koreans into
Japan, but Japanese manpower needs in the war
caused greatly increased immigration of Korean
labor and simultaneously curtailed the return of
Korean laborers from Japan to Korea. Oppor-
tunities for employment overcame the traditional
dislike of the Koreans for the Japanese and made
many cross the straits by small boat to enter Japan
surreptitiously. As the war progressed the ever-
growing need for labor in Japan prompted the
importation of Koreans by force, and they have
been imported at the rate of about 10,000 a month.
By September 1944 a Japanese broadcast stated
there were one million several hundred thousand
Koreans in Japan, but only three months later
another broadcast gave the number as three million.
A statement of the Welfare Ministry to the
Diet on September 5, 1945, indicated that the
' Mrs. Carey is Assistant Adviser on Displaced Popula-
tions in the Office of the Assistant Secretary for Economic
Affairs, Department of State.
' The Daily Reports of the Foreign Broadcast Intelli-
gence Service, Federal Communications Commission, have
been source material for quotations from and references
to radio broadcasts.
'The present article discusses only the displaced in
Japan proper, not the Empire.
OCTOBER 7, 1945
531
number of workers imported en masse from Korea
■was 323,890. This nimaber presumably refers to
forced laborers taken in large groups to factories
and mines during the course of the war and does
not include the large numbers of Koreans who
entered Japan before the war or those coming in-
dividually or in small groups. A Domei broad-
cast the same day gave the total number of Koreans
in Japan as 2,400,000, and the next day gave the
number as 2,100,000 and stated that over 300,000
of these had been drafted into war industries. The
same broadcast told of the fact that Korean la-
borers desiring repatriation to Korea would be
given priority on the ferries for the return trip to
Korea but that, owing to the scarcity of transpor-
tation, only 30,000 persons would be transported
each month. Actually, 4,000 persons were report-
edly sent daily during the first week of operation.
By September 13 four more ships were added to
the run, primarily because of the rush of Japanese
women and children back to Japan from Korea
and Manchuria.
The Koreans in Japan have been primarily la-
borers, chiefly in the mines; thus the war has in-
creased the number of miners greatly. In July
1942 German sources said that 18.4 percent of all
laborers in the mines were Koreans, but two years
later a Japanese bi'oadcast indicated that 200,000
or 30 percent of all coal miners were Koreans. By
1945, according to Chinese sources, Korean men
under 20 and over 30 were being sent as forced la-
borers to mines and factories in Japan. The mines
were reported to have been surrounded by barb-
wire entanglements and machine guns mounted on
all entrances to prevent an uprising or flight from
work. In 1944 more than 10,000 Koreans were re-
ported to have been sent as forced agricultural la-
borers to Japanese rural villages. Gradually
some of the Koreans in Japan have been trained in
semi-skilled work in factories, particularly in the
machine, chemical, and fiber industries.
Many of the Korean laborers went to Japan on
one- or two-year contracts but manpower short-
ages caused the Japanese Government to try to
keep the Koreans in Japan by extension of con-
tracts. Despite the fact that the Koreans were
not well treated in the past and occupied virtually
the lowest economic status of the whole popula-
tion, recently efforts have been made to mollify
this group. The Peoples' Labor Conscription Or-
dinance of February 8, 1944 conscripted Koreans
and allowed them to take their families with them
to Japan. By the latter part of 1944 Japan prom-
ised complete non-discrimination for the Koreans
in education and work, just as the Germans in
the latter part of the war attempted to pacify the
forced laborers from Poland and the Union of
Soviet Socialist Republics by promising removal
of discrimination. Just as the Germans gave
medals and other tokens of recognition to their
forced laborers, so the Japanese began to offer
gold medals and allowances to Korean workers.
The Koreans are scattered throughout Japan,
but they have been concentrated in the cities,
particularly Osaka, Kyoto, Fukuoka, and Tokyo.
The more recently transplanted workers were sent
to the same cities, and to Hiroshima, Hokuriku,
and Tohoku areas, and in general were distributed
throughout the Shikoku and Kyushu Islands and
Hokkaido.
There have been separate Korean districts in
Japanese cities — usually the poorest sections of
the cities. There has been almost no intermar-
riage or assimilation with the Japanese, and few
Koreans speak Japanese.
Despite the propaganda attempts of the Japa-
nese, the Formosan-Chinese, like the Koreans,
were anti-Japanese in feeling and sentiment.
There were only some 10,000 Formosan-Chinese in
Japan in 1940, and four years later perhaps as
many as 40,000 were taken north from Formosa to
work in Japanese war industries and mines.
Many of these may be regarded as forced laborers.
Even before the Meiji restoration and the official
opening of Japan to foreign commerce, Chinese
had been allowed to enter Japan from China. By
1930 there were possibly some 27,000 Chinese in
Japan, including merchants and students but pri-
marily laborers. Hostilities between China and
Japan meant the return to China of many Chinese
who had formerly lived in Japan, so that by 1942,
according to Chinese sources, there were only some
15,000 left in Japan.
On April 4, 1942 the Deutsche Bergwerhs
Zeitung reported that Chinese workers were being
sent for employment in Japanese war industry
and that these workers were also being transferred
from Shanghai to industrial areas of North China.
Another report in 1943 indicated that more than
100,000 Chinese had been impressed by the Japa-
nese for use on farms to work in groups of two
or three and that some of these had gone to Japan
\
532
DEPARTMENT OF STATE BULLETIN
although Japanese sources the following year in-
dicated that there were 225,000 Chinese laborers in
Japan. In March of that year it was reported
that 10,000 able-bodied young Chinese were being
gathered in Lienyun Harbor in Kiangsu Province
ready to be sent to Japan as laborers.
A Japanese broadcast announced in February
1944 that the "experiment" conducted in 1943 with
Chinese laborers had had "satisfactory results" so
plans were announced at that time to import "a
large number" in the future.
The number of Chinese in Japan at the time
of surrender was a riddle, but it is probable that
100,000 is an exaggeration since manpower needs
of the Japanese in China and Manchuria were so
great and transportation so difficult that perhaps
only a part of this number, including both labor-
ers in war industries and students, were actually
in Japan.
The Domei broadcast of September 5 said that
34,000 Chinese had been imported en masse from
China. Presumably these were forced laborers
like the Koreans and were the numbers imported
for war industries.
Aside from the large numbers of Koreans and
Formosan-Chinese and the Chinese, few foreign
groups were left in Japan at the time the great
bombings began. Tliere were 2,459 persons from
Manchuria, either workers or students, who were
part of the large number of students sent to Japan
from "Greater East Asia" for indoctrination in
Japanese ways and thinking.
By September 1944 a question had arisen in
the Diet regarding what to do with foreign stu-
dents in Japan because the schools were closed
due to the year-round mobilization of students.
A report in March 1945 stated that, within the
next month, measures would be taken to accom-
modate all "overseas students who have been idle
during the past year owing to the temporary clos-
ing down of some of the higher institutions of
learning to allow Japanese students to serve in
factories and farms." It was also reported that
several colleges and universities would remain
open for the G. E. A. students, numbering sev-
eral hundred, of which the largest number were
Chinese from Manchuria. Students from the
southern countries, almost all of whom attended
Kokusai Gakuyu Kai, were to enter universities
in the southern part of Japan, ostensibly because
of the warmer climate, while those from Manchu-
ria and China "being accustomed to cold winters"
were to study in the central or northern districts.
There have been some 975 Indians in Japan, in-
cluding both students and revolutionaries. Japan
had long been a seat of anti-British Indian activ-
ity. There have been some 1,300 of the great group
of White Russians found in every country after
the Russian Revolution. A few neutrals, largely
diplomatic or businessmen, included about 250
Swiss and Portuguese each and somewhat more
than 100 Spaniards. The small German colony had
been increased in 1941 by the evacuation to Japan
of German women and children from the Nether-
lands East Indies and was probably still further
increased by later evacuation of Germans from the
Pliilippines which may bring the number of Ger-
mans to 2,000.
As of the spring of 1945, some 30,000 to 40,000
prisoners of war and 500 to 600 civilian internees
were located in Japan itself, including 7,000 Amer-
ican prisoners of war, 5,000 Netherlands, 5,000
to 8,000 Australians, 1,000 Canadians from Hong
Kong, and 14,000 British. The American and
British civilians were generally held in camps or
prisons, though some were allowed to go free or
were interned at home. The civilians included ap-
proximately 200 American technicians from Guam.
Increased bombing of Japan, with its small area
and heavy industrial concentration, led to vast
internal displacement of the Japanese population.
Internal displacement occurs when persons flee
as war fugitives or when people have been moved
within their own countries because of evacuation
from bombed areas or zones of military opera-
tions or because of movement of war industries
with a consequent need of manpower in the new
location.
In Japan the shortage of food also led to re-
location of bombed-out persons in accordance
with their possible usefulness in food production.
In Germany more than 20 million people were re-
ported to have been made homeless or forced into
temporary shelters away from home by the steady
pressure of bombing, and in Japan probably half
that number were displaced within a smaller
area. According to a Tokyo broadcast of Au-
gust 23, 1945 some 9,200,000 persons in Japan
were left homeless or were made war fugitives by
Allied air blows on the Japanese home islands.
Two hundred sixty thousand had been killed
OCTOBER 7, 1945
JAPAN
533
DISTRICTS OF
HONSHU AND SHIKOKU
(T6ky6 - V0K0M6MA)
AOapied from Tre»arfha
The bounaones of tf<e d'Sffc's
are ve'y mdefinile
1 Hokkaido
2 Aomon-ken
3 Iwate-ken
4 Miyagr-ken
5 Akita-ken
6 Yamagata-ken
7 Fukushima-ken
6 Ibaraki-ken
9 Tochigi-ken
10 Gumma-ken
I I Saitama-ken
12 Chiba-ken
13 Tokyo- fu
1 A Kanaqawa-ken
15 Niigata-ken
1 6 Toyama-ken
1 7 Ishikawa-ken
18 Fukui-ken
19 Yamanashi-ken
20 Nagano-ken
21 Gifu-ken
22 Shizuoka-ken
23 Aichi-ken
24 Mie-ken
prefectures occoramg to 1940 Census
25 Shiga-ken
26 Kyoto-fu
27 Osaka- (u
28 Hyogo-ken
29 Nara-ken
30 Wakayama-ken
31 TotiO"-ken
32 Shimane-ken
33 Okayama-ken
34 Hifoshima-ken
35 Yamaguchi-ken
36 Tokushima-ken
37 Kagawa-ken
38 Ehinne-ken
39 K6chi-ken
40 Fukuoka-ken
4 1 Saga-ken
42 Nagasaki-ken
43 Kumamoio-ken
44 Oiia-ken
45 Miyazaki-ken
46 Kaqoshima-ken
47 Okinawa-ken
and 412,000 injured. These figures include 90,000
killed and 180,000 wounded by the two atomic
bombs.
The chief island to be affected was Honshu,
with the Prefectures of Akita and Yamagata in the
far north, Ishikawa, Tottori, and Shimane on the
coast of the Sea of Japan, and Kyoto, Nara, Shiga,
and Nagano in middle Honshu. The northern
island of Hokkaido received little bombing except
for the ports of Hakodate and Muroran.
An industrial decentralization program had
been under way in Japan since 1938. Under an
order of October 16, 1939 the Ministry of War was
given autliority to determine the number and loca-
tion of new factories and could refuse to permit
further construction in what were then deemed
534
potential target areas. Even by May 1945 Domei
declared that factory decentralization comprised
tlie largest part of the depopulation of cities.
During all of the period of heavy bombing before
the end of the war, plans for evacuation and dis-
persal of the population poured over the Japanese
radio m such a steady stream that it became im-
possible to tell what was plan and what was ac-
complishment. The evacuation movement actually
got under way slowly, because the family system of
Japan necessarily caused resistance to tlie breaking
up of family units and the uprooting of long-estab*^
hshed homes. On the other hand, the fact that
many Japanese city-dwellers had relatives in the
country meant that ready means of absorption of
the displaced was at hand. In all plans for evacua-
tion persons displaced from the cities were to go to
their relatives in the country if possible and only if
there were no relatives in rural areas were groups
to be evacuated and kept together. On March 15
1945 a Domei report stated that the Government at
one time considered the possibilitv of a compulsory
allocation of refugee areas and housing for evac-
uees from air raids but, because some of the vic-
tims "went to stay with relatives and some with
friends'", the result was that "the majority of them
have been relocated as if they had been sWallowed
up m the great current of friendly spirit and the
traditional family system." Therefore, the broad-
cast continued, there was practically no necessity
tor a compulsory allocation of dwellings.
A further aspect of Japanese life Effected the
plans for dispersal. The light construction of
many houses meant that frequently houses if not
factories were moved along with the people
Nevertheless housing shortages were serious
throughout the country. The Tokyo broadcast of
August 23, 1945, in telling of the 9,200,000 persons
left homeless as a result of bombing, also indicated
that 2,210,000 homes in Japan were demolished or
burned and 90,000 others damaged.
From the summer of 1944 on, strenuous at-
tempts were made to persuade parents to allow
children from the third to tenth grades to be re-
moved from cities where particular bombing dan-
ger existed and be sent to relatives in the country
if possible. If no such relatives could be found,
school groups were to be sent together. These
latter were to be housed in large private homes
hotels, and old temples. The teachers were to go'
too, to live with the children and carry on their
DEPARTMENT OF STATE BULLETIN
teaching. The Japanese family system, togethei
with ransportation problems, caused partlcula
difficulties with children slated for group evacua
tion. Nevertheless, the bombing situation finally
became so serious and so many children were sent
away from Tokyo that, when the Americans en-
tered the city in August, they noticed the almost
complete dearth of children.
All schools in the comitry were finally closed
entirely in the fall of 1944, and all available chil-
dren old enough to be of any possible use were
put to work in agricultural and industrial pro-
duction. After the end of the war, the Japanese
I^ducation Ministry ordered the reopening of all
schools and colleges by September 15, 1945 This
order, according to Domei, "will return to school
nearly 10,000,000 Japanese boys and girls mo-
bilized for war service", though later Japanese
hgures indicated that there were 1,927 370 mo-
bilized students including those engaged in agri-
culture and forestry. The discrepancy is possfbly
due to the inclusion in the first large fi<Ture of
part-time students and very young childreli
In Germany children under 12, nursing mothers
women over 60, some men over 65 vears of age, and
those unfit for military service were moved from
the danger zone east of the Oder River in the face
of the Soviet advance; in Japan not only chil-
dren but also expectant motliers and old people
were part of the plan for those first to be sent
away from Japanese cities in danger of bombin<^
During the fall and winter of 1944-45 attempt
were made to get the movement started, but up
to mid-March of 1945 evacuation of pregnant
women, of women with small children, and of the
elderly proceeded very slowly. The incendiary
bombings of that period tightened the resolve of
the Cabinet to go full steam ahead with its plan^^
and to insist that only persons essential to the wa--
were to remain in such cities as were apt to be
heavily bombed. Persons essential to the war in-
cluded persons connected with the production of
munitions and food, doctors, employees of public
utilities and banks. Even the wives and children
of these men were to be evacuated. Tokyo mothers
with small children were to be sent to Niigata
Prefecture if they had no country relatives to
care for them. Each group of 50 expectant
mothers was to have midwives. baby specialists,
dietitians, and washerwomen assigned to it. The
homes of what were called "evacuation widowers"
7,JMS
^^lunilies hn'l l"'''" -''''' "" •'"" """>"> ■^^''''i'
■-"W^ u^ gftcr liy till' Nri;:!il)<'rlii)<Ml A-mkiii-
W-'-
ly as Febniiny I'M 1 jilaiw wfiv un.lor
iride-spreatl .>v:uu:iti..ii of tlu> population
.Swrtain areas espiTi-.illy apt to Ik- boml.wl—
S;,Tokohama. O^nka. KoIk^. Xa;;oya, nn.l
JSxitthe faU of tliut y.-ar arrived befon- nrnrh
jLerocuation actually- took plare. un.l it uas
*j^;fore May 5. lOt-"' ll>:'t cvaniatiou ariually
■JLtobeeffectivp. It "a^ d.rul.'d tliat hv Juno
J^lefrom the Tokyo. Yokohium (K.'ihin)
^wwetobesent to Hokkaido. To1io!;h. Kauto.
I^ainetsu; persons from the O-aka-Kohi- an-a
«» to be sent to the KinkiChujoku and Tokai-
finriku areas e;-pfrially for farm woi k. TIiom-
table to do heavy farm labor, .-pirially wonn'n,
•ntobe put iii cluirtrf of co-ikinL'. 'hdd i-un-.
afserving.
-Jskrohad spe<:ial plan-- for eva. uati..ii. 1- rom
fcdi'l944 plan? were undor way to rvacuate at
laiS million Tokyo n-idrnt-;. !ir-t to outlyin?
iticts and especially to farmint: villaL'e-; where
#1^ could work at the niou:itiii;r probK-m of f<K>d
lOHng. By fall a Dit-t ii.terptdlation indi<-ated
tttorer a million persons hail left the riiy out of
ipopuiation of Ci.oOO.Ooi'. and by Manli of l'.>}5
fatier Diet statements i;av<' the jiopulati' n of the
«ty as less than 4 million thoiii:h it i- doiilnfid
tiether it was possible to hav.' arraii;:'-! for the
•■OTal of so many by th it time. Ni'v.itheless
tnsreported that so many people had hft Tokyo
if tie early part of January i:t!"i tliat rooms and
ktBts were reportedly bcincr cflerrd rent free,
iot house owners had offered a monthly -tipcnd
*«isy person who would live on their property.
• ifter the end of the war. Domei reported that
.*May 31, after the largest -scale air raid on
'iyo, there were 2.100.00O people left in the city.
^ these about 10 percent, or 204.000, were re-
>*'Wto live in provisional shack- in ilevastated
**• Although approximately ''ii percent of the
^'•■^r Tokyo population had left tlie-'ity. hou-es
^^» Said to have decreased by mote tiiun 70 per-
'^ * rom January on, th" Ciovi-rnment had dc-
"■W tiiat vacant house> were to be oceui)ied by
"I* ^hose houses had been (h nsoli.-hed by air
I f^ Houses tliat m:L'ht pidve ditlieult to care
\ lHu^^^ disniantl.d and m.*ved. Yamagata
I :^^^e, in the mountains north of Tokyo, was
i .-*'*"' l^ an influx of refugees from Tokyo. The
535
situation beeame so seriou-^ that prefeetural jjov-
irnment authoiities had to make the arranjzemeiits
fo)- rent in;: houses.
The Tokyo municipality arranjzed to aid air-
raid victims who had mo place to fxo by providing
living accommodations and employment in the
Pri'feeliin's of .Vkita, YamuL'ata. and Kukushima.
For a period after air raids transportation was
provided free.
Hv the >pi mir of 104") fear of bombing and of
po--ib!e invasion had become so gnat (hat people
began to (li-e from iheir homes in a haphazard and
iinplanneil w:iy. and. according to a Domei liroad-
ei-t of Mav 7. 1!'J.">. even people in -mall town- liad
lar.ght the evaluation >eare. It wns >tated in the
Diet that Yokohama hacj had ■•g;atif\ iiig ro-ults"
in rherking the flight of jii'ople who were in es-
M'liti;'.! oecupatious and >o required to ri'iiiain at
h(.me. I'y June it wa:? announced o\er il>e radio
that per-on- would not be evacuated from the
coai^^ or from medium- and -mall-^ized communi-
ties e.xeept under certain circum-tance^ an i must
-tay where they wt-re. doubtle^b be-au-e there was
nowhere to go.
IJefoie the end of the war. W'jid jiercolatod
throiii:h that people evacuated from Okinawa in
the f.ire of itie .Vmerican invasion were in various
jihice.-- on the I-laiid of Kyu-hu rai-ing food erops
\vh:le. by July IDfj. L'UO ()kii;aw;i li.,y- were re-
ported to be v.urking in Tokyo anplaiif fai tories.
An i'meig?ncy hou>ing nu^a-ure provided tor the
eoii. truction of living ([uarter- in medium- and
-nuill-si/e<l cities throughout the country to be
renti'd to air-raid victims. The first work was to
I'rovide housing for those who had to remain in
the -ix cities of Tokyo. Kawasaki, Yokolian.a. Na-
goya, 0-aka. and Kobe, but who had lost their
homes by bombing. In Tokyo the first batch of
honking areas to be built was to be put up along
goveiimient-operated railway lines. Tlie construc-
tion of wartime housing areas for iho-e ova -uated
from war-ravaged localities, together witii allot-
ment of land for home gardens and jointly man-
a'jed gardens, v.as to be carried out in Keihin,
Ilan-hin, Nagoya. and northern Kyu-hu.
Government policy in the war wa^^ to use a- much
evacuee nianpower as po>-ible in in.crea-ed f<.'f)d
jirudiietion. Even liefoie the war. tln' Ja[ ane.-e
Govcinment had attempted to promote a back-to-
the-farm movement becau-e of the in. i^a-ng con
centration of population in the citie-. but the war
536
with it!^ nftciiilaiit shortnpi^s of fiirin iiiiinpower
ami of foodstiilfs caused stroiipT pio-Miiv to bo
I'xrrtcd on city dwolloi-s to iH'i->^iiadc tlioni to fxo to
work oti farms in tlic couiitiy. By tlx- spring of
r.>t:> all possible pressure was l)ein{i used. At the
end of March tlie ciihiiu't passed ii strouji return-
to-thefarm measure, and by smnmer Japanese
broadcasts stated that ^ome IdO.DOO families out of
a proposed 4nO,()(X) had been sent to the country for
farm work under this s<-lienie. thuu-^h the number
may have been exa-:;:<'rated. Separate preliminary
arraii>,'ements were made in each prefecture for the
reception of the people. Evacuees sent to the
country were to be provided with farm plots by
each of the aiiricultural communities to which they
were sent if they did not already own property
there.
A. .<>r<lin<i to a plan drawn up by the Agricul-
ture. Conunerce, and Home Ministries and an-
nounced June 7. 194.">. city evacuees and air-raid
victims were to be sent to the northern island of
Hokkaido en masse for agricultural woik. As an
initial mea-ure approximately .jn.dUU families, or
•JCH'.OhO evncuei'-. were to be sent tliere in the sum-
mer of rjij. Lodf:in<r in the Hokkaido colonial
traininjz c( nters. schools, temples, and homes of
others was to !»• provided, all exi)enses paid, and
when simple livin<i quarters were built rent was to
\)C free. Temporarily crops rai-ed on the one
rfiobu (•2A'> aires) of land were to be kept and
used by the family. FocmI was provided at the be-
ginninV'. if neccs-ary, plus an allowance if need
wa< <:reat.
Applications were opened on June 1.'>-Jidy
1.5 for the 50.(iOn familie- jUanned for Hokkaido.
The flr^t <ontingent of 1.100 meniliers. called the
Northern Area Development Farmer-Soldier
Corps, left Tokyo by special train on July 6, and a
second contingent of 274 families, consisting of
1.031 members, left soon afterwards and arrived in
Hakodate three days later.
Immediately after the end of the war. Domei
announced that the Japanese Home Ministry
would rontinue its policy of evacuating the resi-
dents of ti\e big cities an<l.at the same time, of pre-
venting tiie return iiouie of city inhabitants who
had been evacunted to the (duiit ry. T!ie continua-
tion of this plan was doubtle-s due to continued
^-iiortage of foodstulTs and the need for continued
emphasis on their production together with the
shortage of housing in the cities.
The principal duty of the members was
to b*
ready to participate in combat in case of invtisi
On tiie other hand, there had iieen no trainuig
e([ui[)nient for civilians to be used as fighters,-
a|.i)ears that the corps was really planned to
u-ed as a means of developing labor mobilize
and production rather than as a Japanese bia
DEPARTMEy-T OF STATE BVLLETn
Heginning September 10 anyoi\e wantinc t^
leave the city to return to his native place in th.
country was lobe allowed to go without restriction
but anyone wanting to return to the city was to U
prohibited "for sometime to come"', according to
the Chief of the Natiimal Public Works Buretn
of the Ministry of Home Affairs. Ho also stated
that eventually lU nnllion people will probably
return to the six big cities, but they will be allowed
to return oidy gradually ami under a planned ar-
rangement for population di-trihution.
A Deliberative Council was set up in everr
prefecture to receive evacuees. Headed by the
governor and composed of men connected with
transportation, fo<Kl supply, housing, and electri-
cal ili.-tril)Ution. the council was to decide on jn<t
what was to be done with roettling and rehabil:
tating evacuees.
In the death-tliroes of German dissolution, i
Vofkssfunn was established to mobilize old ami
young in a last desperate attempt to stand against
the flood-tide of Allied invasion. So in its last-
ditch stand and fear of imminent Allied invasior.
Japan establ!.-^hetl a volunteer combat organizatior.
within the gep.ei al fi-amewoik of t!ie previously es
isting Civilian Volunteer Corps. All males from
15-GO and women of 17-40 except those considereo
■'the nucleus of tiie home" were to be recruitou
under penalty of fine and imprisonment for combat
service if military necessity dictated. The new
c'.rps was to have military status and to be under
the direct command of the Emperor, and the com-
mand of each unit was to be an honored position
based on Imperial authority. The basic principle
on which the ccjips was to operate was that 'thf
Imperial land, the resting place of gods, the native
home, and working place of the people" must be
defended at all costs. The principal duty of the
members was to participate in combat and support
military activities in production, transportatien.
et cetera. Each factory, government office, and
group of students was to have its own group ol
from 10-30 members and to work together in on*
localitv.
fCt08ER r. 19*5
Q^nnan \'o/k:-'st,inii. Its <hitios ns first out-
"jj consisted <»f tlioM- lu'iuiiij; mi iiiilitury
Derations but imt dirt'tily (.•(Hiiurti-il with tlioin,
1^ as tnuisportatioii mul commissarv work.
|t]^ membei-s of tlie corps wimo to be iissij^tied
, ftctory anil farm work uiuler military dis-
pline.
The first such corp^ to U- foruii'd was a Railway
Svilian Combat ('uii>-. >luubtU'ss bi'iau>(' of tht^
ottleneck in Irnn-poMat imi ami tin- nt-ol for luili-
uy discipliiK' anion^ tin- railway wuikfr>.
On the even iuj; of S ■ptimlu-r :'.. I'.M.'i soiin' •J,7n<)
ipanese wlx) had Im-cm liviii;: in Koii-a, Maii-
luria, and Ciiina n-aih«-.l tlic port of Ilakata in
lorthem Kyu-iui. llii- i.'roiii> was hut a tiny frac-
ionof the -t million .Fapaii.M' r;vinj:out>idt' Jai)an,
lUiyof whom wdl want to. or bv forced to return
to Japan. The pmbh ni~ of resettlement of this
Igroup, Tariously estiniate.l at l,.-)(K».iMH)-;;.nO().()(K),
Ima Japan devastated by bombs and short of food,
pill prove one of the mo-t imi)ortant of the <lifli-
(ulties f acinar the o<<upyii!ir autliorities in Japan,
IS well as in the lonix-ran;.'!- fi-onomic and .-<»'ial re-
Ittbilitation of the country.
Discussions With Mexico on
Air-Transport Agreement
fBeIea8«d to th» proas o. !.,l»r j I
Discussions refrardinj; a bilateial air tran-port
tgreement betwi'<'u tJM- I'nited Stai«s and .Mexico
will take place in \Va-liii!;:ton durini: the next few
nays, the De])artni<'nt of St;ite announceil on Octo-
ber 2. The proposed aL'reemeni will fiovcrn the
operation of conuiiercial air services between the
two countries.
The negotiation- on belialf of Mexico will Ix" car-
ried on by Rafael de la Colina, Char^'e d'.Vffaires
of the Mexican Embas-y in Washinj.'ton ; Gen. Al-
berto Salinas Carianza. of the Mexican .\ir Force;
fiebolledo Clement and llernan<lez Ller;:o. of the
Mexican Mini.-tiv of {'omnnmications and Public
^ Works.
The United Stale- will bi' repro-eiited by L.
Welch Pojrue. Cliairm m of the Civil .Veronautics
Board; 0-wald Rvaii. member of tiie Civil Aero-
i^Utics Board: >f.k.li y W. .Nb.r;.'an, Chief of the
Aviation Divi-mn. Departintnt of .state; and John
■ W.Carri-ian.CliK-f of tiie I)ivi-ion <if Mexican .\.f-
I fcirs, Depart mmt of Si at.'.
I
537
Regarding Philippine
Independence
Statement hy THK I'RKSIDKNT
(Keleascd lo the press !•> the WliUo IliMiai- OotolK-r 111
As you know. President Osmena of the Philip-
pines is in Wa-iiin^'toti. On Monday, I conferreil
with him and with the Hii^h Commissioner to the
Philippines. Mr. .McNutt, and ihe A<lin;: Secre-
tary of the Interior. Mr. Korta-. I proi)ose lo c on-
fer a;iain with President ()-mena and to formulate
a broad program for this (Joveiiimeiit with re-pect
to the Philippine. This proLXiam will, of course.
reflect the traditi<inal friind>hip of tiic people of
the United ."^tates and of the Philippine-, and it
will take aiccjunt of ihe heroic and loyal conduct of
the Filipinos durinjr t!ie war. In preparation for
my further conferences with President Osmena, I
have asked Mr. McXutt and Mr. Fortas to consult
with the President of the Piiilip[)ine3 with respect
tu all matters of mutual interest.
At the moment. I wani to clarify the (pie^tion of
the date upon which Philippine independeiue may
\)e expected. Under the statutes now in force, in-
depeiideni-e is scheduled for July 4. 11140. or sooner
if the Pre-iilent of the United States shall so pro-
claim. Tliere ha> been wide speculation as to
whether a date prior lo July 4, l'J4G, will be fixetl.
This sjieculation ha^ introduced a hi;rh dc;j;ree of
uncertainty at a very critical time in Philip[)ine
affairs, and ha^ re-ulted in -oine confii.-ion in the
proLjrams of both the Conmionwealth Government
and United Stales agencies.
It would be neither just nor fair to the loyal
people of the Philippines, who have been our broth-
ers in war as well as in peace, to proclaim their in-
dependence until the nece.-.-ary program for reha-
bilitation has been worked out and until there has
been a determination of the fundaiueiital proiilems
involved in our mutual relatioii>hip alter inde-
pendence. .\(lditional time is al-o re(|uired lo en-
able the Phirn)pine Government to -et its own
house ill order and to hold a free democratic
election.
To a.-.-i.-t in the orderly working out of these
problem-. I am taking this opportunity to state
that I <lo not intend to con>ider advaii' ing the
proclamation of Philippine independeiue to a date
earlier than July 4, 1940 until the nece.-sary
measure; which I have outlined have been taken.
>J8
DEPARTMEM OF STATE BlLlef,
Our Occupation Policy for Japan
PARTICIPANTS
John C.VRTFR \ INCE.NT
Dir.rlor. OITioe of Fnr EaMorn Affairs,
Dip.irlincnt of StaJo, an<J (!liairnian,
I'.ir {■..i!it<'rii Suhconimiltpo, Stalo, War,
Navy ('.i>(>r(Iii)atiii<; (lonimittec
Maj. ('„n. John H. Mii.i.dri.nc
Dinciiir of f.i\i| AfTuirs, War Depart-
lID'Ilt
C.ipl. 1{. I.. Dknmson
L.S. .Navy, Heprewntative of llie Navy
l)t|..irtni<iit oil tlio Far Kastorn Siib-
(oniinittcc. Stale, War, Na\y (ioordi-
ri.iliii;: < iommittee
.SlFRr IN<. Fl-MKR
Dirfcior, .NBC L'niversity of tlic Air
I 1:.'I.'ii^im| ir, tti,. ,.r.-n i>.r.,l„r >:\
Anxoimhk: Here are /i"iiJl/ii' ■< from Wn.sh-
ti ijtun :
Gctu'i-al Hilldiiii^' S:iys tlip Zaihat-ti. or J-.ipanc.se
IV"^ IJi.Miu--. Will liv Broken Up; States We
Will N.it I'.Tiiiit Japan To Rebuild Her Bif,'
Coinliines: Promises Protection of Japanest>
DeiniH rutie (Jroiips Af^ainst Attacks by Mili-
tary Fanatics.
Jnlin Carter Vincent of State Department Foie-
ca t> F.nd of National Sliinto: Say- That tlie
Iii.-titiilion of tile Kinperor Will Have To Be
Radir.:i!y Mi^lified. and That Dem<x-raiic
Parties in .Japan Will Be Assiire<l Rights of
tree A^-ciiibly an(l Free Discussion.
('ai)t:iin I>ciini>on of Navy Department Says
Japan Will N(,t Be Allowed Civil Aviation;
Predirt> That Jai)ancs<; Will Eventually Accept
Di-nuM ;aiy. and Emp!ia-izes Naval Resjwnsi-
bility for Future Control of Japan.
.\\.\Mi N( r.it: This is the thirty-fourtli in a se-
ries of pio^rranis entitled "Our Forri;.'n Policy,"
featuring' luthoritative . -tat. -meiits on inteiiiational
affairs by (Jovernment oliicial> aii-l nieinbei-s of
C-in-n--. Til,. M-iics i-: broadcast to the people
of America by NBC's rniver>ity of the Air. and
to our sei-vice men and women overseas, wherever
they are staiioned. through the facilities of the
' Hri.i f-n.v i.f Se|.t 2rj. l!Mi. p. 423.
Armed Forces Radio Service. Printed copies rf
these important discussions arc also availabL
Listen to the closing announcement for instrJ
tions on how to obtain them.
This time we present a joint State, War and
Navy D.-partment broadca-t on "Our Occunnfl.
1 olicy for Japan . Participating: are Mr. Joh
Carter Vincent, Director of the Office of F "^
Eastern Alfairs in the State Depaunient; Mai'
Gen. John H. Hilhirin-:. Director of Civil AflFairs
in the War Department; and Capt. R. L. Demu
•son. U.S.N.. Navy Department representative on
the Far Ea.-tern Subcommittee of the State, War
Navy Coordinatinfi Committee. Thev will 'be in
terviewed by Sterlin.^ Fi.-her, Director of the NBt
University of the Air. Mr. Fi-lier—
FiSHKic No subject has been debated nion-
widely by the press, radio, and fxeneral public in
re<-ent weeks tiian our occupation policy in Japan.
That debate has served a very useful purpose. Ii
has made millions of Americans conscious of tin-
daiifxeis and complications of our ta>k in dealin;;
with 70 million Japanese.
Publication by the White Hou-=e of our basic
policy for Japan removed much of the confusion
surrounding this debate.' But it also raised many
questions — questions of how our policy will Ix-
applied. To answer some of the>e. we have asked
representatives of the Departments directly con-
cerned—the State, AVar, and Navy Departments-
to interpret further our Japan policv.
(ieneral llilldrinfr, a great many people seemed
to think, until recently at least, that General Mac-
Arthur was more or less a free agent in layin;:
down our policy for the Japanese. Perhaps you
would .start by telling us ju>t Iidw that policy i-
determined.
nit,i.i)m.v(;: Well, althouuh I lielp execute
policy instead of making it. 1 will try to e.\pl:>ii'
how it is made. Tlie State, War, Navy Coordina!
ing Committet>— '-SWINC", we call it— fonim
lates [)olicy for the President's appnnal, on ques-
tions of basic importance. On the military as-
pects, the views of the Joint Chiefs of Staff iU"''
obtained and carefully c.nsidere.I. Directives
which carry the approved fM)licies are tlien dm^^"
'■
jtmnsniitttvi by the Joint Chiefs of Staff
MacArtiiur. As Suprviiio ("oiiimuuder
ipation forces in Japiiii, lie is clmiged
^ responsibility for currying them out.
'iJ:iretiunk he is doing it very well.
Ibbeb: Mr. Vincent, the Far Eastern subcom-
?jj*B of which you are chairniun does niost^of
of drafting the policy directives, as I
id it.
VdjCENT: That's ri;;lit. Mr. Fi>!ier. We devote
entire energies to Far Eastern jHilicy and
twice a week to make decisions on important
fgtitXB. We then submit our recoinniendations
|9<iietop Coordinating Committee, with which
Geoenl Hilldring is associated and with which
Oiptain Denni.son and I sit in an advisory ca-
ptcity.
HnxDRiNo: The key members of the Coordi-
jiting Committee, repres<»nting the Secretaries of
(h* three departments, are .\.-.-;istant Secretary of
SUte James Dunn, the Assistant Secret.iry of
Vu, John J. McCloy. and tiie Under Secretary
^of the Navy, Artemus dates.
: Mr. Vincent. Fd like to know wliether
is a — shall we say — strained relationshii)
Between General MacArthur and the State De-
partment
Vincent: No, there is absolutely no basis for
such reports, Jlr. Fisher. There is, as « matter of
ftict, no direct relationshii) iK-twceii (leiieral Mac-
-Aitiinr and tlie State Department. I <an assure
jonthat General MacAnhur is n-ceiving our sup-
port and assistance in carrying out a very dillicult
' wsignment.
Fisher: There liave been some reports that he
MS not welcomed civilian advisers.
I Vihcent: That also is untrue. A number of
I anlian Far Eastern spe<ialists have already been
i *■* out to General MacAithur's li(ad(iuarters.
[ »nd he has welcomed them most cordially. We're
\ ^TJug right now to recruit people wiili specialized
j "'owledge of Japan's economy, finances, and .-o on.
"eexpect to send more and more smh people nut.
'ISHER: As a Navy reproeiitative on the Far
^•stern subcommittee. Captain Deinii>on, I .sup-
pose you've had a good opportunity to evaluate the
Otjtttion. Some people don't realize that the
: *jy Department has a direct interest in, and
'^in,thepolicy for Japan.
' ^KNisox: We have a vital interest in it. The
2 million men and tlie .",0(M) ves-els of the United
S39
States Xavy in the Pacific and the vital role they
played in the defeat of ifapan are a nieasure of that
interest. .lapan is an island country separated
from us by 4,500 miles of ocean. Its continued
control will always present a naval problem.
Fisiilr: What part is the Navy playing now in
that control?
Den.nison: Our ships are patrolling the coasts
of Japan today, and in this duty they support
the occupation force. Navy officers and men will
aid General MacArthur ashore, in censorship
(radio, telephone, and cable) and in civil-affairs
administration. The Navy is in charge of mili-
tary governiiient in the former Japanese man-
dates in the Pacific and also in the Ryukyu
Islands.
P'isiikr: Does that include Okinawa?
Dexxisox: Yes.
Fisher: That's not generally known, is it?
Dexxisox: Xo, I believe not. I'd like to add —
iK'sides these immediate duties the United States
Navy will have to exercise potential control over
Japan long after our troops are withdrawn.
Fisher: Now, I'd like to ask you, Mr. Vincent,
as chairman of the subcommittee which drafts
our (xcupation policy, can you give us a statement
of our over-all objectives?
Vixcext: Our inmiediate objective is to de-
mobilize the Japanese armed forces and demili-
tarize Japa!i. Our long-range objective is to
dt'm'H-ratizc Japan — to encourage democratic self-
government. We must make sure that Japan will
not again become a menace to tlie peace and se-
curity of the world.
Fisher: And how long do you think that will
take?
Vixc-ext: The length of occupation will de-
pend upon the degree to which the Japana>;e co-
operate with us. I can tell you this: The occu-
pation will continue until demobilization and de-
militarization are completed. And it will con-
tinue until there is assurance that Japan is well
along the path of liberal reform. Its form of gov-
ernment will not necessarih' be patterned e.xactly
after American democracy, but it must be respon-
sible self-government, stripped of all militaristic
tendencies.
Fisher: General Hilldring, how long do you
think we'll have to occupy Japan?
IIiLLDRixo: To answer that question, Mr.
Fi>lier. would require a degree of clairvoyance I
540
don't IKW.SOS.S. I ju-st don't know how long it will
tiike to a(t()iiij)lisli our aims. We inunf. stay in
Japan, with whatcvt-r forces may be required,
until we have accoinplislied the objectives Mr.
Vint-ent has mentioned.
Fisher: To what extent will our Allies, suih
as Ciiina and Great Britain and the Soviet Union,
take part in fonnulutin;? occupation policy?
HiuJ)RiNo: Tliat is not a question which sol-
diei-s should decide. It involves matters of high
jM.licy on wlu( h tlie .Vriiiy must look to the State
Department. I believe Mr. Vincent should an-
swer that question.
FtsHER: Weil. Mr. Vincent, how about it?
Vince.nt: Inuiiediately followinjrtheJapane.se
.surrender, the United States propo.scd the forma-
tion of a Far Ea.-tern Advisory Commission as
a means of rejrul;uiziii<i and making orderly the
methods of consulting with other countries inter-
ested in the occupation of Japan. And Secretary
of State Hyrncs announced recently that a Com-
mission would i)e established for the fonnulation
of jiolicies for the control of Japan.' In addi-
tion to the four principal powers in the Far East,
a number of other powers are to be invited to
liave membershi[) on the Conuuission.
FisjiEii: Coming back to our first objective —
(ieneral Hillhing. what about the demobilization
of the Jajjancse Army? How fur has it gone?
HiiXDRiNo: Di>armament of the Jajjanese
forces in th.' four main islands is virtually com-
plete. Mr. Fisher. Demobilization in the sense
of returning disarmed soldiers to their homes is
well under way. but bombcHl-(jut transport sys-
tems and food and housing problems are serious
delaying factors.
Fisher: .Vnd what's being done about the Jap-
anese troops in other parts of Asia?
Hh.ij)rino: It may take a long time for them
all to get home. Demands on shipping are ur-
gent, and the retinii of our own troojjs is the
highest priority. Relief must also be carried to
the countries we have liberated; the return of
Japanese soldiers to their homes must take its
I)roper place.
Fisher: Captain D.imison. how long do you
think it will take to clean up the Japanese forces
stuttered through A>ia^
1)e.v.m.-o.\: It may take several years. Mr.
Fisher. After ail. there are close to three million
' .See p. 345.
DEPARTMENT OF STATE BVlLgf^
Japanese scattered around eastern Asia and tu
Pacific, and for the most part it will be
the Japanese themselves to ship them home"^ **
Fisher: And what is being done with the j
anese Navy f "•*■
Dknniso.v: The Japanese Navy has been ri.
most completely era.sed. There's nothing left .i
It e.xcept a few battered hulks and these miiZ
well be destroyed. ^*^
Fisher: Now, there are some other, less ob.
vious pai-ts of the military system— the polic,
system, for exami)le. The Japanese secret poli«
have been persecuting liberal, anti-militarist p«v
pie for many years. Mr. Vincent, what wiU U
done about that?
Vincent: That vicious sy.stem will be abol-
ished. Mr. Fi>her. Not only the top chiefs but
the whole oigunization must go. That's the only
way to break its hold on the Japanese peopir
A civilian p.)lice force such as we have in Amtr-
ica will have to be substituted for it.
Dennlson : We've got to make sure that what
they have is a police force, and not an army intbt
gui.se of police.
Hiij.imi.Ni;: As a matter of fact, Mr. Fisher,
General MacArlliur has already abolished thf
Kempui and political police.
FisHEit: It .^ems to me that a key question
in this whole matter, Mr. Vincent, is the relation
ship of our (K-cupation forces to the present Jap»
nese (iovernment, from the Emperor on dowiL
Vince.nt: Well, one of General MacArthur's
tasks is to bring about changes in the Constitution
of Japan. Those provisions in the Constitution
which would hamper the establishment in Japan
of a g(n-erninent which is responsible to the peopU-
of Japan must be removed.
Fisher: Isn't the position of the Emperor •
barrier to responsible government i
Vincent: The institution of the Emperor— if
the Japanese do not choose to get rid of it— will
have to be radically modified. Mr. Fisher.
Dennis.jn: The Emperor's authority is sub-
ject to General Mac-Vrthur and will not be IXT-
mitted to stand as a barrier to responsible g"»'-
eriiineiit. Directives sent to General MacArth"''
establish that point.
Fisiiek: Can you give us the substance of that
directive that covers that point. Captain
nison?
Dennison: I can quote part of it to you.
message to General MacArthur said :
Den-
The
i|j^ite authority of the Emperor ixiul tho Jnpa-
^QqTenunent to ruh' tl\t' stsitc is stilxirdiimte
M^ t9 Supreme ("omnmndcr for tlio Ailiwl
JmtKt ^ou will exorcise your iiiilliority as you
jMiipcaper to carry out your mission. Our rela-
Ij^ witii Japan do not rest on a contract ual
ujk bat on an unconditional surrender. Since
•HT snthohty is supreme, you will not entertain
grtqafiBtion on the part of the Japanese as to its
Wile-
■^ Control of Japan shall ho exercised through
lltJapanese Government to tiie extent that such
■ arrangement produces satisfactory results.
tbisdoes not prejudice your rij.'ht to act directly
jfttqnired. You may enforce the onlers issued
JHppa by the employmetit of such measures as
JOB deem necessary, including the use of force.'' '
Att^ th* directive under which General Mac-
lithttr is operating.
f Fisker: That's clear entiU'rh. . . . Now,
ftoeral Hilldring, you have to do with our oc-
apation policy in both Cicrnuiny and Ja[)an.
What is the main difference Let w een them ?
BmjsiNo: Our purposes in Germany and Ja-
r pan are not very different. Reduced to their
amplest terms, they are to prevejit either nation
from again breaking the [wace of the world. The
difference is largely in the mechanism of control
to achieve that purpose. In Japan there still
•lists a national Government, which we are utiliz-
■g. In Germany there is no central government,
•nd OBT controls must, in geiieial, be imposed
• : vFBhkh: Are there advantages from your point
«»iBW in the existence of the national Govern-
■*ttt in Japan ?
HniDKiKo: The advantages which are gained
wWugh the utilization of the national Govern-
■•''t of Japan are enormous. If there were no
••panese Government available for our use, we
"Wud have to operate directly the whole compli-
''ted machine required for the adminiKtration
.'country of "0 million people. These people
^'■eriroin us in language, customs, and attitudes.
J cleaning up and using the Japanese Govern-
""Dt machinery as a tool, wo are saving our time
onr manpower and our resources. In other
™s, we are requiring the Japanese to do their
^^'"*"» of Sept. 30. 1!M5. p. 480.
541
own houseclcaning, but we are providing the speci-
fications.
Fishkr: But some [X'ople argue, General, that
by utilizing the Japanese CJovernment we are com-
mitting ourselves to support it. If that's the cose,
wouldn't this interfere with our policy of remov-
ing from j)ublic oflico and from industry persons
who wore responsible for Japan's aggression?
IIii.i.nRiNo: Not at all. We're not committing
ourselves to support any Japanese groups or indi-
viduals, either in goveruTnent or in industry. If
our policy requires removal of any person from
government or indus-fry, he will be removed. The
desires of the Ja[)aneso Government in this respect
are immaterial. Removals are being made daily
by (Jenoral MacArthur.
DKN'Ni.'iov : Our policy is to itue the existing form
of government in Japan, not to support it. It's
largely a matter of timing. General MacArthur
has had to feel out the situation.
FisiiKK : Would you .say. Captain Dennison, that
when our forces tiist went to Japan they were
sitting on a keg of dynamite?
Dknmsox: In a sense, yes. But our general
policies were set before General MacArthur landed
a single man. As he has brought in troops, he has
correspondingly tightened his controls in order to
carry out those policies.
Fishkr: He certainly has. Captain. But what
about the Japanese politicians, Mr. Vincent?
Some of them look pretty guilty to me.
Vixcent: Well, the Higa.shi-Kuni cabinet re-
signed this week. The report today that Shide-
hara has become Premier is encouraging. It's too
early to predict exactly what the next one will be
like, but we have every reason to believe it will
be an improvement over the last one. If any Jap-
anese ofKcial is found by General MacArthur to
be imfit to hold oflice, he will go out.
Fisher: Will any of the members of the Higa-
shi-Kuni cabinet be tried as war criminals?
ViNCT.>sfr: We can't talk about individuals here,
for obvious reasons. But we can say this: All
people who are charged by appropriate agencies
with iK'ing war criminals will be arrested and
tried. Cabinet status will be no protection.
Hilldring : Wo are con.stantly adding to the list
f)f war criminals, and they are being arrested every
day. The same standards which Justice Jackson
is applying in Germany are being used in Japan.
Dennison : Our policy is to catch the war crim-
inals and make sure that they are punished — not to
542
talk about who is a war criminal and who is not.
Fisher: All right, Cnjitain Doiinison, loaviiij^
names out of the disi'ussion, let nio ask you this:
Will we consider menibers of the Znibatsu — the big
industrialists — who have loopcrati'd with the mil-
itarists ami profited by tiie war, among the guilty <
Dennison: We'll follow the same basic policy as
in (Jermany. You will recall that sojne industrial-
ists there have lieen listed as war criminals.
Fisher: General Hillilring, what are we going
to do about the big in<luslrialists who liave con-
tributed so much to Japan's war-making power?
HiUJ)RiNo: Fnder our policy, all Fascists and
jingos — militarises — will be removed, not oidy
from public nllice but from positions of trii>t in
iiidustry and education as well. As a matter of
national policy, we are going to destroy Japan's
war-making power. That means the big com-
bines must l)e broken up. There's no other way
to accomplish it.
Fisher: What do you say about the big indus-
trialists. Mr. Vincent?
Vincent: Two things. We have every intention
of proceeding against those members of the Zai-
batsu who are considered .is war criminals. And,
as General Hilldring has just said, we intend to
break the hold those large family combines have
over the economy of Japan — combines such as
Mitsui, Mitsubishi, and Sumitomo, to name the
most prominent.
Fisher: And the financial combines as well?
Vincent: Yes. General MacArthur. as you'vs
probably heani. lias already taken .steps to break
the power of the big financial combines and strip
them of their lo^)t.
Fisiikr: Well, there's no feeling here of "Don't
let's be beastly Ut the Zaibatsu". Cai)tain Denni-
son. do you want to make it unanimous?
Dexnison: There's no disagreement on this
point in our committee, Mr. Fisher. There has
been a lot of premature criticism. But the dis-
covery and arrest of all war criminals caniiot !)<»
accon\plished in the first few days of iK'cupation.
Our policy is fixed and definite. Anyone in Japan
who brought about this war, whether he is of the
Zailjatsu, or anyone else, is going to be arrested
and tried as a war criminal. I
Fisher: General Hilldring, one critic has
charged that our policy in Germany has been to
send .Vmericans over to help rebuild the big trusts,
like I. G. Farbenindustrie. He expressed the fear
DEPARTMENT OF STATE B[;UETH»
that a similar policy would be followed in Jap»n
What about that?
Hii.ioiiiNo: 1 can say flatly, Mr. Fisher tW
we are not rebuilding the big trusts in GernunT
we /iiirr not rebuilt them, and we iire not going to
rebuild them in tl>e future. The same policy will
pi-evail in Japan. Moreover, not only will we not
nrirr these big trusts but wo do not propose to
permit tlie (Jeriuans or the Japanese to do so.
Fisiikr: And that applies to all industries thit
(iiidd bo used for war purposes?
Hii.i.iiKiNd : Tlie Japanese will be prohibittti
from prudni'iiig, developing, or maintaining all
fdiins of arms, amnumitions, or implements of
war, as well as naval vessels anil aircraft. A majnr
portion of this problem will involve the reduction
or elimiiuition of certain Japanese industries which
are keys to a modern war economy. These indus-
tries include production of iron and steel, as well
as ciiemicals, machine tools, electrical equipment
and automotive equipment.
Vin'ci'.nt: This, of course, implies a major re-
orientation of the Japanese economy, which for
years has been geared to the requirements of total
war. Under our close super\ision, the Japanese
will have to redirect their Inmian and natural re-
sources to the ends of peaceful living.
Fisher: Mr. Vincent, won't this create a lot of
unemployment? Is anything being done to com-
bat unemployment — among the millions of de-
mobilized .soldiers, for example?
Vincent: Our policy is to place responsibility
on the Japanese for solving their economic prob-
lems. They should put emphasis on farming and
fishing and the prodncti<m of consumer good.«.
They also have plenty of reconstruction work to
<lo in every city. We have no intention of inter-
fering with any attempts by the Japanese to help
themselves along these lines. In fact, we'll gi"
them all the encouragement we can.
Fisher: What do you think they'll do with th«
woikers who are thrown out of heavy war inuiw-
t'-.V?
Vincknt: They'll have to find jobs in the h?'"
industries Japan is allowed to retain. The genert
objective of this revamping of Japan's industri
economy will be to turn that economy in on its*"
so that the Japanese will produce more and nu>
for their domestic market. t^
FisiHR : Theyll have to have some foreign tr«
of course to keep going.
jOBSR r, 1945
v^foart: Of course, but not the unlioalthful
^tbOT had bcforo tlu> wur. A larj;e portioii of
njn'a pre-war foroipii tra<le assets were used
tinilitary preparations, and not to support her
jrnal economv; after all, scrap-iron iind oil
pments didn't help tlie .Japanese people. You
Ji reduce Japan's foreign trade far below th^
t^ww level and still have a standard of living
ipsrable to what they liad b«*fore the war.
tjSBOL: There have been sonie dire predictions
Hit the food situation over thei-e. and even some
(irtsof rice rioLs. (leneral Ililldring, what will
policy be on food ?
tiXDKrNa: General MacArthur has notified
War Department that he does not expect to
(vide any supplies for the enemy population in
I this winter. This statement is in harmony
hthe policy we have followed in other (x-cupied
my areas. That is to say. we will import sup-
is for enemy populations only where essential
uroid disease epidemics and serious unrest that
^t jeopardize our ability to carry out the pur-
es of the occupation. The Japanese will have
»row their own food or provide it from impoits.
i!l8HER: They'll need some ships to do that.
Dtain Dennison. are we j:nm^ to allow Japan
■ebuild her merchant marine?
)EK2a80N: We've ^ot to allow her to rebuild
eacetime economy — that's tin- price of disarm-
her. That means trade. But the question of
ose ships shall carry this trade hasn't bien de-
ed yet. We know we nuist control Japan's
ports, in order to keep her from rearming — and
I best way to do that niay l>e to carry a good
rtof her trade on Allij-d sbi|)s.
Pisheh: Then, Captain Dennison, what aliout
pstn's civil aviation? A lot of people were quite
cprised recently when General MacArthur al-
»ed some Japanese transport planes to resume
wations.
Deitnison: That will not lie continued. Mr.
Bher. Under the terms of General MacArthur's
fective in this field, no civil aviation will be
nnitted in Japan.
Vincent: Such aviation as Gcin-ral MacArthur
d allow was to meet a specific emergency. It
>U not be continued beyond that cinergency.
Fisher: In this revamping of .lapan's economy,
*• Vincent, will the hold of the big landholders
'broken, as you have said the power of the big
!d>i8trialistawillbe?
543
Vincknt: F'.ncouragement will In? given to any
movement to reorganize agriculture on a more
democratic economic basis. Our jxdicy favors a
wider distribution of land, income, and ownership
of the means of production and trade. Hut those
are things a democratic Japanese government
shoidd do for itself — and will, we exjiect.
Fisiikr: And the labor unions { What about
them i
Vincent: We'll encourage the development of
trade-unionism. Mi'. Fisher, because that's an es-
seiUial part of democracy.
KisiiKii: I understand a lot of the former union
leaders and poiitiiid libciuls are still in jail.
Wliat has l)een done to get them out?
Vincent: General Mac.Vrthur has already or-
dered the release of sill persons impriscmed for
"ilangerous thoughts'' or for their political or re-
ligious beliefs.
Fisher : Tliut ought to provide some new lead-
ership for the flemocratic forces in Japan. Cap-
tain Dennison, to what extent are we going to help
those forces?
Den.sisox: Our policy is one of definitely en-
couraging liberal tendencies among the Japanese.
We'll give them every uppoHunity to draw up and
to adopt a constructive reform [irogram.
Vincent: All democratic parties will be encour-
age<l. They will be assured the rights of free as-
sembly and free public discussion. The occupa-
tion authoiities are to place no obstruction in the
way of the organization of jjolitical parties. The
Japanese Government has already been ordered to
remove all barriers to freedom of religion, of
thought, and of the press.
FisHioi?: I take all this to mean that the demo-
cratic and anti-militarist groups will be allowed
fi-ee rein. But, Mr. Vincent, suppose some nation-
alistic group tried to interfere with them, using
gangster methods?
Vincent : It would be suppressed. One of Gen-
eral Mac.Vrthur's policy guides calls for "the en-
couragement and support of liberal tendencies in
Japan''. It also says that "changes in the direction
of modifying authoritarian tendencies of the gov-
ernment are to be permitted and favored".
Fisher: And if the democratic parties should
find it necessary to use force to attain their ob-
jectives?
Vincent: In that event, the Supreme Com-
mander is to intervene only where necessary to pro-
tect our own occupation forces. This implies that
544
to achieve liberal or ilcmocTiitic political ends the
Jiipaneso niny ''ven use force.
Denniso.v: Wo are not interested in upholding
the utatus </«/> in Jnpiin, as such. I think we should
make that doubly clear.
Fisheb: One of the most interestinp develop-
ments in i-e<'ent \Te<>ks hnslwu tlio apparent revival
of lil)ernl and radical sentimei\t in Japan. I un-
derstand that tl>e loailcrs of several former labor
and socialist political groups arc (.'ettinK tojr.'tlicr
in one party — a Socialist jiarty. Wliat stand will
we take on tliat. General Ililldrin^?
Hit.i.DRiN«) : If the development pmves to he <:en-
uine, we will t;ive it every encounijjement. in line
with our policy of favoring all democratic tend-
encies in Japan. And we'll protect all ilemocratic
groups against attack by military fanatics.
Fisher: You intend to do anything that's nec-
essary, then, to open the way for the democratic
forces.
HiixnRiNo: We're prepared to support the de-
velopment of democratic government even though
some temporuiy disorder may result — so long as
our troops anil our over-all objectives are not en-
ilangered.
Fisher: I have one more question of key im-
portance, Mr. Vincent. What will be done aVxiut
Shintoism. especially that brancli of it that makes
a religion of nationalism and which is called
"^National Shinto"?
Vincknt: Shintoism, in so far as it is a religion
of individual Japanese, is not to be interfered
with. Shintoism, however, as a state-directed re-
ligion is to Ije done away with. People will not b«'
ta.xed to sui)port National Shinto, and there will
be no place for Shintoism in the .schools.
Fisher: That's tlie clearest statement I have
heard on S'.iinto.
Vincent: Our policy on this goes beyond
Shinto, Mr. Fisher. The dissemination of Japa-
nese militaristic and ultra-nationalistic ideology
in any form will be completely suppressed.
Fisiik.k: And what about the clean-up of the
Japanese .mIiooI system? That will be quite a
chore, Mr. Vincent.
Vincent : Yes, but the Jajianes*- are cooix-rating
with us in cleaning up their schools. We will see
to it that all teachers with extreme nationalistic
leanings are removed. The primary schools are
being reopened as fast as possible.
I)enni8<)N: That's where the real change nuist
DEn4RT.ME\T OF STATE BVLLtTm
stem from — the school system. The younger gm.
eration must be taught to unilerstaiid democract
That goes for the older generation as well.
Fisher: And that may take a very long tin*
Captain Dennison.
Dennison: How long depends on how f ast »%
are able to put our directives ii\to etTect. It nuj
take less time than you think, if we reach thepeop^
through all channels — .school texts, press, radio,
and so on.
FisHEn: What's the basis for your optimism.
Chaplain i
Dfnnisox: Well, Mr. Fisher, I've had oppor-
tunity to observe a gcxnl many Japanese outsid*
of .Japan. Take foi- example the Japanese-Amer-
icans in Hawaii. They used to send their children
to Japan at the age of about 7, 1 think, to spend «
year with their grandi)arents. The contrast be-
twi-en the life they founil in Japan and the life ther
had in Hawaii was so clear that the great majoritT
ivturned to H:iwaii completely loyal to the UniteJ
."■^tates. They proved their loyally there during th«
war.
Fisiren: What accounts for that loyalty?
Dennison : Sinqjly that they like the American
way of life better. At seven, it's the ice cream, th«
movies, the funny papers they like, but as they prt
ohler they learn to understand and appreciate thf
more important things as well. I believe the peo-
ple in Japan will like our ways too. I think one*
they have a taste of them— of real civil liberties-
they'll never want to go hack to their old ways.
Hii,iJ)i!iNo: Tin inclined to agree, Captain. -^
a matter of fact, it's (luite pos.-,il)le we may find
Japan less of a problem than Germany, as f»r
as retraining the people for democracy is con-
cerned. The Nazis are hard nuts to crack— they »•
been propagandized so well, trained so well. Tl»
Japanese are indoctrinated with one basic ide«:
obedience. That makes it easier to deal with them.
Vincent : Or it may make it more dilEcult, Gen-
eral. It depends on how you look at it. 1 hat trai
of obedience has got to be replaced by some ini-
tiative, if there's to be a real, working democracj
in Ja[)an.
Hii.Li.Kixo: I don't mean to say it will be easT-
It won't be done overnight. And we'll have
stav on the job until we're sure the job is done.
FisHKit: Mr. Vincent, what can you te^l "^
about the attitudes of the Japanese under the
ciipation? w^,
Vincent: The press has told you a lot, n^'
Ic&n say here that recent indications are
4* Japanese pt'opie are resi^inoil to defeat,
]p^oU8 about tlie treatment to be j^iven them.
evidence of a willingness to cooperate
occupying forces. But, because of the
f««iod of military iloniination they've under-
oaly time and encouragement will bring
the emergence of sound democratic lead^r-
We shouldn't try to "iuistle the East", or
General MacArtliur. Ucforin in the social,
ic, and political struct iire nmst bo a gradual
wisely initiated and carefully fostered.
!b: Well, thank you, Mr. Vincent, and
to you. General Hilldring and Captain
>n, for a clear and i iiterest ing int erpretation
four occupation policy for Japan. You've made
wiy plain that ours is a tough, realistic policy —
tluU;'s aimed at giving no encouragement to
j^io^Krialists and every possible encouragement
I) to pro-democratic forces which are now begin-
[iflgto reappear in Japan.
i- Assottncer: That was Sterling Fisher, Direc-
i%f of the NBC University of the Air. He has
■ten interviewing Mr. Jolin Carter Vincent, Di-
ijfttorof the Office of Far Eastern Affairs of the
fttate Departmeni ; Maj. (ien. John H. Hilldring,
S4S
Director of Civil Affairs, War Department; and
Capt. R. L. Deimison, Navy representative on the
Far Eastern Subcommittee of the State, War,
Navy Coordinating Conunittee. The discussion
was adapted for radio by Selden Menefee. This
was the thirty-fourth of a series of broadcasts on
"Our Foreign Policy," presented as a public serv-
ice by the NBC University of the Air. You can
obtain printed copies of these broadcasts at Ifl
cents each in coin. If you would like to receive
copies of the broadcasts, send $1 to cover the costs
of printing and mailing. Special rates are avail-
able for large orders. Address your orders to the
NBC University of the Air, Radio City, New York
liO, New York. NBC also invites your ([ucstions
and comments. Next week we e.\i)ect to present a
special State Department program on our Latin
-Vmerican policy, with reference to Argentina and
the postponement of the inter-American confer-
ence at Rio de Janeiro. Our guests are to be Assis-
tant Secretary of State Spruille Braden, who has
just returned fmm Buenos Aires, and Mr. Ellis O.
Biiggs, Director of the Ollice of American Repub-
lic Affairs. Listen in next week at the same time
for this important program. . . . Kennedy Liul-
lum speaking from Washington, D.C.
[Statement on the Establishment of a Far Eastern Commission
To Formulate Policies for the Carrying Out of the
Japanese Surrender Terms'
[tBdtaied to the pr»sii Octol-'r 1 ]
\ Mr. James F. Byrne-s, the Secretary of State of
^t^uited States, announced that he has received
;fromMr. Ernest Bevin, the .Secretary of State for
I'oteign Affairs of Great Britain, the consent of
«e British Government to the proposal made by
M United States Government on August 22 for
[Hie establishment of a Far Eastern Commission to
^'nnalate policies for the carrying out of the
f»»panese surrender terms.
, The Commission will al.so be asked to consider
f*^«ther a Control Council should be established
l^uif so the powers which should be vested in it.
j The Soviet Union and China had already given
[*f>te consent to the establishment of the Commis-
i«on. France, the Philippines, Australia, New
Ifwand, Canada, and the Netherlands will be
.«vited to become members of the Commission.
The fii-st meeting of the Commission will be con-
vened in Washington in the near future.
In agreeing to the establishment of the Com-
mission Mr. Bevin stated it was his understanding
that the Commission could determine whether it
sh(juld meet in Washington or Tokyo. Secretary
Byrnes confirmed Mr. Bevin's undei"standing and
said that the United States representative would
be instructed to vote that the Commission hold
meetings in Tokyo.
Mr. Bevin also requested that India be invited
to become a member of the Commission. Mr.
Byrnes said the United States would agree to the
request and that he would submit the request to
the Governments of the Soviet Union and China
for their approval.
' Issued by the Secretary of State 1q London on Sept. 29,
1945.
S46
DEPARTMENT OF STATE BVUg^l
Report on UNRRA Shipments to Liberated Areas
he
r
I
(RrlraM-d to th» prm by UNRRA October 71
In a Import submit tod to tlio C'oiiunittee on Sup-
plies of the Uniti'il Nations Udii-f and Rciiubilita-
tion Adniinistintion, HciIkmI II. L«'lunun, Director
General, stated that I'NKRA shipments to the lib-
erated areas had passed the 2,0(iO,(X)0-ton mark.
"The fiL'iues as of the end of September are
2.079,<MHI long tons of relief supplies shipped",
said Mr. U-hman. "TJicir value was $5;iO,000,000."
While expressing gratification that shipments
are proce-.ling at an accelerated rate, the Director
General sitated that lack of funds was now the chief
threat to the success of UNKRA's program.
"The end of hostilities", he reported, "has re-
sulted in a great inii)rovement in the supply situa-
tion. Shipping, wiiich in the i)ast was one of the
most serious bottlenecks in bringing relief to the
liberated areas, has eased up to such an extent that
we do not .mticipate any serious problems in ob-
taining adequate cargo space. Our main problem
is aile<iuate financial resources to take advantage
of the improved supply an.l shipping conditions.
'■The greatly increased activities during the
last few montLs have brought us to a point where
imnu'diate appropriation of the funds already au-
thorized \>\ the Congress of the United States
has become a matter of great urgency. The
United States has to date appropriated $800,000,-
000 for the woik of UNRRA. Of this amount
$80,000,000 has L>een used and $13,000,000 is in the
process of being used for the procurement of
.s<-arce supi>lies not available in the United States.
An additional $47,000,000 has been used for trans-
port services, for other relief and rehabilitation
services, and for administrative expenses. The
remaining $c,C0.O0().0OO has been or is being used
for the procurement of relief and rehabilitation
supplies from the Uiiited .States. Of this last
amount, $270,000,000 worth of sui)plies had been
shipped by the end of September. Shipments
programmed for October and November from the
United States represent an(jther $270,000,000.
All of this last amount is already under procure-
ment. The remaining $120,000,000 is largejj
under procurement to maintain a sufficient pip*.
line of supplies, many of which have productiue
cycles ranging from 4 to 10 months.
"Every day of delay in making addition*)
funds available to us increases the danger ui
creating a break in our flow of supplies to th'
liberated areas during the most critical perioi
of the winter months. We are already humi;
capi^ed in our forward procurements. However,
this committee will be glad to know that thr
United States congressional hearings on the af
pro[)riation of the remainder of the funds alremi>
authorized will, I am advised, commence shoitU '
Discussing UNRRA's policy of making full ii>«
of Army surpluses which can be fitted into its n-
lief program, the Director General said:
"With the end of hostilities UNRRA took im
mediate steps to obtain as much as possible of tli'
needed supplies from the armies, whose stock>
suddenly became surplus to a considerable extent.
The total volume of supplies procured from sur
pluses owned by the United States Govermnoiii
amounted to more than $:);i,U(M).un(i by the end "'
August. This figure includes i:21,G00,000 worth
of clothing v\ Inch had been procured from Uniti"!
States Army cutbacks after the end of hostilitiw
in Europe and immetliately programmed for
shipment so as to permit distribution in the n
erated countries before winter. Most of this sur-
plus property came from the continental Unit'^
States.
"A joint U.S. Government - UNRRA mission
went to Europe at the l)eginning of September
procure $1.-*0.000,000 worth of supplies from
United States Army surpluses ovei-scas. UNBB
had prepared a list of requirements with ^^^ "
timated value of nearly $200,000,000. These lis«-^
were distributed by the military authorities ^
Army depots in p:urope. They were sci*^"^^
against actual availabilities, and 75 perce ^^
these requirements have been indicated as a
able and $150,0<JO,000 have been set aside and
OCTOBER 7, 194S
tatively allocated by major commodity groups
as follows:
Industrial Rehabilitation
(including trucks) . . $ 83,000,000
Agricultural Rehabilita-
tion . 27,000,000
Clothing, Textiles and
Footwear 10, 000, 000
Medical Supplies and
Equipment 8, 000, 000
Food 2-2,000,000
$150, 000, 000
"The Administration hopes to obtain from the
United States Army upward of 40,000 trucks. It
has received reports that the delivery of the Army
surplus trucks has already started frona Italy to
Greece and Yugoslavia and is to begin from
northwestern Europe to Poland and Czechoslo-
vakia in the first part of October. Individual
commodities included on the list of UMRRA re-
quirements from Army surpluses includes also
canned meats, evaporated milk, lard, oleomarga-
rine. Army rations, and soaps, as well as blankets,
comforters, and footwear, and large stores of
medical supplies.
"Under arrangements with the Canadian Gov-
ernment the Canadian military authorities are
delivering, out of Canadian Army surpluses,
trucks to Poland and Czechoslovakia at the rate
of 200 trucks per day; the total number of Cana-
dian surplus trucks which will be made available
to UNRRA is expected to exceed 5,000. Other
Canadian surplus property, including clothing, is
also under procurement. Supplies from British
military surpluses have also begun to flow to
UNRRA, consisting thus far mainly of trucks,
mules, and medical supplies. Much of our pro-
curement of clothing, food, and medical supplies
in Australia and New Zealand also has war sur-
pluses as its source.
"In order to accelerate the delivery of pro-
grammed supplies to China when additional funds
become available, UNRRA is also undertaking
surveys of available U.S. military surpluses in the
Far East and is conducting negotiations with mili-
tary authorities looking forward to their pur-
chase."
Mr. Lehman reported that some of the coun-
tries which until recently had been occupied by
the enemy and which are being helped by UNRRA
547
are now contributing supplies to other liberated
areas.
"At the Third Session of the Council in London
a representative of the Czechoslovak Government
informed the Council that his Government was
preparing a list of supplies which Czechoslovakia
will have in surplus and will be able to hand over
to UNRRA. One of the items will be sugar. The
Italian Government has agreed to make immedi-
ately available 10,000 tons of salt as a contribution
to UNRRA and destined for Yugoslavia. UNRRA
is carrying on negotiations with the Government
of Norway which may result in a contribution of
some surpluses which Norway may be able to spare
for the work of UNRRA. We hope that these
contributions represent only the beginning of what
the liberated countries may be able to do to assist
UNRRA."
Commenting on the distribution of the ship-
ment of the 2,079,000 tons of supplies through
September (see tables I, II, III, and IV), ^ Mr.
Lehman said :
"You will note that, although we have succeeded
in improving the situation very considerably in
some receiving countries, other countries continue
to constitute a problem. Thus, while shipments
from Yugoslavia in September reached 134,000
tons compared with 64,000 tons in July, shipments
to Czechoslovakia and Poland amounted to little
over 40,000 tons each, due primarily to lack of
sufficient port reception capacity."
The following table shows UNRRA shipments
to the liberated areas through September.
ESTIMATED SHIPMENT OF UNRRA SUPPLIES TO
LIBERATED AREAS BY COUNTRY OF DESTINA-
TION THROUGH SEPTEMBER, 1945
( Basis of Vessels Cleared )
Country of Destination
Albania
Czechoslovakia
Greece
Italy
Poland
Yugoslavia
Other UNRRA Operations
China
Total
Gross Long Tons Dollar Value
25, 400
158, 400
1, 168, 900
102, 200
163, 300
455, 400
5,200
200
2, 079, 000
$9, 000, 000
73, 900, 000
189, 800, 000
21, 000, 000
89, 900, 000
143, 600, 000
2, 700, 000
600, 000
$530, 500, 000
' Not printed.
548
DEPARTMENT OF STATE BULLETIN
Discussions on Draft Constitution for
Educational and Cultural Organization
GROUP MEETING AT THE DEPARTMENT OF STATE
[Released to the press October 1]
The draft constitution of the proposed Educa-
tional and Cultural Organization of the United
Nations was discussed at a conference held at the
Department of State on September 24.^ The meet-
ing was one of a series being held throughout the
country for the purpose of informing representa-
tives of interested organizations about the pro-
posals and for obtaining suggestions for changes in
the draft constitution. Similar meetings have been
held in New York, San Francisco, Chicago, and
Denver.
Suggestions and recommendations emanating
from these meetings will be transmitted to the
United States Delegation to the United Nations
conference which is to be held in London beginning
November 1 for final drafting of the constitution.
Representatives of some 50 national organizations
accepted the invitation to attend the meeting in
Washington, where discussion centered around
such questions as:
Should membership in the organization be
limited to members of the United Nations?
Is the statement of functions and purposes ade-
quate as contained in the draft constitution?
Are its provisions adequate to establish mutually
satisfactory relations between the organization and
private international organizations?
How should the relations between this organiza-
tion and the United Nations be defined in the
agreement to be concluded after the organization
is established ?
REMARKS BY ASSISTANT SECRETARY BENTON
[Released to the press October 1]
I have been trying to get rid of that term educa-
tional and cultural affairs, but you can see how it
haunts me. It is impossible to get terminology that
properly describes some of these areas in which I
am interested. The announcement of Acting
Secretary Acheson dubbed me with a Jiew phrase
as Asistant Secretary in charge of public affairs.
That seems to take in ahnost anything.
It gives me a lot of satisfaction to welcome you to
this working conference of citizens and the State
Department. Today's meeting is significant and
it seems to me a practical attempt to further the
democratic processes in foreign affairs and in the
making of foreign policy through meetings of the
State Department with those most competent to
advise it.
' For text of draft constitution see Btjixetin of Aug. 5,
194.J, p. 168.
' Made at the opening of tlie Washington meeting, at
which Mr. Benton presided.
I inquired last week about the history of this
idea of consultants for the State Department, and
I find that it began in a very small way as far
back as 193-i with the creation of a committee
called the Committee for Reciprocity Information.
Through this committee the public attempted to
advise the State Department on questions on the
Trade Agreements Act. We — all of us — know
more about the continuation of this idea last
winter in the form of the national program of
discussion and consultation centering around the
Dumbarton Oaks Proposals, and of course that
program culminated very logically in the consult-
ant operation at the San Francisco conference.
It is my hope in my area of public affairs greatly
to expand on these rather humble beginnings in
the coming months. Good ideas are seldom if
ever, however, new ideas; someone's always had
them before.
The test of any good idea is the way in which it
OCTOBER 7, 1945
549
is ajDplied. I remember at the University of Chi-
cago an area that interested me greatly, and that
was the University broadcasting. Wlien I joined
the staff of the University nine years ago I found
going along on the air every week the University
of Chicago Round Table. That program had
been created by some of the professors who were
interested in broadcasting and a dozen or fifteen
of them who were most interested took turns giv-
ing up their time on Sundays to put the program
on the air; in fact, there was one stretch of six-
teen weeks where the same three men went on every
week because no one else would go on. I discov-
ered that a large percentage of the board of trus-
tees of the University of Chicago had never even
heard of the program. A considerable percent-
age of the people on the faculty refused to par-
ticipate in it. I didn't create the program; as a
matter of fact, in spite of all my effox'ts during
the nine years, I didn't affect it very greatly, but I
did at least get the money and the production tal-
ent and the people to work on it so that, during
my responsibility for it, it became known not only
to the board of trustees of the University of Chi-
cago but became established as the leading, most
important program of its kind in broadcasting
and, for a long period of years, enjoyed the largest
audience of any program of its kind in broadcast-
ing. I give this only as an illustration that the
idea was not new but the problem was a problem
of the development of a good idea.
The subject you are going to discuss today is
to me of course not only important but very excit-
ing; in fact, it is the most exciting subject to me
personally in which I have been projected these
past few weeks.
I joined the staff of the University of Chicago
because of my deep interest in education. My
father for 33 years was a university professor ; my
mother spent 25 years of her life as a teacher and
university professor; my imcle was head of the
Latin and Greek department of the University
of Minnesota for almost 40 years ; my aunt was in
the Latin department at Smith for over 20 years
and later dean of women at Carlton College in
Minnesota. My interest in education thus springs
out of my childhood — out of my family back-
ground — and it has been enhanced by these past 9
years in Chicago. I know we can all agree it is
not possible to overestimate the part education
can play in making or breaking the new United
Nations Organization.
For the past six years we have been putting all
our strength and all our intelligence into the fight
against Fascism, and now we must try to turn the
same strength and that same intelligence into a
fight for peace and for a better life for the common
man. We are now setting up the Organization of
the United Nations through which we hope to
determine the outcome of that fight. The strategy
of terror won the battles for Japan and Germany ;
the strategy of truth could help us win these com-
ing battles of the peace. Our chances of winning
are very slim indeed unless the people of the
United Nations can arm themselves with the
truth.
Looking back it seems very odd that the word
education was not mentioned even once in the
League of Nations Covenant. Even in San Fran-
cisco I understand that there was a pretty hot
argument over whether that dangerous word
should be in the Charter. We can thank the forces
of progress at San Francisco for the fact that
it is not only mentioned but that it is mentioned
nine times.
The fact that education has been perverted into
propaganda by enemies of democracy isn't any
reason for us to be timid. Educators will always
be accused of being propagandists. Of course
I am already so accused, in this new job of mine,
but it isn't any excuse for failure to try to do the
job.
The new Educational and Cultural Organiza-
tion of the United Nations cannot be allowed to
fail. There isn't any such thing in the mind of
man as a vacuum. Where truth does not penetrate,
ignorance and prejudice are sure to prevail. I
hope that you will go away from this discussion
feeling that the chances for^truth are being ad-
vanced. Good luck to all of you today and God-
speed.
^ THE FOREIGN SERVICE ^
Embassy at Warsaw
The American Embassy at Warsaw, Poland, was
reestablished July 31, 1945.
550
DEPARTMENT OF STATE BULLETIN
Agreement Between United States and Norway
Relating to Air-Transport Services
[Released to the press October 6]
The Department of State announced the conclu-
sion of a reciin-ocal civil air-transport agreement
with Norway, which was concluded by exchange
of notes dated October fi, 1045 signed by Assistant
Secretary of State William L. Clayton and the
Norwegian Charge d'Affaires ad interim, Mr. Lars
J. Jorstad.
The agreement, which becomes effective October
15, includes the so-called "fifth freedom" privileges
with respect to the carriage of international traffic.
Text of the agreement follows :
AGREEMENT BETWEEN THE UNITED STATES OF
AMERICA AND NORWAY RELATING TO AIR
TRANSPORT SERVICES
The Governments of the United States of Amer-
ica and Norway signed on October 16, 1933 an
air navigation arrangement governing the opera-
tion of civil aircraft of the one country in the ter-
ritory of the other country, in which each party
agreed that consent for the operations over its
territory by air transport companies of the other
party might not be refused on unreasonable or
arbitrary grounds. Pursuant to the aforemen-
tioned arrangement of 1933, the two governments
hereby conclude the following arrangement cover-
ing the operation of scheduled airline services be-
tween their respective territories, based on the
standard form of agreement for air routes and
services included in the Final Act of the Inter-
national Civil Aviation Conference signed at
Chicago on December 7, 1944.
Article 1
The contracting parties grant the rights speci-
fied in the Annex hereto necessary for establishing
the international civil air routes and sei'vices
therein described, whether such services be inau-
gurated immediately or at a later date at the
option of the contracting party to whom the rights
are granted.
Article 2
(a) Each of the air services so described shall
be placed in operation as soon as the contracting
party to whom the rights have been granted by
Article 1 to designate an airline or airlines for the
route concerned has authorized an airline for such
route, and the contracting party granting the
rights shall, subject to Article 6 hereof, be bound
to give the appropriate operating permission to the
airline or airlines concerned; provided that the
airlines so designated may be required to qualify
before the competent aeronautical authorities of
the contracting party granting the rights under
tlie laws and regulations noi-mally applied by these
authorities before being permitted to engage in
the operations contemplated by this agreement;
and provided that in areas of hostilities or of
militar^^ occupation, or in areas affected thereby,
such inauguration shall be subject to the approval
of the competent military authorities.
(b) It is understood that either contracting
party grunted commercial rights under this agree-
ment should exercise them at the earliest practi-
cable date except in the case of temporary inability
to do so.
Article 3
In order to prevent discriminatory practices and
to assure equality of ti>eatment, both contracting
parties agree that:
(a) Each of the contracting parties may impose
or permit to be imposed just and reasonable
charges for the use of public airports and other fa-
cilities under its control. Each of the contracting
parties agrees, however, that these charges shall
not be higher than would be paid for the use of
such airports and facilities by its national aircraft
engaged in similar international services.
(b) Fuel, lubricating oils and spare parts in-
troduced into the territory of one contracting party
by the other contracting party or its nationals, and
OCTOBER 7, 1945
551
intended sole!}' for use bj^ aircraft of such other
contracting party shall be accorded national and
niost-favored-nation treatment with respect to the
imposition of customs duties, inspection fees or
other national duties or charges by the contracting
party whose territory is entered.
(c) The fuel, lubricating oils, spare parts, reg-
ular equipment and aircraft stores retained on
board civil aircraft of the airlines of one contract-
ing party authorized to operate the routes and
services described in the Annex shall, upon arriv-
ing in or leaving the territory of the other con-
tracting party, be exempt from customs, inspection
fees or similar duties or charges, even though such
supplies be used or consumed by such aircraft on
flights in that territory.
Article 4-
Certificates of airworthiness, certificates of
competency and licenses issued or rendered valid
by one contracting party shall be recognized as
valid by the other contracting party for the pur-
pose of operating the routes and services de-
scribed in the Annex. Each contracting party
reserves the right, however, to refuse to recog-
nize, for the purpose of flight above its own ter-
ritory, certificates of competency and licenses
granted to its own nationals by another state.
Article 5
(a) The laws and regulations of one contract-
ing party relating to the admission to or depar-
ture from its territory of aircraft engaged in in-
ternational air navigation, or to the operation
and navigation of such aircraft while within its
territory, shall be applied to the aircraft of the
other contracting party, and shall be complied
with by such aircraft upon entering or departing
from or while within the territory of the first
party.
(b) The laws and regulations of one contract-
ing party as to the admission to or departure
from its territory of passengers, crew, or cargo
of aircraft, such as regulations relating to entry,
clearance, immigration, passports, customs, and
quarantine shall be complied with by or on be-
half of such passengers, crew or cargo of the
other contracting party upon entrance into or de-
parture from, or while within the territory of
the first party.
Article 6
Each contracting party reserves the right to
withhold or revoke a certificate or permit to an
airline of the other party in any case where it
is not satisfied that substantial ownership and ef-
fective control are vested m nationals of either
party to this agreement, or in case of failure of
an airline to comply with the laws of the state
over which it operates as described in Article 5
hereof, or to perform its obligations under this
agreement.
Article 7
This agreement and all contracts connected
therewith shall be registered with the Provisional
Intel-national Civil Aviation Organization.
Article 8
Except as may be modified by the present
agreement, the general principles of the afore-
mentioned air navigation arrangement of 1933
as applicable to scheduled air transport services
shall continue in force until otherwise agreed
upon by the two contracting parties.
Article 9
In the event either of the contracting parties con-
siders it desirable to modify the routes or condi-
tions set forth in the attached Annex, it may re-
quest consultation between the competent author-
ities of both contracting parties, such consultation
to begin within a period of sixty days from the
date of the request. When these authorities mu-
tually agree on new or revised conditions affect-
ing the vVnnex, their recommendations on the mat-
ter will come into effect after they have been con-
firmed by an exchange of diplomatic notes.
Article 10
Either contracting party may terminate this
agreement, or the rights for any of the services
granted thereunder, by giving one year's notice to
the other contracting party.
Annex to Air Transport Agreement Bet\\'een
THE United States of America and Noravay
A. Airlines of the United States of America au-
thorized under the present agreement are accorded
rights of transit and non-traffic stop in the terri-
tory of Norway, as well as the right to pick up and
discharge international traffic in passengers, cargo
552
DEPARTMENT OF STATE BULLETIN
and mail at Oslo (Gardernioen) or Stavanger
(Sola), on the following route:
The United States via intermediate points to
Oslo or Stavanger and points beyond ; in both
directions.
Airlines of the United States of America having
the right to pick up and discharge international
traffic on the above route will make sufficient traf-
fic stops in Oslo or Stavanger to offer reasonable
commercial service for traffic to and from Norway;
provided that this undertaking shall not involve
any discrimination between airlines of the United
States and other countries operating on that same
route, shall take into account the capacity of the
aircraft, and shall be fulfilled in such a manner as
not to prejudice the normal operations of the in-
ternational air services concerned.
B. Airlines of Norway authorized under the
present agreement are accorded rights of transit
and non-traffic stop in the territory of the United
States of America, as well as the right to pick up
and discharge international traffic in passengers,
cargo and mail at New York or Chicago, on the
following route :
Norway via intermediate points to New York
or Chicago ; in both directions.
Suggestion for Postponement
of Inter-American Conference
for Maintenance of Peace
and Security
Statement by ACTING SECRETARY ACHESON
[Released to the press Oi'tober 3]
In view of recent developments in Argentina,
the United States Government does not feel that it
can properly negotiate or sign with the present
Argentine regime a treaty of military assistance.
Since the conference to be convened in Rio de
Janeiro on October 20 is exclusively for the pur-
pose of negotiating such a treaty, this Government
has commvinicated with the host Government of
' The Governing Board of the Pan American Union met
on Oct. 5 and adopted a resolution presented by Ambas-
sador Galo Plaza, of Ecuador, to postpone the Rio con-
ference scheduled for Oct. 20 and to call a special meeting
of the Governing Board for Nov. 20 to consider a new
date for the inter-American conference.
Brazil suggesting that that conference be post-
poned but emphasizing that, in view of the great
importance which this Government attaches to the
negotiation of such a treaty, it has urged that ne-
gotiations proceed as rapidly as possible to the
end of concluding and signing such a treaty in Rio
de Janeiro at the earliest possible moment.^
Argentine Situation
Statement by ACTING SECRETARY ACHESON
[Released to the press October 3]
It is the purpose of this Government to consult
with the other American republics in respect to
the Argentine situation.
Arrangements for Housing
Americans in Paris
[Released to the press October 6]
Special arrangements for housing Americans
who are temporarily in Paris on business have been
made by the American Embassy there.
Due to the difficulty experienced by visiting
American businessmen in locating rooms and in
obtaining meals, the Embassy has arranged, in
cooperation with the Army, to operate the Hotel
California in the Rue de Berri for the accommo-
dation of a limited number of Americans whose
reason for being in Paris is one of importance to
the reestablishment of international trade.
The prices have been fixed at $2.75 per day for
meals and from $4 to $11 per day for rooms. No
reservations can be made in advance, but accommo-
dations will be assigned by the Embassy's visitors
bureau to businessmen on arrival in Paris, if they
are on important missions connected with interna-
tional trade and are unable to find accommoda-
tions elsewhere.
The Department emphasizes that only transients
can be accommodated, and that persons intending
to remain in Paris for three weeks or longer must
seek other arrangements. The Embassy's visitors
bureau will assist them in this, but cannot give
advance assurances that suitable accommodations
can be found.
The Army has agreed to permit businessmen
traveling outside of Paris, in areas where U. S.
forces are stationed, to use Army billeting and mess
facilities wherever they ai'e available.
OCTOBER 7. 1945
553
The Department repeats its warning to prospec-
tive American travelers that the conditions they
will face in Paris and elsewhere in Europe are ex-
tremely bad, and will be worse during the winter
months, and urges that no one attempt to travel
there except on matters of urgent importance.
Compensation for Petroleum
Properties Expropriated
in Mexico
I Kelpased to the press October 2]
The Charge d'Affaires ad interim of Mexico has
presented to the Acting Secretary of State his Gov-
ernment's check for $4,085,327.45 in payment of the
instalment due at this time under the agreement
effected through an exchange of notes on Septem-
ber 29, 1943 establishing the manner and conditions
of payment of compensation to this Government
for the benefit of certain American nationals who
sustained losses as a consequence of the expi-opria-
tion of petroleum properties in Mexico in March
1938.^ The Acting Secretary of State requested the
Charge d'Affaires to convey to his Government an
expression of this Government's appreciation.
With the present payment of $4,085,327.45 the
balance remaining amounts to $8,170,654.90 to be
liquidated over a period of two years by the pay-
ment of $4,085,327.45 on September 30 of each year.
Upon payment of the remaining instalments the
total payments will amount to $29,137,700.84.
^ THE DEPARTMENT ^
Division of International Conferences'
Purpose. The present order is issued to rede-
fine, pending the issuance of a more comprehensive
ox'der, the responsibilities within the Department
of State for the conduct of or participation in
international conferences, congresses, expositions,
meetings, et cetera.
1 Responsibilities for over-all supervision. The
Assistant Secretary or other officer designated by
the Secretary, charged with jurisdiction over the
subject-matter with which an international con-
ference is to deal, shall be responsible for the exe-
cution of policy and for the over-all supervision
of the preparations for and conduct of the con-
ferences. The Division of International Con-
ferences and the political or technical divisions
primarily concerned shall collaborate with, advise,
and assist the Assistant Secretary as required.
2 Primary responsibility for organizational and
administrative aspects. The Division of Interna-
tional Conferences shall, under the direction of
the appropriate Assistant Secretary and in col-
laboration with the pertinent political or technical
divisions, have primary responsibility for the
planning, coordination, and execution of organi-
zr«tional and administrative aspects of interna-
tional conferences in which the Government of
the United States and, particularly, the Depart-
ment of State participate, other than conferences
of the United Nations Organization. With respect
to the latter category the Division of International
Conferences and the Office of Si^ecial Political
Affairs shall collaborate as circumstances may re-
quire. The services of the Division of Interna-
tional Conferences shall also be available, upon
his request, to the Assistant Secretary in charge,
for coordination and planning with respect to
policy asjjects of any conferences in which the
Government of the United States participates.
3 C olldboration of other offices and divisions.
The offices and divisions of the Department which
are responsible for budget, personnel, and admin-
istrative servicing matters shall collaborate with
and work under the general direction of the Divi-
sion of International Conferences in regard to the
planning and execution of the administrative
aspects of international conferences at home and
United States participation in conferences held
abroad.
4 Information for the Division of International
Conferences. The Division of International Con-
ferences shall be informed jjromptly and fully of
any circumstances that may lead to the convening
of an international conference and shall be kept
informed of current developments regarding such
conference. In this connection the Records
Branch of the Division of Central Services shall
' Bulletin of Oct. 8, 1944, p. 385.
- Departmental Order 1340, issued and efifective Sept. 22,
1945.
554
DEPARTMENT OF STATE BULLETIN
see that the Division of International Conferences
is included in the routing or distribution of papers
relating to all international conferences.
5 ApplicabUity of the foregoing prolusions to
international congresses, expositions, et cetera.
The foregoing provisions shall also apply with
respect to international congresses, expositions,
meetings, et cetera.
6 Departmental orders amended. Depart-
mental Order 1301, and any other order in con-
flict herewith, are amended accordingly.
Dean Acheson
Acting Secretary
Supplemental Estimates of Appropriations for the De-
partment of State. H.Doc. 299, 79th Cong. 2 pp.
Facilitating Further the Disposition of Prizes Captured
by the United States. S.Rept. 603, 79th Cong., to accom-
pany S. 1420. 4 pp. [Favorable report.]
Publications
of the DEPARTMENT OF STATE
Appointment of Officers
Francis H. Russell as Acting Director of the
Office of Public Affairs, such designation to run
concurrently with his duties as Chief of the Divi-
sion of Public Liaison, effective September 29,
1945.
Study of Naturalization Laws and Procedures: Hear-
ings before Subcommittee II of the Committee ou Im-
migation and Naturalization, House of Representatives,
Seventy-ninth Congress, first session, pursuant to H.R. 52,
a bill authorizing a complete study of immigration and
naturalization laws and problems. May 9, June 4 and 6,
194.5. iii, 95 jjp.
To Provide for Reorganizing Agencies of the Govern-
ment, and for Otlier Purposes: Hearings before the Com-
mittee on Expenditures in the Executive Departments,
House of Representatives, Seventy-ninth Congress, first
session, on H.R. 3325, a bill to provide for reorganizing
-agencies of the Government, aud for other purposes, Sep-
tember 4 and 5, 1945. ii, 137 pp.
Elimination of German Resources for War: Hearings
before a Subcommittee of the Committee on Military
Affairs, United States Senate, Seventy-ninth Congress,
first session, pursuant to S.Res. 107 (78th Congress) and
S.Res. 146 (79th Congress), authorizing a study of war
mobilization problems; part 5, Testimony of Treasury
Department, July 2, 1945. iv, 283 pp.
Amending Section 401(a) of the Nationality Act of 1940
so as To Preserve the Nationality of Certain United States
Citizens Who Have Been Unable To Return to the United
States. H.Rept. 1035, 79th Cong., to accompany H.R. 4191.
3 pp. [Favorable report]
Creating a Joint Committee To Study and Investigate
the Control of the Atomic Bomb. H.Rept. 1036, 79th Cong.,
to accompany H.Cou.Res. 83. 1 p.
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*Status of Countries in Relation to the War,
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tion 2373) may he had from the Department of State.
U. S. GOVERHHENT PBINTiNG OFFICE. 1945
THE DEPARTMENT OF STATE
BT
u
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1
VOL. XIII, NO. 329
OCTOBER 14, 1945
In this issue
WORLD COOPERATION FOR PEACE
Address by the President
MOBILIZATION FOR PEACE AND RECONSTRUCTION THROUGH THE
UNITED NATIONS ORGANIZATION
Address by Edward R. Stettinius, Jr.
INTERNATIONAL BODIES FOR NARCOTICS CONTROL
Bv Philip M. Burnett
For complete contents
see inside cover
rA©NX o^
-^xes o^
0. S. SUPERINTENDENT OF DOCUMENT
THE DEPARTMENT OF STATE
BULLETIN
^•"•' o.
Vol. XIII. No. 329*
•PuBLicATion 2399
October 14, 1945
The Department of State BULLETIN,
a weekly publication compiled and
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by the Secretary of State and other
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cerning treaties and international
agreements to which the United States
is or may become a party and treaties
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tiOy 6 1945
C
ontents
American Republics
Visit of President Rios of Chile: page
Program of Visit in the United States 568
Address of Welcome by the Secretary of State 569
Europe
Communiqu6s Issued by Council of Foreign Ministers . . 564
Arrival of the Polish Minister for Foreign Affairs .... 674
UNRRA Program in Italy 578
Appointment of Mark Etheridge To Investigate Conditions
in the Balkans 683
Far East
Far Eastern Advisory Commission:
Terms of Reference 561
Appointment of Representatives 580
Thirty-Fourth Anniversary of the Republic of China . . . 581
Traveling Accommodations in the Far East 582
Repatriation of Americans from Shanghai 585
Patrick J. Hurley To Return to China 585
Cultural Cooperation
Pan-American Book Exposition 583
Economic Affairs
Estimate for UNRRA Appropriation 575
Operations of UNRRA 577
Financial and Trade Discussions With the United Kingdom . 580
General
World Cooperation for Peace. Address by the President . 557
Return of Americans on the Gripsholm 585
The United Nations
Mobilization for Peace and Reconstruction Through the
United Nations Organization. Address by Edward R.
Stettinius, Jr 559
United Nations Headquarters:
Discussion on Selection of Seat 562
Vote for Location in the United States 563
Treaty Information
Monetary Agreement: United Kingdom-Denmark .... 563
International Bodies for Narcotics Control. By Philip M.
Burnett 570
Ratification of Charter of the United Nations: Denmark,
Chile, Philippine Commonwealth, Paraguay 581
Iraqi Barter Agreements: Lebanon, Syria and Palestine . . 584
Aviation Agreements 584
Denunciation of Patent-Interchange Agreement 585
The Department
Appointment of Donald S. Russell as Assistant Secretary of
State 558
Resignation of Frank McCarthy as Assistant Secretary of
State, Exchange of Letters Between the President and
Mr. McCarthy 582
Appointment of Officers 585
Change in Name of the Special War Problems Division
to Special Projects Division 686
The Foreign Service
Consular Offices 586
The Congress 586
Publications 586
World Cooperation for Peace
Address by THE PRESIDENT '
Jim Ahe.\kn, Mt Friends of Southeast Mis-
souri, Northeast Arkansas, Tennessee, Ken-
tucky, AND Illinois : It is a pleasure to be here
today. Once again I am your guest at the Ameri-
can Legion Fair. It is a customary procedure for
me. This is no. 12. I came down here the first
time, if I remember correctly, in 1934:. At that
time, I was the presiding judge of the County
Court of Jackson County, and a candidate for
United States Senator. The next time I came, I
was the United States Senator from Missouri, and
for nine times I came down here as the Senator
from Missouri — because I like to come. I have
almost as many friends in this part of the great
State of Missouri as I have in Jackson County,
and that is really saying something.
Last year I came as the candidate for Vice Presi-
dent of the United States. Mr. Roosevelt and
myself were the candidates on the Democratic
ticket. We won that election, as you know, and I
settled down as President of the Senate and its
presiding officer to happily enjoy a four-year
tei-m.
Then suddenly, like a bolt out of the blue, Mr.
Roosevelt passed away — a gi-eat leader, a great
humanitarian, the greatest of our war Presidents.
And the greatest responsibility that ever has fallen
to a human being in the history of the world fell
to me.
In my first address to the Congress, after- that
happened, I explained to them that I had not
sought that responsibility, nor had I sought the
honor which goes with that responsibility. But I
have been a public servant in one phase or another
for the past 30 years, and I have never shirked
a job. I shall not shirk this one.
I told the members of Congress and the Nation
that if we were to be successful — and we will be,
'Made at the Pemiscot County American Legion Fair
in Caruthersville, Mo., on Oct. 7, 194a.
undoubtedly — it would require the cooperation not
only of the Congress but of the country as a whole
for us to accomplish the things which Almighty
, God intended this great Nation to accomplish.
Just to rehearse for your benefit a few of the
things that have happened since April 12, 1945 —
just about six months ago : The San Francisco con-
ference was convened on the twenty-fifth day of
April — just 13 days after I was sworn in as Presi-
dent of the United States. That conference was
successful, and just about four months after it
was convened the United States Senate approved
the Charter of the United Nations by an over-
whelming majority. There were only two Sena-
tors against it, and I never did understand why
they were against it. At any rate, the United
States entered on an entirely new development of
its foreign policy.
Some three months after that, I went to Berlin
to a meeting of the heads of the Governments of
Russia, Great Britain, and the United States,
in order to discuss the world outlook for the com-
ing peace. The deliberations of that conference
will be felt for genei-ations in the final peace.
Just a little less than a month after I became
President, that is, 26 days after I was inaugurated,
the Axis powers in Europe folded up. On the
twelfth day of August, Japan folded up. In the
meantime, one of the most earth-shaking discov-
eries in the history of the world was made — the
development of atomic energy was discovered.
That discovery was used in the last war effort
against Japan, and the effect of that atomic bomb
is too terrible for contemplation. But we have
only begun on the atomic-energy program. That
great force, if properly used by this country of
ours, and by the world at large, can become the
greatest boon that humanity has ever had. It can
create a world which, in my opinion, will be the
happiest world that the sun has ever shone upon.
Now I am reminding you of all these things
557
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558
DEPARTMENT OF STATE BULLETIN
which have taken place in the last short six months
to impress ui^on you the terrible responsibilities of
the President of the United States. The President
of the United States is your President. I am tell-
ing you just what his responsibilities are, because
j^ou are my friends and I think you understand —
I think you understand the difficulties which I face.
Now it is just as necessary to have the coopera-
tion of every branch and every member of every
part of the Government of the United States, from
the constable in this township to the President of
the Senate. We must have that cooperation. We
must go forward — we are going forward.
We understand that the road to peace is just as,
difficult and maybe more difficult than was the road
to victory during the war. And the reason for
that difficulty is that we all distinctly understand
that after every war there is bound to be a let-down,
there is bound to be a change of attitude, there are
bound to be a great many of us who say, "Oh, well,
I don't have to work any more. I don't have to
take any interest in the welfare of my Government
any more." We can't have that attitude. We must
cooperate now as we never have before in the
history of this country. We have the greatest
production machine that the world has ever seen.
We conclusively proved that free government is the
most efficient government in every emergency. We
conclusively proved that by our victories over Ger-
many and Italy and Japan and their allies. In
order to prove to the world that our reconversion
program can be handled just as efficiently, and that
our tremendous production machine can be oper-
ated for peace as well as for war, we must all get
in and push.
That doesn't require anything in the world but
plain understanding among ourselves. That re-
quires the cooperation of management and labor
and the farmers, and every storekeeper, and every
man who has an interest in the Government of the
United States. And by showing that we ourselves
know where we are going and why, we can show
the rest of the world the road to liberty and to
peace. We are not anywhere near stalled on that
road. We are only beginning to travel it.
We are going to have difficulties. You can't do
anything worth while without difficulties. No
man who ever accomplishes anything can expect
to do it without making mistakes. The man who
never does anything never makes any mistakes.
We may make mistakes. We may have difficul-
ties, but I am asking you to exercise that admoni-
tion which you will find in the Gospels, and which
Christ told us was the way to get along in the
world : Do by your neighbor as you would be
done by. ■
And that applies to you, and you, just as it ap-
plies to Great Britain and France and China and
Russia and Czechoslovakia, and Poland and
Brazil. When the nations decide that the wel-
fare of the world is much more important than
any individual gain which they themselves can
make at the expense of another nation, then we
can take this discovery which we have made and
make this world the greatest place the sun has
ever shone upon.
Now, in 1938, I stood on this platform right
here and explained to you that our then isola-
tionism would eventually lead to war. I made
that speech after President Roosevelt made his
speech at Chicago in 1937, in which he warned
the world that we were approaching another
world war.
We can't stand another global war. We can't
ever have another war, unless it is total war, and
that means the end of our civilization as we know
it. We are not going to do that. We are going
to accept that "golden rule", and we are going
forward to meet our destiny which I think
Almighty God intended us to have.
And we are going to be the leaders.
Thank you very much.
Appointment of
Donald S. Russell as Assistant
Secretary of State
[Released to the press October 12]
The Secretary of State announced on October
12 that Donald S. Russell, Assistant Secretary of
State, has been assigned the duties of administra-
tion heretofore exercised by Frank McCarthy,
whose resignation was accepted on October 11 by
the President. Mr. Russell assumed his duties as
Assistant Secretary of State on September 24,
1945.
OCTOBER 14, 1945
559
Mobilization for Peace and Reconstruction
Through the United Nations Organization
Address by EDWARD R. STETTINIUS, JR.
I AM HONORED to take part in this great meeting
of men and women dedicated to the cause of
the United Nations. I am particularly proud and
happy to stand on this platform with my old
friends and coworkers at the San Francisco con-
ference, wlio contributed so much to its success —
your distinguished Prime Minister, Mr. Clement
Attlee, and the Right Honorable Anthony Eden —
and with my new friend and colleague in the
organizing work in which we are engaged here
in London — your Minister of State, Mr. Noel-
Baker.
I want also to pay special tribute to another
of the distinguished speakers on this platform,
Lord Robert Cecil, and to bring him a message
from America. We in Ajnerica who believed that
Woodrow Wilson was right 26 years ago have
always held high the name of Lord Robert Cecil,
whose vision, like Wilson's, was clear when that
of others was clouded.
Last time the United States failed to join the
League, and other nations who did join failed to
use the League as it should have been used. Now,
after a war far more devastating and wide-spread
than the last, we have made a new beginning in the
Charter of the United Nations.
This time — and this is the message that I bring —
this time the United States is in it, all the way in it,
and in it to stay.
This time, also, the Soviet Union has joined
actively in writing the Charter and in creating the
Organization.
This time evei"y member nation knows with
certainty that if we do not build enough strength
into the Organization to prevent another great
war the end of civilization is at hand.
I do not suggest that the work which lies ahead
of us will be easy. It will not be easy. The peace-
time collaboration of the five great nations which
are permanent members of the Security Council,
and of the other United Nations, will necessarily
be more difficult than was our wartime collabora-
tion. We seem to have a habit of forgetting one
of the first lessons that every one of us learned as a
child : how much easier and quicker it is to kick
down a house of blocks than to build one. The
construction of peace is far more difficult and takes
far more time than the destruction of war.
Our discouragements and difficulties have al-
ready begim. We should not minimize them. But
I do suggest that we try to keep matters in
perspective.
As Lend-Lease Administrator from 1941 to
1943 I saw the United States, Great Britain, and
the Soviet Union create the greatest system of
combined war supply the world has ever seen.
Later at Dumbarton Oaks, Yalta, and San Fran-
cisco, I have seen them building together firm
foundations for the United Nations Organiza-
tion. I believe that our three countries have
proved beyond the shadow of any doubt that we
can work successfully together, and with China,
France, and the other United Nations, and that
we can constantly extend the scope of our col-
laboration. As we extend its scope, our differ-
ences will inevitably grow in number but so will
our experience in finding the means to resolve
them and our confidence in each other.
There were many disagreements at San Fran-
cisco. They were resolved. The disagreements
which arose at the Council of Foreign Ministers
will also be resolved, and for the same reason,
because it is in the vital national interest of each
of the nations concerned that they be resolved.
The Council of Foreign Ministers is concerned
with peace treaties. The United Nations Organi-
zation will be concerned with making peace per-
manent and with the tremendous task of recon-
struction.
These tasks are urgent and progress may seem
' Delivered in London on Oct. 10, 1945. Mr. Stettinius is
United States Representative on the Preparatory Com-
mission of the United Nations now meeting in London.
560
slow, but I venture to suggest that we have done
much better so far at organizing the peace than
we did last time. First of all, the San Fran-
cisco conference was called before the end of the
war in Europe. The Charter itself was com-
pleted before the end of the war with Japan.
Today, only two months after the end of hos-
tilities, 32 nations have acted to ratify the Charter
and 11 of them have deposited their ratifications
in Washington. As soon as 29 ratifications have
been deposited the Charter will come into force.
We may confidently expect that this will occur in
the immediate future.
We shall then call together the full Prepara-
tory Commission of 51 nations, and it will be
followed, early in December, according to pres-
sent plans, by the first meeting of the United Na-
tions Assembly, which will take whatever action
may be needed to insure that the United Nations
will be ready to go to work in January, the first
month of the first year of peace.
I can assure you that the United States Gov-
ernment regards it as of high importance that
this plan be realized. The problems of collective
security and of economic and social reconstruc-
tion that confront us will not wait. Attempts to
meet these problems by expedients and half-way
measures will inevitably be made so long as they
cannot be dealt with through the Organization
itself. A trend in that direction, once developed,
will be difficult to stop and might have the most
serious consequences.
In the field of security we need to begin upon
the task of providing the Security Council with
the force it needs to maintain peace. The first step
is to establish the Military Slaff Committee, which
will be a peacetime Combined Chiefs of Stail of
the five permanent members of the Security Coiui-
cil. In the field of economic recovery, interna-
tional action is required to pump the lifeblood of
peacetime trade back into the arteries of a world
bled white by war.
In Europe and in Asia there is untold suffering,
and there will be more this winter. Everywhere
there are millions who look with despair upon the
homes and factories tumbled in ruin about them.
Their hearts will not be lifted up by words, nor
their hopes by boundaries drawn upon a map.
They need more than emergency relief, vital as
that is. They need international action that will
open the way to a future of productive work, of
DEPARTMENT OF STATE BULLETIN
decent living conditions, and of security. They
need proof that the nations of the world can work
together to build as well as to destroy, to prevent
war as well as to make it. That action the United
Nations must provide.
Last week the Executive Committee recom-
mended placing the permanent headquarters of
the United Nations in the United States. The
United States has not sought this great honor and
responsibility. The final decision is one which
must be made by all the United Nations in the best
interests of the Organization. But I do want to
say this : If the recommendation of the Executive
Committee is confirmed by the other United Na-
tions and the Organization comes to the United
States, that will not mean turning our back on
Eui'ope. Quite the contrary.
It is true that there are still isolationists in the
United States. I find that there are isolationists
of a sort in Britain, too, although they go by a
different name. There are isolationists in Europe,
and I am sure that the Soviet Union also has them.
But I am also certain of another thing — isolation-
ists of any breed today, though they may still ap-
jsear to live and move and have their being, are in
fact no more than vestigial remains of the pre-
atomic age.
The United Nations must meet the needs of the
whole world, and the needs of Europe are cer-
tainly among the most pressing. I have said be-
fore that the United States is in "for keeps" this
time. Our interests are deeply involved in the
peace and well-being of Europe, as they are in the
peace and well-being of Asia, and we shall support
our interests upon both continents, not in any sense
for domination or advantage but in the spirit of
the United Nations Charter and as active partners
with our Allies in the cause of peace and security.
Before I close, may I add this personal word
from the bottom of my heart. I have known and
worked with the men of all parties who led you
through the war, and I have seen England and
its people at first-hand three times since that heroic
summer of 1940 when you stood fast and saved
the hope of ultimate victory. A nation capable of
greatness such as yours can face the future with
the highest pride and confidence.
Now that victory has come, there has been the
inevitable let-down, the days of discouragement,
for both our countries. There are strikes in Amer-
ica and tighter rations than ever over here. We
OCTOBER 14, 1945
561
who owe so much to each other and have been
joined in such great and lieroic enterprises must
now listen to discordant voices on both sides of
the Atlantic sniping at each other in the sharp and
shallow words of little men.
But I know that the real people in America be-
lieve in you, just as I hope and believe that the
real people in England believe in us.
These are the hours of mobilization for peace
and for reconstruction. As partners together and
with the other United Nations — helping each
other — let us act in the faith and brotherhood of
those brave men whose blood was spent and
mingled on battlefields round the world to give us
this chance to build a peace worthy of their
sacrifice.
Far Eastern Advisory Commission
TERMS OF reference'
[Released to the press October 10]
I. Establishment
The Governments of the hereby
establish a Far Eastern Advisory Commission
composed of representatives of the Participating
Powers.
II. Functions
A. The Far Eastern Advisory Commission shall
be responsible for making recommendations to the
participating Governments :
1. On the formulation of policies, principles and
standards by which the fulfillment by Japan
of its obligations under the instrument of sur-
render may be determined ;
2. On the steps necessary and on the machinery
required to ensure the strict compliance by
Japan with the provisions of the instrument
of surrender ;
3. On such other matters as may be assigned to
it by agreement of the participating Govern-
ments.
B. The Commission shall not make recommen-
dations with regard to the conduct of military
operations nor with regard to territorial adjust-
ments.
III. Other Methods of Consultation
The establishment of the Commission shall not
preclude the use of other methods of consultation
on Far Eastern issues by the participating
Governments.
IV. Composition
The Far Eastern Advisory Commission shall
consist of one representative of each of the states
party to this agreement. The membership of the
Commission may be increased, as conditions war-
rant, by the addition of representatives of other
United Nations in the Far East or having terri-
tories therein. Such United Nations as are not
members of the Commission shall be invited to
sit with the Commission when matters deemed
by the Commission primarily to affect the inter-
ests of such nations are under consideration. In
addition, the Commission shall provide for full
and adequate consultations, as occasion may re-
quire, with representatives of the United Nations
not members of the Commission, in regard to
matters before the Commission which are of par-
ticular concern to such nations.
V. Location and Organization
The Far Eastern Advisory Commission shall
have its headquarters in Washington. It may
meet at other places as the occasion requires.
Each representative of the Commission may be
accomjianied by an appropriate staff comprising
both civilian and military representation.
The Commission shall organize its secretariat,
appoint such conmiittees as may be deemed ad-
visable, and otherwise perfect its organization and
procedure.
VI. Termination
The Far Eastern Advisory Commission shall
cease to function upon notification by one of the
Four Allied Powers, the United States, the United
Kingdom, China and the Soviet Union, of its
desire to terminate the agreement creating the
(Continued on page 580)
' Transmitted by the Governmeut of the United States
on Aug. 21 to the Governments of China, Great Britain,
and tlie Union of Soviet Socialist Republics. See ButtEriN
of Oct. 7, 194.5, p. 545.
562
DEPARTMENT OF STATE BULLETIN
United Nations Headquarters
DISCUSSION ON SELECTION OF SEAT
[Released to the press by the Preparatory Commission of the
United Nations September 29]
The selection of a seat for the permanent head-
quarters of the United Nations was discussed for
the first time on September 29 by the Executive
Committee of the Preparatory Commission of the
United Nations at a meeting held at Church House,
Westminster, under the chairmanship of Mr.
Gromyko, Union of Soviet Socialist Republics.
Submitting a report by Committee 10, which has
prepared recommendations on the principles which
should govern the choice of the location of the
United Nations headquarters, M. N. Entezam
(Iran), chairman of that committee, made the
following points: The Committee recommends,
with certain exceptions, the adoption of the princi-
ple of centralization according to which the per-
manent seat of the United Nations' principal and
subsidiary organs, and of the specialized agencies
related to the United Nations, should be concen-
trated in one place.
The second point, whether the seat of the United
Nations should be in national territory or in inter-
nationalized territory, was considered by the com-
mittee in its various aspects, but no decision was
taken, as it was not known whether any nation
would be prepared to agi'ee to the internationaliza-
tion of part of its territory. Thirdly, since the
committee's terms of reference did not call for the
recommendation of a specific site for the United
Nations, the committee confined its activities to
certain criteria which should govern the choice of
the site. Some of these criteria are : Political con-
ditions in the host state, and the general character
of the press and public opinion therein, should be
in harmony with the spirit of the Preamble and of
article 1 of the Charter. The United Nations
should be so situated as to be free from any at-
tempt at improper political control or the exercise
of undesirable local influence. The site should
be easily accessible and possess adequate and satis-
factory means of travel and communication. It
is desirable that the site should enjoy favorable
climatic conditions, that the local population
should speak one or the other of the working
languages of the United Nations (English or
French), that there should be sufficient facilities
for the establishment of the necessary offices of the
United Nations.
Mr. Noel-Baker (Great Britain) drew attention
to the great importance of that part of the report
dealing with the necessary freedom in the exercise
of United Nations functions, diplomatic immuni-
ties and privileges, et cetera. Certain instances of
friction had occurred in the past, Mr. Noel-Baker
said, and it was absolutely essential that complete
freedom of action for the officials of the United
Nations should be guaranteed. Safeguards for
the freedom of expression of opinion and move-
ment must also be set out with the greatest em-
phasis. Mr. Noel-Baker hoped that it might be
possible to make arrangements for an interna-
tional passport for officials of the United Nations.
Mr. Massigli (France) expressed himself in full
agreement with Mr. Noel-Baker and urged that
the report should expressly state that such immu-
nities and facilities must be granted in all circum-
stances to the United Nations staff and press.
Mr. Entezam (Iran) observed that Committee
10 had provided in the draft under discussion for
the work of the press to be facilitated by special
arrangements for visas and absence of censorship.
Mr. Pelt (Netherlands) pointed out that the
term "representatives of the press" should include
radio and films. Mr. Pelt also mentioned the pos-
sibility of indirect censorship which may result
from insufficient means of communication. Ar-
rangements should be made to secure for the
United Nations and the foreign delegations to it
the right to use couriers, diplomatic pouches, and
codes in their communications.
Considering the possibility of an autonomous
international zone, ]\Ir. Noel-Baker expressed him-
self in favor of an internationalized territory and
suggested that such a possibility should be kept
in view.
Mr. Massigli was of the opinion that the
United Nations need not necessarily have its seat
in an English- or French-speaking country, but
this view was opposed on practical grounds by
OCTOBER 14, 1945
563
Ml-. Noel-Baker and Mr. Pelt, who pointed out
that the work of the Organization would be
greatly facilitated and the efficiency of the staff
increased if the working language were under-
stood by the local population.
Mr. Pelt also urged that a radio station and an
airport should be at the disposal of the United
Nations Organization.
It was generally agreed that the principal
organs of the United Nations (except the In-
ternational Court of Justice, which would be at
The Hague) should be established in one place,
with the exception that any subsidiary organ or
specialized agency might have its seat elsewhere
whenever strong reasons made this advisable.
The report submitted to the Executive Com-
mittee by Committee 10 was approved with cer-
tain corrections to be drafted by the Executive
Secretary.
VOTE FOR LOCATION IN THE
UNITED STATES
[Released to the press by the Preparatory Commission of tlie
United Nations October 3]
Statement issued hy M. Gromyko, Ghamnan of
the Executive Committee of the Preparatory
Commission of the United Nations:
The Executive Committee met this afternoon
for four and a half hours in executive session in
order to discuss the question of the permanent
headquarters of the United Nations.
Various views were expressed and finally two
votes were taken.
The first was on the questiton whether the per-
manent headquarters of the United Nations
should be situated in the United States of Amer-
ica. This was approved by nine votes to three
with two abstentions. Those who voted in favor
were: Australia, Brazil, Chile, China, Czecho-
slovakia, Iran, Mexico, the U.S.S.R., and Yugo-
slavia.
Those who voted against were : France, the
Netherlands, and the United Kingdom.
Canada and United States of America abstained.
The chairman then put a second question,
namely: Should the permanent headquarters of
the United Nations be situated in Europe?
This proposal was rejected by seven votes to
three with four abstentions.
France, the Netherlands, and the United King-
dom voted in favor.
Australia, Brazil, Chile, China, Czechoslovakia,
the U.S.S.R., and Yugoslavia voted against; and
Canada, Iran, Mexico, and the United States of
America abstained.
A full record of the discussion will be issued to
the press in due time.
Monetary Agreement
United Kingdom— Denmark
The American Ambassador at London has
transmitted to the Secretary of State British Com-
mand Paper 6671 containing the text of a mone-
tary agreement between the United Kingdom and
Denmark signed at London August 16, 1945. The
agreement, which entered into force August 20 and
is for five years' duration but can be terminated on
three months' notice, provides a mechanism for
payments between Denmark and the sterling area.
Under the agreement the rate of exchange be-
tween the Danish krone and the pound sterling is
set at 19.34=£l, and provision is made for the
stabilization of this new ofncial rate.
An important feature of the agreement concerns
sales of kroner against pounds and pounds against
kroner by the Danmarks Nationalbank and the
Bank of England respectively. Through these in-
stitutions, the two countries propose to furnish
each other with supplies of their respective curren-
cies as needed for permitted payments between
residents of the sterling area and Denmark. The
Bank of England at its option may reduce the ster-
ling account of the Danmarks Nationalbank
through payment of an equivalent amount of gold
or Danish currency. Likewise, the Danmarks
Nationalbank may reduce the kroner account of
the Bank of England for an equivalent payment
in gold or sterling.
Denmark and Great Britain undertake to co-
operate in assisting each other in keeping capital
transactions within the bounds of their national
policies, particularly with a view to preventing
capital transfers which do not serve desirable eco-
nomic or commercial purposes.
The monetary agreement provides that it will be
reconsidei'ed with a view to consistency with any
general international monetary agreement to
which either government may adhere.
564
DEPARTMENT OF STATE BULLETIN
Communiques Issued by Council of Foreign Ministers
Second Meeting
[Communique released to the press by the Council of Foreign
MinisterB, London, September 12]
The Council of Foreign Ministers lield its sec-
ond meeting ' at 4 p. m. and adjourned at G : 30.
Owing to the number of documents which have
to be translated and studied it was decided to meet
next at 11 o'clock on Friday instead of tomorrow
as planned.
Regarding Italy and Joint Secretariat
[Communique released to the press by the Council of Foreign
Ministers, London, September 14]
The Council of Foreign Ministers held two
sessions today, September 14, 1945. The morning
session was presided over by the Chinese Minister
for Foreign Affairs, Dr. Wang Shih-Chieh, and
afternoon session by the United States Secretary
of State, Mr. James F. Byrnes. The next meet-
ing of the Council will take place tomorrow at
o p. m. The Council began its discussion of terms
for a peace settlement with Italy. It was agreed
that all United Nations at war with Italy would be
invited to submit, if they wished, their views in
writing on this subject. It was also decided that
the President of the session. Dr. "Wang Shih-Chieh,
should extend on behalf of the Council invitations
to Yugoslavia, Italy, Australia, Canada, India,
New Zealand and South Africa, each to nominate
a representative, if they so desired, to attend the
meeting of Foreign Ministers to be held on Mon-
day. 17th, to express the views of their govern-
ments on the question of the Yugoslav-Italian
frontier.
The Council today approved the recommenda-
tions of the deputies in regard to a Joint Secre-
tariat as follows :
( 1 ) A Joint Secretariat shall be established con-
sisting of the secretaries of the five delegations.
The Joint Secretariat shall include the necessary
number of oflicials drawn from the five delegations,
the numbers required being established by agree-
ment between tlie secretaries of delegations.
(2) The Secretary General of the Joint Secre-
tariat is appointed by agreement between the
' For communique of the opening session see Bulletin
of Sept. IG, in45, p. 392.
secretaries of the delegations. Mr. Norman Brook
has been appointed Secretai"y General for the
period of the present visit of Foreign Ministers.
(3) The Joint Secretariat will organize the
technical handling of all the documents of the
Council. It will be responsible for reproducing in
a numbered series all documents submitted by
delegations for consideration by the Council and
circulating copies to all delegations. These docu-
ments will be reproduced in English, Russian,
French and, where necessary, Chinese, and the
Joint Secretariat will be responsible for arrang-
ing for translations to be made.
(4) The Joint Secretariat will make arrange-
ments for meetings. It will make any changes
desired in the times of the regular meetings of
Foreign Ministers and of deputies and it will
also assist in arranging such other meetings as
may be required. The Joint Secretariat will also
issue agenda papers for meetings whenever it is
possible to give notice in advance of the questions
to be discussed.
(.5) As regards the recording of meetings, the
Secretary General will jDrepare a full summary
of the proceedings at meetings of both Foreign
Ministers and deputies. He will submit these sum-
maries in draft to a meeting which he will hold
each evening with the other members of tlie Joint
Secretariat, who will thus have an opportunity to
offer comments and corrections. The summaries
will then be circulated to delegations by 8 a. m.
on the morning following the meetings to which
they relate, not as agreed records carrying the
full approval of all delegations, but as informal
summaries issued primarily on the responsibility
of the Secretary General, but after consultation
with a member of each delegation. A definitive
version of this summary will be issued later after
the receipt of any corrections from delegations.
The summaries will be discussed with all mem-
bers of the Joint Secretariat on the basis of an
English text. Translations into Russian and
Frencli will then be put in hand at once and these
should be available during the course of the fol-
I
OCTOBER 14, I9i5
565
lowing morning. It is recommended that this
system be tried on an experimental basis subject to
review in the light of experience.
(G) The Joint Secretariat will also make itself
responsible for securing in consultation with the
delegations a fully agreed statement of conclusions
reached by the Council as the work of the Council
proceeds. By this means the Joint Secretariat will
build up from day to day a body of agreed con-
clusions which will greatly facilitate the prepara-
tion of an agreed protocol and communique at the
conclusion of the Foreign Ministers' visit.
Views on Italian Peace Settlement
[Communique released to the press by the Council of Foreign
Ministers, London, September 15]
The Council of Foreign Ministers this afternoon
held its fifth meeting with the French Minister of
Foreign Affairs Mr. Bidault presiding. The next
meeting of the Council will be held at 11 o'clock
on Monday morning. The Council agreed to add
the names of Poland, Ukraine and Bielo Russia to
the list of countries invited to submit their views
in writing if they wished to do so on the Italian
peace settlement. The greater part of the last two
meetings of the Council has been devoted to con-
sideration of the question of the Italian Colonies.
It was decided today to refer this question to the
deputies for detailed study making the fullest
possible use of the plan proposed by the United
States Delegation and taking into account the
views expressed by the other delegations. The
deputies were asked to submit their recommenda-
tions two weeks before the date to be agreed later
of the second session of the Council.
Views on Yugoslav-Italian Frontier
[Communique released to the press by the Council of Foreign
Ministers, London, September 17]
The Council of Foreign Ministers held two
meetings today (Monday). Mr. Ernest Bevin
presided in the morning and Mr. Molotov in the
afteinoon.
The Council had arranged to hear the views of
the Yugoslav, British Dominion and Italian Gov-
ernments on the subject of the Yugoslav-Italian
frontier. Dr. H. V. Evatt, Minister of External
Aifairs for Australia, Dr. R. M. Campbell, Acting
High Commissioner for New Zealand, and Mr. G.
Heaton NichoUs, High Commissioner for the
Union of South Africa, attended to represent their
respective government for this purpose. The
chaiiman, however, announced the receipt of a
letter from the Yugoslav Delegation informing the
Council that they had only just reached London
and that their leader Dr. Kardelj, the Yugoslav
Vice Premier, was indisposed.
The Council thereupon decided to postpone un-
til tomorrow morning the hearing of views from
the invited governments upon the Italo-Yugoslav
frontier question and continue its consideration
of the directive which will guide deputies in their
preparation of a draft peace treaty with Italy.
This draft is to be submitted to the Council at its
second session.
[Communique released to the press by the Council of Foreign
Ministers, London, September 18]
At the morning meeting of the Council of For-
eign Ministers over which the Chinese Minister
for Foreign Affairs Dr. Wang Shih-Chieh pre-
sided, the views of the Yugoslav Government upon
the question of the Italo-Yugoslav frontier were
presented by Dr. Kardelj, the Yugoslav Vice
Premier. The United States Secretary of State
Mr. James F. Byrnes presided over the afternoon
meeting when Dr. Kardelj concluded his state-
ment and Count de Gasperi, the Italian Foreign
Minister, presented the views of his government.
It was decided to hold a further meeting later
in the evening to hear the view of the British
Dominion representatives.
[Communique released to the press by the Council of Foreign
Ministers, London, September 19]
The Council of Foreign Ministers met twice to-
day. Mr. Ernest Bevin presided in the morning
and Mr. Molotov in the afternoon. Both meetings
were devoted to further examination of the terms
of the peace treaty for Italy. The Council agreed
that the deputies should consider and report on
the problem of the Yugoslav-Italian frontier and
Trieste with the following terms of reference :
(A) To report on the line which will in the
main be the ethnic line leaving a minimum under
alien rule on the understanding that appropriate
investigations will be carried out on the spot be-
fore the final delineation of the frontier;
(B) To report on an international regime which
will assure that the port and transit facilities of
566
DEPARTMENT OF STATE BULLETIN
Trieste will be available for use on equal tei-ms
by all international trade and by Yugoslavia,
Italy and the states of central Europe as is cus-
tomary in other free ports of the world.
The Council will meet next at 11 o'clock to-
Consideration of Peace Treaties With Finland
and Rumania
[Communiqufi released to the press by the Council of Foreign
Ministers, London, September 20]
The Council of Foreign Ministers met twice
today, Thursday September 20. The Chinese Min-
ister for Foreign Affairs Wang Shih-Chieh pre-
sided at the morning meeting and the United
States Secretary of State Mr. James F. Byrnes at
the afternoon meeting. The Council devoted both
meetings to consideration of the general principles
of peace treaties with Finland and Rumania taking
the Soviet proposals as a basis for discussion. The
British Delegation also submitted proposals in
regard to both treaties and the United States in
regard to the treaty with Rumania. The next
meeting of the Council will be at 11 o'clock
tomorrow.
[Communique released to the press by the Council of Foreign
Ministers, London, September 21]
The Council of Foreigii Ministers met twice
today with Mr. Bidault the Foreign Minister of
France presiding in the morning and Mr. Bevin
the Foreign Minister of Great Britain presiduig in
the afternoon. In the morning the Council con-
tinued its discussion of the draft peace treaty
with Rumania. In the afternoon it turned to the
consideration of a draft peace treaty with Bul-
garia taking for its discussion the Soviet memo-
randum as a basis and examining at the same time
the British and United States proposals. The
Council will meet next tomorrow morning at
11 o'clock.
Discussion of Items on the Agenda
[Communique released to the press by the Council of Foreign
Ministers, London, September 22]
The Council of Foreign Ministers met this after-
noon Mr. Molotov presiding and continued its
discussion of items on the agenda. The next meet-
ing will take place at 11 o'clock on Monday
morning.
Discussion on Austria, Inland Watericays, and
Repatriation of Soviet Nationals
[Communique released to the press by the Council of Foreign
Ministers, London, September 24]
The Council of Foreign Ministers today held
two meetings, Dr. Wang presiding in the morning
and Mr. Byrnes in the afternoon. The questions
discussed by the Council were long-term supply
arrangements for Austria, a proposal for an emer-
gency regime for European inland waterways and
the acceleration of the repatriation of Soviet
nationals. The next meeting of the Council will
be held tomorrow at 11 o'clock.
[Communique released to the press by the Council of Foreign
Ministers, London, September 25]
The Council of Foreign Ministers met twice
today Mr. Bidault presiding in the morning and
Mr. Bevin in the afternoon.
The Council continued its consideration of the
memorandum by the Soviet Delegation on the
acceleration of the repatriation of Soviet nationals
and the repatriation of French nationals from the
areas under the control of the Soviet Government.
The Council also examined proposals put forward
by the Soviet Delegation for expediting the work
of the Reparations Commission. A French mem-
orandum on restitution was also discussed.
The next meeting of the Council will be held
at 11 o'clock tomorrow morning.
Discussion on Restitution and Control and Ad-
ministration of Germany
[Communique released to the press by the Council of Foreign
Ministers, London, September 26]
The Council of Foreign Ministers held two
meetings today, Mr. Molotov presiding in the
morning and Dr. Wang in the afternoon. The
Council in the morning discussed the French
memorandum on restitution. In the afternoon the
Council began examination of a memorandum by
the French Delegation on the control and admin-
istration of Germany. It was agreed to resume
this discussion at a future meeting of the present
session.
The Council will meet next tomorrow afternoon.
OCTOBER 14, 1945
567
[Communique released to the press by the Council of Foreign
Ministers, London, September 27]
The Council of Foreign Ministers met tliis after-
noon, Mr. Byrnes presiding.
The Council continued its discussion of the
French memorandum on the restitution of Allied
property stolen by the Germans.
The next meeting will take place tomorrow
morning at 11 :30.
Examination of Protocols
[Communique released to the press by the Council of Foreign
Ministers, London, September 29]
The Council of Foreign Ministers met twice
today, Mr. Molotov presiding in the morning and
Dr. Wang in the afternoon. Both meetings were
devoted to examination of the protocols of the
present session of the Council. The next meet-
ing will take place tomorrow afternoon at 3 o'clock.
[Communique released to the press by the Council of Foreign
Ministers, London, September 28]
The Council of Foreign Ministers held two
meetings today, Mr. Bidault presiding in the
morning and Mr. Bevin in the afternoon.
The Council again discussed the French memo-
randum on control and administration of Ger-
many and reviewed a report by the deputies on
items on the agenda which at previous meetings
the Council had agreed to defer for further ex-
amination.
The next meeting of the Council will be held
tomorrow morning at 11 : 30.
[Communique released to the press by the Council of Foreign
Ministers, London, October 2]
The Council of Foreign Ministers met Monday
night, Mr. Bevin presiding. The Council ad-
journed until 11 o'clock Tuesday morning.
Termination of Session
[Communique released to the press by the Council of Foreign
Ministers, London, October 2]
The Council of Foreign Ministers met twice to-
day, Mr. Molotov presiding in the morning and Dr.
Wang in the afternoon. At the second meeting the
Council decided to terminate its present session.
568
DEPARTMENT OF STATE BULLETIN
Visit of President Rios of Chile
PROGRAM OF VISIT IN THE UNITED STATES
tRcleased to the press October 6]
Members of the Party
His Excellency Juan Antonio Rfos, President of Chile.
The Hon. Eleodoro Dominguez, Senator.
The Hon. RAul Braiies, Deputy.
The Hon. Benjamin Claro-Velasco, former Minister of
Education.
Col. Ernesto Wurth-Rojas, Military Aide to the President.
Seuor Abraham Valenzuela, Personal Secretary of the
President.
Lieutenant Carlos RIos, son of the President.
His Excellency Marcial Mora, Ambassador of Chile to the
United States.
Embassy Secretary.
The Hon. Claude G. Bowers, American Ambassador to
Chile.
Brig. Gen. Milton A. Hill, American Military Aide.
Capt. G. F. M. Mentz, American Naval Aide.
Mr. Edward Na.sh, Department of State.
Mr. George Newkirk, Department of State.
Tuesday, October 9
p. m. Arrive Miami by Pan American Airways.
Honey Plaza Hotel, Miami Beach.
Wednesday, October 10
8 : 15 a. m. Depart Miami for Washington by train.
Thursday, October 11
4 : 40 a. m. Arrive Richmond, Va.
Luncheon.
Pjoceed by automobile from Richmond to
Wa.shington.
4:30p.m. Arrive White House, Washington. Mili-
tary Honors.
8 p. m. Dinner at tlie White House.
Friday, October 12
9 a. m.
11 a. m.
Ip. m.
Leave White House for Blair House.
Pre.ss conference at the Chilean Embassy.
Special meeting of the Board of Directors,
I'an American Union, followed by a lunch-
eon in honor of President RIos.
S p. m. Dinner in honor of President Rios given
liy (he Secretary of Stale at the Mayflower
Hotel.
9:
30 a.
m.
Ip.
m.
7;
:30p.
m.
9 p.
m,
11 : 15 a. m.
1 p. m.
3 : 30 p. m.
7 : 30 p. m.
9 : 55 a. m.
1 : 45 p. m.
7 : 30 p. m.
Saturday, October 13
Visit to Mount Vernon and Arlington Na-
tional Cemetery.
Visit to the Capitol.
Dinner at the Blair House (private).
Reception given by President RIos at the
Chilean Embassy.
Sunday, October 14
National Archives.
Luncheon (private).
Visit to Beltsville Research Center with
the Secretary of Commerce, Henry A.
Wallace, and the Secretary of Agriculture,
Clinton P. Anderson.
Dinner (private).
Monday, October 15
Depart from Washington for New York
City by train.
Arrive New York City. Reception com-
mittee headed by Mayor LaGuardia. The
President will stay at the Waldorf-Astoria
Hotel.
Reception and dinner given by the Pan
American Society and the Chile-American
Association at the Waldorf-Astoria Hotel.
Tuesday, October 16
11 a. m. Press conference at the Waldorf-Astoria
Hotel.
1 p. m. Luncheon offered by T. J. Watson at the
Union Club, Sixty-ninth Street and Park
Avenue.
6-8 p.m. Reception offered by the Chilean Colony
at the Park Lane Hotel.
8:30p.m. Dinner (private).
Wednesday, October 17
8 a. m. Visit to Hyde Park and West Point.
1p.m. Luncheon at the Military Academy, West
Point.
6 p. m. Return to the Waldorf-Astoria Hotel.
7p.m. Dinner at the Biltmorc Hotel (to be ar-
ranged ) .
Thursday, October 18
a. m. OiMMi.
1pm. Luncheon given by Col. Sosthenes Behn at
67 Broad.
3:30 p.m. Visit to Columbia University.
7; 30 p.m. Dinner given by Gordon S. Rentschler,
chairman of the Board of the National
City Bank of New York, at the River Club.
OCTOBER 14, 1945
569
Friday, October 19
10 a. m. Depart from New York to Philadelphia by
train.
11:32 a.m. Arrive Philadelphia (Thirtieth Street
Station).
12 noon Visit Independence Hall.
1 p. m. Luncheon given by the Commandant of
the Navy Yard.
4 : 30p. m. Tea and reception at the home of Dr. and
Mrs. George Woodward, Chestnut Hill.
7:04p.m. Leave Philadelphia (Thirtieth Street
Station) for New York.
8:40 p.m. Arrive New York.
9p.m. Dinner (private).
Saturday, October 20
11 a.m. Reception at City Hall by Mayor La-
Guardia.
1 p. m. Luncheon given by Mayor LaGuardia at
the Rainbow Room.
3 : 30p. m. Leave for Tarrytown, N. Y., country home
of Nelson A. Rockefeller.
Sunday, October 21
11 : 30 a. m. Leave Tarrytown for Long Island to the
country home of W. R. Grace, president of
Grace Line.
1 p. m. Luncheon at the home of Mr. Grace.
6 p. m. Return to the Waldorf-Astoria Hotel,
p.m. Dinner (private).
Monday, October 22
Noon Luncheon (private).
3 p. m. Depart for Ottawa by plane.
6 p. m. Arrive Ottawa.
Tuesday, October 23
Ottawa.
Wednesday, October 24
Montreal.
Thursday, October 25
Depart from Montreal for Chicago.
3 p. m. Arrive Chicago. President RIos will stay
at the B!ack.stone Hotel.
Friday, October 26
6 p.m. Depart from Chicago for San Francises
by train.
Sunday, October 28
9:50 a.m. Arrive San Francisco. President Rios
will stay at the Mark Hopkins Hotel.
Tuesday, October 30
11 a. m. Press conference.
5 : 30-7 : 30 p. m. Reception given by President Rios.
9 p.m. Depart from San Francisco for Los An-
geles by train.
Wednesday, October 31
9 a. m. Arrive Los Angeles. President Rfos will
stay at the Town Hou.se.
1p.m. Luncheon (private).
8 p. m. Dinner in honor of President Rios given
by the Mayor of Los Angeles.
Thursday, November 1
9 a. m. Depart from Los Angeles by plane for
Mexico.
ADDRESS OF WELCOME
BY THE SECRETARY OF STATE
[Released to the press by the Pan American Union October 12]
Mr. President : It is with great pleasure that I
extend to you on behalf of the Governing Board
of the Pan American Union the warmest possible
welcome. We are fully acquainted with the im-
portant service which you have rendered and are
today rendering to the people of Chile. Your ca-
reer has been marked by a constant and unswerv-
ing devotion to the welfare of the masses of the
people of your country. The advanced position
which you have taken in the field of social security
and social legislation has set a standard which has
had far-reaching influence beyond the borders of
your country. The people of Chile may well con-
gratulate themselves on having as Chief Executive
a man in whose administration the interests of the
masses of the people receive primary consideration
and whose sincere concern for their welfare has in-
creased the opportunities available to the average
citizen.
In the domain of inter-American relations, the
record of Chile is one of which you have every
reason to feel proud. The Government and the
people have from the earliest period of their na-
tional existence shown a deep sense of continental
solidarity, which has found expression in coopera-
tion with their sister republics of the Americas and
contributed much to strengthening the pan-Ameri-
can movement. Your representatives on this
Board have been unremitting in their efforts to
further the purposes for which the Pan American
Union was founded.
We welcome you today, Mr. President, as the
worthy representative of a great people and as a
staunch supporter of the principles on which this
Union of the American republics rests.
' Made at a special session of the Governing Board of the
Pan American T'nion held in honor of the President of
Chile, Juan Antonio Rfos, on Oct. 12, 194.5. The Secretary
of State is Chairman of the Governing Board.
570
DEPARTMENT OF STATE BULLETIN
International Bodies For Narcotics Control
BY PHILIP M. BURNETT '
T
|HE HAGUE CONVENTION of
1912 represented the first
formal step into the field
of international narcotic-
drug control.^ The convention provided that
the participating states should institute cer-
tain measures for controlling drugs within their
own territories and it laid down a nmnber of gen-
eral principles which remain as the foundation
of all subsequent work in this field. The conven-
tion was brought into force in 1915 by a few
countries which, having deposited their instru-
ments of ratification, signed a protocol to bring
the convention into effect. With respect to a
large number of countries, the convention came
into force only by virtue of the fact that ratifica-
tion of the Treaty of Versailles (art. 295) or of
certain other treaties of peace concluded at the
end of World War I was "deemed in all respects
equivalent" to ratification of the convention.
Under article 23 (c) of the Covenant of the
League of Nations, the members of the League
agreed to "entrust the League with the general
supervision over the execution of agreements with
regard to . . . the traffic in opium and other
dangei'ous drugs".
The First Assembly of the League created the
Advisory Committee on the Traffic in Opium and
Other Dangerous Drugs to secure the fullest pos-
sible cooperation between the various countries
in regard to narcotics control and to assist and
advise the Council in dealing with any questions
relating thereto.
The Geneva convention of 1925 strengthened the
Hague convention and instituted further control
over the international trade in narcotics by estab-
lishing a system of import certificates and export
authorizations and by entrasting supervision over
such trade to the Permanent Central Opium
Board, the composition and functions of which
were set forth in the convention.
The convention for Limiting the Manufacture
and Regulating the Distribution of Narcotic
Drugs (Geneva, 1931)^ advanced the area of con-
trol by limiting the world manufacture of narcotic
drugs to the world's medical and scientific needs
and by limiting in each country the accumulation
of stocks of such drugs. In both cases, the limita-
tion was to be accomplished by means of a system
of government estimates of annual drug require-
ments which should be examined by an interna-
tional Supervisory Body provided for in the con-
vention and which should thereafter be binding
upon the estimating governments.
The Convention for the Suppression of the Illicit
Traffic in Dangerous Drugs (Geneva, 1936) aimed
at the standardization of penalties for illicit
trafficking and at the international extradition of
those guilty of drug offenses. This instrument
came into force only in October 1939, as between
10 states. Since that time it has become effective
with respect to 3 additional states.
Taken together, these conventions form an inter-
dependent system that has steadily increased the
effectiveness of international control over narcotic
drugs.
The Hague convention of 1912 was in force
(July 1945) with respect to some 60 states, not
including the following: Argentina, Ethiopia,
' Mr. Burnett Is an officer in the Division of Inter-
national Organization Affairs, OfBce of Special Political
Affairs, Department of State. The sections on budget
and finance and on United States membership were pre-
pared in collaboration with Lyle L. Schmitter of the
Division of International Conferences, Office of Depart-
mental Administration, Department of State.
' Treaty Series 612.
' Treaty Series 863.
OCTOBER 14, 1945
571
Iran, Lithuania, and the Union of Soviet Socialist
Republics.
The Geneva convention of 1925 had been ratified
or adhered to (July 1945) by some 54 states, which
did not include the following: Afghanistan, Al-
bania, Argentina, China, Ethiopia, Guatemala,
Iceland, Iran, Liberia, Mexico, Nicaragua, Pan-
ama, Peru, Saudi Arabia, and the United States
of America.
The limitation convention of 1931 had been rati-
fied or adhered to (July 1945) by 64 states, which
did not include the following: Argentina, Bolivia,
Ethiopia, Iceland, Liberia, and Yugoslavia.
The 1936 convention had been ratified or adhered
to (July 1945) by Belgium, Brazil, Canada, China,
Colombia (ratification approved but not de-
posited) , Egypt, France, Greece, Guatemala, Haiti,
India, Rumania, and Turkey.
The SujDervisory Body has as its primary re-
sponsibility the examination of the estimates that
are submitted each year to the Permanent Central
Opium Board by each government that is a party
to the limitation convention of 1931. These are
estimates of the annual requirements for medical
and scientific needs within the territory of the
government concerned, together with the quantity
required for the establishment and maintenance
of government stocks. If countries or territories
to which the 1931 convention does not apply do
not furnish estimates, the Supervisory Body, so
far as possible, makes the estimates. The purpose
of the examination by the Supervisory Body is to
insure, so far as possible, against any overestima-
tion that would swell the totals beyond the world's
legitimate requirements and thereby permit an
excess of production that would tend to find its
way into the illicit traffic. The Supervisory Body
may request from the governments further infor-
mation; it may amend estimates, however, only
with the consent of the governments concerned.
Its suggestions to governments have generally been
accepted, and it has a final power, when it circu-
lates the estimates, of adding its own observations
and comments upon the figures submitted. The
quantities thus established become the basis for
the upper limit of the quantities that may be manu-
factured annually in the several countries. The
Supervisory Body publishes an annual statement
entitled "Estimated World Requirements of Dan-
gerous Drugs".*
The Permanent Central Opium Board receives
from the governments that are parties to the Ge-
neva convention of 1925 statistical returns relat-
ing to the production, manufacture, consumption,
stocks, import, and export of the raw materials or
narcotic drugs covered by the convention. Under
article 24 of the convention, the Board "shall con-
tinuously watch the course of the international
trade," with a view to discovering whether "exces-
sive quantities of any substance covered by the
present Convention are accumulating in any
country," or whether "there is a danger of that
country becoming a centre of the illicit traffic." If
the Board finds that either of these situations is
developing, it may set in motion a procedure laid
down in article 24, which includes asking for ex-
planations, reporting these explanations to the
parties to the convention and to the Council of the
League, and recommending to the parties a tem-
porary cessation of exports of narcotic substances
to the country in question. Under article 14 of the
limitation convention of 1931, the Board watches
the exports to and imports from the several coun-
tries, including those not parties to the convention,
and, if it finds that any country has obtained or
will obtain through international trade quantities
of drugs sufiicient to exceed its estimates, the
Board then immediately notifies the parties to the
convention, which are thereupon bound not to
authorize any new exports to the country in ques-
tion. The Permanent Central Opium Board pub-
lishes annual reports to the Council.^
The Advisory Committee on the Traffic in
Opimn and Other Dangerous Drugs, established
by the Assembly in 1920, has from the outset
materially influenced the shaping of policy, either
through the undertaking or initiation of studies
or through the guidance of preparations for new
conventions. It has also supervised the general
application of the drug conventions, especially
through the standardization of governmental
reporting.
Both the Assembly and Council of the League
of Nations have important functions in the sys-
tem of international narcotic control, wMch are
derived from the terms of article 23 (c) of the
Covenant. The functions of the Assembly in-
clude the making of decisions or recommenda-
' Copies are available at the Columbia University Press,
International Document Service, 2960 Broadway, New
York, N. Y.
' Not printed for years of 1941 and 1942.
572
DEPARTMENT OF STATE BULLETIN
tions relating to the work of the Advisory
Committee on tlie Traffic in Opium and Other
Dangerous Drugs and, through its budgetary pow-
ers, the providing for the financial support of the
various drug bodies. Tlie Council, like the As-
sembly, exercises a general and political .super-
vision over the opium work of the League, but
it also has certain executive functions. The
Council requests the Advisory Committee to
undertake studies, prepare international conven-
tions, and make recommendations. The reports
of the Committee and those of the Permanent
Central Opium Board are submitted to the Coun-
cil. Since the Advisory Committee is an organ
advisory to the Council, all decisions taken by
the Committee require the approval of the Coun-
cil. The Council also has certain specific powers
under the IQ'25 convention : Appointment of the
members of the Permanent Central Opium Board ;
the taking of remedial measures under article 24;
and the making of certain formal notifications.
The Drug Control Service of the Secretariat of
the League of Nations assists the Secretary-Gen-
eral of the League in the performance of the fol-
lowing functions that have been entrusted to him
under the several conventions : The making of cer-
tain required notifications; the control of the staff
of the Permanent Central Opium Board in ad-
ministrative matters and the appointment of the
secretary and staff of the Board on the nomination
of the I3oard and subject to the approval of the
Council; the providing of the secretariat for the
Supervisory Body ; and the insuring of close col-
laboration between the Body and the Permanent
Central Opium Board.
The Supervisory Body, under the terms of arti-
cle 5 of the limitation convention of 1931, is com-
posed of four members who are appointed, one
each, by the following bodies : The Opium Advi-
sory Committee; the Permanent Central Opium
Board; the Health Committee of the League of
Nations; and the International Office of Public
Health. The secretariat of the Supervisory Body
is provided by the Secretary-General of the
League, who insures close collaboration with the
Permanent Central Opium Board. The two opium
bodies have chosen as members of the Supervisory
Body persons with general and administrative ex-
perience ; the other two bodies have chosen medical
and health experts. The members are appointed
in their personal capacities and do not represent
the appointing bodies. The appointments have
been made, by the conmron consent of the appoint-
ing bodies, for terms of three years.
The Permanent Central Opium Board, under
article 19 of the Geneva convention of 1925, is ap-
pointed by the Council of the League of Nations
and consists of "eight persons who, by their tech-
nical competence, impartiality and disinterested-
ness, will command general confidence." The
United States and Germany were to be "invited
each to nominate one person to participate in these
appointments." Consideration is to be given "to
the importance of including on the Central Board,
in equitable proportion, persons possessing a
knowledge of the drug situation, both in the pro-
ducing and manufacturing countries on the one
hand and in the consuming countries on the other
hand, and connected with such countries." The
members of the Board are appointed for a term
of five years and are eligible for reappointment.
They do not represent governments.
Decisions of the Board upon cjuestions of whether
a country has accumulated excessive quantities of
drugs and of whether the contracting parties shall
be notified and recommended to impose an embargo
are taken by an absolute majority of the whole
number of the Board.
The Secretary-General of the League appoints
members of the staff on the nomination of the
Board and subject to the approval of the Council
and has administrative control over the staff.
The Council is to assure, under article 20, "the
full technical independence of the Board in carry-
ing out its duties"; and this has been taken to
mean that the Board is entirely independent of the
League or, in other words, that it is not a League
body.
The constituent resolution provided that the Ad-
visory Committee should be appointed by the
Council and that it should include i-epresentatives
of the countries "chiefly concerned" with the drug
traffic, "in particular Holland, Great Britain,
France, India, Japan, China, Siam, Portugal." At
its last session in 1910, the Committee was made
up of representatives of the following states in
addition to those mentioned above with the excep-
tion of Japan, who had withdrawn : Belgium,
Bulgaria, Canada, Czechoslovakia, Egypt, Greece,
Hungary, Iran, Mexico, Peru, Poland, Spain,
Switzerland, Turkey, United States of America,
Uruguay, and Yugoslavia. All the opium-produc-
ing countries were members except Afghanistan,
OCTOBER 14, 1945
573
Japan, and the Union of Soviet Socialist Kepub-
lics. Likewise represented were all the countries
producing coca leaves, all the principal manufac-
turing exporting countries, and all the countries
that have the opium-smoking problem — except,
in each of these categories, Japan.
In 1934, its first full year of operation, the
cost of implementing the limitation convention
of 1931 was 383,205.25 Swiss francs.
The total expenses of the Permanent Central
Opium Board for 1939, the last normal year,
amounted to 99,477 Swiss francs; those of the
Drug Control Service and the Supervisory Body
amounted to 302,448 Swiss francs, or a total of
401,925 Swiss francs. During 1942, it cost 90,-
475.65 Swiss francs to maintain the Permanent
Central Opium Board and 140,937 Swiss francs
to maintain the Drug Control Service and the
Supervisory Body, or a total of 231,412.65 Swiss
francs.
The amount of the total annual budget, as de-
termined by the League of Nations, is prorated
among the various member countries. League
members are assessed in the same proportion that
they contribute to the League budget; the United
States agi'eed to pay an amount equal to the
British quota. The British and United States
share was originally 10.6 percent, but this amount
has increased because of decreased membership
and reduced contributions on the part of those
states whose territories are wholly or partially
occupied. The United States quota was 11.775
percent of the total for 1939 and 22.8359 percent
for 1942, although total expenditures have been
reduced.
The United States has been a party to the
Hague convention of 1912 since the convention
came into force in February 1915.
Although the United States did not become a
member of the League of Nations, it has par-
ticipated in the work of the Opium Advisory
Committee since January 1923, where it has been
represented in an expert and advisory capacity.
United States representatives have taken an ac-
tive part in the meetings of the Committee and
its subcommittees.
The United States did not become a party to
the Geneva convention of 1925, which provided
for the creation of the Permanent Central Opium
Board. It has, however, cooperated with the
Board by making the reports for which the
Board has called. Since 1933 it has participated
in the nomination of candidates for the Board
and in the nomination of a representative to join
with the Council in the selection of the Board.
An American citizen, Herbert L. May, has been
a member of the Board since 1928.
In 1931, the United States took an active part
in the Geneva Conference on the Limitation of the
Manufacture of Narcotic Drugs, from which ema-
nated the limitation convention of 1931. To this
convention the United States ratification in 1931
was the first to be deposited. There is no specific
reference in the convention to financing.
The United States participated in the Geneva
conference of June 1936, from which emanated the
1936 Convention for the Suppression of the Illicit
Traffic in Dangerous Drugs. The convention as
drafted, however, was regarded as unacceptable to
the United States and was not signed by the Amer-
ican delegates.
The first appropriation of $12,086 was voted by
Congress in 1935 as payment of the United States
quota for the calendar year 1934 and approxi-
mately six months of 1933. An attempt was made
to pay the quota in September, but the League
maintained that the organizations were not in a
position to receive direct contributions and that
the money must be transmitted as a voluntary con-
tribution to the League of Nations, which in turn
would provide sufficient funds for their needs.
This suggestion was refused by the United States
and the money was returned and eventually rede-
posited into the Treasury. Subsequent appropri-
ations through the year 1939 lapsed into the Treas-
ury because the League of Nations would not per-
mit the international bodies to accept the pay-
ments. In 1940 certain changes were made in the
administrative functions within the League struc-
ture, and the payment for that year, $11,186.46,
was made. The assessment for 1942 was 88,075.20
Swiss francs, or $20,352.14, but payment in the
same amount as that for 1941 was made with the
explanation that the State Department did not
consider that the quota should be increased while
expenses were actually reduced.
The Bureau of Narcotics of the Ti-easury De-
partment and the Dejsartment of State are respon-
sible for different aspects of United States policy
concerning drug control.
The staffs of the drug-control bodies have been
reduced during the war and their activities neces-
sarilv limited.
574
DEPARTMENT OF STATE BULLETIN
Summary of Assessments and Payments
Year
Assessments in
Swiss francs
U. S. Payments
Percentage
ot Total
Budget
1933 (July 9 to Dec.
31). ...
32, 139. 15
67, 985. 20
58, 579. 35
73, 470. 00
76, 145. 35
78, 348. 35
78, 877. 90
47, 934. 00
63, 727. 75
88, 075. 20
none
$11, 186. 46
14, 726. 02
14, 726. 02
10.37
1934
10. 365
1935 --
10.38
1936
11.278
1937
11. 70
1938
11. 538
1939 ..
11.775
1940 ...
13.21
1941
20. 667
1942
22. 8359
The Permanent Central Opium Board continues
to collect statistics and estimates on drug traffic
in the Western Hemisphere, but reports from other
regions have fallen off markedl)'. The work of the
Supervisory Body has continued in practically the
same manner as in the years before the war. The
work of the Drug Control Service of the League
has declined considerably, mostly because of the
withdrawal of Germany, Italy, and Japan, and of
the difficulty of postal communications between
the Western Hemisphere and Geneva.
The Central Board, meeting at London in Sep-
tember 1942, decided not only to carry on the cur-
rent work of the narcotic drug services but also
to undertake preparatory work for the post-war
period which would "(1) insure the supply of
drugs that will be urgently required for medical
relief, particularly in countries that had been over-
run and devastated and (2) . . . develop the
control necessary to prevent illicit traffic and the
spread of addiction". In this connection it is pro-
posed to study possible post-war reorganization of
the system of national and international controls
established by existing conventions.
In February 1941, branch offices of the Super-
visory Body and the Permanent Central Opium
Board were opened in Washington, but the head-
quarters of these bodies remained in Geneva.
The position of the drug-control bodies in the
future and their relation to the projected structure
and function of the United Nations is at present
' Report to the President on the Results of the San
Francisco Conference (Department of State publication
2S40),p. 122.
a matter under consideration. In this connection,
the United States Delegate at the United Nations
Conference on International Organization, Mr.
Stettinius, made the following statement :
". . . Experience has shown that drug con-
trol raises issues which can best be met not by an
international health, economic or social agency,
but by the type of specialized agencies now func-
tioning so successfully in this field. Everything
possible should be done to safeguard the continued
operation of these agencies and services.
"The United States Delegation wishes to go on
record as hoping that the Organization will be en-
trusted with supervision over the execution of
existing or future international agreements with
regard to the control of the legitimate traffic in
opium and other dangerous drugs, and the suppres-
sion of illicit traffic in and abuse of such drugs;
that there shall be established an advisory body to
advise directly the Economic and Social Council
on these matters ; and that the existing agencies be
regarded as autonomous agencies to be related di-
rectly to the Economic and Social Council".*
Arrival of the Polish Minister
For Foreign Affairs
[Released to the press October 13]
The Minister for Foreign Affairs of the Polish
Provisional Government of National Unity, Mr.
Wincenty Ezymowski, arrived in Washington on
October 14.
At the San Francisco conference provisions were
made for Poland to sign the Charter as an original
member of the United Nations. Mr. Ezymowski
is coming to Washington, where the original of
the Charter is deposited, for the purpose of sign-
ing the document on behalf of Poland.
Mr. Rzymowski is accompanied by Madame
Rzymowski; Jozef Olszewski, Director of the
Political Department of the Polish Foreign Office ;
Mr. Wladyslaw Nizinski, of the Anglo-American
Section of the Foreign Office ; and an interpreter.
Mr. Rzymowski and his party will be enter-
tained by the Secretary of State at luncheon at the
Blair House on Tuesday, October 16. After the
luncheon, he will sign the United Nations Charter
on behalf of Poland.
OCTOBER 14, 1945
575
Estimate for UNRRA Appropriation
Letter From THE PRESIDENT ^
The White House,
Washington, October 4, 194S.
The Speaker of the House of Representatives.
Sir:
I have the honor to transmit herewith for the
consideration of Congress an estimate for the ap-
propriation of $550,000,000 for the United Nations
Relief and Rehabilitation Administration.
The United States pledged to UNRRA by act
of March 28, 1944, $1,350,000,000 to provide
urgently needed assistance to the victims of Axis
aggression. The $800,000,000 thus far made avail-
able by the Congress in accordance with this
pledge is now almost exhausted. I, therefore, urge
that we at this time appropriate to UNRRA the
remaining $550,000,000 of the amount previously
authorized. The details of this estimate are set
forth in the letter of the Director of the Bureau
of the Budget, transmitted herewith,^ in whose
comments and observations thereon I concur. As
previously indicated to the Congress, I shall
shortly submit a recoimnendation for the author-
ization of an additional contribution to enable
UNRRA to meet its new responsibilities and to
complete its programs.
The people of the liberated countries who so gal-
lantly resisted Axis oppression throughout the
war now face a winter of acute need and privation.
They look to UNRRA for assistance. Unless
UNRRA is enabled to speed ample shipments of
supplies to these war-stricken areas, widespread
starvation and disease will result. Our whole-
hearted support will be a real contribution toward
a stable and enduring peace.
Respectfully yours,
Harry S. Truman
' H.Doc. 305, 79th Cong.
' Not printed.
'Made before the Deficiency Subcommittee of the Ap-
propriations Committee of the House of Representatives,
Oct. 11, 1945.
Statement by
ASSISTANT SECRETARY CLAYTON'
[Released to the press October 11]
I welcome this opportunity to appear before
this committee in support of the President's
recommendation that Congress appropriate $550,-
000,000 for participation by the United States in
the work of the United Nations Relief and Rehabil-
itation Administration. The $550,000,000 re-
quested is the balance of the $1,350,000,000
authorized by Congress and is urgently needed in
as much as the $800,000,000 which has been ap-
propriated is now virtually exhausted.
A year and a half ago Congress approved par-
ticipation by the United States in UNRRA and
authorized the ajjpropriation of $1,350,000,000 as
the United States contribution to the work of the
organization. At that time none of the areas
which had been occupied by the enemy in Europe
or the Far East had been liberated. The United
Nations had created the UNRRA organization so
that joint planning could be achieved in prepara-
tion for the time of liberation when the urgent
requirements for relief and rehabilitation would
arise.
The UNRRA agreement provided that all of the
members should bear a share of the administrative
expenses of the organization, but only those coun-
tries whose territories had not been occupied by the
enemy should be asked to contribute the supplies,
services, and funds I'equired for relief and rehabil-
itation. The amount of the contribution of each
was arrived at by the application of a formula
which was adopted as the fairest measure of each
country's ability to contribute. That formula was
one percent of a country's national income for the
year ending June 'JO, 1943; in our case this
amounted to the $1,350,000,000 which Congress
authorized.
When, in 1944, appropriations were requested
pursuant to this authorization, it was still impossi-
ble to tell when liberation would occur in the areas
to be aided by UNRRA, so that no precise predic-
tions could be made as to the time funds would be
576
DEPARTMENT OF STATE BULLETIN
required. In view of this uncertainty, Congress
was requested to appropriate only $450,000,000
directly and to provide an authorization for the
transfer to UNRRA of an additional $350,000,000
of the supplies, services, and funds already avail-
able for disposition or expenditure by the Presi-
dent under the Lend-Lease Act. In this manner
UNRRA was enabled, when the European war
ended late last spring and the demands upon
UNRRA for assistance greatly increased beyond
the direct approi^riation of $450,000,000, to utilize
fimds and supplies which could be made available
by transfer from lend-lease appropriations pend-
ing a return to Congress for further appropria-
tions.
Since military conditions permitted UNRRA to
begin operations in the liberated areas late this
spring, the pace of UNRRA operations has ac-
celerated tremendously, and it has managed to
deliver to these war-torn areas very large quan-
tities of supplies, which have meant the difference
between acute distress and a semblance of decent
living. By the end of September UNRRA had
shipped an estimated 2,000,000 long tons of sup-
plies. Of these supplies, shipments from the
United States amounted to 895,513 tons, and an
additional 375,000 tons were made available from
U.S. military supplies overseas. The Director
General will present a fuller picture of UNRRA's
operations and accomplishments in the relief and
rehabilitation of victims of war.
The total amount of $800,000,000 heretofore
made available to UNRRA by Congress is almost
exhausted. The operations of UNRRA are now
approaching their peak, and the goods and serv-
ices which are to be supplied to liberated areas
out of the $800,000,000 previously made available,
and out of the available contributions of the other
contributing nations, will not be sufficient to en-
able UNRRA to continue its flow of food and
other supplies to destitute and devastated areas
throughout the winter. In order to avoid dis-
astrous interruption of the supply lines to the
millions of war victims who look to UNRRA for
a.ssistance during the forthcoming winter months,
prompt action on the President's request for an
additional appropriation is required.
It is expected that the $550,000,000 which you
are now requested to appropriate will all be spent
by December 31 of this year. The volume and
rate of procurement have increased because of
the readier availability of supplies and transpor-
tation and because UNRRA is now in full
operation.
It is the intention of this Government, through
the State Department, to supervise the expendi-
ture of this $550,000,000 if it is appropriated, in
the same way in which the FEA, under Mr.
Crowley, supervised the expenditui-e of the first
$800,000,000. To carry out this function we will
have the assistance of the staff which formerly
served under Mr. Crowley and which has a record
of real achievement to its credit.
It is our intention to use as much as possible of
the requested $550,000,000 to obtain surplus
United States property, as has been done in the
past. Every effort is being made to utilize United
States surpluses overseas as well as at home for
UNRRA purposes. One hundred fifty million
dollars has already been made available for the
transfer to UNRRA of United States Army sur-
pluses overseas. A mission, on which the Army,
FEA, and UNRRA were represented, left early
in September to survey the field and expedite
these transfers, and this work will continue, if the
additional $550,000,000 is granted. General Os-
borne will tell you about these activities.
I must point out, however, that there are limita-
tions upon the usefulness of Army surpluses to
meet UNRRA's needs. One of UNRRA's biggest
needs is foods, particularly bulk quantities of grain
and other staples which do not exist in Army
surpluses.
The end of the war in the Pacific has brought
the full pressure of demand to bear upon UNRRA.
All areas which will receive aid through UNRRA,
that is, all areas which are unable to pay in full for
their own relief and rehabilitation needs, have now
been liberated and are urgently in need of the
supplies and services which UNRRA was estab-
lished to provide. The period of waiting and plan-
ning is over everywhere, and the period of per-
formance, already begun in Europe, now embraces
the Far East.
It was imi:)ossible, when the original request for
contributions was presented to the Congress in the
winter of 1944, to estimate the number of countries
UNRRA would be called upon to assist or the ex-
tent of the needs in those countries. It was equally
imijossible to predict the length of time UNRRA
would have to remain in operation. Now, however,
we are in a position to answer these questions.
OCTOBER 14, 1945
577
We liave just concluded the third session of the
UNRRA Council in London, and it was there
agreed that we should contemplate the end of
UNRRA's operations in Europe by the end of
194:6 and in the Far East three months thereafter.
With these periods in mind, it became apparent
that an additional operating contribution would
be required from each of UNRRA's contributing
members. We proposed that provision be made
for the inclusion of Italy, Austria, Korea, and For-
mosa, and we agreed that provision of a limited
assistance would be made for the Ukrainian and
Byelorussian Soviet Socialist Republics. On this
basis, we concluded that a further amount equal to
our original contribution would be required to
carry out the purposes of UNRRA. We were un-
willing to agree to relief assistance which would
require us to recommend a larger contribution to
Congress, but we do not believe that a lesser amount
will provide the required assistance during the
remaining period of UNRRA's operations. As
the United States member of the UNRRA Council,
I proposed a resolution which was adopted by the
Council, recommending that each contributing
member of UNRRA should make an additional
operating contribution equal to one percent of the
national income of sudi country for the year
ending June 30. 1943.
Within a short time mc will ask Congress to
authorize this additional contribution. At that
time we will have available for i^resentation to
Congi-ess complete information as to the plans and
operating programs which UNRRA would under-
take under the new authorization.
We cannot wait until that time, however, to
request the appropriation of the remaining
$550,000,000 of the funds which Congress has al-
ready authorized for our participation in
UNRRA. A delay of even a few weeks will be
extremely serious, since UNRRA must move at
once to bring assistance to all of the newly lib-
erated lands who are unable to provide relief and
rehabilitation for themselves. The task is far too
urgent to permit any stoppage in relief supplies,
and that is what will happen if there is a period
during which UNRRA is unable to engage in any
procurement because of the absence of funds.
As you know, in any suppl}' ojieration there is
a necessary interval between the time funds are
committed against specific purchases and the time
actual deliveries are made and expenditures re-
corded. The length of this interval varies from
commodity to commodity. UNRRA is now in
a position, in so far as its United States con-
tribution is concerned, where it cannot today plan
on any additional future procurement of any sub-
stantial amount. The supplies for which its funds
are committed will be in the process of procure-
ment, shipment, and delivery for the next two or
three months. If it receives no additional funds
at this time deliveries from the United States
will cease entirely in most of the major items in
December and January. Since the United States
is the major contributing nation, particularly in
the field of food and clothing, this means that
without the additional appropriation of $550,-
000,000 UNRRA programs of relief will prac-
tically come to an end in the crucial period of the
winter.
The success of our arms and those of our Allies
has brought us a stunning victory. Today the
world is at peace for the first time in 15 years.
But peace must mean something more than the
absence of hostilities. It must mean the revival
of production and the renewed exchange of
goods. It must mean employment and increased
prosperity. The sooner those nations whose lands
have been stripped and ravaged can again help
themselves, the sooner all of us will enjoy the
fruits of our victory. UNRRA is the first step
in this direction.
Operations of UNRRA
FOURTH QUARTERLY REPORT
[Released to the press by the White House October 11]
To the Congress of the United States of Amenca:
I am transmitting herewith the 4th report to
Congress on UNRRA operations for the quarter
ending June 30, 1945, in which there has been in-
cluded a summary statement on the status of the
United States contribution to UNRRA as of
August 31, 1945.
Unconditional surrender of both Germany and
Japan has brought full victory to the United Na-
tions on the battlefields, but victory can have real
meaning only if it is speedily translated into a
secure peace. That gi-eat task is just beginning.
Victory over the enemy has been costly in mate-
rial things and in blood and suffering. Victory
in securing a lasting peace will continue to call for
the combined efforts of all peoples to bind up the
578
DEPARTMENT OF STATE BULLETIN
wounds left by the war so that solid foundations
will be laid for the future.
In the period under review in this report
UNRRA, increasingly freed from the restraints
imposed by military needs, moved into the large-
scale operations for which it had been maturing
plans, scheduling purchases, and building an or-
ganization. In Greece, Yugoslavia, and Albania
it took over supply responsibility at the request of
the allied military authorities. Operations were
under way in Poland and Czechoslovakia and con-
siderable shipments of supplies had arrived in
these countries. On the basis of the prior agi'ee-
ment with SHAEF and at the urgent request of
the military authorities, UNRRA teams were as-
sisting armed forces in the care and repatriation
of millions of allied displaced persons in Germany
and Austria. In the Far East the military situa-
tion was less favorable to UNRRA activities but
significant operations were carried on in China,
and the program for the Far East was further
elaborated in preparation for the day of liberation.
In order to carry through these operations and
to ensure that the supply pipe line would remain
full, UNRRA had to draw heavily upon the $450,-
000,000 appropriated by the Congress, and ar-
rangements were made to exercise the authority
contained in the appropriation act to utilize for
UNRRA purposes up to $350,000,000 of supplies,
services and funds available under the Lend-Lease
Act. In the succeeding months UNRRA's need
for United States supplies has continued to in-
crease with the result that it has been necessary
to utilize virtually all the funds and authority
available under the appropriation act.
Through UNRRA the United States is making
and will make its contribution for relief to the
liberated peoples. In order that these people may
move ahead toward the tremendous task of recon-
struction, they must have the basic materials to
regain their strength. Wliere we at home have
shortages and inconveniences, millions in other
lands lack even the bare necessities of life. Life
abroad in the coming winter will depend upon the
outside assistance which this country and other
countries can render to the liberated peoples.
UNRRA, struggling as it has in the face of
world deficits of critical supplies and of shipping,
has made a substantial beginning in the immense
task of relief and rehabilitation. The more this
task can be speeded up through the early delivery
of vitally needed supplies, the sooner it will be pos-
sible for UNRRA to withdraw, leaving the liber-
ated peoples on a firm footing to carry on their
own life. The Government of the United States
and the other members of UNRRA are meeting
this common problem as the United Nations are
attempting to meet other world problems — to-
gether and to the best of their respective abilities.
Harry S. Truman
The White House
October 11, 19^6
UNRRA Program in Italy^
[Released to the press by DNRRA October 0]
UNRRA at present is carrying on in Italy a lim-
ited program. This was authorized by the Council
at its second session in Montreal, September 1944.
This program is not to cost more than $50,000,000.
It is serving children and mothers with supple-
mentary rations and giving some medical aid to
the population generally, also assistance in care of
displaced persons.
The UNRRA Council has authorized an ex-
panded — a full scale — program in Italy at as early
a time as it can be started. We are working
toward the goal of starting it early in January.
Carrying on this program, of course, will be possi-
ble only if the uninvaded member nations of
UNRRA contribute the supplies and funds asked
by the Council at its meeting in London, August
1945, when a second contribution of one percent
of the national income of each of the 31 uninvaded
member nations in the year ended June 30, 1943
was requested.
Continued aid to Italy after January 1 is a mat-
ter of life and death for that country. Italy can-
not grow enough food to feed itself. Southern
Italy is especially poor, and the Allied armies have
done a good job in caring for civilians in the face
of great difficulties. The military program of
assistance ended September 1. Then began the
three-month FEA interim program of $100,000,-
000. This is a good beginning to assist Italy to its
feet. That program, besides providing food,
medicine, clothing, and other necessities of daily
life, will send some cotton, wool, and rubber to
help start industry going and give aid to men pre-
viously employed by the military or returned from
forced labor in Germany. But this FEA supply
'Statement by Spurgeon M. Keeny, Chief, UNRRA
Italian Mission.
OCTOBER 14, 1945
579
line will end in December. Unless UNRRA funds
become available, the pipeline will become dry.
Italian industry is almost entirely dependent on
imported coal. If Italy has coal, cotton, and wool,
she can make some of her own clothing. This
method instead of cutting deeply into our own sup-
ply of textiles provides a market for some of our
surplus cotton and wool. The cloth made will in
turn bring to market more of the wheat that the
Italian farmer now tends to hold back because he is
afraid to sell for lire that have little buying power.
Italy's wheat crop this year is the worst in 20
years. She must have at least 150,000 tons of wheat
a month until the next harvest. Even this amount
of wheat will not increase the present meager ra-
tioned food supply of less than 1,000 calories daily
per person. Of course, Italians get more than this.
But everything beyond the 1,000 calories of ra-
tioned food must be bought in the open market at
prices so high that the average family's earnings
must nearly all go for food.
But the expanded UNRRA program contem-
plated for Italy if the uninvaded United Nations
provide the financing must do more than help to
feed the country. If nothing more is done, Italy
will be as helpless at the end of 1946 as it is now.
Phosphate rock and spare parts for agricultural
machinery must be brought in to help Italy grow
more food. Anyone who has traveled throughout
Italy must be impressed with the fact that every
bit of land is being cultivated except those spots
that have been mined or flooded. Anyone who says
Italy is not trying to help itself has not seen men
and women dig entire fields by hand for the lack
of animals to pull the plows.
The 1945 UNRRA program for Italy is limited
to the feeding of undernourished children, to
medical care, and to assistance to displaced persons
and refugees to return to their homes. About 1
million children are now being fed. This number
will increase to 2 million before Christmas. Emer-
gency medical and hospital supplies are being dis-
tributed. By next year Italy will be able to make
many of its own medicines but to do so will need
most of the raw chemicals and drugs. The return
of displaced persons and refugees is well under
way. Almost 1 million Italians have been returned
from Germany by the military, which has done an
excellent job in moving a great niunber of people
home before winter. In addition, almost 1 million
Italians in Italy must be returned to the homes
from which they were removed at the time of
military operations. Finding shelter is the most
diiEcult problem because nearly 6 million rooms
have been destroyed in Italy in military operations.
The second-hand clothing contributed by the
American people is proving a godsend to Italians
who are able to buy nothing new because supplies
are so short and prices so high. In Italy, a shirt
now costs at least $15 and a pair of men's shoes $50
worth of lire. At this moment, some 5 million
pounds of clothing from the recent drive are on
their way to Italy, where they will be distributed
by UNRRA and American Relief for Italy in
cooperation.
Of all parts of Italy, Sardinia is perhaj)s the
hardest hit. Its production was small in normal
times, and its crops have failed this year both
because of the drought and because of the plague
of grasshoppers. In addition, it has one of the
worst malaria rates in Italy. In order to deal with
the situation a project is being worked out with the
Rockefeller Foundation whereby it is hoped to
stamp out malaria in Sardinia within two years.
UNRRA will supply the materials, using largely
army-surplus transport and medical supplies ; local
expenditures will be supplied by the Italian Gov-
ernment, and the technical supervision will be done
by the Rockefeller Foundation.
In all of the relief program Italy is a full
partner, and for every dollar of supplies landed in
the country it contributes 100 lire to a special fund.
This means that all of UNRRA's money can be
used to buy supplies. The Italian contribution
pays all expenses of the program in the country.
All lire not so spent will be used to extend the pro-
gram and to serve as a cushion when UNRRA
withdraws, as it hopes to do, by the end of 1946.
It is not always understood that the proposed
so-called "expanded" UNRRA progi-am for 1946
is not an expansion at all but a merging of the
present limited UNRRA program and that which
has been carried by the military and FEA. This
relief is essential to the life of Italy, because Italy's
economy is a highly dependent one. Parallel with
this relief, however, there must be developed a pro-
gram of commercial credits which will make it
possible for Italy to make additional purchases of
raw materials, especially of industrial supplies.
Only if this program of credits and raw materials
is pushed at full speed can international trade be
resumed and relief be promptly brought to an end.
580
DEPARTMENT OF STATE BULLETIN
Financial and Trade Discussions
With the United Kingdom: United States Objectives
A correspondent asked Assistant Secretary Clay-
ton at a press conference on October 9 what policy
"would underlie the United States Government in
its current financial and trade talks with the Brit-
ish. Mr. Clayton replied that from his point of
view, if the government could not justify an agree-
ment with the British which might result from
these talks, there would be no use in undertaking
it. He said that he was not inclined to justify the
agreement on the basis of partnership in the war,
adding that, altliough a great deal could be said
on that score, he thought that if a satisfactory
arrangement could be worked out with the British
it could be completely justified on the basis of the
benefits that would accrue to this country in the
future. Mr. Clayton said that if Britain did not
get assistance from the United States her alterna-
tive would be to fall back upon defensive trade
measures; to further solidify and cement the eco-
nomic bloc that exists now around the British
Empire; to cut down her importations of goods
to the very bone from every country outside of the
Emi)ire; to channel her trade to the sterling coun-
tries and just build up an economic bloc there that
would inevitably mean that corresponding blocs
would be built up in the rest of the world ; so that
there would be a situation vez-y bad from both the
economic and political point of view.
Mr. Clayton declai-ed that it was the object of
the Department of State to try to get the world
back on a multilateral basis of trading and of
economic intercourse and relations, and to break
up, as far as possible, these economic blocs that
have developed. He said that he believed this was
the right course not only because it fits with Amer-
ican plans for a great expansion in world economy
and production and consumption and interchange
of goods, but also because the United States be-
lieves that kind of atmosphere is necessary to pre-
vent development in the world of political blocs
and spheres of influence out of which in time grow
all kinds of differences between nations and be-
tween groups of nations which sow the seeds of
conflict.
Mr. Clayton explained that if the United States
does not assist her to get back on to a multilateral
basis of trade, Great Britain, who has been one of
our best customers for years, will inevitably resort
to bilateral arrangements with the resultant loss of
markets for American tobacco, cotton, and other
products.
FAR EASTERN ADVISORY COMMISSION— Continued
from page 561
Commission. Prior to such termination, the Com-
mission shall transfer to any interim or perma-
nent security organization of which the partici-
pating Governments are members, those functions
which may appropriately be transferred.
APPOINTMENT OF REPRESENTATIVES
[Released to the press October 12]
The Department has been informed by the
American Legation at Canberra, Australia, that
the Australian Government has accepted with
pleasure the invitation to participate in the Far
Eastern Advisory Commission and has designated
H. V. Evatt, Minister for External Affairs, as its
representative on the Commission.
The American Embassy in Paris has informed
the Department that the French Government has
accepted the invitation to participate in the Far
Eastern Advisory Commission, and that the
French representative will be named in due course.
The American Embassy in Ottawa on October 11
telegrai^hed the Department that the Canadian
Government will gladly participate in the Far
Eastern Advisory Commission and will be repre-
sented at the initial meeting on October 23 by
Lester B. Pearson, the Canadian Ambassador in
Washington.
OCTOBER 14, 1945
581
Thirty-fourth Anniversary
of the Republic of China
MESSAGE FROM PRESIDENT TRUMAN
TO GENERALISSIMO CHIANG KAI-SHEK
[Released to the press October 8]
October 8, 1945.
His Excellency
Generalissimo Chiang Kai-shek,
President of the National Government of the
Repuhlic of China
Chungking (China).
Upon the thirty-fourth anniversary of the
founding of the Republic of China the American
people join me in sending to Your Excellency and
to the people of China sincere congratulations and
good wishes.
Harey S. Truman
Ratification of Charter
of the United Nations
[Released to the press October 10]
Denmark
Henrik de Kauffmann, Minister of Denmark, de-
posited with the Department of State on Oi:tober
9 the Danish instrument of ratification of the
Charter of the United Nations and the annexed
Statute of the International Court of Justice.
Denmark is the twelfth nation to complete the
necessary action on the Charter.
[Released to the press October 12]
Chile
Juan Antonio Eios, President of Chile, delivered
to President Truman at the White House on Oc-
tober 11 his instrument of ratification of the
Charter.
STATEMENT BY THE PRESIDENT
[Released to the press by the White House October 10]
The American people today join the people of
all free nations in saluting the people of China
upon this thirty-fourth anniversary of China's
national revolution. For the first time in 14 years
China is able to celebrate the Double Tenth with-
out fear of aggression. The tremendous sacrifices
which the Chinese people made for so long in their
stirring and effective resistance to the Japanese
invader have finally been rewarded in complete
victory over the enemy, and the American people
take pride in the decisive role played by our gal-
lant Ally in this titanic struggle for world freedom.
With final victory in the war achieved, China
now faces the urgent problems of reconstruction
of her devastated nation — a task which will re-
quire all of the inspired leadership and full co-
operation of the Chinese people which have been
so evident during these years of desperate struggle
for survival and without which Japan's savage
aims of aggression might have succeeded.
On behalf of the American people I take pleasure
in reafiirming our abiding faith in the ability of
the Chinese nation to accomplish the democratic
objectives established for it by Dr. Sun Yat-sen
and in pledging our assistance and support to the
attainment of this end.
Philippine Commonwealth
Earlier on October 11 the Resident Commis-
sioner of the Philippines to the United States,
Brig. Gen. Carlos P. Romulo, deposited with the
Department of State the Philippine instrument
of ratification of the Charter.
Paraguay
Celso R. Velazquez, Ambassador of Paraguay,
deposited with the Department of State on October
12 the Paraguayan instrument of ratification of
the Charter.
The following 15 governments have now depos-
ited instruments of ratification in the order listed :
United States of America on August 8
Fiance on August 31
Dominican Republic on September 4
Nicaragua on September 6
New Zealand on September 19
Brazil on September 21
Argentina on September 24
El Salvador on September 26
Haiti on September 27
China on September 28
Turkey on September 28
Denmark on October 9
Philippine Commonwealth on October 11
Chile on October 11
Paraguay on October 12
582
DEPARTMENT OF STATE BULLETIN
Resignation of Frank McCarthy as Assistant Secretary of State
EXCHANGE OF LETTERS BETWEEN THE PRESIDENT AND MR. MCCARTHY
[Released to the press by the White House October 11]
Frank McCarthy has sent the following letter
to the President, submitting his resignation as
Assistant Secretary of State:
October 11, 1945.
My Dear Mr. President:
Since I left the Army in August and came to the
Department of State, my health has steadily de-
clined. Eecently I have been told by my physician
that I am suffering from an accumulated fatigue
which can be relieved only if I am willing to lay
aside all responsibility for a period of at least two
or three months, perhaps a longer time. I am
further advised that a failure on my part to correct
this condition quickly will result in some perma-
nent impairment of my health.
I have discussed witli the Secretary of State,
the Under Secretary, and a number of other officers
of the Department, and of the Bureau of the
Budget, certain administrative measures which
will, I believe, strengthen the Department for the
task which it faces. These can be effectively insti-
tuted only by aggressive, forceful leadership. The
need for such leadership is immediate. I do not
believe it can be provided through the designation
of an Acting Assistant Secretary for Administra-
tion. The weaknesses of such an arrangement are
inherent and obvious ; I do not think the Depart-
ment should accept them at this time.
In addition, I feel that my best chance of future
usefulness lies in my determination not to resume
any form of responsibility until I have recovered
completely and beyond question. I do not know
how long this may take.
Under these circumstances, I wish to offer my
resignation as Assistant Seci'etary of State.
It is with regret that I am forced to relinquish
the opportunity you have given me for high serv-
ice. In doing so, I wish to express my appreciation
of your confidence and trust.
Faithfully yours,
Frank McCartht
The text of the President's reply follows :
October 11, 1945.
Dear Colonel McCarthy :
I have just read your letter of this date. Re-
cently I was told that you were disturbed about
your health, but I hoped that after a rest you would
find it possible to continue your work as Assistant
Secretary of State.
I understand your position, and I cannot ask
you to do anything that would in the opinion of
your iJhysician and in your opinion delay your
recovery.
Therefore with deep regret, and with apprecia-
tion of the valuable service you have rendered, I
accept your resignation.
Very sincerely yours,
Harry S. Trtjsian
Traveling Accommodations
in the Far East
[Released to the press October 8]
The Department of State has arranged with
the War Department to have food, quarters, and
local transportation furnished to American busi-
nessmen traveling in the Far East, when such
accommodations are not obtainable in the usual
way. This assistance will be furnished by Army
supi^ly facilities, as is now being done in the
areas of Europe occupied by United States forces,
as long as the Army has such facilities in
oi^eration.
In order to obtain this aid, businessmen whose
American passports are correctly endorsed for
travel to the Far East should apply, after arrival,
to the American mission or consulate serving the
area they are in. No arrangements can be made
in this country prior to departure, and no guar-
anty is made that aid will not be unavailable due
to conditions beyond control.
OCTOBER 14, 1945
Pan-American Book Exposition
[Released to the press by the Pan American Union October 12]
More than 4,000 volumes — representing the
work of 190 publishing houses throughout the
Western Hemisphere — have been received by the
Columbus Memorial Library of the Pan Amer-
ican Union to be displayed during the first Pan
American Book Exposition, opening October 12.
The exhibit, unique among inter- American cul-
tural events, will give thousands of Washingto-
nians and visitors to the national capital a compre-
hensive look at Latin American literary output.
Forty-two United States publishers will also be
represented, showing 141 volumes of translations
and books on Latin American themes.
The diversity of material to be exhibited is
notable, with every field of writing from higher
mathematics and comparative religion to chil-
dren's verse and cookbooks included in the expo-
sition. Many volumes are translations of timeless
classics and contemporary best sellers of all lands,
rendered into Spanish or Portuguese from Greek,
Latin, English, French, German, Russian, Chinese,
and the Scandinavian.
A survey of titles reveals a lively interest among
Latin Americans in the history, literature, poli-
tics, and art of neighbor republics. "Brazilian
Policy in Paraguay" is a treatise published in
Argentina, which country also sent to the exhibit
a "General History of Peru", as well as Spanish
translations of novels by Nathaniel Hawthorne,
Theodore Dreiser, John Erskine, and many an-
other author familiar to this country.
Items from Chile include Emil Ludwig's "Na-
poleon", "Now and Forever", by Pearl Buck, and
Carl Sandburg's "Mary Todd Lincoln". The
names of Pierre Loti and Max Lerner catch the
eye in the Mexican collection. Publishers in Peru,
Colombia, Uruguay, and Brazil also contributed
translated works by English-language writers and
books dealing with varied aspects of life in the
rest of the hemisphere.
These, however, represent only a fraction of the
material to be displayed. Most of it is original
prose and poetry by living Latin Americans, treat-
ing of the history and politics, the folklore, drama,
topography, and outstanding figures, past and
583
present, of their native lands. It is, in short, a
vital, articulate cross-section of those other
Americas with whom we live in ever-increasing
intimacy.
Not only the variety of content but also the dis-
tinctive editorial techniques, formats, and physi-
cal composition represented in the exhibit will at-
tract the book lover. Although paper-back vol-
umes — designed for mass consumption and priced
from 30 cents to a dollar. United States currency —
form the bulk of the exhibit, several hundred books
handsomely bound in leather and cloth will be
shown.
Argentine publishers, who produced a total of
19,342,719 volumes in 1944, easily topping the out-
put of all other Latin American countries com-
bined, have sent 3,186 examples of their work to the
Pan American Exposition. One firm, the Emece
Editores of Buenos Aires, printed a special catalog
for the occasion, containing descriptions and price
lists of the 204 titles they will show.
Guillermo Kraft, president of La Camara del
Libro Argentino (Argentine Book Society), was
chiefly instrumental in securing the participation
of all leading editorial houses in that southern re-
public. Dr. Kraft organized both the highly suc-
cessful 1943 Argentine Book Fair and the exposi-
tion of Argentine literature held in Santiago,
Chile, early this year.
In all, editorial firms of 17 Latin American re-
publics have sent their best and latest works to the
exliibit, which will be open to the public daily from
Columbus Day until November 12 in the Hall of
the Americas of the Pan American Union.
Appointment of Mark Etheridge
To Investigate Conditions
In the Balkans
At his press and radio conference on October
10, the Secretary of State announced the appoint-
ment of Mark Etheridge of the Louisville Courier-
Journal as a representative of tliis Government
to investigate conditions in the Balkan states.
584
DEPARTMENT OF STATE BULLETIN
Iraqi Barter Agreements
Palestine
The Legation at Baghdad transmitted to the
Department with a despatch dated September 4,
1945 a text of a barter agreement signed by Iraq
and Palestine, probably early in the spring of
1945. According to the terms of the agreement
each Government will issue import licenses for
merchandise specified in the agreement, and upon
the receipt of an import license from the other
country the Government of the territory of
despatch will issue an export license and accord
such facilities for export as are possible. The
agreement is valid for one year from the date of
signature, but with the understanding that the
total quantities of the commodities will be sliipped
in as short a period of time as is possible. Cows
and woolen yarn will be sent from Iraq to Pales-
tine, while Nablus soap, washing soap, earthen-
wares, glasswares, and cotton goods will be sent
from Palestine. In each case the trade will be
valued at about 190,000 Iraqi dinars ($767,000).
The agreement with Palestine is similar to barter
agreements concluded this year by Iraq with
Lebanon and with Syria.
Lebanon
The Lebanese-Iraqi agreement was signed at
Beirut on February 27, 1945 and provides for the
exchange of certain commodities considered essen-
tial for both countries. The text and an accom-
panying schedule of commodities considered essen-
tial for both countries comprising a program for
six months' barter were set forth in Iraqi Notifica-
tion no. 36 of 1945, dated at Baghdad May 16, 1945.
In both countries, export licenses will be issued
to resident merchants recognized by both parties
as being properly qualified and residing in the
country where the license is issued. The merchants
must pledge execution of the export operation, as
well as importation of a specific quantity of any of
the commodities named, as an offset of the products
exported. The agreement is valid for six months
but may be renewed at the end of this or any other
six months' period on the same terms after con-
sultation by both sides one month before the
expiration of the agreement.
The commodities to move from Iraq to Lebanon
under this agreement include rice, woolen yam.
sheep, cows, oxen, ox and buffalo hides, and linseed.
Trade from Lebanon to Iraq will consist of cement,
matches, glassware, cardboard, tanned leather, and
tanned sole leather. In each case the total value
of the commodities involved is 257,000 dinars
($1,037,000).
Syria
Early in March an Iraqi-Syrian barter agree-
ment was signed in Damascus. The full text of
this agreement has not yet been published, but it is
stated in official circles that its terms are identical
with those of the Lebanese-Iraqi agreement. It is
reported that the commodities to be furnished by
Iraq to Syria are rice, woolen yarns, cow and
buffalo hides, oxen, cows, sheep, goats, broken
glass, and paper waste, while Syria is to send to
Iraq Aleppo soap, silk, cotton textiles, hemp ropes,
matches, tanned sole leather, cement, socks and
stockings, and neckties. In each case the trade will
be valued at 1,000,000 Iraqi dinars ($4,035,000) .
Aviation Agreements
The Department of State has recently received
notes of accejatance of the Interim Agreement on
International Civil Aviation from Spain and
from Greece and of the International Air Services
Transit Agreement from Spain, from Australia,
and from Greece, and a note from the Nether-
lands relinquishing the reservation which it had
made regarding the Fifth Freedom with respect
to the International Air Transport Agreement as
provided in article IV, section 1, of that agree-
ment.
The interim agreement became binding with
regard to Spain on August 2 and with regard to
Greece on September 21 in accordance with article
XVII of that agreement, which provides that it
shall become binding upon the receipt of a note
of acceptance by the Government of the United
States.
The Spanish note on the transit agi'eement was
dated July 27 and received August 2, the Aus-
tralian note dated August 25 and received August
28, and the Greek note dated July 9 and received
September 21.
The note from the Netherlands Embassy re-
linquishing the reservation in the transport agree-
ment was dated September 21.
OCTOBER 14, 1945
585
Return of Americans
on the "Gripsliolm"
[Rpleased to the press October 8]
The Department of State announced that the
relief ship, the M.V. Gripsholm, arrived at Pier
F, Jersey City, N. J., on October 9, 1945. The
Gripsholm carried to the United States approxi-
mately 1,325 American citizens with their close
alien relatives from Palestine, Egypt, Greece, and
Italy. There were also on board approximately
175 Red Cross personnel returning fi-om service
with the armed forces in Europe.
The Chipsholm is expected to sail from Newark
on October 16, carrying American oiBcials and
businessmen and alien deportees to Italy, Greece,
and Egypt.
Repatriation of Americans
From Shanghai
[Released to the press on October 13]
The Department of State has received from the
American Consulate General at Shanghai the list
of civilians who left Shanghai on the hospital ship
Refugee on September 27. From other sources,
the Department has learned that the passengers
reached Guam safely and are due at a west-coast
port about October 20. The names of the pas-
sengers are printed in press release 247.
Denunciation of Patent-
Interchange Agreement
The Secretary of State informed the British
Ambassador by a note dated October 8, 1945 of
the termination on April 8, 1946 of the agreement
between the United States and Great Britain on
the Interchange of Patent Eights, Information,
Inventions, Designs, or Processes which was signed
at Washington August 24, 1942.^ The notice was
given pursuant to article XV of the agreement,
which pro%ndes that it may be terminated at the
option of either Government and that the date of
termination shall be not less than six months from
the giving of notice.
Patrick J. Hurley To
Return to China
[Relcnsed to the press October 13]
The Department of State announced on October
13 that Ambassador Patrick J. Hurley will return
to China after he has had a short rest.
THE DEPARTMENT
Appointment of .Officers
Bryn J. Hovde as Consultant in the Office of In-
ternational Information and Cultural Affairs^
effective September 26, 1945.
John A. Loftus as Chief of the Petroleum Di-.
vision, effective October 2, 1945.
William E. DeCourcy as Chief of the Division
of Foreign Service Personnel, effective October 5,
1945.
Col. Alfred McCormack as Special Assistant to
the Secretary, in charge of research and intelli-
gence, effective September 28, 1945. The routing
symbol for Colonel McCormack's office is SA-Mc.
Board of Foreign Service Personnel
William L. Clayton, Assistant Secretary in
charge of economic affairs, as a member of the
Board of Foreign Service Personnel to replace
Dean Acheson, effective August 20, 1945.
Change in Name of the Special War
Problems Division to Special Pro-
jects Division^
Pucffose. This order is issued to reflect more
accurately the functions of the Special War Prob-
lems Division in view of the termination of hos-
tilities.
1 Change in naine of the division. The name of
the Special War Problems Division of the Office
of Controls is hereby changed to Special Projects
Division (routing symbol SPD).
2 Fimctions of the division. The functions of
the division shall remain unchanged.
' Executive Agreement Series 2f)8.
' Department Order 1341, dated and effective Oct. 3,
19J5.
586
DEPARTMENT OF STATE BULLETIN
3 Orders UTnended. Departmental Order 1301
of December 20, 1944 and any other orders the
provisions of which are in conflict herewith, are
accordingly amended.
Frank McCarthy
Assistant Secretary
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^ THE CONGRESS ^
Policy Covering the Use and Development of the Atomic
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committee of the Committee on the Judiciary, United
States Senate, and the Special Committee Investigating
Petroleum Resources (S. Res. 36), Seventy-ninth Con-
gress, first session, on S. 11, a bill to protect the foreign
relations and to promote trade and commerce of the
United States, to require the disclosure to the United
States of information affecting such trade and commerce,
and to safeguard the security of the United States. May
17, 18, 21, and 22, 1945. iii, 267 pp. [Indexed.]
■^ THE FOREIGN SERVICE ^
Consular Offices
The American Consulate General at Tientsin,
China, was reestablished October 7, 1945.
U. S. GOVERNHEHT PRINTING OFFICE; t94S
THE DEPARTMENT OF STATE
BU
J
H
1 r
1
VOL. XIII, NO. 330
OCTOBER 21, 1945
In this issue
THE ROLE OF INTERNATIONAL INFORMATION SERVICE IN CONDUCT
OF FOREIGN RELATIONS
Statements by Assistant Secretary Benton
MILITARY GOVERNMENT OF GERMANY
Directive to the Commander in Chief of United States Forces of Occupation
IS UNRRA DOING ITS JOB?
A Radio Broadcast
REESTABLISHMENT OF THE INTERNATIONAL REGIME IN TANGIER
Vl«^NT o^
-*^tes o^
For complete contents
see inside cover
/
THE DEPARTMENT OF STATE
BULLETIN
Vol. Xiri'No. 330»
• PUBMCATIOtf 2405
October 21, 1945
The Department of State BULLETIN,
a weekly publication compiled and
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by the Secretary of State and other
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cerning treaties and international
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is or may become a party and treaties
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ontents
American Republics ^"^^ p^gg
Visit of President Rfos of Chile. Statement by President
Truman g4g
Europe
Military Government of Germany: Directive to the Com-
mander in Chief of the United States Forces of Occupa-
tion 596
Displaced Persons in Germany. Letter from General Eisen-
hower to the President 607
Anniversary of Czechoslovak Independence. Statement by
the President 609
Recognition of Provisional Austrian Government 612
Decision by Allied Council in Austria 612
Postponement of Marshal Zhukov's Visit to the United
States 612
Far East
UNRRA Mission to Gather Information on Displaced Per-
sons in the Far East 628
Travel to Korea 643
Far Eastern Advisory Commission:
Date for First Meeting 643
Appointment of Representatives 643
The Post- War Period in the Far East. Address by John
Carter Vincent 644
Postal Regulations for Mail to China 622
Near East
Henry F. Grady To Observe Greek Elections. Statement
by the Secretary of State 611
Attitude of American Government Toward Palestine . . . 623
Economic Affaies
Study on Developments in Scandinavian Pulp and Paper
Industries 627
Is UNRRA Doing Its Job? A Radio Broadcast .... 629
Financial Arrangements Favorable to International Trade.
Remarks by Charles Bunn 637
Advisory Health-Group Meeting 640
Acceptance of Invitation to Telecommunications Confer-
ence 649
The United Nations
Meeting of United Nations Food and Agriculture Organ-
ization:
Message of President Truman 619
Organization of Commissions and Committees 620
Educational and Cultural Conference:
Invitation to the Conference 624
Date for Convening of Conference 624
United States Delegation 624
Preparatory Commission of the United Nations:
Arrangements for Trusteeship Council 626
Discussion on Organization of Information Services . . . 626
Proposed International Health Organization: Requests
From China and Brazil on Calling of Conference . . . 638
Treaty Information
International Military Tribunal 695
Arrangements With Belgium on Financial and Supply
Problems 610
Reestablishment of the International Regime in Tangier . 613
Signing of the FAO Constitution 619
{Continued on page 660)
i
The Role of
International Information Service
in Conduct of Foreign Relations
Statements by ASSISTANT SECRETARY BEINTON
[Released to the press October 16]
There follows the text of a statement read by
Assistant Secretary of State Benton before the
House Foreign Affairs Committee on October
16:
The theme of my testimony here today is that
the United States Government — and specifically
the State Department — cannot be indifferent to
the ways in which our Nation is portrayed in other
countries. It has an obligation — perhaps I
should call it an opportunity and a challenge — to
help give to the people of other lands what Presi-
dent Truman describes as "a full and fair picture
of American life and of the aims and policies of
the United States Government".
Peoples Speaking to Peoples
H.R. 4368 ^ reflects some profound changes in
tlie conduct of foreign relations in the twentieth
century — and jjarticularly in the last 20 years.
These changes are obvious to you who have been
following the development of foreign relations.
I refer to them now merely as background for the
discussion of this bill.
There was a time when foreign affairs were
ruler-to-ruler relations, when the rulers dealt pri-
vately and secretlj' with one another through
their ambassadors. Even when absolute rulers
gave way to representative governments, the rela-
tions often continued to be secret and private
through ambassadors. These government-to-gov-
ernment relationships prevailed until the first
World War.
Since 1918 the relations between nations have
constantly been broadened to include not merely
governments but also peoples. The peoples of the
world are exercising an ever larger influence upon
decisions of foreign policy. That is as it should
be.
The impact of America is one of the forces be-
hind this trend. Amei'ica is the leader in the
development of the field of communications. We
have been a leader in the whole field of science and
technology.
Short-wave broadcasting has grown up within
the last 20 years, and notably in tlie last 10. Rates
for the international transmission of news have
been reduced by 50 percent, 75 percent, and in some
instances by 90 percent, resulting in a vastly
greater flow of information from one country to
another. Magazines now have international cir-
culation. Books are being translated and sold
internationally in far greater quantities. The
motion picture appeals to everybody everywhere
and reaches all corners of the world.
The peoples themselves, as well as their ideas,
are moving about the world farther and faster.
Now they can fly around the world on a commer-
cial schedule of 6 days. It is a fairly safe predic-
tion that the volume of tourist and commercial
travel will increase steadily, and perhaps spec-
tacularly, unless we are thrown once more into
depression or international conflict.
These trends are not new to you. But they have
an important bearing upon the proposals covered
' H. R. 4368, a bill to extend and broaden the existing
programs for the interchange of persons, knowledge, and
skills between the people of the United States and the
peoples of other countries.
589
590
DEPARTMENT OF STATE BULLETIN,
by H.lt. 4368. They mean that we in the United
States have a new challenge — and a new and
unprecedented opportunity — to exchange informa-
tion, learning, and skill with the people of other
countries and thus not only to build a firmer
foundation for our commerce but to provide that
broad base of mutual understanding which makes
for world peace.
Limits of the Proposed Program
Now some of the things I have just said may
seem to be sweeping generalizations put forth to
justify a seemingly unlimited operation. I
should like to state two basic limitations whicli I
feel should apply to all programs.
First, I am against any indiscriminate, miscel-
laneous campaigns aimed to develop so-called
"good-will". All programs abroad in the field of
so-called "cultural relations" should be designed
to support U.S. foreign policy in its long-range
sense, and to serve as an arm of that ijolicy. Many
of the programs will, I trust, be educational and
humanitarian in the highest sense. But this is not
a bill to create and legitimize "Uncle Santa Claus".
The benefits from it must be two-way benefits, to
us as well as to others.
Second, the dissemination of information about
the United States and the process of cultural ex-
change must continue, in overwhelming degree,
to be non-governmental in character and in func-
tion. The State Department should not attempt
to undertake what private press, radio, and
motion-jjicture organizations do better, or what
our tourists, the salesmen of our commercial com-
panies, our advertisers, our technicians, our book
publisliers and play producers, and our universities
do regularly and well.
The Government's role here is facilitative and
supplementary. Its first job is to be helpful to
the private agencies engaged in international ex-
change of information, skill, and art, and to the
tens of thousands of private individuals going
abroad who act as cultural ambassadors. The sec-
ond job of Government — the supplementary job —
is te help present a truer picture of American life
and American policy in those areas important to
our policy where private interchange is inadequate,
or where misunderstandings and misapprehensions
exist about the United States and its policies.
Mr. Chairman, may I remind the committee that
* Bulletin of Sept. 2, 1945, p. 300.
I entered upon Government service within the past
30 days after 25 years in private business and in
the administration of a university which Is pri-
vately endowed. I believe that the citizens of this
country and its private institutions should be
encouraged to do everything that they can pos-
sibly do. This is my basic approach. It affects
everything else that I have to say this morning.
However, I know there are some areas which only
Goverimient can or will handle, and we must study
these areas and win the understanding of business,
of the people, and of Congress for Government
activities in them.
The Positive Side of the Policy
President Truman, in his statement of August
31, said that "The nature of present-day foreign
relations makes it essential for the United States
to maintain informational activities abroad as an
integral part of the conduct of our foreign
affairs." ^ Our aim is to promote the cause of
peaces through peaceful intercourse, through trade,
travel, investment abroad, scientific exchange, and
through clearer understanding of other countries
within the United States and of the United States
abroad.
From the point of view of security, it seems self-
evident that popular understanding of the United
States in other countries, if it is accurate, will
strengthen the possibility of friendship and politi-
cal cooperation. I know all of you trust that the
world Organization whicli was chartered in San
Francisco shall develop constructively. That Or-
ganization is no permanent guarantor of peace.
It is simply a mechanism. The success of that
mechanism depends upon the spirit in which it is
used.
The peoples of the world are going to have a
gi'eat deal to say about the policies which their
governments will advocate in the Security Council
and in the Assembly of the world Organization.
If programs for the dissemination of information
abroad, and for technical and educational coopera-
tion, can contribute even in a small way to the
better understanding between peoples, and thus
enhance the likelihood of world peace, these activi-
ties will warrant their relatively modest cost.
The interchange of skill, culture, and informa-
tion costs very little in contrast to a single battle-
ship in a fleet of battleships. Today I can hardly
imagine a cultural-relations progi'am on a world
scale which, on an annual basis, would equal the
OCTOBER 21, 1945
591
cost of a battleship. A battleship is a traditional
and ortliodox expenditure of the taxpayer's dollar.
The exchange of skills, knowledge, students, scien-
tists, and other specialists is a relatively new idea
and lience, to some, unorthodox. We should not
close our minds because of that. We should, on
the contrary, with the development of the atomic
bomb and other terrifying weapons of destruction,
place our small and inconsf)icuous bets on these
long-range measures which hold some reasonable
hope and promise that the world can learn to live
together in peace and understanding.
Our military and economic power is now so great
that it is bound to lead many people and groups
througliout the world to distrust us, or fear us, or
even hate us, and not all the information work in
the world, or all the technical and educational co-
operation activities in the world, can wholly pre-
vent it. At least we can try to minimize the un-
truthful impressions of this country and to see that
accurate knowledge counteracts the gi'owth of
suspicion and prejudice.
A cooperative foreign policy, as ours is, must
be open, proclaimed, popularly arrived at at home,
and clearly understood abroad. Any foreign
policy must be viewed in the light of national
history and character of the country that formu-
lates it. If the policies of the United States are to
be clearly understood and acted upon in other
countries, their peoples must be aware, in some
measure, of our national characteristics indis-
pensable to the interpretation of our policies.
There is a commercial as well as a security a.spect
here. Although these informational and cultural
programs cannot be measured in dollar-and-cents
return, and should not be, it is obvious that trade
with the United States will be stimulated abroad
by an acquaintance with American technology and
methods. The commercial position of Germany
before this war indicated that a national reputa-
tion for scientific and technical know-how is one
of the great factors in begetting trade and com-
merce. People bought German books and German
precision instruments because the Germans had
demonstrated that they were at that time leaders
in these fields, and German industrial exports
followed. Foreign students who come here will
come to know American methods and American
products. American scientists and technicians
who go abroad will arouse interest in American
ways and American products.
There is still another and less obvious relation-
ship between the purposes of this bill and our
foreign economic relations. The United States,
as the world's leading creditor, and with the
world's largest industrial capacity, has the greatest
stake in world prosperity. Anything we can do, in
cooperation with other governments, to make
knowledge available on public health, on educa-
tional methods, and on the development of agri-
cultural products which are complementary to
those of the United States will in the long run
react to the advantage of the United States. Such
cooperation tends to raise the standard of living
in other countries. American trade flourishes best
with those nations with high standards of living.
Operations
The people of the United States, through their
government, make direct contact with other
peoples in two major ways. The first is through
an international information program. The
second is a program of technical and educational
cooperation. In 1939 the Congress authorized the
Department of State to initiate such a program
with the other American republics. This program
was extended, during the war, to China and
countries of the Near East.
The Information Program
First, I should like to comment on the informa-
tion program. The President's Executive order
of August 31, 1945 transferred to the Department
of State the foreign information activities of the
Office of War Information and the Office of Inter-
American Affairs. The committee is no doubt
familiar with the provisions of this Executive
order, but it may be convenient if, with your per-
mission, I submit the full text at this point for in^
sertion in the Record.^
By the terms of this order the Depai'tment in-
herited two big and energetic overseas informa-
tion agencies — ^both of them organized and deT
velojjed to meet wartime needs, both of them much
too costly for peacetime purposes, but both of
them engaged in a vitally important job.
The soundest procedure for peacetime, in my
opinion, is for the State Depai'tment to determine,
and to keep determining as conditions change,
American needs in the various fields of overseas
information — news, motion pictures, publications,
and the rest — and then to support and help private
' Bulletin of Sept. 2, 1945, p. ,307.
592
DEPARTMEI^T OF STATE BULLETIN
industry to do everything it will and can to meet
those needs. I am consulting with representa-
tives of private industry in these fields, in the
expectation that much of the job will be taken off
the Government's shoulders. The remainder of
the job, with the approval of the Congress, will
devolve upon the future overseas information
service within the Department of State.
This is work that can and should be done on a
modest scale. I have already ordered the reduc-
tion of our radio output from 40 to 18 languages.
I have approved the discontinuance of Victory,
USA, and Photo Review, the magazines formerly
jjublished by the OWI, and an early termination of
En Guardia, the magazine published by the Office
of Inter-American Affairs. Extensive produc-
tion of pamphlets by both of these agencies has
been eliminated almost completely. The radio-
photo network of the OWI will, I hope, be taken
over by private companies. The cable-wireless
news operation of the OWI has already been dras-
tically reduced.
I cite these reductions only to show that the
Department has no intention to continue an infor-
mation program on anything approaching the
scale of the wartime activities.
Furthermore, it is not our intention to compete
in expenditure with the information organizations
of other governments. We cannot rely, however,
on the private or governmental facilities of other
countries — even our best friends abroad — to make
the world better acquainted with America as it
really is.
In other words, in the field of information over-
seas we are today carrying on, cutting down, and
planning, all at the same time. The process is not
simple and decisions are not easy, as the committee
can see from the single baffling example of short-
wave radio. Here is an instrument of informa-
tion and education of enormous potential value.
It can cross oceans, leap frontiers, speak directly
to foreign peoples in their own languages. Other
governments are using it on an increasing scale,
and its technical efficiency is growing almost from
day to day.
What is to be done with it ? It is expensive ; one
third of the entire cost of today's overseas infor-
mation work is represented by the programming
and operation of short-wave radio and its relaying
by medium wave. It is generally unprofitable for
private industry, since there is no way of assuring
adequate revenue from listeners abroad or spon-
sors at home; and in any case only 13 of the 36
transmitters now in use in the United States were
in operation at the time of Pearl Harbor. All
the rest were built for or by the Government. To
scrap these new transmitters, 18 of which are
owned by the Government, and to stop program-
ming them at once, would not seem intelligent
from the point of view of the future national
interest.
Since there is a great national interest involved,
and since this is one of the most complicated prob-
lems in the whole field of government, the De-
partment of State cannot possibly decide this par-
ticular issue now. The problem needs to be
studied in its entirety and recommendations most
carefully made for submission to the Congress.
We have no choice, it seems to me, but to continue
the operation of short-wave radio on a reduced
scale, with fewer languages, fewer hours on the
air, and fewer employees, until such a study can
be completed and recommendations made.
Perhaps this one illustration will help show the
kind of problem faced in our overseas information
program. It goes without saying that the former
activities of the two war agencies are now being
combined into an operation which I hope will be-
come increasingly efficient, and certainly far less
costly.
Learning, the Arts, and Technical Exchanges
In the field of cooperation involving learning,
the arts, and technical skills, my staff has prepared
for this committee a prospectus of the kinds of
cooperative activities in which this Government
has engaged in the past. Copies of this prospectus
are being distributed to the committee members.
This is in no sense a blueprint of a program, even
a tentative program, for the years ahead. No
one can foresee in any detail how a program of
this sort may develop. With your permission, Mr.
Chairman, I ask that this document be i-egarded
as something like a shoemaker's pattern, some-
thing which he uses in cutting a broad outline of
the shoe from the piece of leather. Later the
shoemaker trims and modifies the leather to fit
the shoe.
I should like, however, to summarize here briefly
some of the proposals in this prospectus.
Technicians of the United States Government
have been loaned to a dozen Latin American coun-
tries in the past 5 years, and about 25 U.S. Gov-
OCTOBER 21, 1945
593
ernment officials have been helping the Chinese
Government during the war. The expenses of
these men have been shared between governments.
These American officials have been specialists in
soil conservation, jjublic health, weather forecast-
ing, tidal surveys, aircraft safety measures, and
many other fields.
These United States officials were not sent only
to carry on relief or rehabilitation or economic de-
velojDment, or to engage in administrative work
or operations. True, they did all these things.
They conducted demonstration projects, they
trained others to carry on, and they supervised
and consulted. They helped other countries to
help themselves. But in the process they made
other countries familiar with American ideas and
skills.
In liberated countries, this is now a most timely
form of cooperation. A small number of Ameri-
can technical personnel can now contribute Ameri-
can ideas or American methods, which may well
influence the basic planning of those countries for
the next 50 years.
Another illustration is the exchange of students
between other countries and the United States.
The Chinese Boxer Indemnity scholarships, based
upon funds which this Congress returned to China
in 1908, have produced many of the outstanding
leaders of China today. In the past 5 years our
State Department scholarships to Latin American
students have won expressions of appreciation
from the other American republics. Those schol-
arships have been extended not only for study in
our universities but also for training in our indus-
tries and in United States Government agencies.
Toda_y there are thousands of American boys
and girls, including those entitled to training and
education under the GI bill, who want to study
abroad. This bill gives the Department authority
to extend this program of scholarship to countries
throughout the world, when and as indicated.
A third activity proposed under this program
is the promotion abroad of American books, Amer-
ican authors, and the American concept of public
libraries. We should continue to maintain in the
principal capitals of the woi'ld small reading
rooms of American books and periodicals. These
reading rooms serve both our embassies and the
public.
Other potential projects listed in the prospectus
are before you. Several officers of the Depart-
ment who are here today are familiar with the
o{Deration of the programs of the past 6 years and
will be glad to give you their judgment on future
possibilities that may prove promising and pro-
ductive.
Before closing, I should like to make one obser-
vation on the language of this bill. I have asked
the qualified law officers of the Department to
comment on the text of this bill. I am told that
section 2 on page 2 contains the basic authorizing
authority. All the remainder of the bill provides
the necessary flexibility for dealing with a great
variety of nationalities, of accounting systems, of
laws, and of courtesies which it is necessary to
observe outside the United States in carrying on
this program. My staif has prepared a mimeo-
graphed explanation of each clause in this bill, as
they interpret it, and how each clause would be
applied by the Department of State. I believe
you have copies of this analysis before you now.
If this committee and the Congress approves, it is
my intention to ask Secretary Byrnes to issue
strict regulations governing the use of waivers of
law which are contained in this bill. I can assure
you that such waivers will be used only when they
are necessary to accomplish the purposes of the
act.
[Released to the press October 17]
Assistant Secretaiij Benton testified 'before the
Appi'opriations Committee of the House of
Repi^esentatives in executive session on October
4, lOJfS. Excerpts from Mr. Benton^ s statement^!
the first by Mr. Benton or the Department of
State indicatinff the tentative lines of the De-
partmenfs policy in the field of overseas infor-
mation, appear below.
On Se^jtember 12 the Acting Secretary of State,
Mr. Acheson, wrote you that the Department
would determine "as promptly as possible" which
of the transferred functions should be continued
after the end of this year and which should be
abolished.' He explained that we would not be
able to recommend a program for the future until
we had finished our survey. He did say, how-
ever, that I would appear before you, especially
"to advise you as to the vital need of an interna-
tional information service and the important role
' Not printed.
594
DEPARTMENT OF STATE BULLETIN
such a service will have to play in tlif i)()i^t-wai'
conduct of our foreign relations."
The Need for Information About America Abroad
I have with me excerpts from telegrams and
letters to the Department from the heads of our
diplomatic missions abroad, urging in one way or
another the continuance of American information
services in their areas.
America's sti-ength, and America's good ex-
ample, need to be undei'stood beyond our borders.
Our military and economic power is so great, in
fact, that it is bound to lead many people and
groups throughout the world to distrust us or fear
us or even hate us, and not all the information
work in the world can wholly prevent it. At least
we can try to minimize the unfair or untruthful
impressions of this country, and to see that ac-
curate knowledge counteracts the growth of
suspicion and prejudice.
The Department of State believes that a con-
structive program in this area is essential in the
conduct of American foreign relations. It believes
that we must try to give other countries what the
President has called "a full and fair picture of
American life and of the aims and policies of the
United States Government." ^
Private facilities can do a very big part of the
job, and, as far as I am concerned, the more the
better. The soundest procedure, in my opinion, is
for the State Department to determine, and to
keep determining as conditions change, American
needs in the various fields of overseas informa-
tion — news, motion pictures, publications, and the
rest — and then to support and help private in-
dustry to do everything it will and can to meet
those needs. Already I am consulting with
representatives of private industry in these fields,
in the hope that much of the job can be taken off
the Government's shoulders. The remainder of
the job, with the approval of this connnittee and
the Congress, will devolve upon the future over-
seas information service within the State Depart-
ment.
The Transitional or Emergency Task Abroad
Some of this work will be transitional and tem-
porary, in the backwash of the war. Information
' Bulletin of Sept. 2, 104J. p. 300.
has to be supplied and controlled in Germany and
Japan in accordance with policy directives from
Washington and the orders of our military author-
ities on the spot. The same is true, to a different
degree, in Austria and in the city of Trieste, where
American troops are part of an Allied occupation.
Another example is the Army's urgent request for
the help of information teams in France, to keep
the good-will and understanding of the civilians
in areas where great numbers of our troops are
waiting for transportation home.
Vast areas in the Balkans and eastern Europe
are still cut off from normal contact with America,
and special efforts will be needed for some time
to see that American policy and its backgroimd are
presented truthfully. Still greater areas in south-
eastern Asia and China have just been liberated
from the Japanese. For almost four years in some
places, almost eight years in others, a black curtain
has cut these people off from the United States and
the rest of the world. The lies spread by Japan
will have to be counteracted, and the truth about
our country will have to be told, if we are to win
and hold the respect of the people of Asia.
The Long-Term Information Job Abroad
These are areas where emergency work has to
be done riglit now and for some months to come.
But there is also a long-term information job to
be done everj'where in the world — in Latin Amer-
ica, in Europe, in the ]\liddle East, the British
Commonwealth, and Russia. In these areas, too,
truth and not special pleading is our instrument
in clarifying American policy and in presenting a
frank, accurate picture of American life.
This is work that can and should be done on a
modest scale. Perhaps 3 or -i American informa-
tion officers in the smaller counti'ies, 10 to 20 in the
larger, will be enough, with the help of a compact
and efficient service organization at home. I
would not come hei'e today to justify this work on
a basis of dollar-and-cents return, but it is only fair
to say that anything which promotes good-will
and understanding of our country also promotes
American business abroad.
We have no intention of competing in expendi-
ture with the information organizations of other
governments, but we cannot rely on the private or
governmental facilities of other countries — even
of our best friends abroad — to make the world bet-
ter acquainted with America as it really is.
OCTOBER 21, 1945
595
Through the cooperative efforts of American
private industry and Government, this work is
going on now under the interim service tliat has
been set up in the State Department.' There can
be no break in the continuity, although the scale
and the scope of our information work has already
been cut sharply from its wartime level, and will
be cut much further before the end of the year.
We can do the necessary peacetime work with far
fewer people and at far less cost.
No Program Can Be Submitted Until Later
I cite this to show the committee why I cannot
appear before you with estimates which reflect
a program. The figures before you are merely
rough estimates made at your request shortly after
the collapse of Japan, before the Department knew
what it wanted to continue or abolish in the over-
seas information field. You will see that these
figures provide for sharp reductions, and we are
trying to reduce even further, where possible.
Secretary Byrnes has asked me to submit to him,
before January 1, recommendations for the long-
term infoi'mation program. From the first quick
look I have been able to make, the long-term pro-
gram we shall submit to you later will be so much
smaller that it will bear little resemblance to the
programs of the wartime agencies involved.
In the meantime, I respectfully request, on be-
half of the department charged with the grave
responsibility of conducting our foreign relations,
that you allow it to carry on this vital work.
International
Military Tribunal
The War Department released on October 18
the text of the indictment against German war
criminals as filed with the International Military
Tribunal in Berlin on that date. The following
two paragraphs of the indictment specify the de-
fendants and the nature of the crimes of which
they are accused :
I. The United States of America, the French
Republic, the United Kingdom of Great Britain
and Northern Ireland, and the Union of Soviet
Socialist Republics by the undersigned, Robert
670358—45 2
H. Jackson, Francois de Menthon, Hartley Shaw-
cross and R. A. Rudenko, duly appointed to rep-
resent their resjjective Governments in the investi-
gation of the charges against and the prosecution
of the major war criminals, pursuant to the Agree-
ment of London dated August 8, 1945, and the
Charter of this Tribunal annexed thereto, hereby
accuse as guilty, in the respects hereinafter set
forth, of Crimes against Peace, War Crimes, and
Crimes against Humanity, and of a Common Plan
or Conspiracy to commit those Crimes, all as de-
fiiied in the Charter of the Tribunal, and accord-
ingly name as defendants in this cause and as
indicted on the counts hereinafter set out : Her-
mann Wilhelm Goring, Rudolph Hess, Joachim
von Ribbentrop, Robert Ley, Wilhelm Keitel,
Ernst Kaltenbrunner, Alfred Rosenberg, Hans
Frank, Wilhelm Frick, Julius Streichei-, Walter
Funk, Hjalmer Schacht, Gustav Krupp von Bohlen
und Halbach, Karl Diinitz, Erich Raeder, Baldur
von Schirach, Fritz Sauckel, Alfred Jodl, Martin
Bormann, Franz von Papen, Artur Seyss-Inquart,
Albert Speer, Constantin von Neurath and Hans
Fritzsche, individually and as members of any of
the groups or organizations next hereinafter
named.
II. The following are named as groups or or-
ganizations (since dissolved) whicli should be
declared criminal by reason of their aims and
the means used for the accomplisliment thereof and
in connection with the conviction of such of the
named defendants as were members thereof : Die
Reichsregierung (Reich Cabinet) ; Das Korps der
Politischen Leiter der Nationalsozialistischen
Deutsclien Arbeiterpartei (Leadership Corps of
the Nazi Party) ; Die Schutzstatfeln der National-
sozialistischen Deutschen Arbeiterpartei (com-
monly known as the "SS") and including Die
Sicherheitsdienst (commonly known as the "SD") ;
Die Geheime Staatspolizei (Secret State Police,
commonly known as the '"Gestapo") ; Die Stur-
mabteilungen der N. S. D. A. P. (commonly known
as the "SA") ; and the General Staff and High
Command of the German Armed Forces. The
identity and membership of tlie groups or organ-
izations referred to in the foregoing titles are
hereinafter in appendix B - more particularly
defined.
' Bulletin of Sept. 16, 1945, p. 418.
■ Not here printed.
596
DEPARTMENT OF STATE BULLETIN
Military Government of Germany
DIRECTIVE TO THE COMMANDER IN CHIEF
OF THE UNITED STATES FORCES OF OCCUPATION
[Released to the press Oetolier 17]
It is considered appropriate, at the time of the
release to the American public of the following
directive setting forth United States policy with
reference to the military government of Germany,
to preface the directive with a short statement of
the circumstances surrounding the issuance of the
directive to General Eisenhower.
The directive was issued originally in April 1945,
and was intended to serve two purposes. It was
to guide General Eisenhower in the military gov-
ernment of that portion of Germany occupied by
United States forces. At the same time he was
diiected to urge the Control Council to adopt these
policies for enforcement throughout Germany.
Before this directive was discussed in the Control
Council, President Truman, Prime Minister Attlee,
and Generalissimo Stalin met at Potsdam and is-
sued a communique setting forth agreed policies
for the control of Germany. This communique
was made public on August 2, 194.5.'^ The direc-
tive, therefore, should be read in the light of the
policies enumerated at Potsdam. In particular,
its provisions regarding disarmament, economic
and financial matters, and reparations should be
read together with the similar provisions set out
in the Potsdam agi'eement on the treatment of
Germany in the initial control period and in the
agreement on reparations contained in the Pots-
dam communique. Many of the policy statements
contained in the directive have been in substance
adopted by the Potsdam agreement. Some policy
statements in the Potsdam agreement differ from
the policy statements on the same subjects in the
directive. In such cases, the policies of the Pots-
dam agreement are controlling. Where the Pots-
dam agi-eement is silent on matters of policy dealt
with in the directive, the latter continues to guide
General Eisenhower in his administration of the
United States Zone in Germany.
DIRECTIVE TO COMMANDER IN CHIEF OF
UNITED STATES FORCES OF OCCUFA-
TION REGARDING THE MILITARY GOV-
ERNMENT OF GERMANY
1. The Purpose and Scope of this Directive:
This directive is issued to you as Commanding
General of the United States forces of occupation
in Germany. As such you will serve as United
States member of the Control Council and will also
be responsible for the administration of military
government in the zone or zones assigned to the
United States for purposes of occupation and ad-
ministration. It outlines the basic policies which
will guide you in those two capacities after the
termination of the combined command of the Su-
IDreme Commander, Allied Expeditionary Force.
This directive sets forth policies relating to Ger-
many in the initial post-defeat period. As such
it is not intended to be an ultimate statement of
policies of this Government concerning the treat-
ment of Germany in the post-war world. It is
therefore essential that, during the period covered
by this directive, you assure that surveys are con-
stantly maintained of economic, industrial, finan-
cial, social and political conditions within your
zone and that the results of such survej's and such
other surveys as may be made in other zones are
made available to your Government, through the
Joint Chiefs of Staff. These surveys should be de-
veloped in such manner as to serve as a basis for
determining changes in the measures of control
set forth herein as well as for the progressive
formulation and development of policies to pro-
mote the basic objectives of the United States.
Supijlemental directives will be issued to you by
the Joint Chiefs of Staff as may be required.
' Bulletin of Aug. 5, 1945, p. 153.
OCTOBER 21, 1945
597
As a member of the Control Council you will
urge the adoption by the other occupying powers
of the principles and policies set forth in this direc-
tive and, pending Control Council agreement, you
will follow them in your zone. It is anticipated
that substantially similar directives will be issued
to the Commanders in Chief of the U.K., USSR
and French forces of occupation.
PART I
General and Political
2. The Basis of Military Government
a. The rights, power and status of the military
government in Germany are based ui^on the uncon-
ditional surrender or total defeat of Germany.
b. Subject to the provisions of paragraph 3 be-
low, you are, by virtue of your position, clothed
with supreme legislative, executive, and judicial
authority in the areas occupied by forces under
your command. This authority will be broadly
construed and includes authority to take all meas-
ui'es deemed by yoti necessary, appropriate or de-
sirable in relation to military exigencies and the
objectives of a firm military government.
<?. You will issue a proclamation continuing in
force such proclamations, orders and instructions
as may have heretofore been issued by Allied Com-
manders in your zone, subject to such changes as
you may determine. Authorizations of action by
the Supreme Commander, Allied Expeditionary
Force, may be considered as applicable to you
unless inconsistent with this or later directives.
3. The Control Council and Zones of Occupation:
a. The four Commanders-in-Chief, acting
jointly, will constitute the Control Council in Ger-
many which will be the supreme organ of conti'ol
over Germany in accordance with the agreement on
Control Machinery in Germany. For purposes of
administration of military government, Germany
lias been divided into four zones of occupation.
b. The authority of the Control Council to for-
mulate policy and procedures and administrative
relationships with respect to matters affecting
Germany as a whole will be paramount through-
out Germany. You will carry out and support in
your zone the policies agreed upon in the Control
Council. In the absence of such agreed policies
you will act in accordance with this and other
directives of the Joint Chiefs of Staff.
c. The administration of affairs in Germany
shall be directed towards the decentralization of
the political and administrative structure and the
development of local responsibility. To this end
you wnll encourage autonomy in regional, local
and municipal agencies of German administration.
The German economic structure shall also be de-
centralized. The Control Council may, how-
ever, to the minimum extent required for the ful-
fillment of purposes set forth herein, permit cen-
tralized administration or establish central con-
trol of (a) essential national public services such
as railroads, communications and power, (b)
finance and foreign affairs, and (c) production
and distribution of essential commodities.
d. The Conti-ol Council should adopt procedures
to effectuate, and you will facilitate in your zone,
the equitable distribution of essential commodities
between the zones. In the absence of a conflict-
ing policy of the Control Council, you may deal
directly with one or more zone commanders on
matters of special concern to such zones.
e. Pending the foi-mulation in the Control
Council of uniform policies and procedures with
respect to inter-zonal travel and movement of
civilians, no civilians shall be permitted to leave
or enter your zone without your authority, and no
Germans within your zone shall be permitted to
leave Germany except for specific purposes
approved by you.
/. The military government personnel in each
zone, including those dealing with regional and
local branches of the departments of any central
German administrative machinery, shall be se-
lected by authority of the Commander of that
zone except that liaison officers may be furnished
by the Commanders of the other three zones. The
respective Commanders-in-Chief shall have exclu-
sive jurisdiction throughout the whole of Germany
over the members of the armed forces under their
command and over the civilians who accompany
them.
g. The Control Council should be responsible
for facilitating the severance of all governmental
and administrative connections between Austria
and Germany and the elimination of German eco-
nomic influences in Austria. Every assistance
should be given to the Allied Administration in
Austria in its efforts to effectuate these purposes.
4. Basic Objectives of Military Government in
Germany:
a. It should be brought home to the Germans
that Germany's ruthless warfare and the fanatical
598
DEPARTMENT OF STATE BULLETIN
Nazi resistance have destroyed the German econ-
omy and made chaos and suffering inevitable and
that the Germans cannot escape responsibility for
what they have brought upon themselves.
b. Germany will not be occupied for the purpose
of liberation but as a defeated enemy nation. Your
aim is not oppression but to occupy Germany for
the purpose of realizing certain important Allied
objectives. In the conduct of your occupation and
administration you should be just but firm and
aloof. You will strongly discourage fraterniza-
tion with the German officials and population.
c. The princii)al Allied objective is to prevent
Germany from ever again becoming a threat to
the peace of the world. Essential steps in the
accomplishment of this objective are the elimina-
tion of Nazism and militarism in all their forms,
the immediate apprehension of war criminals for
punishment, the industrial disarmament and de-
militarization of Germany, with continuing con-
trol over Germany's capacity to make war, and the
preparation for an eventual reconstruction of Ger-
man political life on a democratic basis.
d. Other Allied objectives are to enforce the
program of reparations and restitution, to provide
relief for the benefit of countries devastated by
Nazi aggression, and to ensure that prisoners of
war and displaced persons of the United Nations
are cared for and repatriated.
5. Economic Controls :
a. As a member of the Control Council and as
zone commander, you will be guided by the prin-
ciple that controls upon the German economy may
be imposed to the extent that such controls may
be necessary to achieve the objectives enumerated
in paragraph 4 above and also as they may be
essential to protect the safety and meet the needs
of the occupying forces and assure the production
and maintenance of goods and services required to
prevent starvation or such disease and unrest as
would endanger these forces. No action will be
taken in execution of the reparations program or
otherwise which would tend to support basic liv-
ing conditions in Germany or in 3'our zone on a
higher level than that existing in any one of the
neighboring United Nations.
b. In the imposition and maintenance of such
controls as may be prescribed by you or the Con-
trol Council, German authorities will to the fullest
extent practicable be ordered to proclaim and as-
siune administration of such controls. Thus it
should be brought home to the German people that
the responsibility for the administration of such
controls and for any break-downs in those controls
will rest with themselves and German authorities.
6. Denazification:
a. A Proclamation dissolving the Nazi Party,
its formations, affiliated associations and super-
vised organizations, and all Nazi public institu-
tions which were set up as instruments of Party
domination, and pi-ohibiting their revival in any
form, should be promulgated by the Control Coun-
cil. You will assure the prompt effectuation of
that policy in your zone and will make every effort
to prevent the reconstitution of any such organi-
zation in underground, disguised or secret form.
Responsibility for continuing desirable non-politi-
cal social services of dissolved Party organizations
may be transferred by the Control Council to ap-
propriate central agencies and bj- you to appro-
priate local agencies.
b. The laws purporting to establish the political
structure of National Socialism and the basis of
the Hitler regime and all laws, decrees and regu-
lations which establish discriminations on grounds
of race, nationality, creed or political opinions
should be abrogated by the Control Council. You
will render them inoperative in your zone.
c. All members of the Nazi party who have been
more than nominal participants in its activities, all
active supporters of Nazism or militarism and all
other persons hostile to Allied purposes will be
removed and excluded from public office and from
positions of importance in quasi-public and private
enterprises such as (1) civic, economic and labor
organizations, (2) corporations and other organi-
zations in which the German government or sub-
divisions have a major financial intei'est, (3) in-
dustry, commerce, agriculture, and finance, (4)
education, and (5) the press, publishing houses
and other agencies disseminating news and propa-
ganda. Persons are to be treated as more than
nominal participants in Party activities and as
active supporters of Nazism or militarism when
they have (1) held office or otherwise been active
at any level from local to national in the party and
its subordinate organizations, or in organizations
which further militaristic doctrines, (2) author-
ized or participated affirmatively in any Nazi
crimes, racial persecutions or discriminations, (3)
been avowed believers in Nazism or racial and
militaristic creeds, or (4) voluntarily given sub-
OCTOBER 21, 194.3
599
stantial moral or material support or political as-
sistance of any kind to the Nazi Party or Nazi
officials and leaders. No such persons shall be re-
tained in any of the categories of employment
listed above because of administrative necessity,
convenience or exjjediency.
d. Property, real and personal, owned or con-
trolled by the Nazi party, its formations, affiliated
associations and supervised organizations, and by
all persons subject to arrest under the provisions
of paragraph 8, and found within your zone, will
be taken under your control pending a decision by
the Control Council or higher authority as to its
eventual disposition.
e. All archives, monuments and museums of
Nazi inception, or which are devoted to the per-
petuation of German militarism, will be taken
under your control and tlieir properties held pend-
ing decision as to their disposition by the Control
Council.
/. You will make special efforts to preserve from
destruction and take under your control records,
plans, books, documents, papers, files, and scien-
tific, industrial and other information and data
belonging to or controlled by the following :
(1) The Central German Government and its
subdivisions, German military organizations, or-
ganizations engaged in military research, and
such other governmental agencies as may be
deemed advisable;
(2) The Nazi Party, its formations, affiliated
associations and supervised organizations;
(3) All police organizations, including security
and political jJolice;
(4) Important economic organizations and in-
dustrial establislunents including those controlled
by the Nazi Party or its personnel ;
(5) Institutes and special bureaus devoting
themselves to racial, political, militaristic or simi-
lar research or propaganda.
7. Demilitarization:
a. In your zone you will assure that all units of
the German armed forces, including para-military
organizations, are dissolved as such, and that their
personnel are promptly disarmed and controlled.
Prior to their final disposition, you will arrest and
hold all military personnel who are included under
the provisions of paragraph 8.
h. The Control Council should proclaim, and
in your zone you will eifectuate, the total dissolu-
tion of all military and para-military organiza-
tions, including the General Staff, the German
Officers Corps, the Reserve Corps and military
academies, together with all associations which
might serve to keep alive the military tradition
in Germany.
c. You will seize or destroy all arms, ammuni-
tion and implements of war and stop the produc-
tion thereof.
d. You will take proper steps to destroy the
German war potential, as set forth elsewhere in
this directive.
8. Suspected War Criminals and Security Arrests:
a. You will search out, arrest, and hold, pend-
ing receipt by you of further instructions as to
their disposition, Adolf Hitler, his chief Nazi as-
sociates, other war criminals and all persons who
have participated in planning or carrying out Nazi
enterprises involving or resulting in atrocities or
war crimes.
b. All persons who, if permitted to I'emain at
large would endanger the accomplisliment of your
objectives will also be arrested and held in cus-
tody until trial by an appropriate semi-judicial
body to be established by you. The following is
a partial list of the categories of persons to be
ari-ested in order to carry out this policy :
[Note: There follows at this point in the direc-
tive a detailed list of categories of Nazi war crim-
inals and others who are to be arrested. Some of
these have not yet been found. It is considered
that to publish the categories at this time would
put the individuals concerned on notice and would
interfere with their apprehension and punish-
ment, where appropriate. The list of categories
is, therefore, withheld from publication for the
present.]
If in the light of conditions which you encounter
in Germany, you believe that it is not immediately
feasible to subject certain persons within these
categories to this treatment, you should report
your reasons and recommendations to your govern-
ment through the Joint Chiefs of Staff. If you
believe it desirable, j'ou may postpone the arrest
of those whose cases you have reported, pending
a decision communicated to you by the J.C.S. In
no event shall any differentiation be made between
or special consideration be accorded to persons
arrested, either as to manner of arrest or conditions
of detention, upon the basis of wealth or political,
600
DEPARTMENT OF STATE BULLETIN
industrial, or other rank or position. In your dis-
cretion you may make such exceptions as you deem
advisable for intelligence or other military reasons.
9. Political Activities:
a. No political activities of any kind shall be
countenanced unless authorized by you. You will
assure that your military government does not be-
come committed to any political group.
J. You will prohibit the propagation in any
form of Nazi, militaristic or pan-German doc-
trines.
c. No German parades, military or political,
civilian or sports, shall be permitted by you.
d. To the extent that military interests are not
prejudiced and subject to the provisions of the
three preceding subparagrajihs and of paragraph
10, freedom of speech, press and religious worship
will be permitted. Consistent with military neces-
sity, all religious institutions will be respected.
10. Public Relations and Control of Public Infor-
mation:
As a member of the Control Council, you will
endeavor to obtain agreement for uniform or co-
ordinated policies with respect to (a) control of
public information media in Germany, (b) ac-
crediting of foreign correspondents, (c) press cen-
sorship, and (d) issuance of official news communi-
ques dealing with Control Council matters. United
States policies in these matters will be sent to you
separately and you will be guided by these in your
negotiations on the Control Council.
11. German Courts:
a. All extraordinary courts, including the
Volhsgerlchtshof (People's Court) and the Son-
dergerichte (Special Courts), and all courts and
tribunals of the Nazi Party and of its formations,
affiliated associations and supervised organizations
will be abolished immediately.
&. All ordinary criminal, civil and administra-
tive courts, except those previously re-established
by order of the military government, will be closed.
After the elimination of all Nazi features and per-
sonnel you will permit those which are to exercise
jurisdiction within the boundaries of your zone
to resume operations under such regulations, super-
vision and control as you may consider appro-
priate. Courts which are to exercise jurisdiction
over territory extending beyond the boundaries of
your zone will be reopened only with the express
authorization of the Control Council and under its
regulation, sujservision and control. The power
to review and veto decisions of German courts shall
be included within the power of supervision and
control.
12. Police:
With the exception of the Reichskrimiruilpolizei
(Criminal Police) all elements of the Sicher-
heitspolizei (Security Police), e.g., Geheimestaats-
folizei (Gestapo), and the Sicherheitsdienst der
S.S. will be abolished. Criminal and ordinai-y
police will be purged of Nazi personnel and utilized
under the control and supervision of the military
government.
13. Political Prisoners:
Subject to military security and the interests of
the individuals concerned, you will release all per-
sons found within your zone who have been de-
tained or placed in custody on grounds of race,
nationality, creed or political opinions and treat
them as displaced persons. You should make pro-
vision for the review of convictions of alleged
criminal offenses about which there may be sub-
stantial suspicion of racial, religious or political
persecution, and in which sentences of imprison-
ment have not been fully served by persons im-
prisoned within your zone.
14. Education:
a. All educational institutions within your zone
excejDt those previously re-established by Allied
authority will be closed. The closure of Nazi edu-
cational institutions such as Adolf Hitler Schulen,
Napolas and Ordensburgen, and of Nazi organi-
zations within other educational institutions will
be permanent.
h. A coordinated system of control over German
education and an affirmative program of reorienta-
tion will be established designed completely to
eliminate Nazi and militaristic doctrines and to
encourage the development of democratic ideas.
c. You will permit the reopening of elementary
(Volksschulen), middle (Mitfehchiden) and voca-
tional (Ber'ufsschiden) schools at the earliest pos-
sible date after Nazi personnel has been eliminated.
Textbooks and curricula which are not free of Nazi
and militaristic doctrine shall not be used. The
Control Council should devise programs looking
toward the reopening of secondary schools, uni-
versities and other institutions of higher learning.
After Nazi features and personnel have been
OCTOBER 21, 1945
601
eliminated and pending the formulation of such
programs by the Control Council, you may formu-
late and put into effect an interim program within
your zone and in any case may permit the reopen-
ing of such institutions and departments which
offer training which you consider immediately
essential or useful in the administration of mili-
tary government and the purposes of the occupa-
tion.
d. It is not intended that the military govern-
ment will intervene in questions concerning de-
nominational control of German schools, or in re-
ligious instruction in German schools, except in-
sofar as may be necessary to insure that religious
instruction and administration of such schools
conform to such Allied regulations as are or may
be established pertaining to purging of personnel
and curricula.
15. Arts and Archives:
Subject to the provisions of paragraph 6 above,
you will make all reasonable efforts to preserve
historical archives, museums, libraries and works
of art.
PART II
Economic
General Objectives and Methods of Control
IG. You M'ill assure that the German economy is
administered and controlled in such a way as to
accomplish the basic objectives set forth in para-
graphs 4 and 5 of this Directive. Economic con-
trols will be imposed only to the extent necessary
to accomplish these objectives, provided that you
will impose controls to the full extent necessary
to achieve the industrial disarmament of Ger-
many. Except as may be necessary to carry out
these objectives, you will take no steps (a) looking
toward the economic rehabilitation of Germany,
or (b) designed to maintain or strengthen the
German economy.
17. To the maximum extent possible without
jeopardizing the successful execution of measures
required to implement the objectives outlined in
paragraphs 4 and 5 of this directive you will use
German authorities and agencies and subject them
to such supervision and punishment for non-com-
pliance as is necessary to ensure that they carry
out their tasks.
For this pui-pose you will give appropriate
authority to any German agencies and administra-
tive services you consider essential; provided, how-
ever, that you will at all times adhere strictly to
the provisions of this directive regarding denazi-
fication and dissolution or elimination of Nazi
organizations, institutions, principles, features,
and practices.
To the extent necessary you will establish ad-
ministrative machinery, not dependent upon Ger-
man authorities and agencies, to execute or assure
the execution of the provisions of paragraphs 19,
20, 30, 31, 32, 39 and 40 and any other measures
necessary to an accomplishment of your industrial
disarmament objectives.
18. In order to decentralize the structure and
administration of the German economy to the
maximum jDossible extent, you will
a. ensure that the action required to maintain
or restore essential public utilities and industrial
and agricultural activities is taken as far as pos-
sible on a local and regional basis;
h. on no account propose or approve in the Con-
trol Council the establishment of centralized ad-
ministration of controls over the German economy
except where such centralization of administration
is clearly essential to the fulfilment of the objec-
tives listed in paragraphs 4 and 5 of this directive.
Decentralization in administration should not be
jDermitted to interfere with attainment of the
largest practicable measure of agreement on eco-
nomic policies in the Control Council.
19. You will institute or assure the maintenance
of such statistical records and reports as may be
necessary in carrying out the objectives listed in
paragraphs 4 and 5 of this directive.
20. You will initiate appropriate surveys which
may assist you in achieving the objectives of the
occupation. In particular you will promptly
undertake surveys of supplies, equipment and re-
sources in your zone. You will endeavor to ob-
tain prompt agreement in the Control Council to
the making of similar surveys in the other zones
of occupation, and you will urge appropriate steps
to coordinate the methods and results of these and
other future surveys conducted in the various zones.
You will keep the Control Council, United States
Representative on the Reparation Commission and
other appropriate authorities, currently apprised
of the information obtained by means of inter-
mediate reports or otherwise.
602
DEPARTMENT OF STATE BULLETIN
German Standard of Living
21. You w ill estimate requirements of supplies
necessary to prevent starvation or widespread dis-
ease or such civil unrest as would endanger the
occupying forces. Such estimates will be based
upon a progi-am whereby the Germans are made
responsible for providing for themselves, out of
their own work and resources. You will take all
practicable economic and police measures to assure
that Grerman resources are fully utilized and con-
sumption held to the minimum in order that im-
ports may be strictly limited and that surpluses
may be made available for the occupying forces and
displaced persons and United Nations prisoners of
war, and for reparation. You will take no action
that would tend to support basic living standards
in Germany on a higher level than that existing in
any one of the neighboring United Nations and
you will take approjjriate measures to ensure that
basic living standards of the German people are
not higher than those existing in any one of the
neighboring United Nations when such measures
will contribute to raising the standards of any such
nation.
22. You will urge upon the Control Council that
uniform ration scales be applied throughout Ger-
many, that essential items be distributed equitably
among the zones, that net surpluses be made avail-
able for export to Allied countries, nnd that im-
ports be limited to the net deficits of Germany us
a whole.
Labor, Health, and Social Insurance
23. You will permit the self-organization of em-
ployees along democratic lines, subject to such safe-
guards as may be necessary to prevent the per-
petuation of Nazi or militarist influence under any
guise or the continuation of any group hostile to
the objectives and operations of the occupying
forces.
24. You will permit free collective bargaining
between employees and employers regarding wage,
hour and working conditions and the establish-
ment of machinery for the settlement of industrial
disputes. Collective bargaining shall be subject to
such wage, hour and other controls, if any, as may
be instituted or revived by your direction.
25. Subject to the provisions of paragraph 48
of this directive you are authorized to direct Ger-
man authorities to maintain or reestablish non-
discriminatory systems of social insurance and
poor relief.
•20. You are authorized to direct the German
authorities to maintain or re-establish such health
services and facilities as may be available to them.
Agriculture, Industry and Internal Commerce
27. You will require the Germans to use all
means at their disposal to maximize agricultural
output and to establish as rapidly as possible effec-
tive machinery for the collection and distribution
of agricultural output.
28. You will direct the German authorities to
utilize large-landed estates and public lands in a
manner which will facilitate the accommodation
and settlement of Germans and others or increase
agricultural output.
29. You will protect from destruction by the
Gel-mans, and maintain for such disposition as is
determined by this and other directives or by the
Control Council, all plants, equipment, patents and
other property, and all books and records of large
German industrial companies and trade and re-
search associations that have been essential to the
German war effort or the German economy. You
will })ay particular attention to research and ex-
perimental establishments of such concerns.
30. In order to disarm Germany, the Control
Council should
a. prevent the production, acquisition by impor-
tation or otherwise, and development of all arms,
ammunition and implements of war, as well as all
types of aircraft, and all parts, components and
ingredients specially designed or produced for
incorporation therein;
i. prevent the production of merchant ships,
s_vnthetic rubber and oil, aluminum and magne-
sium and any other products and equipment on
which you will subsequently receive instructions;
c. seize and safeguard all facilities used in the
production of any of the items mentioned in this
paragraph and dispose of them as follows :
(1) remove all those required for reparation;
(2) destroy all those not transferred for repa-
ration if they are especially adapted to the pro-
duction of the items specified in this paragraph
and are not of a type generally used in industries
permitted to the Germans (cases of doubt to be
resolved in favor of destruction) ;
(3) hold the balance for disposal in accord-
ance with instructions which will be sent to you.
Pending agreement in the Control Council you
will take these measures in your own zone. You
OCTOBER 21, 1945
603
will not postpone enforcement of the prohibitions
contained in subparagraphs a and i and the in-
structions in subparagraph c without specific ap-
proval of your government through the Joint
Chiefs of Staff except that, in your discretion, you
may permit the production of synthetic rubber and
oil, aluminum and magnesium, to the minimum
extent necessary to meet the purposes stated in
paragraphs 4 and 5 of the directive pending action
by the Joint Chiefs of Staff upon such recommen-
dation for postponement as you may make.
31. As an additional measure of disarmament,
the Control Council should
a. prohibit initially all research activities and
close all laboratories, research institutions and
similar technical organizations except those con-
sidered necessary to the protection of public
health ;
b. abolish all those laboratories and related in-
stitutions whose work has been connected with the
building of the German war machine, safeguard
initially such laboratories and detain such per-
sonnel as are of interest to your technological in-
vestigations, and thereafter remove or destroy
their equipment ;
c. pei'mit the resumption of scientific research
in specific cases, only after cai'eful investigation
has established that the contemplated research
will in no way contribute to Germany's future war
potential and only under ajDpropriate regulations
which (1) define the specific types of research
jDermitted, (2) exclude from further research
activity any persons who previously held key po-
sitions in German war research, (3) provide for
frequent inspection, (4) require free disclosure of
the results of the research and (5) impose sevei-e
penalties, including permanent closing of the of-
fending institution, whenever the regulations are
violated.
Pending agreement in the Control Council you
will adopt such measures in your own zone.
32. Pending final Allied agreements on repara-
tion and on control or elimination of German in-
dustries that can be utilized for war production,
the Control Council should
a. prohibit and prevent production of iron and
steel, chemicals, non-ferrous metals (excluding
aluminum and magnesium), machine tools, radio
and electrical equipment, automotive vehicles,
67035&— 48 S
heaivy machinery and important parts thereof,
except for the purposes stated in paragraphs 4
and 5 of this directive ;
b. prohibit and prevent i-ehabilitation of plant
and equipment in such industries except for the
purposes stated in paragraphs 4 and 5 of this di-
rective; and
c. safegTiard plant and equipment in such in-
dustries for transfer on reparation account.
Pending agreement in the Control Council, you
will put such measures into effect in your own
zone as soon as you have had an opportunity to
review and determine production necessary for
the purposes stated in paragraphs 4 and 5 of this
directive.
33. The Control Council should adopt a policy
permitting the conversion of facilities other than
those mentioned in paragraphs 30 and 32 to the
production of light consumer goods, provided
that such conversion does not prejudice the subse-
quent removal of plant and equipment on repara-
tion account and does not require any imports
beyond those necessary for the purposes specified
in paragraphs 4 and 5 of this directive. Pending
agreement in the Control Council, you may permit
such conversion in your zone.
34. Subject to the provisions of paragraphs 30
and 32, the Control Council should assure that all
feasible measures are taken to facilitate, to the
minimum extent necessary for the purposes out-
lined in paragraphs 4 and 5 of this directive.
a. repairs to and restoration of essential trans-
portation services and public utilities;
b. emergency repair and construction of the
minimum shelter required for the civilian popu-
lation ;
c. production of coal and any other goods and
services (excluding goods specified in paragraphs
30 and 32 unless measures to facilitate production
are specifically approved by this Government
through the Joint Chiefs of Staff) required for
the purposes outlined in paragraphs 4 and 5 of
this directive.
You will assure that such measures are taken in
your own zone pending agreement in the Control
Council.
35. In your capacity as zone commander and
as member of the Control Council you will take
steps to provide for the equitable interzonal dis-
tribution and the movement of goods and services
604
DEPARTMENT OF STATE BULLETIN
essential to the purposes set forth in pai'agraphs
4 and 5 of this directive.
36. You will prohibit all cartels or other private
business arrangements and cartel-like organiza-
tions, including those of a public or quasi-public
character such as the Wirtschaftsgnippen pro-
viding for the regulation of marketing conditions,
including production, prices, exclusive exchange
of tecluiical information and processes, and allo-
cation of sales territories. Such necessary public
functions as have been discharged by these organ-
izations shall be absorbed as rapidly as possible by
approved public agencies.
37. It is the policy of your government to effect
a dispersion of the ownership and control of Ger-
man industry. To assist in carrying out this
policy you will make a survey of combines and
pools, mergers, holding companies and interlock-
ing directorates and communicate the results, to-
gether with recommendations, to your government
through the Joint Chiefs of Staff. You will en-
deavor to obtain agi-eement in the Control Council
to the making of this survey in the other zones of
occupation and you will urge the coordination of
the methods and results of this survey in the
various zones.
38. With due regard to paragraph 4 a, the Con-
trol Council should adopt such policies as are
cleai"ly necessary to prevent or restrain inflation
of a character or dimension which would definitely
endanger accomplishment of the objectives of the
occupation. The Control Council, in particular,
should direct and empower German authorities to
maintain or establish controls over prices and
wages and to take the fiscal and financial measures
necessary to this end. Pending agreement in the
Control Council you will assure that such measures
as you consider necessary are taken in your own
zone. Pi-evention or restraint of inflation shall
not constitute an additional ground for the impor-
tation of supplies, nor shall it constitute an addi-
tional ground for limiting removal, destruction or
curtailment of productive facilities in fulfillment
of the progi-am for reparation, demilitarization
and industrial disarmament.
Power, Transportation, and Communications
39. Both as member of the Control Council and
zone commander you will take ajipropriate steps
to ensure that
a. power, transportation and communications
facilities are directed in such a way as to carry out
the objectives outlined in paragraphs 4 and 5 of
this directive ;
b. Germans are prohibited and prevented from
producing, maintaining or operating all types of
aircraft.
You will determine the degree to which central-
ized control and administration of power, trans-
portation and communications is clearly necessary
for the objectives stated in paragraphs 4 and 5
and urge the establishment of this degree of cen-
tralized control and administration by the Control
Council.
Foreign Trade and Reparation
40. The Control Council should establish cen-
tralized control over all trade in goods and services
with foreign countries. Pending agreement in the
Control Council you will impose appropriate con-
trols in your own zone.
41. Both as member of the Control Council and
as zone commander you will take appropriate
steps to ensure that
a. the foreign trade controls are designed to
carry out the objectives stated in paragraphs 4 and
5 of this directive;
b. imjjorts which are permitted and furnished to
Germany are confined to those unavoidably neces-
sary to the objectives stated in paragi-aphs 4 and
5;
0. exports to countries other than the United
Nations are prohibited unless specifically author-
ized by the Allied governments.
42. Both as member of the Control Council and
as zone commander you will adopt a policy which
would forbid German firms to participate in inter-
national cartels or other restrictive contracts and
arrangements and order the prompt termination
of all existing German participations in such car-
tels, contracts and arrangements.
43. You will carry out in your zone such pro-
grams of reparation and restitution as are em-
bodied in Allied agreements and you will seek
agreement in the Control Council on any policies
and measures which it may be necessary to apply
throughout Germany in order to ensure the execu-
tion of such programs.
PART III
Financial
44. You will make full application in the finan-
cial field of the principles stated elsewhere in this
OCTOBER 21, 194S
605
directive and you will endeavor to have the Con-
trol Council adopt uniform financial policies neces-
sary to carry out the purposes stated in paragraphs
4 and 5 of this directive. You will take no steps
designed to maintain, strengthen or operate the
German financial structure except in so far as may
be necessary for the purposes specified in this
directive.
45. The Control Council should regulate and
control to the extent required for the purposes set
forth in paragraphs 4 and 5 the issue and volume
of currency and the extension of credit in Germany
and in accordance with the following principles:
a. United States forces and other Allied forces
will use Allied Military marks and Reichsmark
currency or coins in their possession. Allied Mili-
tary marks and Reichsmark currency and coin now
in circulation in Germany will be legal tender
without distinction and will be interchangeable at
the rate of 1 Allied Military mark for 1 Reichs-
mark. Reichskreditkassenscheine and other Ger-
man military currency will not be legal tender in
Germany.
b. The Reichsbank, the Rentenbank or any other
bank or agency may be permitted or required to
issue bank notes and currency which will be legal
tender; without such authorization, no German
governmental or private bank or agency will be
permitted to issue bank notes or currency.
c. The German authorities may be required to
make available Reichsmark currency or credits
free of cost and in amounts sufficient to meet all the
expenses of the forces of occupation, including the
cost of Allied Military Government and including
to the extent that compensation is made therefor,
the cost of such private property as may be requi-
sitioned, seized, or otherwise acquired, by Allied
authorities for reparations or restitution purposes.
Pending agreement in the Control Council you
will follow these policies in your own zone.
You will receive separate instructions relative to
the currency which you will use in the event that
for any reason adequate supplies of Allied Militax-y
marks and Reichsmarks are not available, or if the
use of such currency is found undesirable.
You will not announce or establish in your zone,
until receipt of further instructions, any general
rate of exchange between the Reichsmark on the
one hand and the U.S. dollar and other currencies
on the other. However, a rate of exchange to be
used exclusively for pay of troops and military
accounting purposes in your zone will be communi-
cated separately to you.
46. Subject to any agreed policies of the Control
Council, you are authorized to take the following
steps and to put into effect such further financial
measures as you may deem necessary to accomplish
the purposes of your occupation :
a. To prohibit, or to prescribe regulations re-
garding transfer or other dealings in private or
public securities or real estate or other property.
h. To close banks, but only for a period long
enough for you to introduce satisfactory control,
to remove Nazi and other undesirable personnel,
and to issue instructions for the determination of
accounts to be blocked under subparagraph 48 e
below.
c. To close stock exchanges, insurance com-
panies, and similar financial institutions for such
periods as you deem appropriate.
d. To establish a general or limited moratorium
or moratoria only to the extent clearly necessary
to carry out the objectives stated in paragraphs 4
and 5 of this directive.
47. Resumption of partial or complete service
on the internal public debt at the earliest feasible
date is deemed desirable. The Control Council
should decide the time and manner of such re-
sinnption.
48. Subject to any agreed policies of the Con-
trol Council,
a. You will prohibit :
(1) the payment of all military pensions, or
emoluments or benefits, except compensation for
physical disability limiting the recipient's abil-
ity to work, at rates which are no higher than
the lowest of those for comparable physical dis-
ability arising from non-military causes.
(2) the payment of all public or private pen-
sions or other emoluments or benefits granted
or conferred :
(a) by reason of membership in or services
to the former Nazi party, its formations, affi-
liated associations or supervised organiza-
tions,
(b) to any person who has been removed
from an office or position in accordance with
paragraph 6, and
(c) to any person arrested and detained in
accordance with paragraph 8 during the term
606
DEPARTMENT OF STATE BULLETIN
of his arrest, or permanently, in case of his
subsequent conviction.
b. You will take such action as may be neces-
sary to insure that all laws and practices relating
to taxation or other fields of finance, which dis-
criminate for or against any persons because of
race, nationality, creed or political opinion, will
be amended, suspended, or abrogated to the extent
necessary to eliminate such discrimination.
c. You will hold the German authorities re-
sponsible for taking such measures in the field of
taxation and other fields of public finance, includ-
ing restoration of the tax system and maintenance
of tax revenues, as will further the accomplish-
ment of the objectives stated in paragraphs 4
and 5.
d. You will exercise general supervision over
German public expenditures in order to ensure
that they are consistent with the objectives stated
in paragraphs 4 and 5.
e. You will impound or block all gold, silver,
currencies, securities, accounts in financial insti-
tutions, credits, valuable papers, and all other
assets falling within the following categories:
( 1 ) Property owned or controlled directly or
indirectly, in whole or in jjart, by any of the
following :
(a) The German Reich, or any of the
Lander, Gaue or provinces, any Kreis, Munici-
pality or other similar local subdivision; or
any agency or instrumentality of any of them
including all utilities, undertakings, public
corporations or monopolies under the control
of any of the above ;
(b) Governments, nationals or residents of
other nations, including those of territories
occupied by them, at war with any of the
United Nations at any time since 1 Septem-
ber 1939 ;
(c) The Nazi Party, its formations, affili-
ated associations and supervised organizations,
its officials, leading members and supporters;
(d) All organizations, clubs or other asso-
ciations prohibited or dissolved by military
government;
(e) Absentee owners, of non-German na-
tionality including United Nations and neu-
tral governments and Germans outside of
Germany ;
(f) Any institution dedicated to public
worship, charity, education or the arts and
sciences wliich lias been used by the Nazi Party
to further its interests or to cloak its activities •
(g) Persons subject to arrest under provi-
sions of paragraph 8, and all other persons
specified by military government by inclusion
in lists or otherwise.
(2) Property which has been the subject of
transfer under duress or wrongful acts of con-
fiscation, disposition or spoliation, whether pur-
suant to legislation or by procedure purporting
to follow forms of law or otherwise.
(3) Works of art or cultural material of value
or importance, regardless of the ownership
thereof.
You will take such action as will insure that any
impounded or blocked assets will be dealt with
only as permitted under licenses or other instruc-
tions which you may issue. In the case particu-
larly of property blocked under (1) (a) above,
you will proceed to adoj^t licensing measures which
while maintaining such property under surveil-
lance would permit its use in consonance with this
directive. In the case of property blocked under
(2) above, you will institute measures for prompt
restitution, in conformity with the objectives
stated in paragraphs 4 and 5 and subject to appro-
priate safeguards to prevent the cloaking of Nazi
and militaristic influence.
49. All foreign exchange transactions, includ-
ing those arising out of exports and imports, shall
be controlled with the aim of preventing Germany
from developing a war potential and of achieving
the other objectives set forth in this directive. To
effectuate these purposes the Control Council
should
a. Seek out and reduce to the possession and
control of a special agency all German (public
and private) foreign exchange and external assets
of every kind and description located within or
outside Germany.
6. Prohibit, except as authorized bj^ regulation
or license, all dealings in gold, silver, foreign ex-
change, and all foreign exchange transactions of
any kind. Make available any foreign exchange
proceeds of exports for payment of imports di-
rectly necessary to the accomplishment of the ob-
jectives stated in paragraphs 4 and 5 of this direc-
tive, and authorize no other outlay of foreign ex-
change assets except for purposes approved by the
Control Council or other appropriate authority.
OCTOBER 21, 1945
607
c. Establish effective controls with respect to all
foreign exchange transactions, including :
(1) Transactions as to property between per-
sons inside Germany and persons outside Ger-
many;
(2) Transactions involving obligations owed
by or to become due from any person in Ger-
many to any person outside Germany ; and
(3) Transactions involving the importation
into or exportation from Germany of any for-
eign exchange asset or other form of property.
Pending agreement in the Control Council, you
will take in your zone the action indicated in sub-
paragraphs a, h and c above. Accordingly, you
will in your zone reduce to the possession and con-
trol of a special agency established by you, within
your Command, all German foreign exchange and
external assets as provided in subparagraph a.
You will endeavor to have similar agencies for the
same purpose established in the other zones of
occupation and to have them merged as soon as
practicable in one agency for the entire occupied
territory. In addition you will provide full re-
ports to your government witli i-espect to all Ger-
man foreign exchange and external assets.
50. No extension of credit to Germany or Ger-
mans by any foreign person or Government shall
be permitted except that the Control Council may
in special emergencies grant permission for such
extensions of credit.
61. It is not anticipated that you will make
credits available to the Reichsbank or any other
bank or to any public or private institution. If,
in your opinion, such action becomes essential, you
may take such emergency actions as you may deem
proper, but in any event, you will report the facts
to the Control Council.
52. You will maintain such accounts and records
as may be necessary to reflect the financial opera-
tions of the military government in your zone and
you will provide the Control Council with such in-
formation as it may require, including information
in connection with the use of currency by your
forces, any governmental settlements, occupation
costs, and other expenditures arising out of opera-
tions or activities involving participation of your
forces.
Displaced Persons in Germany
Letter From GENERAL EISENHOWER TO THE PRESIDENT
[Released to the press by the White House October 16]
The President has received the following letter
from General of the Army Eisenhower in reply
to the President's letter of August 31, transmitting
to General Eisenhower the report of Earl G. Har-
rison, U.S. Representative on the Intergovern-
mental Committee on Refugees : ^
HEADQUARTERS
U.S. FORCES, EUROPEAN THEATER
Office of the Commanding General
8 October 1945.
Dear Mr. President :
This is my full report on matters pertaining to
the care and welfare of the Jewish victims of Nazi
persecution within the United States Zone of Ger-
many. It deals with conditions reported by Mr.
Earl G. Harrison, U.S. Representative on Inter-
Governmental Committee on Refugees, which was
forwarded to me under cover of your letter of
31 August 1945.
Since Mr. Harrison's visit in July many changes
have taken place with respect to the condition of
Jewish and other displaced persons. Except for
temporarily crowded conditions, the result of
shifts between established centers and an influx of
persons into centers as winter approaches, housing
is on a reasonable basis. Nevertheless, efforts to
improve their condition continue unabated. Sub-
ordinate commanders are under orders to requisi-
tion German houses, grounds, and other facilities
without hesitation for this purpose.
The housing problem must be seen in full per-
spective. This winter the villages and towns in the
U.S. Zone of Germany will be required to house
more than twice their normal population. One
^ For report of Earl G. Harrison to the President, see
BuiiOTiN of Sept. 30, 1945, p. 456.
608
DEPARTMENT OF STATE BULLETIN
million and a half German air raid refugees who
were evacuated into Southwestei'n Germany, to-
gether with some 600,000 Germans, Volksdeutsche
and Sudetens who fled from Poland, New Poland.
Czechoslovakia and Yugoslavia before the advanc-
ing Red Armies have created a condition of con-
gestion in the U.S. Zone which forces the most
careful conservation of housing space. At this
moment the U.S. Zone is under orders to absorb
152,000 more Germans from Austria. Added to
this influx of population, there is the loss of hous-
ing in bombed-out cities, averaging well over 50
percent ; the necessity for billeting large numbers
of our troops ; and the accommodation required for
prisoners of war. The resulting housing shortage
is not merely acute, but desperate. Notwithstand-
ing this situation, in my recent inspections and
those made by my staff of Jewish centers, although
crowded conditions were found, in nearly every
instance more than the 30 square feet per person of
floor space required for our soldiers was available.
Displaced persons have absolute preference over
Germans for housing, but the requirements of the
distribution of supplies, the provision of medical
care, and the need for welfare activities make it
desirable that displaced persons be sufficiently con-
centrated so that these services may be performed
efficiently by the limited supervisory personnel
and transport at our disposal. Thus, considerable
use has been made of large installations such as
brick barracks, apartment blocks and other public
•buildings in preference to scattered individual
billets.
Special centers have been established for Jewish
displaced persons. In the latter part of June, the
Armies were directed to collect into special assem-
bly centers displaced persons who did not wish to
or who could not be repatriated. On 25 July 1945,
Dr.RabbiIsraelGoldstein,President of the United
Jewish Appeal, recommended that non-repatriable
Jews be separated from other stateless people, and
placed in exclusively Jewish centers. As a result,
the American Joint Distribution Committee was
called upon to supervise the establishment of these
centers. This policy was reiterated and expanded
on 22 August. Special Jewish centers were estab-
lished for "those Jews who are without nation-
ality or those not Soviet citizens who do not desire
to return to their country of origin''.
At the time of Mr. Harrison's report there were
lierhaps 1,000 Jews still in their former concen-
tration camps. These were too sick to be moved
at that time. No Jewish or other displaced per-
sons have been housed in these places longer than
was absolutely necessary for medical quarantine
and recovery from acute illness. It has always
been our practice, not just our policy, to remove
these victims with the utmost speed from concen-
tration camps.
The assertion that our military guards are now
substituting for SS troops is definitely mislead-
ing. One reason for limiting the numbers per-
mitted to leave our assembly centers was depre-
dation and banditry by displaced persons them-
selves. Despite all precautions, more than 2,000
of them died from drinking methylated alcohol
and other types of poisonous liquor. Many others
died by violence or were injured while circulating
outside our assembly centers. Perhaps then we
were over-zealous in our surveillance. However,
my present policy is expressed in a letter to sub-
ordinate commanders wherein I said :
Necessary guarding should be done by dis-
placed persons themselves on the volunteer
system and without arms. Military super-
visors may be employed, but will not be used
as sentries except in emergency. Everything
should be done to encourage displaced persons
to understand that they have been freed from
tyranny, and that the supervision exercised
over them is merely that necessary for their
own protection and well-being, and to facili-
tate essential maintenance.
I feel that we have problems of shelter and sur-
veillance in hand. Of equal importance is the
provision of sufficient and appetizing food. In
the past, a 2,000-calorie minimum diet was pre-
scribed for all displaced persons in approved
centers. Our field inspections have shown that in
many places this scale was consistently exceeded,
but there have also been sporadic instances where
it was not met. Three or four thousand persons
of the persecuted categories, including German
Jews, in the American Zone have returned to their
home communities. Many are there making a
genuine effort to re-establish themselves. Until
recently, there has been no clear-cut system of
assuring adequate food for this group, although
in most cases they have been given double rations.
I have recently raised the daily caloric food
value per person for ordinary displaced persons in
OCTOBER 21, 1945
609
approved centers to 2,300, and for racial, religious
and political persecutees to a minimum of 2,500.
Feeding standards have also been prescribed and
sufficient Red Cross food parcels and imported
Civil Affairs/Military Government foodstuffs are
on hand to supplement indigenous supplies and
meet requisitions to maintain these; standards.!
We are now issuing a directive that those Jews and
other persecuted persons who choose and are able
to return to their communities will receive a mini-
mum ration of 2,500 calories per day, as well as
clothing and shoes, the same as those in centers.
Clothing and shoes are available in adequate
amounts and of suitable types. Uniformly ex-
cellent medical attention is available to all Jewish
people in our centers where they have generally
adequate sanitary facilities. UNRRA and AJDC
staffs, which are administering an increasing num-
ber of our centers, are becoming efficient, and are
making it possible for these people to enjoy spiritu-
ally uplifting religious progi-ams as well as school-
ing for children.
It is freely admitted that there is need for im-
provement. The schools need more books ; leism-e-
time and welfare activities must be further de-
veloped; paid employment outside the centers
needs to be fostered ; additional quantities of furni-
ture, bedding and fuel must be obtained. We have
made progress in re-uniting families, but postal
communications between displaced persons and
their relatives and friends cannot yet be inaugu-
rated ; roads and walks must be improved in antici-
pation of continuing wet weather. We are con-
scious of these problems, we are working on them,
and we have expert advice of UNRRA, of Jewish
Agencies, and of our chaplains.
In certain instances we have fallen below stand-
ard, but I should like to point out that a whole
army has been faced with the intricate problems of
readjusting from combat to mass repatriation, and
then to the present static phase with its imique
welfare problems. Anticipating this phase, I have
fostered since before D-Day the development of
UNRRA so that persons of professional compe-
tence in that organization might take over greater
responsibilities, and release our combat men and
officers from this most difficult work.
You can expect our continued activity to meet
the needs of persecuted people. Perfection never
will be attained, Mr. President, but real and honest
efforts are being made to provide suitable living
conditions for these pei-secuted people until they
can be permanently resettled in other areas.
Mr. Harrison's report gives little regard to the
problems faced, the real success attained in saving
the lives of thousands of Jewish and other con-
centration camp victims and repatriating those
who could and wished to be repatriated, and the
progress made in two months to bring these un-
fortunates who remained under our jurisdiction
from the depths of pliysical degeneration to a con-
dition of health and essential comfort. I have
personally been witness to the expressed gi-atitude
of many of these people for these things.
Respectfully,
D^vIGHT D. Eisenhower
Anniversary of Czechoslovak Independence
Statement by THE PRESIDENT
[Released to the press by the White House October 22]
On the anniversary of Czechoslovak independ-
ence, I wish to extend my own personal gi-eetings
and the whole-hearted congratulations of the
American people to President Benes and the people
of Czechoslovakia. This commemoration of the
founding of the Czechoslovak Republic is of par-
ticular significance in marking the first time since
the German occupation that the Czechoslovak peo-
ple have been able to celebrate their independence
in their own homeland as a free people.
The realization that the principles of democracy
and freedom, out of which the Republic was born
twenty-seven years ago, have been victorious in
two world wars, will inspire the Czechoslovak
people to make once more their contribution to
world peace.
The American people watch with sympathetic
interest the diligent efforts now being made by the
Czechoslovak people to erase the effects of the Nazi
rule and to restore their independent national life
on the traditions which have always been identi-
fied with the Czechoslovak Republic. I am con-
fident that the American people will aid the
Czechoslovak people in every way possible to
achieve this goal.
610
DEPARTMENT OF STATE BULLETIN
Arrangements with Belgium on Financial and
Supply Problems
[Released to the press October 20]
The following joint statement by the Govern-
ments of the United States and Belgium is being
released simultaneously in Washington and Brus-
The Government of the United States and the
Government of Belgium today announced the con-
clusion of arrangements with respect to certain
urgent financial and supply problems created by
the economic support given by Belgium to the
United States ai'med forces and the termination
of lend-lease aid to Belgium. Up to V-J Day,
Belgium provided at least 90 million dollars more
in goods and services as revei'se lend-lease than it
had received from the United States under lend-
lease. This excess of reciprocal aid is largely the
result of the very cooperative attitude of Belgium
in unstintingly furnishing from its own limited
resources whatever was requested by our armed
forces after liberation. The goods and services
which the Belgians provided went directly to
United States troops. This aid was an important
factor in the prosecution of the war against Ger-
many, and continues to be important in the sup-
port of the United States occupation forces in
Germany, and in the redeployment and evacuation
of United States troops and equipment from
Europe.
The excess of reciprocal aid which Belgium pro-
vided has created serious economic problems for
Belgium, at a time when there were insufficient
consumer supplies and when the productivity of
Belgian industry was still suffering from the
ravages of war and the burdens imposed upon
it by the occupation.
To alleviate these economic consequences of the
Belgian support of the Allied cause and to
strengthen Belgium in the interest of the United
States armed forces still in Europe and continuing
to draw heavily on Belgian resources for trans-
portation and other services, the United States
Government has authorized that the following
steps be taken :
The United States will pay dollars to Belgium,
on a monthly basis, for the francs advanced to
the United States Army by the Belgian Govern-
ment after September 2, 1945. Heretofore these
dollar payments have been made on a deferred
basis except for 23 million dollars paid during the
current year. As a result of the present negotia-
tions, a further payment of 61 million dollars has
already been made on account of net troop pay ad-
vances made in francs by the Belgian Government
prior to September 2, 1945.
The United States has also agreed to make dollar
payment for all goods and services furnished to
United States armed forces after September 2,
1945. These goods and services prior to V-J Day
were furnished by the Belgian Government as
reciprocal aid, without charge to the United States
Army. As noted above, by V-J Day these goods
and services exceeded by at least 90 million dollars
all the lend-lease aid authorized to be given to
Belgium.
In view of this excess of reciprocal aid, the
United States Government has further agreed to
offset against it the amounts which the Belgian
Government is required to pay under the 3 (c)
lend-lease agreement of April 17, 1945. The 3 (c)
agreement between the United States and Bel-
gium provides that whatever goods the United
States may transfer under its terms to Belgium
after V-J Day shall be paid for on a credit basis.
On August 17 the President authorized the trans-
fer of certain goods and services to Belgium under
terms of this agreement following V-J Day. The
amount of goods and services to be so transferred
is approximately 42 million dollars. The recent
action of the United States Government means
that this debt will be considered to be satisfied
by reason of the extent to which Belgian reverse
lend-lease exceeds lend-lease heretofore provided
by United States.
OCTOBER 21, 1945
611
In addition the United States Government has
authorized the transfer to Belgium of articles
having civilian utility which the United States
Army no longer requires for its own uses. The
United States Army has substantial quantities of
equipment, clothing and foodstuffs which are
greatly needed by liberated areas of Europe and
which would otherwise be declared surplus. There
is a great deal of this kind of property in Belgium.
Most important of such items are medical sup-
plies, clothing and shoes, trucks and trailers, build-
ing materials, and reconstruction equipment and
certain raw materials. Under the arrangements
announced today the Belgian Government will be
permitted to select up to 45 million dollars of such
articles, to be transferred under straight lend-
lease. The articles transferred will be of the
types which were to be supplied under the 3 (c)
agreement between the United States and Bel-
gium, and their transfer to Belgium at this time
will serve to improve the Belgian economic situa-
tion and to strengthen those activities of the Bel-
gian economy which are still important to the
servicing and supplying of our occupation forces
and the evacuation of our troops from Europe.
These arrangements, it is felt by both Govern-
ments, will facilitate the conclusion of a final set-
tlement of lend-lease under the master agreement.
Conversations looking toward such a final settle-
ment, which would include agreed action contem-
plated in article VII of the agreement, including
questions of commercial policy, will be held be-
tween the two governments in the near future.
During the negotiations consideration was also
given to questions pertaining to commercial policy
and the desire of the United States Government
that discussions be held in the immediate future
on mutually advantageous measures with a view
to the elimination of all forms of discriminatory
treatment in international commerce, payments
and investments, with the objective of expanding
production and increasing employment. It is
understood that the Governments of Belgium and
the United States mutually agree to confer to-
gether in the near future on questions of commer-
cial policy and, pending such a conference, to
avoid the adoption of new measures affecting
international trade, payments or investments
which would prejudice the objective of such a
conference. It was also suggested that the two
governments should mutually agree to afford to
670358 — 45 i
each other adequate opportunity for consultation
regarding such measures.
Principal delegates in the negotiations which
have been conducted over the period of several
weeks were:
Far the United States:
Mr. Willard L. Thorp, Deputy to the Honorable
William L. Clayton, Assistant Secretary of
State, assisted by officers from State, Treas-
ury, and FEA.
For Belgium,:
M. Paul Henri Spaak, Minister of Foreign Af-
fairs
M. Paul Kronacker, Minister of Supply
M. Camille Gutt, Minister of State, assisted by
teclmical advisers from the Office of Mutual
Aid, the Foreign Office and the Ministry of
Supply.
Henry F. Grady To Observe
Greek Elections
Statement by THE SECRETARY OF STATE
[Released to the press October 20]
The President has authorized me to announce
that he has today appointed Henry F. Grady as
his personal representative to head the American
group which will participate with representatives
of the British and French Governments in observ-
ing the forthcoming elections in Greece.
Dr. Grady will have the personal rank of
Ambassador. This appointment follows the ac-
ceptance by this Government of the invitation
extended to it by the Greek Government last
August. This action is taken in accordance with
responsibilities which the American Government
accepted at the Crimea Conference to assist the
peoples of European countries formerly occupied
or dominated by Nazi Gennany in solving their
political problems by democratic means and in
creating democratic institutions of their own
choice.
Dr. Grady has served the Government of the
United States in many important capacities since
1918. He laid the basis for, and negotiated, many
of the trade agreements concluded by the United
States during the administration of President
Koosevelt. He has served as Vice Chairman of
the Tariff Commission and as Chairman of the
612
DEPARTMENT OF STATE BULLETIN
Committee for Reciprocity Information. During
the years 1039 to 1941, he was Assistant Secretary
of State. During the -war period he successfully
carried out three important missions for the Amer-
ican Government : one to the Far East and India
in 19-tl in connection with the problem of raw
materials; another as Head of the Technical Com-
mission to India to study ways and means of in-
creasing India's war production ; a third as Vice
Chairman in Charge of Economic Matters for the
Allied Control Commission of Italy. Among the
positions held by him at present is the presidency
of the American President Lines.
Recognition of
Provisional
Austrian Government
[Released to the press October 15]
In accordance with the resolution of the Allied
Council in Austria of October 1, 1945, the members
of the Council recommended to their respective
governments that the authority of the Provisional
Austrian Government, subject to the guidance and
control of the Allied Council as the supreme au-
thority in Austria, be extended to the whole of
Austria. The Provisional Austrian Government
was reconstituted by the Austrian Provincial
Conference of Sejitember 24-26, 1945 so as to
broaden the basis of its political representation.
The American Government has instructed its
representative on the Allied Council that it is
prepared to recognize the Provisional Austrian
Government on this basis.
In submitting their recommendations, the mem-
bers of the Allied Council stated that one of the
main duties of the Provisional Austrian Govern-
ment will be the holding of national elections not
later than December 1945. The Council further-
more resolved that a democratic press be permitted
to function in Austria. The American Govern-
ment approves these recommendations and re-
gards them as an important step in fulfilling the
Declaration on Austria of November 1, 1943.'
That Declaration, made by the powers now repre-
sented on the Allied Council, provided that
Austria should be liberated from German domina-
tion and reestablished as a free and independent
state.
Decision by Allied Council
in Austria^
The Council examined the question of
the Provisional Austrian Government and
are making recommendations to their
respective governments.
The Council decided on the reestablish-
ment of a free press in the whole of Austria
subject only to conditions of military
security. They also decided that effective
December 1 the wearing of military uni-
forms unless dyed a color other than grey
or khaki is forbidden to former personnel
of the German Army and to Austrian
civilians.
Postponement of Marshal
Zhukov's Visit to the
United States
[Released to the press by the White House October 20]
General Eisenhower has forwarded to the War
DepartmeMt the foil owing letter addressed to him
hy Mat'fihal Zhukov:
I would like you to convey to President Truman
my deep gratitude for the invitation to visit your
country. I valued highly the invitation, as I have
always hoped to visit the United States. The trip
would have given me the opportunity to get to
know the President personally, as well as to get
acquainted with the outstanding leaders of the
American Army with whose amity and combat
comradeship I spent the war. Unfortunately,
however, I have been taken ill and still do not
feel strong enough for a long journey. In addi-
tion, with the coming of the winter there are
many difficult organizational jDroblems confronting
our forces and to undertake the trip a little later
would be extremely difficult.
I am forced, consequently, to postpone my trip
to the United States until next year.
I wish to ask you to transmit to the President
my excuses, regards and best wishes. With sincere
respects, „
' ' Zhukov
1 Bulletin of Nov. 6, 1943, p. 310.
'Communique issued Oct. 1 by the Allied Council.
OCTOBER 21, 1945
613
Reestablisliment of the International Regime
in Tangier
LReleased to the press October 18]
It will be recalled that the Conference of Ex-
perts on Tangier which met in Paris during
August adopted a number of resolutions looking
toward the reestablishment of the international
regime in Tangier. A final act containing the de-
cisions of the conference, as well as an Anglo-
French agreement on the same subject, was signed
in Paris on August 31, 1915. Mr. Henry S. Vil-
lard, Chief of the Division of African Affairs of
the Department of State, signed the final act for
the United States; Mr. C. B. P. Peake for the
United Kingdom; Mr. Jacques Meyrier for
France; and Mr. S. P. Kozyrev for the Union of
Soviet Socialist Republics.
Immediately following the conference, certified
copies of these two documents were communicated
by the French Government to the following gov-
ernments participating in the Statute of Tangier :
Belgium, the Netherlands, Portugal, and Sweden.
All of these have now signified their adherence.
A separate communication was addressed to the
Spanish Government by the Governments of
France and Great Britain, as a result of which
Spain withdrew from unilateral occupation of
Tangier and turned over the administration of the
International Zone on October 11 to the Com-
mittee of Control. The Spanish Government,
however, also made known its adherence and will
participate in the provisional regime as estab-
lished by the conference at Paris.
The Mendoub, personal representative of the
Sultan of Morocco, accompanied by a body of
Sherifian police forces, returned to Tangier on
October 11.
The United States is represented on the Com-
mittee of Control by Mr. Paul H. Ailing, Ameri-
can Diplomatic Agent and Consul General at
Tangier. The Committee of Control has elected a
Portuguese national, Vice Admiral Luis Antonio
de Magalhaes Coi-reia, aS Administrator of the
Zone. Mr. Francois Cracco, a Belgian national,
has been elected Assistant Administrator for
Finance.
The following are the texts of the agreements
reached at the Conference:
FINAL ACT
OP THE CONFERENCE CONCERNING THE REESTAB-
LISHMENT OF THE INTERNATIONAL REGIME IN
TANGIER HELD IN PARIS IN AUGUST, 1945, BE-
TWEEN THE REPRESENTATIVES OF THE GOV-
ERNMENTS OF THE UNITED STATES OF AMERICA,
THE UNITED KINGDOM OF GREAT BRITAIN ANT)
NORTHERN IRELAND, FRANCE AND THE UNION
OF SOVIET SOCIALIST REPUBLICS
The Conference met at the invitation of the
French Government at the Ministry of Foreign
Affairs in Paris on the 10th of August, 1945, and
completed its work on 31st of August, 1945.
The following were present at the Conference
as members of the Delegations :
For the Government of the United States of
Amei'ica :
Mr. H. S. ViLLARD, Head of the African Divi-
sion in the State Department
Mr. J. RrvES Childs, Consul General of the
United States at Tangier
Mr. William Perrt George, Counsellor of
Embassy
Mr. E. J. Dempster of the American Legation
at Tangier
For the Government of the United Kingdom of
Great Britain and Northern Ireland :
Mr. C. B. P. Peake, Consul-General at Tan-
gier
Mr. W. E. Beckett, Legal Adviser to the
Foreign Office
Mr. W. S. Edmonds, retired Consul-General
Mr. I. P. Garran, First Secretary at the For-
eign Office
For the Provisional Government of the French
Republic :
Monsieur Meyrier, Minister Plenipotentiary,
Director General at the Ministry of Foreign
Affairs
614
DEPARTMENT OF STATE BULLETIN
Monsieur re Bkauverger, Minister Plenipo-
tentiary in charge of the French Consulate-
General at Tangier
Monsieur Chancel, Consul-General, Adviser
to the Sherifian Government
Monsieur Baraduc, Counsellor of Embassy at
the Ministry of Foreign Affairs
Monsieur Guiramand, attached to the Minis-
ter of Foreign Affairs
For the Government of the Union of Soviet So-
cialist Republics :
Monsieur S. P. Kozyrev, Minister Plenipo-
tentiary, head of the First European De-
partment at the People's Commissariat of
Foreign Affairs of the U. S. S. R.
Monsieur V. N. Dourdenevski, Professor of
international law
Monsieur F. I. Vidiassov, First Secretary of
the Embassy of the U. S. S. R. at Paris
Commander Bondarenko, expert
Monsieur Meyrier, Head of the French Delega-
tion, accepted the chairmanship of the conference
on the invitation of the other delegations.
The Conference decided to recommend to the
governments the adoption of the following reso-
lutions :
Resolution No. 1
1. The Powers parties to the Act of Algeciras as
set out in Article 2 of the annexed Agreement
should be informed immediately by the French
Government that a Conference of those Powers
will be convened to meet at Paris not later than six
months from the day on which the provisional
regime, based on the Statute of 1923, shall have
been established in the Tangier Zone, for the pur-
pose of considering the amendments to the Conven-
tions in force which may be proposed by any of
these Powers.
2. The above mentioned Powers should be in-
formed at the same time that any of them who wish
to propose amendments to these Conventions
should communicate within the two following
months to the President of the Committee of Con-
trol at Tangier a memorandum explaining where
necessary the reasons why any change in the exist-
ing regime is considered desirable, the principles
on which any proposed amendments are based and
of what precisely the proposed amendments con-
sist. These provisions shall not however be deemed
to prevent the Powers from presenting other pro-
posals at a later date or at the Conference.
3. The Conamittee of Control should proceed to
the study of the memoranda received and of all the
provisions on which the present regime in the Zone
is based. Before the end of the period of six
months referred to in paragraph 1, the Committee
should formulate an opinion on the questions
which have been raised and, if there appeal's to be
any need for it, draw up the text of a draft gen-
eral convention for use at the Conference of the
Algeciras Powers. All questions on which the
Committee of Control has not been able to reach
agreement should be reserved for the Conference.
Resolution No. 2
1. The Agreement, of which the text is annexed
to the Final Act after having been discussed and
approved at the Conference, should be signed im-
mediatel}' on behalf of the Goverimients of the
United Kingdom and France and submitted with-
out delay to the Governments of Belgium, Spain,
the Netherlands, Portugal and Sweden with an
invitation to these Governments to accede thereto.
2. The Conference desires to place on record
that : —
(a) in connexion with the text of Article 7 (b)
of the Agreement annexed to the present Final Act
it was only possible to reach agreement on this
text because the whole question of the competence,
composition and the methods of the election of the
Assembly will be examined at the Conference pro-
vided for in Resolution 1 ; and
(b) after discussing the question of the sur-
veillance of the coast of the Tangier Zone which
is dealt with in Article 4 of the Tangier Statute of
1923 as modified in 1928, it considered the station-
ing of war vessels in the Tangier zone imprac-
ticable for the purpose in question during the
period of the provisional regime, and decided to
leave this question for the Conference referred to
in Resolution No. 1.
Resolution No. 3
In view of the expression by the United King-
dom and French Delegations of the desire of their
Governments that the Governments of the United
States of America and of the Union of Soviet
Socialist Republics should collaborate in the pro-
visional regime, the invitation should be trans-
mitted to these Governments by the French Gov-
ernment and the subsequent procedure should be
in accordance with the provisions of Article 3 of
the Agreement annexed to the Final Act.
OCTOBER 21, 1945
615
Resolution No. 4
Under the final Statute of the Tangier Zone the
Governments of the United States of America and
the Union of Soviet Socialist Republics should
each be entitled, if the present judicial organisa-
tion is maintained, to be represented on the Mixed
Tribunal by a titular judge in the same manner as
the Governments of France and the United King-
dom.
Resolution No. 5
The approach to the Spanish Government for
the purpose of securing the withdrawal of the
Spanish administration from the Tangier Zone
and the putting into force of the Agreement an-
nexed to the Final Act should be made immediately
by the United Kingdom and French Governments.
Resolution No. 6
The Committee of Control should remove from
the service of the Administration of Tangier all
persons who are considered undesirable on ac-
count of political activity, or participation in asso-
ciations or parties whose aims are contrary to the
principles set forth in the Charter of the United
Nations referred to in the Declaration of tiie Con-
ference at Potsdam. The Governments of the
United States of America, the United Kingdom of
Great Britain and Northern Ireland, France and
the Union of Soviet Socialist Republics should give
appropriate instructions to this effect to their re-
spective representatives in the Committee of
Control.
Resolution No. 7
1. The Governments of the United States of
America, France, the United Kingdom of Great
Britain and Northern Ireland and the Union of
Soviet Socialist Republics should examine, if neces-
sary, at the request of the Committee of Control,
the measures to be taken to ensure the repayment
of advances made by the State Bank of Morocco to
the provisional administration of the Tangier
Zone, in accordance with Article 5 of the Agree-
ment annexed to this Final Act.
2. The Governments of the United States of
America, France, the United Kingdom of Great
Britain and Northern Ireland and the Union of
Soviet Socialist Republics should, if necessary, lend
the Committee of Control all assistance required
to assure the provisioning of the Zone.
Resolution No. 8
The Governments of Belgium, the Netherlands,
Portugal and Sweden should be requested at the
time of the transmission to them of the Final Act,
to transmit to the President of the Committee of
Control at Tangier most immediately and in any
case within two weeks of today's date the names
of persons who are their nationals and are con-
sidered suitable and are willing to occupy the
following posts in the Tangier Zone during the
provisional regime, namely
(1) Administrator of the Zone,
(2) Assistant Administrator for Finance,
and
(3) Commandant and 10 officers for the
Tangier Zone Police Force.
Resolution No. 9
Monsieur le Fur should be engaged as technical
adviser of the Committee of Control in order to
re-establish the administration of the zone. He
should act as Administrator until the titular ad-
ministrator has been appointed and lias taken up
his post.
The Conference took note of the following
declaration made by the Soviet delegation :
''In signing this Final Act the Soviet delegation
adheres to the view which it expressed previously
to the effect that, although the Spanish people is
incontestably interested in the administration of
the international zone of Tangier and although
Spain must finally be called to participate in the
appropriate international organisms, this partici-
pation of Spain in the administrative organisms
of the Zone of Tangier cannot be allowed until
General Franco's regime in Spain, which was
established with the support of the Axis Powers
and which in no measure represents the Spanish
people, shall be replaced by a democratic regime."
The Conference also took note of the following
declaration made by the American, British and
French delegations :
1. The American, British and French delega-
tions consider that the participation of Spain in
the provisional administration of Tangier does not
imply in any sense a departure from the Potsdam
declaration of 2nd August, 1945 but represents in
the present circumstances the sole practicable
means of taking into account the interests of the
Spanish nation and people in the settlement of the
Tangier question.
2. 'While considering that the Conference of the
Powers signatory to the Act of Algeciras should
not be held without Spain, the three delegations
do not think it desirable that Spain should be
616
DEPARTMENT OF STATE BULLETIN
invited to the Conference as long as the present
■Government in Spain continues in power; they
suggest that at the appropriate moment the French
Government should consult on the question of the
Conference with the United States, British and
Soviet Governments.
In witness whereof the undersigned have signed
the present Final Act.
Done at Paris in quadruplicate this 31st day
of August, 1945 in English, French and Russian,
all three texts being equally authentic.
ANGLO-FRENCH AGREEMENT FOR THE RE-ESTAB-
LISHAIENT OF THE INTERNATIONAL ADMINIS-
TRATION OP TANGIER
The Government of the United Kingdom of
Great Britain and Northern Ireland and the Pro-
visional Government of the Fiench Republic :
Being desirous of re-establishing as soon as pos-
sible in the Tangier Zone of Morocco an interna-
tional regime in accordance with the conclusions
of the Confei'ence held at Paris in August, 1945,
between the Governments of the United States
of America, the United Kingdom of Great Britain
and Northern Ireland, France and the Union of
Soviet Socialist Republics : and
Considering that it is desirable to establish in
the said Zone a provisional regime based on the
Convention signed at Paris on the 18th December,
1923, to operate until a revised Tangier Statute
has been agreed and can be put into force:
Have therefore decided to conclude an Agi'ee-
ment for this purpose and have appointed as their
pleniiJotentiaries :
The Government of the United Kingdom of Great
Britain and Northern Ireland :
Mr. Charles Bkinsley Pemberton Peake,
His Britannic Majesty's Consul-General at
Tangier ;
The Provisional Government of the French Re-
public :
Monsieur Jacques Meyrier, Minister Pleni-
potentiary, Director-General at the Minis-
try of Foreign Aii'airs :
Who, being furnished with full powers found
in good and due form, have agreed as follows.
Article 1.
From 11th October 1945 until a Convention
drawn up at the Conference referred to in Article
2 below has come into force, the Tangier Zone of
Morocco shall be provisionally administered in
accordance with the Convention of the 18th De-
cember, 1923, (and the Agreement of the 25th
July, 1928, amending the same) as modified by
the provisions of the present Agreement.
Article 2.
(a) As soon as possible and not later than six
months from the establishment of the provisional
regime, the French Government will convoke a
Conference at Paris of the following Powei's
l)arties to the Act of Algeciras : The United States
of America, Belgium, the United Kingdom of
Great Britain and Northern Ireland, Spain,
France, the Netherlands, Portugal, Sweden, the
Union of Soviet Socialist Republics and, subject
to Article 11 below, Italy.
(b) The preparatory work for the said Con-
ference shall be undertaken by the Committee of
Control at Tangier in accordance with Resolution
No. 1 of the Conference at Paris referred to in
the Preamble of this Agreement.
Article 3.
(a) The Governments of the United States of
America and the Umon of Soviet Socialist Re-
publics, although not parties to the Convention
of the 18th December, 1923, are invited to collabo-
rate in the provisional regime of the Tangier Zone
in accordance with the provisions of this Agree-
ment.
(b) The French Government will inform the
Governments of the Powers referred to in Article
2 (a) above of the acceptance of this invitation.
Article Jf.
(a) Upon 11th October 1945 the Spanish Gov-
ernment will hand over to the Committee of Con-
trol the administration of the Zone and the
archives of the administration, and to the Inter-
national Cape Spartel Lighthouse Commission
the administration of that lighthouse.
(b) The proj^erties, offices and establishments
belonging to the French and Sherifian Govern-
ments shall be lianded over at the same time to the
representatives of those Governments. Private
property in the Zone which lias been seized by the
Si)anish authorities shall be restored to the owners
not later than the lltli October, 1945. The pro-
visions of this paragraph do not prejudice the
right of any Government concerned to claim com-
pensation in respect of the seizure or detention of
such property or of any other matter.
(c) The withdrawal from the Zone of all Span-
ish military, naval, air and police forces as well
OCTOBER 21, 1945
617
as all establishments and material of a military
character shall be completed by 11th October,
1945. All Spanish establishments and material
of a military character which shall not have been
withdrawn on this date shall become the property
of the Achninistration of the Tangier Zone.
(d) The Spanish Government will be responsi-
ble for all financial liabilities of the Zone con-
tracted between 13th June 1940, and 11th October,
1945.
(e) The Committee of Control may meet before
lltli October, 1945, and make all necessary ar-
rangements for the putting into foi'ce of the
present Agreement.
Article 6.
Any advances of funds which may be necessary
for the functioning of the public services of the
Zone until adequate financial measures have been
taken by the provisional administration shall be
furnished by the State Bank of Morocco under
conditions agi-eed by the Committee of Control.
Article 6.
(a) The Committee of Control, having ob-
tained from the Administration the necessary
report or reports, shall determine which of the
decrees, laws and regulations enacted and con-
cessions granted between 13th June, 1940, and the
11th October 1945 shall be repealed, amended or
maintained and draw up the necessary legislation
to give effect to these decisions. All laws, decrees
and regulations which are contrary to particular
provisions of the Statute of 1923 shall be included
in the measures to be repealed.
(b) The Mendoub shall promulgate inunedi-
ately the legislation referred to in paragraph (a)
of this Article.
Article 7.
During the period of the provisional administra-
tion of the Zone, the Convention of the 18th De-
cember, 1923, (as amended in 1928) shall operate,
subject to the following modifications: —
(a) The Governments of the United States of
America and the Union of Soviet Socialist Ke-
publics shall have the right to appoint their repre-
sentatives in Tangier as members of the Commit-
tee of Control. The first member of the Commit-
tee of Control to fulfil the functions of President
as from 11th October, 1945, shall be the French
representative and thereafter the presidency shall
devolve bj' rotation in accordance with Article 30
of the Convention of 1923. In the absence of any
stipulation to the contrary a decision of the Com-
mittee of Control will be taken by an affirmative
vote of a majority of the members of the Com-
mittee. In case of an equal division the President
shall have a casting vote.
(b) The International Legislative Assembly re-
ferred to in Article 34 of the Convention of 18th
December 1923 shall be composed of :
4 members of French nationality,
4 members of Spanish nationality,
3 members of British nationality,
3 members of United States nationality,
3 members nationals of the Union of Soviet
Socialist Eepublics,
1 member of Italian nationality,
1 member of Belgian nationality,
1 member of Netherlands nationality,
1 member of Portuguese nationality,
nominated by their respective Consulates, and in
addition :
6 Mussulman subjects of His Majesty the Sul-
tan nominated by the Mendoub and
3 Jewish subjects of His Majesty the Sultan
nominated by the Mendoub and chosen
from a list of nine names submitted by the
Jewish community of Tangier.
Until the Legislative Assembly has been con-
stituted the powers which are conferred upon it
shall be exercised, in cases of urgency, by the Com-
mittee of Control.
Further, the Committee of Control shall have
tlie power at any time to adopt, by regulation
passed by a majority of two-thirds of its members
and stating the reasons for this course, measures
i-elating to any matter which under the Statute
falls within the competence of the Legislative As-
sembly. All regulations so made shall be promul-
gated, published and put into force in the same
manner as measures passed in corresponding cases
by the Assembly.
(c) The Administrator of the Zone shall be a
person of Belgian, Netherlands, Portuguese or
Swedish nationality selected by the Committee of
Control.
He shall be aided by an Assistant Administrator
of French nationality selected by the French Gov-
ernment, who shall be adviser for Moroccan
Affairs, and by an Assistant Administrator for
Finance of Belgian, Netherlands, Portuguese or
Swedish nationality selected by the Committee of
Control.
The Administrator and Assistant Administra-
618
DEPARTMENT OF STATE BULLETIN
toi-s shall be appointed by His Sherifian Majesty
on the request of the Committee of Control.
(d) The provisions of Article 10 (paragi-aphs 3
et seq.) and of Article 47 of the Tangier Statute,
relating to the gendarmerie, the police, the Mixed
Intelligence Bureau and the Inspector-General of
Security shall be abrogated and replaced by the
following provisions : —
The policing of the Zone shall be maintained
by a single police force to be organised as soon
as possible and recruited so far as possible
from inhabitants of the Zone. The Com-
mandant, Deputy-Commandant, officers and
technical advisers of this police force shall be
appointed by Sherifian dahir upon the pro-
posal of the Committee of Control and, except
the Deputy Commandant who shall be a
French national, selected from persons of
Belgian. Netherlands, Portuguese, or Swedish
nationality. The cost of this police force shall
be borne by the Administration of the Zone.
The authorities of the French and Spanish
Zones shall have the right to appoint to the
police administration of Tangier liaison
officers to deal with police questions affecting
their respective Zones. Every facility for the
fulfilment of their duties shall be accorded to
these officers. Until the police force referred
to above has been constituted, the policing of
the Tangier Zone shall be undertaken by a
police force supplied by the French or
Sherifian Governments.
(e) Without prejudice to the provisions of
Article 29 of the Statute of the Zone, the Commit-
tee of Control shall also have the power of deporta-
tion in the case of persons justiciable by the Mixed
Court whose presence in the Zone constitutes a
threat to public order. In any case where this
power is exercised an affirmative vote of two-thirds
of the members of the Committee shall be required
after the case of the person whose deportation is
proposed has been investigated by the police au-
thorities of the Zone and heard by a member of the
Committee selected for this purpose.
(f ) Nothing in the Statute shall be deemed to
prevent the administration from taking, with the
approval of the Committee of Control, in excep-
tional circumstances such measures as may be re-
quired in order to assure the arrival and distribu-
tion of supplies necessary for the maintenance of
the life of the inhabitants.
Article 8.
The Committee of Control may at any time
while the present Agi-eement remains in force
adopt by unanimous vote any amendments thereto
which it considers desirable. Such modifications
shall be recorded in protocols signed by the mem-
bers of the Committee of Control, specifying the
date as from which they shall operate. These
modifications shall be immediately submitted to
His Sherifian Majesty for his approval and for the
enactment of the necessary dahir.
Article 9.
( a ) The present Agreement shall be ratified and
the instruments of ratification shall be exchanged
at Paris as soon as possible. It will however be
put into force immediately without awaiting the
exchange of ratifications.
(b) The present agreement shall be at once sub-
mitted to His Sherifian Majesty for his approval
and for the enactment of the necessary dahir to
give effect thereto.
Article 10.
Certified copies of the present Agreement shall
be immediately comnumicated by the French Gov-
ernment to the Governments of Belgium, Spain,
the Netherlands, Portugal and Sweden. The
Governments of the United Kingdom and France
undertake to collaborate in inviting the accession
of the above mentioned Governments to the
Agreement. In the case of those governments
whose constitutional law requires the fulfilment
of a process equivalent to ratification prior to ac-
cession, accession may be notified in the first
place subject to ratification.
Article 11.
(a) The provisions of the Agreement and da-
hirs of 1928, in so far as they altered the conditions
in which the Italian Government is entitled to
participate in the administration of the Zone, shall
cease to operate.
(b) The Italian Government shall be invited to
accede to the present Agreement at such time as
the other Governments parties thereto shall agree
and subject to any relevant provisions of the peace
treaty with Italy.
In witness whereof the above mentioned pleni-
potentiaries have signed the present Agreement
and affixed thereto their seals.
Done at Paris in duplicate this 31st day of
August, 1945, in English, and French, both texts
being equally authentic.
OCTOBER 21, 1945
619
Meeting of United Nations
Food and Agriculture Organization
MESSAGE OF PRESIDENT TRUMAN ^
To the Delegates to the United Nations Food and
A grieulture rgan ization :
My tlioiights and the thoughts of the people of
the United States of America today turn toward
Quebec. The first conference of the Food and
Agricukure Organization of the United Nations
is truly a momentous occasion. It is an occasion
on which the people of the United Nations begin to
cultivate, if not yet to gather, the fruits of victory.
If we had not won our victory through common
eifort and common sacrifice, a meeting such as this
would have been impossible. There would have
been no room in the world for candor and decency
and mutual helpfulness. Certainly there would
have been no room for an international organiza-
tion dedicated to these two simple propositions:
first, that people in all parts of the world can and
should have plenty of food and of other products
of the farm; and second, that the world's people
who draw wealth from the earth and sea can and
should enjoy their fair share of the good things
of life.
These are high goals. Neither the world nor any
single nation has as yet even come close to achiev-
ing either. It will take time to reach them.
Creation of a Food and Agriculture Organization
in itself will not be enough ; we must look to the
patient cooperation of the family of nations
through FAO and other means. But the work you
are beginning at Quebec is an essential step for-
ward, and a long one.
The world is watching your efforts for still an-
other reason. The Food and Agriculture Organi-
zation is the first of the new permanent world
organizations to grow out of the wartime coopera-
tion of the United Nations. Its early stages, for
good or ill, will do much to set the pattern for the
' Read by Clinton P. Anderson, Secretary of Agriculture
and leader of the United States Delegation, at the second
plenary session of the meeting of the United Nations Food
and Agriculture Organization at Quebec on Oct. 17, 1945.
other world organizations that must follow if we
are to succeed in building a foundation for world
peace and prosperity.
It is particularly fortunate that your meeting
comes at this time, when some of the problems and
difficulties that must inevitably follow military
victory in so great a war have made themselves felt
so keenly. The tasks of repairing the ravages of
war and building for a saner future are tremen-
dous. Each day it becomes clearer that in many
ways we must work harder to win the peace than
we did to win the war. But we know that the peace
can be won. One of the major victories can be
won at Quebec.
The United States is eager and proud to take
its full part in your efforts. The success of this
all-important first step in the life of the food and
agriculture organization is the primary aim of my
country's delegation. Its members come to this
conference prepared to work together with the
delegations of other nations for the good of all,
and to bear their full share of the responsibility
for a successful outcome.
Please convey my best wishes to the delegates of
the host Government of the Dominion of Canada
and to the delegates from the other United Nations.
Much depends on your work during the days ahead.
I am fully confident you will accomplish your pur-
pose, no matter what obstacles may arise. Work-
ing together you cannot fail.
Harrt Truman
SIGNING OF THE FAO CONSTITUTION
The Food and Agriculture Organization offi-
cially came into being on the afternoon of October
16 when delegates of 30 nations signed the consti-
tution in the opening session of the Organization's
first conference at Quebec.
The ceremony, starting at 4 p. m., was opened
by L. B. Pearson, Chairman of the Interim Com-
mission. The Hon. Ernest Bertrand, Postmaster
620
DEPARTMENT OF STATE BULLETIN
General of Ciinada, made the welcoming address
on behalf of the Canadian Government. Ke-
sponscs were made by Mr. Tanguy-Prigent, head
of the French Delegation, and Sir Girja Bajpai,
Agent General for India.
Affixing of the actual signatures was done on
the stage of the Chateau Frontenac ballroom.
With a few exceptions that resulted from the late
arrival of delegates, the delegates signed in alpha-
betical order: Australia, Belgium, China, Canada,
Dominican Eepublic, Denmark, Egypt, France,
Guatemala, Greece, Haiti, Honduras, Iceland,
India, Iraq, Liberia, Luxembourg, Czechoslovakia,
Mexico, Netherlands, New Zealand, Nicaragua,
Norway, Panama, Peru, Philippine Common-
wealth, Union of South Africa, United Kingdom,
United States, Venezuela.
Technically, FAO came into being with the sig-
nature of the Netherlands, the twentieth nation to
sign. The U.S.S.R. did not sign the constitu-
tion. Vasili Sergeev, head of the Delegation, ar-
rived in Quebec on October 16, but said that the
commimications from his government necessary to
authorize signature were on the way but had not
yet been received. In the meantime the Russian
Delegation will act in the cai^acity of observers.
Chile's Delegation is expected to sign the consti-
tution in about a week, when its representative
arrives. Representatives of Yugoslavia also ai'e
expected later, but have not yet arrived. Countries
represented as observers are Lebanon and Sj'ria.
Argentina, which was expected to be among the
observers, has not as yet sent any representatives.
There is an evident effort to speed the work of
the Conference. The provisional schedule was
telescojDed so that the first plenary session could be
held at 9 o'clock on the evening of October 16.
The order of business of the first plenary session
included opening of the session by the chairman
of the Interim Commission, formal recognition of
the interim chairman as temporary Conference
chairman, adoption of temporary rules of proce-
dure, and appointments of the nominations com-
mittee. Clinton P. Anderson will serve as chair-
man of the Nomination Committee, and L. B.
Pearson will serve as temporary chairman of the
Conference.
ORGANIZATION OF COMMISSIONS
AND COMMITTEES
Preliminary work in getting the Conference
started continued on October 17. Progress made
in speeding business, however, was somewhat
counterbalanced by an increase over the expected
volume of speeches by the delegations. The or-
ganizations of commissions and committees may be
effected by October 19 and committee meetings
started by Octolier 20. L. B. Pearson of Canada
was chosen on October 17 as chairman of the Con-
ference. A-^ice-chairmanships were voted to China
and Mexico. The nine-man General Committee of
the Conference (Steering Committee) elected at
the session consists of Mr. Pearson, chairman, the
two vice chairmen of the Conference, representa-
tives of France, United Kingdom, United States,
Australia, India, and the Netherlands. The Cre-
dentials Committee is made up of representatives
of Belgium, United Kingdom, Norway, Peru,
Liberia, Iraq, and the Commonwealth of the
Philippines, a third vice chairman of the Con-
ference, and two additional members of the General
Committee. One of them to be a vice chairman of
the Committee will be nominated subsequently.
The vacancies were left in view of the fact that the
Russian Delegation is expecting its credentials at
any time and the delegations from Brazil, Chile,
and Iran are expected shortly. At the afternoon
session of October 17 Secretary Anderson read
President Truman's message to the Conference
and delegates from Belgium, France, China, and
the LTnion of South Africa followed with formal
addresses.
At the plenary session on the morning of October
IS the Conference acted quickly on four recom-
mendations submitted by the General Committee.
It adopted a report that the languages to be used
at its proceedings shall be those that are adopted
by the United Nations Organization. Pending
that action by UNO the business of the Conference
will be transacted in English. The matter of
language had been raised j^esterday by the French
Delegation and referred to the General Connnittee.
The Conference formally established the two
commissions suggested by the Interim Commis-
sion : Commission A on policy and programs, and
Commission B on organization and administration.
OCTOBER 21, 1945
621
On nomination of the General Committee, tlie
Conference elected Dr. P. R. Viljoen of South
Africa as chairman of Commission A and Mr.
Anders F. Jelstad of Norway and Mr. David
Wilson of New Zealand as vice chairmen; for
chairman of Commission B, Mr. Henrik de Kauff-
man of Denmark ; for vice chairmen of Commission
B, Mr. Alberto Sevilla Sacasa of Nicaragua and
Mr. Anis Azer of Egypt.
Tlie Conference approved the General Com-
mittee's recommendation that the allocations of the
agenda to the different commissions as set forth in
the draft provisional program of work prepared
by the Interim Commission be accepted.
The Conference approved the recommendation
tliat applications of Syria and Lebanon for full
membership be considered.
On October 18 Lourival Fontes, Brazilian Am-
bassador to Mexico, arrived at Quebec as his
country's representative, and the Polish Delega-
tion, headed by Stanislaw Mikolajczyk, also
arrived.
L. B. Pearson, Conference chairman, reported
that the Interim Commission had invited Turkey,
Byelorussia, Ukrainian Republic, Syria, Lebanon,
Saudi Arabia, and Argentina to send observers.
The Conference confirmed the invitation.
Also on October 18, at the morning session the
five technical reports prepared under the auspices
of the Interim Commission were formally pre-
sented to the Conference with summary state-
ments by Commission heads. The reports cover
nutrition and food management, agricultural pro-
duction, fisheries, forestry, and statistics.
Part of the morning session and practically all
of the afternoon session were devoted to a continu-
ation of formal statements of heads of delegations.
Secretary Anderson made his statement at the
start of the 3 o'clock session. Other speakers were
Maximo Kalaw of the Philippine Conmionwealth,
Dr. Frantisek Pavlasek of Czechoslovakia, Dr.
David Wilson of New Zealand, Dr. G. S. H. Bar-
ton of Canada, Mr. Frederick A. Price of Liberia,
and Mr. A. Hoegsbro-Holm of Denmark.
statements of delegations that had not been heard
thus far. On recommendation of Henrik de
Kauffmann of Denmark, Commission chairman,
the following committees and committee chairmen
were approved : Rules and Procedure, Dr. Arthur
Wauters of Belgium, chairman of the Belgian
Food and Nutrition Commission; Finance Com-
mittee, J. B. Brigden of Australia, Financial
Counselor of the Australian Legation in Wash-
ington; Administrative Arrangements Commit-
tee, K. S. Sis of China, Director of The National
Bureau of Agricultural Research; Committee on
Constitutional and Diplomatic Questions, Sir
Girja Shankar Bajpai, Agent General for India in
the United States.
Commission A met for the first time on October
19 under the chairmanship of Dr. P. R. Viljoen
of South Africa. Senator Ehner Thomas is serv-
ing as United States member of the Commission.
On the recommendation of the chairman the Com-
mission agreed on the following names as commit-
tee chairmen : Nutrition, Andre Mayer of France,
Vice President of College of France ; Agriculture,
Dr. E. S. Archibald of Canada, Director, Experi-
mental Farms Service, Canadian Department of
Agriculture. Two vice chairmen for the Agricul-
tural Committees were selected : P. V. Cardon,
United States Research Administrator, Agricul-
tural Research Administration, Department of
Agriculture, and S. L. Louwes, Netherlands Di-
rector General of Food SujDply. Forestry Com-
mittee, Henry S. Graves, United States Professor
Emeritus, Yale College of Forestry; Fisheries,
Mr. Thor Thors, Minister of Iceland to the United
States ; Marketing, H. Broadley, United Kingdom
Ministry of Food; Statistics, Dr. Josue Saenz of
Mexico, Director General of Statistics. The Com-
mission accepted the provisional report of FAO
and the teclinical reports of the Interim Commis-
sion as the starting point of its agenda.
For w'orking purposes the Conference is di-
vided into two commissions : Commission A on
l^olicy and programs and Commission B on organ-
ization and administration. Commission B met
after the sixth plenary session had closed with the
Individual delegations are naming their repre-
sentatives on the various committees. Selections
of the United States are :
Commission A
Committee on Nutrition and Food Management
Dr. Thomas Paebax
Dr. Hazel K. Stiebeling
622
DEPARTMENT OF STATE BULLETIN
Miss Anna Lord Stbausb
Dr. M. L. Wilson
Agric-ultv/re
p. V. Cabdon
Senator Elmer Thomas
Congressman Clifford R. Hope
H. G. Bennejtt
Hugh H. Bennettt
A. L. Deering
MORDECAI EzEKIEL
Albekt S. Goes
Edward A. O'Neal
James G. Patton
Forestry and Forest Products
Ltxb F. Watts
Senator Raymond E. Willis
Edward I. Kotok
Fisheries
Andrew W. Anderson
Edward G. Oale
Marketing
L. A. Whefxer
Congressman John W. Flannaoan, Jr.
HOMHI L. Brinklet
Harry Carlson
Lerot D. Stinebower
Statistics
R. E. Buchanan
L. Wendell Hates
Clifford C. Taylor
Commission B
Committee on Rules and Procedure
L. Wendell Hayes
Senator Elmer Thomas
Miss Anna Lord Strauss
L. A. Wheeler
Finance
Edward G. Calb
Congressman John W. Flannaoan, Jr.
Lbeoy D. Stinebower
Administrative A n^angetnents
Miss Anna Lord Strauss
Senator Raymond E. Willis
L. Wb:ndell Hayes
Constitutional and Diplomatic Questions
Leroy D. Stinebower
Congressman Clifford R. Hope
Albert S. Gobs
Miss Anna Lord Strauss
Committees of both Commissions A and B
started tlieir meetings on October 20 with nearly
all of their efforts directed toward internal organi-
zation.
The Committee on Agriculture — by far the larg-
est of such groups, numbering more than 60 per-
sons — set up a Progi'am Committee to determine
the main subjects for study and set up panels to
get to work on them. This Program Committee
is headed by Louwes of the Netherlands and
Curdon, U.S.A., the two vice chairmen of the
Agriculture Committee. Other countries repre-
sented on the Program Committee are: China,
U.S.S.R., Mexico, Czechoslovakia, France, United
Kingdom, New Zealand, South Africa, and Brazil.
Postal Regulations for Mail
to China
[Released to the press October 19]
As of October 18, 1945, according to an an-
nouncement of the Post Oliice Department, ordi-
nary and registered regular mails will be accepted
for despatch to all of China by ordinary surface
means. Acceptable mail includes letters, post
cards, printed matter in general, printed matter
for the blind, and commercial papers and samples.
Postage rates for letters despatched by surface
means will be 5 cents for the initial ounce and 3
cents for each additional ounce. Registry and
special delivery fees are 20 cents.
The Post Office Department announces that the
present limited parcel-post service to China is not
affected by the extended service.
Effective immediately, articles weighing two
ounces or less will be accepted for despatch by air
direct to China. The articles must be prepaid at
the rate of 70 cents per one-half ounce or fraction
thereof.
The ex23ort control regulations of the Foreign
Economic Administration apply to mail for China,
and business and financial communications are
subject to the requirements of the Freezing Control
Regulations of the Treasury Department.
OCTOBER 21, 1945
623
Attitude of American Government
Toward Palestine
[Released to the press October 18]
The Department of State has recently received
a number of inquiries as to whether it is true that
the United States Government has on various
occasions expressed the view to Jewish and Arab
leaders that they should be consulted before a
decision was reached respecting the basic situa-
tion in Palestine. In response to these inquiries
Secretary of State James F. Byrnes made the fol-
lowing reply :
"On several occasions this matter has been the
subject of oral and written discussions with
various Jewish and Arab leaders. The substance
of this Government's position has been that this
Government would not support a final decision
which in its opinion would affect the basic situa-
tion in Palestine without full consultation with
both Jews and Arabs.
"At a press conference today President Truman
referred to his exploration with Prime Minister
Attlee of ways and means of alleviating the situa-
tion of the displaced Jews in Europe, including
consideration of Palestine as a possible haven for
some of these homeless Jews. There is general
agreement that it is our duty to take energetic
measures to assist these unfortunate victims of
^lazi persecution.
"As the President pointed out today, this matter
is still under consideration. We shall continue to
explore every possible means of relieving the situa-
tion of the displaced Jews of Europe.
"Should any j^roposals emerge which in our
opinion would change the basic situation in Pales-
tine, it would be the policy of this Government
not to reach final conclusions without full con-
sultation with Jewish and Arab leaders. This
policy was stated, for instance, in a letter which
President Roosevelt addressed to King Ibn Saud
on April 5, 1945 and the text of which I have been
authorized to make available."
The text of President Roosevelt's letter of April
5 follows:
April 5, 1945.
Great and Good Friend :
I have received the communication which Your
Majesty sent me under date of March 10, 1945, in
which you refer to the question of Palestine and to
the continuing interest of the Arabs in current
developments affecting that country.
I am gratified that Your Majesty took this occa-
sion to bring your views on this question to my
attention and I have given the most careful atten-
tion to the statements which you make in your
letter. I am also mindful of the memorable con-
versation which we had not so long ago and in the
course of which I had an opportunity to obtain so
vivid an impression of Your Majesty's sentiments
on this question.
Your Majesty will recall that on previous occa-
sions I communicated to you the attitude of the
American Government toward Palestine and made
clear our desire tliat no decision be taken with re-
spect to the basic situation in that country without
full consultation with both Arabs and Jews. Your
Majesty will also doubtless recall that during our
recent conversation I assured you that I would take
no action, in my capacity as Chief of the Executive
Branch of this Government, which might prove
hostile to the Arab people.
It gives me pleasure to renew to Your Majesty
the assurances which you have previously received
regarding the attitude of my Government and my
own. as Chief Executive, with regard to the ques-
tion of Palestine and to inform you that the policy
of this Government in this respect is unchanged.
I desire also at this time to send you my best
wishes for Your Majesty's continued good health
and for the welfare of your people.
Your Good Friend,
Franklin D. Roose\'elt
His Majesty
Abdul Aziz Ibn Abdur Rahman al Faisal al
Saud
King of Saudi Arabia
Riyadh
624
DEPARTMENT OF STATE BULLETIN
Educational and Cultural Conference
INVITATION TO THE CONFERENCE
Foreign Office, S. W. 1.
3rd August, J94S.
YouK Excellency,
I have the honour to inform Your Excellency
that, at a meeting of the Conference of Allied Min-
isters of Education on the 12th July last, His Maj-
esty's Government were requested to invite, on
behalf of the Conference, the Governments of the
United Nations to send delegates to a Conference
to be held in London on the 1st November, 1945, to
consider the creation of an Educational and a Cul-
tural Organisation of the United Nations in ac-
cordance with Article 57 of the Charter of the
United Nations.
2. In so acting on behalf of the Conference of
Allied Ministers of Education, His Majesty's Gov-
ernment are gratified to know that they are also
contributing to the practical realisation of a proj-
ect for a United Nations Organisation in the field
of education and culture proposed at the initiative
of the French Government at the Conference at
San Francisco, where it received unanimous ap-
proval.
3. The French Government having been ap-
prised of the intention of His Majesty's Govern-
ment to despatch the present invitation have fully
agreed to be specially associated with His Maj-
esty's Government as the inviting power.
4. Accordingly, I have the honour in agreement
with the French Government to invite the Govern-
ment of the United States to be represented at the
above-mentioned Conference by a duly accredited
delegate (who might be accompanied by alternates
or advisers).
5. Ten copies of a draft constitution, as sub-
mitted to, and adopted as the basis of discussion
by, the Conference of Allied Ministers, are at-
tached, together with two copies of an explanatory
document^ prepared by the Conference and two
copies of the preliminary agenda of the Confer-
ence.^ In the event of the acceptance of this invi-
tation by the United States Government, further
material relating to the Conference will be for-
warded in due course.
6. Versions of all these documents in the French
language will be sent at a later date.
7. I am further to suggest that, if possible, any
observations upon or amendments to the draft con-
stitution should be forwarded so as to reach His
Majesty's Government on or before the 1st October.
8. The Conference agi'eed tliat the date of publi-
cation of the Draft Constitution should be the 1st
August 1945.
I have [etc.]
(For the Secretary of State)
Alexander Cadogan
DATE FOR CONVENING OF CONFERENCE
[Released to the press October 15]
The British Government has informed the De-
partment of State that the Educational and Cul-
tural Conference of the United Nations Organiza-
tion will convene as scheduled in London on No-
vember 1, 1945. The Department of State has been
advised by the host Government, Great Britain,
that about 30 nations have accepted invitations to
send delegates to London. The State Department
expects to make public the names of the members
and advisers of the United States Delegation
within a few days. It is planned to have the
United States Delegation meet in Washington for
consultation on October 25. The Delegation will
leave for London by boat and plane on October 27.
UNITED STATES DELEGATION
[Released to the press October 19]
The Assistant Secretary of State, the Hon. Wil-
liam Benton, announced on October 19 the com-
position of the United States Delegation to the con-
ference to consider the creation of an Educational
' For text of the draft constitution and an interpretation
gee Bulletin of Aug. 5, 1945, p. 165.
' Not printed.
OCTOBER 21, 1945
625
and Cultural Organization of the United Nations,
which is scheduled to convene at London on No-
vember 1, 1945. Mr. Benton stated that while he
is listed as a member of the Delegation it will not
be possible for him to be in London at the opening
of the conference because of the necessity that he
appear before various hearings of congi-essional
committees. Mr. Benton will leave for London as
soon as possible.
The purpose of the meeting is to formulate the
final constitution of the proposed Educational,
Scientific, and Cultural Organization of the
United Nations. Tliis Organization will work
toward the United Nations' objective of develop-
ing friendly relations among nations and achiev-
ing international cooperation in solving interna-
tional problems of a social, cultural, or scientific
character.
The conference will attempt to organize and
continue the work begun by the Conference of
Allied Ministers of Education. At meetings of
this group held in London in April 1944, a tenta-
tive draft constitution was drawn up for a perma-
nent Organization. A later document prepared
by the Department of State, as revised by the Lon-
don Conference of Allied Ministers of Education,
will serve as a basis for discussion in the formula-
tion of the definitive constitution. Since the meet-
ing of the Allied Ministers referred to above, the
United States has maintained a representative in
London, Dr. Grayson Kefauver, on the work of the
Conference.
The membership of the Delegation is as follows :
Delegates:
Akchibaxd MaoLeish, Chairman of the Delegation.
William Benton, Assistant Secretary of State.
Abthub H. Compton, Chancellor, Washington University,
St. Louis, Mo. (serving until Nov. 13) ; and Haklow
Shaplet, Director, Harvard College Observatory,
Cambridge, Mass. (serving commencing Nov. 10),
neither one of whom can serve throughout the
conference and will therefore jointly serve as one
delegate.
Chestee E. Merkow, House of Representatives, Commit-
tee on Foreign Affairs.
James E. Mubray, United States Senate, Chairman,
Committee on Education and Labor.
Geobge Stoddaed, President, University of Illinois.
Miss C. MiLDEEa) Thompson, Dean, Vassar College.
Advisers:
Miss HAEBiETr W. Elliott, Dean of Women, Women's
College, University of North Carolina.
Herbert Emmerich, Director, Public Administration
Clearing House, Chicago.
Lttther H. Evans, Librarian of Congress.
Geayson N. Kei'auver, Consultant, Department of State ;
and United States Delegate to the Conference of
Allied Ministers of Education.
Waldo Leland, Director, American Council of Learned
Societies.
Alexander Meiklejohn, former President, Amherst
College.
Frank Leslie Schlagle, President, National Education
Association ; and Superintendent of Schools, Kansas
City, Kans.
Gb»rge Schuster, President, Hunter College, New York.
As in the case of Mr. Benton, Commissioner of
Education John W. Studebaker will not be able
to get away from Washington to leave with the
Delegation, but the Commissioner hopes to leave
for London to join the conference for the last ten
days or two weeks and at that time will join the
Delegation as an adviser.
Secretary General:
Warren Kelchnbs, Chief, Division of International
Conferences, Department of State.
Technical Secretary:
Bbtn J. Hovde, Consultant, OflSce of International In-
formation and Cultural Affairs, Department of
State.
Technical Experts:
Harold Benjamin, United States Office of Education,
Esther C. BBUNAtrEE, Assistant on International Or-
ganization, Division of International Organization
Affairs, Department of State.
George Kennetth Holland, President, Inter- American
Education Foundation.
Walter Kotschnig, Division of International Organiza-
tion, Department of State.
Richard Pattee, National Catholic Welfare Conference.
Donald Stone and/or Eric Biddlb, who will be in Lon-
don on Bureau of the Budget business, and will be
available.
Charles A. Thomson, Adviser, Office of International
Information and Cultural Affairs, Department of
State.
Secretaries of Delegation:
Eugene N. Anderson, Assistant Chief in charge of the
European Branch, Division of Cultural Cooperation,
Department of State.
Donald B. Eddt, Divisional Assistant, Division of In-
ternational Conferences, Department of State.
Richard A. Johnson, Third Secretary, American Em-
bassy, London.
Assistant Secretaries:
Herbert J. Abraham, Department of State.
Mart French, Department of State.
626
DEPARTMENT OF STATE BULLETIN
Preparatory Commission
Of the United Nations
Preparatory Commission and the first part of the
First Session of the General Assembly should be
on a temporary basis.
ARRANGEMENTS FOR TRUSTEESHIP COUNCIL
[Released to the press by the Preparatory Commission of the
United Nations October 6]
The Executive Committee, which met under the
chairmanship of Professor Webster (United King-
dom) at Churcli House, Westminster, today,
October 6, considered the report of a subcommittee
recommending certain interim arrangements that
are required pending the establishment of the
Trusteeship Council. After some discussion the
proposal for the creation by the General Assembly
of a temporary Trusteeship Committee was ap-
proved. The temporary Trusteeship Committee
would have to carry out certain of the functions
assigned in the Charter to the Trusteeship Council.
DISCUSSION ON ORGANIZATION
OF INFORMATION SERVICES
[Released to the press by the Preparatory Commission of the
United Nations October 6]
The Committee then discussed the organization
of the information services of the Preparatory
Commission and the first session of the General
Assembly. It was agreed that the information
services should be such as to enable the press and
other media of information to provide the public
with full, rapid, and accurate information. In
order to carry out this principle it was proposed
that all plenary meetings should be open to the
press; meetings of the committees should gen-
erally also be open to the press, with closed ses-
sions of the committees being the exception, not
the rule; meetings of the subcommittees should
ordinarily be closed to the press, but information
about their proceedings should be provided to the
press promptly after each sitting.
The stuff of the information service should be
increased and adequate facilities insured so as to
meet the special needs of duly accredited repre-
sentatives of the press, radio, newsreels, and still
pictures and to provide for direct liaison with in-
terested private groups and organizations repre-
sentative of the general public. It was recom-
mended that the information services of the
Ratification of the Charter of
the United Nations
Instruments of ratification of the Charter of the
United Nations have been deposited with the De-
partment of State within the last four days by the
following nations :
[Released to the press October 15]
Lebanon
Charles Malik, INIinister of Lebanon, deposited
witii the Department of State on October 15 the
Lebanese instrument of ratification of the Charter
of the United Nations.
Cuba
Guillermo Belt, Ambassador of Cuba, deposited
on October 15 the Cuban instrument of ratification
of the Charter.
[Released to the press October 20]
Iran
Dr. A. A. Daftary, Charge d'Affaires ad interim
of Iran, deposited the instrument of ratification of
the Charter by his Government on October 16.
Luxembourg
The Hon. Hugues Le Gallais, Minister of Lux-
embourg, on October 17 deposited his Govern-
ment's instrument of ratification of the Charter.
Saudi Arabia
The instrument of ratification of the Charter
by the Government of Saudi Arabia was received
by the Department of State from the American
Legation in Jidda and was deposited on October 18.
Czechoslovakia
His Excellency Vladimir Hurban, Ambassador
of Czechoslovakia, on October 19 deposited the
Czechoslovak instrument of ratification of the
Charter.
Yugoslavia
Dr. Sergije Makiedo, Charge d'Affaires ad
interim of Yugoslavia, on October 19 deposited the
instrument of ratification of the Charter by Yugo-
slavia.
OCTOBER 21, 1945
Syria
The Hon. Dr. Nazem al-Koudsi, Minister of
Syria, deposited the Syrian instrument of ratifica-
tion of the Charter on October 19.
Great Britain and Northern Ireland
His Excellency the Eight Honorable the Earl
of Halifax, Ambassador of the United Kingdom
of Great Britain and Northern Ireland, deposited
with the Department of State on October 20 his
Government's instrument of ratification of the
Charter of the United Nations.
Article 110 of the Charter provides that it shall
come into force upon deposit of ratifications by
the Republic of China, France, the Union of Soviet
Socialist Eepublics, the United Kingdom of Great
Britain and Northern Ireland, and the United
States of America and by a majority of the other
signatory states. To date the following govern-
ments have deposited instruments of ratification
of the Charter with the Government of the United
States :
United States of America on August 8
France on August 31
Dominican Republic on September 4
Nicaragua on September 6
• New Zealand on September 19
Brazil on September 21
Argentina on September 24
El Salvador on September 26
Haiti on September 27
China on September 28
Turkey on September 28
Denmark on October 9
Philippines on October 11
Chile on October 11
Paraguay on October 12
Lebanon on October 15
Cuba on October 15
As of October 20, the following additional gov-
ernments had deposited their instruments of
ratification :
Iran on October 16
Luxembourg on October 17
Saudi Arabia on October 18
Czechoslovakia on October 19
Yugoslavia on October 19
Syria on October 19
Great Britain and Northern Ireland on
October 20
627
Signing by Poland of the
Charter of the United Nations
[Released to the press October 15]
Wlien the Charter of the United Nations was
signed at San Francisco on June 26, 1945, a place
was left open in that document for Poland to sign,
pursuant to a unanimous agreement by the Steer-
ing Committee of the United Nations Conference
on International Organization reached on June 23,
1945. Wincenty Rzymowski, the Foreign Minis-
ter of the Polish Provisional Government, who
came to Washington for this purpose, on October
15 signed the Charter on behalf of Poland, thus
completing the roster of original members of the
Organization. Mr. Rzymowski also signed the
Interim Ai'rangements agreement.
Study on Developments in
Scandinavian Pulp and
Paper Industries
[Released to the press by the Department of State "and the
Department of Commerce October 19]
Appointment of Edwin G. Jahn, a native of
Oneonta, New York, to the Auxiliary Foreign
Service of the United States to study develop-
ments in the pulp and paper industries of Norway,
Sweden, and Finland was announced jointly on
October 19 by the Departments of State and
Commerce.
Mr. Jahn, who was appointed to the State De-
partment post upon the recommendation of the
Bureau of Foreign and Domestic Commerce, De-
partment of Commerce, will report currently upon
wartime and immediate post-war commercial and
economic developments in the pulp and paper in-
dustries and export trade of the three countries,
which he will survey for about one year.
Under the existing program of cooperation
between the Departments of State and Commerce
in matters of international commercial relations,
these reports will be made available to interested
American businessmen and industry groups
through the facilities of the Bureau of Foreign
and Domestic Commerce.
Before the war these three countries ranked
628
DEPARTMENT OF STATE BULLETIN
among the largest exporters of wood pulp and
pajser and supplied the United States with about
one third of the wood pulp consumed domestically.
Pulj) and i^aper ranks as an important commodity
in international trade, and it is necessary that the
palmer industry of the United States be kept in-
formed of developments abroad whicli affect both
the imports of essential raw materials and export
sales of pulp and paper manufactures.
Mr. Jahn was selected for this post because of
his long association with both the academic and
commercial phases of the wood-pulp and paper
industries and his familiarity with the area to
which he is going, the State and Commerce De-
partments reported.
UNRRA Mission To Gather
Information on Displaced
Persons in the Far East
[Released to the press by UNRRA October 17]
A special UNRKA mission left Washington on
October 16 to gather information concerning the
number and location of displaced persons of
United Nations nationality in Far Eastern coun-
tries whose care and eventual repatriation may
become an UNRRA responsibility. The four-man
mission, headed by Pierce Williams of San Fran-
cisco, will conduct investigations in China and
other countries of the Far East.
Experts know that the displaced-persons prob-
lem which confronted the United Nations after
the end of hostilities in Asia differs from the prob-
lem in Euroi>e. Accurate information has not been
available. Little is known of the number of state-
less persons in the Far East or the difficulties in-
volved in their care and final disposition. The
UNRRA mission will ascertain the facts on the
scope of the problems and recommend required
action to headquarters in Washington. Civil and
military authorities will be the principal sources
of information.
Serving with Mr. Williams on the special mis-
sion are David R. Trevithick of Ogden, Utah,
Denzil H. Clarke of London, England, and Casmir
A. Soorma of Burma. Mr. Williams, who has
recently returned from Europe, where he assisted
in preparatory work for the UNRRA displaced-
persons operation in Germany, has been Director
of the National Bureau of Economic Research, a
member of the staff of the National Resources
Planning Board, and Regional Director for the
Far East for the Federal Works Agency. Before
joining UNRRA in 194:4, he Avas Chief of the
Noi'th African Mission of the Board of Economic
Warfai'e.
Mr. Trevithick during 1944 was the UNRRA
representative for displaced persons on the
SHAEF mission to Belgium and in 1945 a mem-
ber of a special displaced-persons mission sent by
UNRRA to Greece. From 1935 to 1943 he was
Director of Public Welfare for the State of Utah.
Mr. Clarke has served for many years in the
British consular service in China. Caught in
Shanghai at the beginning of hostilities in 1941,
he was interned by the Japanese, being exchanged
in 1942.
Smce 1944 Mr. Soorma has been a specialist
on displaced-persons problems in the UNRRA
office at Sydney. A distinguished Burmese law-
yer, he brings to his present assignment an inti-
mate knowledge of population problems of the
Far East.
While the mission will be concerned with dis-
placed persons throughout the Far East, its work
will begin in China.
Conversations on Air
Agreement With Mexico
[Released to the press October 20]
The initial conversations between the United
States and Mexican officials on the proposed bi-
lateral civil air-transport agreement have been
completed. Further conversations will be held at
a later date.
Agreement was reached upon the fundamental
basis of an air-transport agreement which follows
substantially the standard form of agreement
agreed upon at the Chicago conference of 1944.
Final agreement has not yet been reached upon the
routes to be operated between the United States
and Mexico by United States and Mexican air car-
riers. It is expected that complete agreement will
soon be reached during further conversations.
OCTOBER 21, 1945
629
Is UNRRA Doing Its Job?
PARTICIPANTS
William L. Clayton
Assistant Secretary of State for Economic
Affairs and United States Delegate to
the UNRRA Council
Herbert Lehman
Director General, United Nations Relief
and Rehabilitation Administration
Sterling Fisher
Director, NBC University of the Air
the headlines from
[Released to the press October 20]
Announcer : Here are
Washington :
Director General Lehman Says Additional Funds
for UNRRA Are Essential if Starvation and
Chaos Are To Be Avoided in Europe and Asia,
and if New Obligations to Italy, Austria, and
Far East Are To Be Met.
Assistant Secretary of State Clayton States There
Is No Alternative to UNRRA as an Agency To
Relieve Suffering in Coming Winter : Says That
UNRRA Should Get Top Priority on Funds and
Facilities for Its Work.
Announcer : This is the thirty-sixth in a series
of programs entitled "Our Foreign Policy," fea-
turing authoritative statements on international
affairs by Govermnent officials and members of
Congress. This series is produced by NBC's Uni-
versity of the Air not only for listeners in this
country but for our service men and women over-
seas, wherever they ai-e stationed, through the
facilities of the Armed Forces Radio Service.
Printed copies of these important discussions are
also available. Listen to the closing announce-
ment for instructions on how to obtain them.
This time we present the second of our limited
series of broadcasts on international organizations.
The subject: "Is UNRRA Doing Its Job?" We
have invited Mr. Herbert Leliman, Director Gen-
eral of the United Nations Relief and Rehabilita-
tion Administration, and Assistant Secretary of
State William L. Clayton, U.S. Delegate to the
UNRRA Council, to discuss the international re-
lief agency and the coming winter crisis in the
war-ravaged countries of Europe and Asia. Mr.
Lehman and Mr. Clayton will be interviewed by
Sterling Fisher, Director of NBC's University of
the Air. Mr. Fisher —
Fisher : Almost two years ago, representatives
of the then 44 United Nations met in Washington
to sign the agi'eement which created the United
Nations Relief and Rehabilitation Administra-
tion — or UNRRA, as everyone calls it. This was
the first United Nations agency to start actual
operations. Its success or failure will therefore
have a great effect on public confidence in other
United Nations organizations. Now, from the be-
ginning UNRRA has been something of a storm
center because of the difficulties it has encoimtered
in doing its job. Mr. Lehman, can you tell us
something about the magnitude of that job?
Lehman : Well, Mr. Fisher, the world is facing
the toughest winter in its history. In Europe
alone, 180,000,000 people are on the borderline of
starvation. Our job is to keep as many people
alive as we can — it's not as simple as that. It's a
race against time, to save hundreds of thousands of
people from starvation and plague.
Fisher : Mr. Clayton, you attended the London
conference of the UNRRA Council as the United
States Delegate not long ago. Wliat did that con-
ference accomplish toward meeting the needs of
the world's hungry people?
Clayton: Actually, the situation is more des-
perate now than it was before that conference,
because the need for UNRRA assistance has in-
creased faster than we could meet that need. We
took on new responsibilities at the London UNRRA
meeting. Not only has the end of the war in the
Far East dumped a huge problem in our lap, but
we have had to accept new responsibility for aiding
Italy, Austria, Korea, and Formosa.
Lehman : Just compare the devastation in this
war with World War I, Mr. Fisher, and you'll see
how much greater our job is.
Fisher: In the number of countries, do you
mean. Governor Lehman ?
630
DEPARTMENT OF STATE BULLETIN
Lehman : Yes. and in extent of devastation.
Since 1939 the Axis has overrun oi't countries in
Euroije and Asia. And the military campaigns
•were fought over an area hundreds of times as
large as that of Worhl War I.
Clayton : And with nuicli more destructive
weapons.
Lehman : In World War I, for example. China.
Holland, Italy. Norway, and Greece and numer-
ous other nations were not invaded. Our task is
many times as great as after the last war.
Fisher : Well, this time we have an international
agency to deal with these problems.
Lehman : Yes, but so far UNRRA actually has
been given far less funds than the amount spent
by tlie United States alone after World War I,
although the need is much greater today. The
United States spent between two and three billion
dollars then; but the total allocated for UNRRA
by (dl nations to date is less than two billion, in
cash and in supplies.
Clayton : That will not be enough. Unless the
countries of the United Nations give UNRRA the
new contributions we asked for at London — an
additional $1,800,000,000— UNRRA will have to
liquidate with the minimum job only half com-
pleted.
Fisher : You mean, Mr. Clayton, it will actually
have to go out of business?
Clayton: Yes, that's just what I mean, Mr.
Fisher. And soon, too. Probably by the end of
this year UNRRA won't be able to purchase any
more relief supplies. And that would be a major
tragedy, coming at the beginning of a winter as
grim as this one will be.
Fisher : Does that mean. Governor Lehman, that
you have already spent the original $1,800,000,000 ?
Lehman: No, not all of that is available yet.
Practically every penny of our funds, however,
that is available— about $1,300,000,000 from all
countries — has been either spent or committed on
orders for relief goods and services, so that we
can't obtain another thing unless we have more
funds.
Clayton : As you say, Governor, UNRRA still
has funds coming under the original arrangement.
The Congress last year authorfzed the first U.S.
contribution— $1,350,000,000— but it has thus far
appropriated only $800,000,000. We still have to
appropriate $550,000,000 of our original pledge.
That request is before the Congress at the moment.
Fisher : I shouldn't think there would be much
doubt of that being done.
Clayton : No, I don't think there is. That's a
definite obligation. Congress has already author-
ized it. But it's also up to us to lead the way in
granting that entirely new additional contribution
to UNRRA, in an amount as large as the original
authorization. All UNRRA can do from here
on in, unless those funds are forthcoming, is to
deliver the goods that have been ordered — and that
won't be enough to see our present program, inade-
quate as it is, even half way through the wintei-.
Lehman : You see, Mr. Fisher, we can't operate
like a housewife, who can go down to the corner
grocery, buy what she needs, and take it home with
her. We have to order in advance. If we need
trucks or freight cars or even medical supplies,
we have to place our order weeks or months in
advance. That's why we need these funds immedi-
ately — otherwise there will be a gap in our deliv-
eries.
Clayton : The need is all the more urgent be-
cause the Army has already withdrawn from relief
operations in Europe except in Germany and Aus-
tria — to say nothing of the Far East, where it
never even attempted a civilian-relief program.
After all, UNRRA is responsible for relief to
most of the battle-scarred world, except western
Europe.
Fisher: Mr. Clayton, suppose the funds
UNRRA is asking for aren't forthcoming; what
will happen ?
Clayton : If they aren't forthcoming, you'll
see starvation and suffering worse than anything
that happened to civilians during the war. There
is no other means of getting food to the people
who have to go through this winter, and seeds,
fertilizer, and agricultural equipment so they can
start producing their own food again next year.
And they must have medical supplies to ward off
typhus, cholera, and other diseases. UNRRA is
their only hope.
Lehman: If we tried to set up and staff a
new American relief agency, the winter would be
over before we could get it under way. The real
alternative to an expanded UNRRA program is
agony, unrest, and chaos. Democracy would be
hard put to survive in a great part of the world.
Clayton : Yes, that's right. Governor, and we
can't afford to let it come to that. After the lives
and the money we have spent winning this war,
OCTOBER 21, 1945
631
we've got to see the thing through this final winter.
Otherwise the people in the wake of the war will
be so embittered that anything could happen.
Fisher: Mr. Clayton, why aren't these people
able to help themselves by this time? After all,
in Europe the war has been over since last May.
Clayton : Well, for one thing the actual fight-
ing swept over such large areas that plantings
this year were far below normal. Whole villages
had to evacuate the war zones in many areas — or
their men were taken off to do slave labor in Ger-
many, and couldn't get back in time to plant their
crops. Then, too, not many people had seed left
to plant. And there is almost no fertilizer and
very few farm tools. On top of that, there have
been crop failures this year in much of eastern
and southern Europe — the area where UNRRA
has been most active.
Lehman : Take Yugoslavia, for example. The
grain crop is only 50 percent of normal this year.
And don't forget that transportation has broken
down almost completely in the war zones of both
Europe and Asia. Many tens of thousands will be
completely homeless this winter. Bridges are
down, canals are blocked, the railroads are in a
perfect mess. We've had to furnish our own
trucks in Greece and elsewhere, to get food to the
people.
Fisher : You've made a good case for the need
for UNRRA, Mr. Lehman. But the central ques-
tion in this discussion is, What is UNRRA doing
to meet that need? Is UNRRA doing its job?
Or more specifically, just what has UNRRA
accomplished ?
Lehman: Well, I think we've been doing a
pretty good job. By the end of this month we
will have provided over 2,500,000 tons of relief
supplies.
Fisher: That's a lot of tonnage. It would
take — let's see — more than 300 Liberty ships to
carry that much.
Lehman : We're shipping the equivalent of at
least 50 shiploads a month now. With the end of
the war in Europe, a lot more shipping space has
become available, and that, of course, has helped.
Fisher: That certainly contrasts sharply with
what you were doing early this year. As I recall
it, you had shipped very little until this spring.
In fact, some people were saying at that time that
UNRRA was a failure — that it had operated for
one whole year without accomplishing much of
anything.
Lehman: We had to have supplies and ships
before we could begin our work, Mr. Fisher. But
the supplies and ships we needed then had to be
used to win the war. Then, too, we had a tough
job recruiting a staff, to begin with. And we had
to lay out a plan of operations.
Clayton: And don't forget, the war agencies
had first call on personnel and materials and ships,
of course. But now that the war is over, I believe
UNRRA should have top priority, on men and
goods and transportation.
Lehman : We've been able to get a great many
of the people we needed, and a fair amount of
shipping, since V-E Day. I want to make one
point here, though, Mr. Fisher. You mentioned
the criticism of our early operations. We did
encounter some serious delays — but I want to point
out that UNRRA was on the job in every country
eligible for its help within a few weeks after such
counti-y had been liberated.
Fisher : And where is it operating today, Mr.
Lehman ?
Lehman: In Greece, Yugoslavia, Poland,
Czechoslovakia, Italy, Albania, and China. We
are increasing our aid to China and expect to give
help to other liberated countries of Asia very soon.
Fisher : You didn't mention the western Euro-
pean countries. Governor. Some of them are
pretty badly off, too.
Lehman: Yes, in my opinion it is just as im-
portant to stop suffering there as in eastern
Europe. But that will have to be done mainly
through regular governmental supply channels.
UNRRA's charter specifies that it can help only
those countries that do not have enough foreign
exchange — that is, dollars or other foreign
funds — to pay for essential imports. France,
Belgium, the Netherlands, and other western
European countries have sufficient foreign ex-
change or credit resources to finance these pur-
chases, while the eastern and southern European
countries do not have them.
Fisher: Mr. Clayton, I'd like to have your
evaluation of how UNRRA has been doing its job
in these various countries.
Clayton : Well, Mr. Fisher, I suppose Greece is
the outstanding example thus far. Greece was
faced with mass starvation. Fortunately, it was
accessible by sea, and we were able to get in there
pretty quickly, in time to save literally thousands
of lives. UNRRA did a great job there. It has
632
DEPARTMENT OF STATE BULLETIN
already sent close to $200,000,000 worth of sup-
lilies to Greece.
Fisher: There was some criticism, Mr. Secre-
tary, of the way UNRRA was handled in Greece,
at least in the beginning. There were charges
that it was used by the British for political
purposes.
Clayton: During the first few weeks it was a
pretty tangled political situation. But UNRRA
is definitely non-political, and the distribution of
relief supplies was handled impartially — under an
American director, incidentally.
Fisher: Mr. Lehman, what about the charge
that UNRRA has been used by the governments
of the countries where it operates to bolster their
own political prestige?
Lehmax : Well, the government of each coun-
try naturally handles its own distribution of
UNRRA goods. That provision was placed in
the charter because it was felt that politics would
be reduced to a minimum that way, and relief
could not be used as a wedge by any outsiders.
But we do send in observers, who check on the
distribution of supplies in the countries receiving
aid, to see that there is no discrimination on ac-
count of race, creed, or political belief.
Fisher : The physical problem of getting sup-
plies into some of the central European countries
must have been pretty great. Poland and Czecho-
slovakia, for example.
Lehman : Yes, we've only been able to get into
Poland through Danzig for the past few weeks.
And we've just begun to use the port of Bremen
for shipments to Czechoslovakia.
Clayton : Before that, they had to go in by a
very round-about route, through the port of Con-
stanza, in the Black Sea. But despite that fact,
UNRRA has shipped close to $80,000,000 worth
of goods into Czechoslovakia, and $90,000,000
worth into Poland.
Lehman : Of course, Yugoslavia was also hard
to reach because of the lack of port facilities.
But in spite of that, we have sent about $150,000,-
000 in supplies to the Yugoslavs.
Fisher : Wliat about the Italian program, Mr.
Clayton ? I think many people wonder why Italy
would be eligible for UNRRA assistance, as a
former enemy country.
Clayton: I'm glad you mentioned Italy. An
exception was originally made for Italy, at the
suggestion of President Roosevelt, who acted on
rejjorts of wide-spread malnutrition and near
starvation. By action of the UNRRA Council
a year ago, help has thus far been limited to
children, the indigent, and nursing or expectant
mothers, and less than $25,000,000 in supplies
have been sent to Italy. About 800,000 Italian
mothers and children are being partially fed by
UNRRA. At the London UNRRA Council
meeting in August, the member nations agreed
that UNRRA should assume the complete respon-
sibility for relief in Italy. This program can-
not begin, however, until the new contribution
is made since the cost is estimated at between
$400,000,000 and $500,000,000.
Lehman: Mt. Fisher, I think we should also
mention UNRRA's aid to the millions of displaced
persons in Europe.
Fisher : Can you give us the current status of
that program. Governor Lehman ?
Lehman : "Well, when Germany was first liber-
ated more than 6,000,000 displaced persons were
found. The Army started sending them home very
rapidly, and now UNRRA has taken over the
administration of the camps where the unre-
patriated are gathered. There are about 450 such
installations for the DP's— displaced persons —
with more than 3,300 UNRRA workers supervising
or operating them, under the over-all direction of
the military.
Fisher: How many of these displaced persons
are left out of the original 6,500,000 ?
Lehman: Only about 1,300,000, Mr. Fisher.
And we expect most of them to be home before
next spring.
Clayton : Except, of course, about a quarter of
a million non-repatriable "stateless persons" — that
is, those who can't or don't wish to return to their
home countries. A large number of these are
Jews.
Fisher: Will UNRRA continue to care for
them, Mr. Clayton ?
Clayton: Only for a few months, until their
status is determined and some provision made for
them. After all, UNRRA is only a temporary
relief agency.
Fisher : But now, Mr. Secretary, about the job
that still remains to be done : Can you break that
down for us? I have read that the Soviet Union
asked for $700,000,000 worth of UNRRA aid.
Clayton: Yes, that was the original request,
Mr. Fisher. But it has since been revised to $250,-
000,000. And it's to be limited to the White Rus-
OCTOBER 21, 1945
633
sian and the Ukrainian Republics, which were
comisletely overrun by the Nazis. The destruction
there was something terrible.
Fisher: But, since a great part of the Soviet
Union was not invaded, couldn't she take care of
the victims in her invaded areas ?
Claytox: We are convinced that the Russians
have all they can do to rehabilitate the rest of the
country. As you know, the Russian territory that
was invaded by the Germans pi'oduced a great part
of the country's food and other supplies. And
those areas were twice laid waste : once by the ad-
vance of the Germans, and again as the enemy was
driven out by the Russian forces.
[' Lehman : There's no question, Mr. Fisher, but
that the Wliite Russian and Ukrainian Republics
are in such economic chaos that they must have
help this winter. We are now discussing agree-
ments with them.
Fisher: But doesn't the Soviet Union have
enough foreign exchange — that is, foreign money
— to pay for that help?
Clayton: The Soviet Union has foreign pur-
chasing power in the form of credit and gold, but
she will need every bit of it to meet her other needs.
UNRRA's purpose is to enable the countries which
ai"e victims of the Nazis to meet their relief needs
without making them economically prostrate.
Fisher : And how about China, Governor Leh-
man? I think you mentioned that some help was
already being sent out there.
Lehman : Before the war ended we had flown
a few tons of supplies into China over the hump.
But now that the ports are open we have already
sent the first shiploads of relief goods. Our plans
call for a program of between $600,000,000 and
$700,000,000 in assistance to China. The Chinese
are supplying more than twice that much them-
selves. And that's all their resources will allow.
Clayton: Over half of China — in terms of
population — has been occupied by the Japanese,
most of it since 1937. Those people in former oc-
cupied areas badly need clothing. Millions of
them have little or no clothing for the coming
winter. We're sending them 8,000,000 to 10,000,-
000 pounds of the used clothing from last spring's
drive.
Lehman : They are also in particular need of
trucks, locomotives, and transportation facilities
in general, so that food and clothing and medical
supplies can be sent where they are needed.
Fisher: To what extent, Mr. Lehman, is
UNRRA drawing on Army surpluses for trucks
and supplies?
Lehman : We're drawing on them to the fullest
extent possible. We're buying Army trucks and
surplus stocks wherever we can. Some 40,000
Army trucks are to be sold to UNRRA from Army
surplus in Europe alone. We also hope to get
canned meats, evaporated milk, lard, margarine,
soap, blankets, clothing, and medical supplies from
Army surpluses. In the Far East we are now
negotiating for large stores of surplus goods.
Purchases out there will save a lot of transporta-
tion expense.
Fisher : But I suppose, Mr. Lehman, that this
whole part of the world — the Far East — will be
largely left out of the relief picture if the addi-
tional funds aren't granted.
Lehman: That's right, Mr. Fisher, and that
would be most unfair and most unfortunate. But
I believe the funds we need will be granted. If
the United States leads the way, there's not a
doubt that other countries will follow suit. And,
after all, this country was spending $2,000,000,000
a week to win the war, not so long ago. I believe
the people will gladly contribute less than one
week of such expenditures to help win the peace
this winter.
Fisher : I don't think there's much doubt that
the American people are willing to help, Governor
Lehman. The public-opinion polls show that we
are willing to continue rationing, if necessary, to
keep the people of war-torn countries from starv-
ing. But there are a niunber of criticisms of
UNRRA which should be answered, if continued
American support is to be assured.
Lehman : Well, I think I've heard about all of
them, Mr. Fisher. But fire away, and I'll be glad
to give you the answers, as best I can.
Fisher : Let's start with one that's beginning to
be bruited about in former isolationist circles. Is
the United Nations Relief and Rehabilitation Ad-
ministration — UNRRA — taking food from Amer-
ican homes ?
Lehman: Not at all. The food asked by
UNRRA of the United States, Mr. Fisher, amounts
to about 1 percent — one one-hundredth — of our
annual food consumption. We asked for one-
sixtieth of America's meat production this year —
but we got much less.
Fisher: Nevertheless you might have trouble
convincing Bill Johnson, of Albany, New York,
634
DEPARTMENT OF STATE BULLETIN
say, that the butter shortage wasn't UNRRA's
fault.
Lehman : Well, I'd like to tell Bill Johnson this :
We've been unable to buy butter, or fats, or meat,
or even milk products in this country so far this
year, in any quantity, because they have been so
short. Our orders for American goods are placed
through the Foreign Economic Administration, a
Federal agency whose UNRRA functions among
others are being transferred to the State Depart-
ment. This agency actually allocates the export-
able goods. We have practically begged it for
some portion of America's supply of meat and
fats, but thus far without success. No, the short-
ages here in the United States — such as they are —
can't be blamed on UNRRA.
FisiiEK : Then there's the charge that the United
States is supplying more than its proper share
of UNRRA's funds. One rumor had it that we
were supplying up to 90 percent of the costs of
your program.
Lehman : That's absurd, Mr. Fisher. You see,
each member nation of UNRRA was asked to con-
tribute 1 percent of its national income in 1943 —
and for the United States that amounts to
$1,350,000,000. That happens to amount to 71 per-
cent of the total of UNRRA's resources. The fact
that America's contribution was so large is a reflec-
tion of our great wealth.
Clayton : You have to remember, too, that
those United Nations which bore the brunt of
military invasion were exempted from making
contributions to UNRRA.
Fisher: How many does that leave, Mr.
Clayton ?
Clayton : Out of 47 members of UNRRA, only
31 escaped invasion. Of these, 29 have made or
authorized contributions, and the other two — both
of them small countries — are in process of doing
so right now.
Lehman : I want to emphasize this : Many of
these countries are very poor, and their small con-
tributions represent a very real sacrifice — more of
a sacrifice, relatively speaking, than ours. In dol-
lars and cents, of course, we have done more — just
as we paid more toward the winning of the war,
because we had greater resources. But in relation
to our income, we haven't done any more than
Great Britain, Canada, Brazil, or many other
countries.
Fisher : Just how much have these other coun-
tries contributed, Mr. Lehman — in terms of dollars,
I mean?
Lehman : Well, I'll tell you, the British contri-
bution was equivalent to $320,000,000 — and in spite
of devastation in England itself they have paid in
full. So has Canada— her share was $80,000,000—
and Australia and New Zealand.
Clayton : Even India, which has its own
famine problem, contributed $24,000,000.
Lehman : And Brazil has actually gone over her
pledge. She was to contribute $25,000.000 ; she has
actually appropriated $30,000,000.
Fisher: Do the various countries make their
funds available in free funds?
Lehman : No, oidy 10 percent of it is in cash,
which UNRRA can use for procurement or admin-
istrative expenses anywhere. The other 90 per-
cent is really a domestic credit against which each
country pays in the indigenous produce it can
spare.
Clayton: Canada supplies wheat and beef,
Brazil, coffee, and so on. ^\Tieat, cotton, and sur-
plus war supplies are our main contributions, be-
cause we have such commodities in excess of our
own needs. Since we convert our dollar appro-
priations into sujiplies — trucks, grain, and so on —
we are able to determine the exact form our
contribution takes, in such a way as to help use
up surpluses.
Lehman : When Congress votes a credit for
UNRRA. it is placed at the disposal of the Presi-
dent, and he designates the agency that will allo-
cate supplies up to the amount appropriated.
Each country has a similar control. That's why
we have difficulty buying goods that are short
everywhere.
Fisher: And how does UNRRA distribute its
supplies, Mr. Lehman ?
Lehman : Well, as I said, the government of
each country receiving aid handles the physical
job of distribution, in accordance with UNRRA's
policies. But we send qualified observers into
each country, to make sure that the goods are dis-
tributed without discrimination, either for racial,
religious, or political reasons. We have found
a few cases of discrimination. But in every sin-
gle instance, when the agreement was ratified the
government of the country has stepped in and
corrected the situation.
Clayton : There's one other angle on this mat-
ter of distribution that I think should be brought
in, Governor — that's the sale of goods.
OCTOBER 21, 1945
635
Lehman : Go ahead, Will — you tell how that's
done.
Clayton: Fart of the UNRRA supplies that
go to each country are necessarily distributed as
relief, but a substantial portion is sold through
normal channels, to people who have local money,
and the proceeds used by the Government to buy
more relief supplies and services for free distri-
bution. That increases the total amount of goods
we can supply.
Fisher: A sort of revolving fund, then. Can
you give us an example of how it works?
Clayton: Well, Mr. Fisher, suppose UNRRA
sends a shiijment of wheat to Greece. The ship-
ment may be sold to mills there. That enables
them to start operating their flour mills and then
supply the retailers. The money from the sale
of the wheat is in turn used to buy other relief
supplies produced within the country, and these
are distributed free of charge to those Greek peo-
ple who have no money with which to pay.
Lehman : Some of the funds received from the
sale of supplies are also used for the emi^loyment
of people in the countries where we provide aid.
We take only a small staff into each country and
employ additional local people to help in the vari-
ous activities which UNRRA carries on.
Fisher : Sounds like a good arrangement.
But I've heard charges that UNRRA goods have
found their way into the black market when they
were sold. What about that. Governor Lehman ?
Lehman : In a few cases UNRRA goods may
have gone astray, Mr. Fisher, but not excessively.
Of course you have to recognize that price con-
trols have broken down to a great extent in most
of the countries where we are operating. With
the supply of most goods running only about 10
or 20 percent of the demand, a black market — or
at least a "gi'ay" market — is almost inevitable.
But the amount of our supplies that gets into these
channels of distribution is a comparatively small
percentage.
Fisher : There's one other question that I hesi-
tate to bring up, Mr. Lehman — and that's the
charge of bad administration in UNRRA. I don't
mean to put you on the spot, but it's a question that
ought to be answered.
Leh jiAN : That question doesn't bother me in the
least, Mr. Fisher. I've had it thrown at me so often
that I've come to expect it. Usually my first reac-
tion is, if any other organization were in a posi-
tion to handle this assignment I'd say "Go to it,
and God help you!"
Fisher: In other words, it's a pretty thankless
job.
Lehman: It's the toughest job I've ever had
either in public or private life. Of course, we've
made many mistakes, and we're the first to admit
it. But so has every new, quickly organized agency
as large as this one. The only way to avoid mak-
ing mistakes is to do nothing and hang up a record
of "No runs, no hits, no errors". But that's not
the way we chose to operate. We have tried our
best to get the goods to the people who need them —
and we'll rest our case on what we have accom-
plished in that direction.
Clayton : We don't need to be on the defensive
about UNRRA, Mr. Fisher, because it is really
doing the job it was set up to do.
Fisher: I don't mean to sound like a carping
critic, Mr. Clayton, but the fact is, a lot has been
said and written about UNRRA's alleged ineffi-
ciency in the field. We have received quite a
number of letters asking us to go into this matter.
Clayton : We're glad to deal with it, Mr. Fisher.
But the critics ought to realize one thing : UNRRA
has been operating under a great number of
handicaps.
Fisher: You might name some of them, Mr.
Secretary, to put this whole issue in perspective.
Clayton : Well, first of all, as we mentioned a
few minutes ago, UNRRA as a post-war relief
agency had great difficulty in getting trained
people while the war was on.
Lehman: We were the "runt of the litter", so
to speak. Not only on priorities for personnel,
but for shipping and supplies as well.
Clayton : Then there was the difficulty in plan-
ning for relief, when most of the countries were
in the war zone or behind enemy lines up to the
very last minute before surrender.
Lehman : Yes, for these strategic reasons, and
because of political complications in eastern
Europe, we were not always in a position to pro-
vide aid right after liberation. For many months
we didn't know, for example, whether a Polish
government was going to be established. And
since UNRRA has to operate through the various
sovereign states, that held us up.
Fisher : Once you got over these hurdles,
though, Mr. Lehman, things went much faster.
Lehman: As fast as we could make them go —
636
which usually meant as fast as we could find ships
and trucks to deliver the goods.
Clayton: UNREA has been damned for not
doing enough, because it couldn't operate in west-
ern Europe, or because it wasn't allowed to do
I'econstruction work. Its charter provides only
for relief and rehabilitation, but not for recon-
struction.
Lehman : And we've been damned by some for
doing too much — even though we have never had
the resources to do half the job that should be done.
Fisher : Well, I can see why it's a tough assign-
ment.
Lehman : And it's not made any easier by the
fact that we have 47 bosses — 47 nations. But that
makes the job more interesting.
Eisher: Another point that sometimes comes
up is whether UNRRA is really run as an inter-
national agency, or whether it's dominated by the
Americans and the British. Aren't most of your
employees here in Washington Americans ?
Lehman: Yes, but that's inevitable. Most of
our London employees are British. We have to
take the best peoi^le we can get, wherever we are.
But we do have 25 different nationalities repre-
sented on our Washington staff; and there are
over 30 on the London staff.
Eisher : And how about your staffs in the field ?
That's where a good deal of the criticism comes
from — criticism by returning Congressmen and
others. They claim the field organization isn't
functioning very smoothly.
Lehman: We pick nationals of the different
countries for our field staffs so far as possible —
people who know the language and the country.
We give them the best training we can, but of
course they're on their own for considerable pe-
riods at times. Most of them have done their work
pretty well; where they have failed, we have
replaced them.
Fisher: Well, it seems to come down to this:
You have tackled a gigantic job, one which in-
volves the very lives of hundreds of thousands of
people. And you are getting the supplies out to
them as fast as possible, considering the hand-
icaps you've been working under.
Clayton : And I think when the whole thing
is over, Mr. Eisher, you'll find that UNRRA as
the first international relief agency will have
proven a success. The main thing now is that we
must not desert UNRRA in the middle of that
DEPARTMEIST OF STATE BULLETIN
job. I believe America's conscience will prevent
that from happening.
Fisher: Well, thank you, Mr. Clayton, and
thank you Mr. Lehman, for giving us this frank
discussion of the work of the United Nations Relief
and Rehabilitation Administration.
Announcer: That was Sterling Eisher, "Direc-
tor of the NBC University of the Air. He has been
interviewing Director General Herbert Lehman
of UNRRA and Mr. William L. Clayton, Assist-
ant Secretary of State for economic affairs, in the
second of a limited series of programs on inter-
national organizations. The discussion was
adapted for radio by Selden Menefee.
This was the thirty-sixth program in a series
entitled "Our Foreign Policy," presented as a pub-
lic service by the NBC University of the Air. You
can obtain printed copies of these broadcasts at
10 cents each in coin. If you would like to receive
copies of 13 of the broadcasts, send $1 to cover the
cost of printing and mailing. Special rates are
available for large orders. Address your orders
to the NBC University of the Air, Radio City,
New York 20, New York. NBC also invites your
questions and comments.
Next week we shall present a special program
entitled "Report from the Balkans", featuring
members of a congressional committee which re-
cently returned from Europe. Participants will
include Representative Wickersham of Oklahoma,
chairman of the committee, and Representative
Horan of Washington.
The following week we shall resume the limited
series on international organizations with a short-
wave broadcast from Paris, featuring members of
the United States Delegation to the International
Labor Conference. Following that program the
series will move to London for broadcasts on the
United Nations Educational and Cultural Confer-
ence and other international organizations.
Kennedy Ludlam speaking in Washington, D.C.
^ THE FOREIGN SERVICE ^
Consular Offices
The American Consulate General at Hong Kong,
China, was reestablished on October 14, 1945.
OCTOBER 21, 1945
637
Financial Arrangements Favorable
to International Trade
Remarks by CHARLES BUNN'
[Released to the press October 17]
I grew up in a railroad household and remember
quite well that the most important single factor in
the prosperity or otherwise of most American rail-
roads is the volume of freight and passenger traf-
fic. I assume the same thing is true of shipping.
We are therefore talking today about cargoes.
I propose, principally, to ask and illustrate two
questions, the first of which is this : How are the
foreign customers of American exporters and of
American ship operators going to pay for the large
volume of goods and services which we would like
to sell them and which they would like to buy ?
This was already a problem before the war, as
you know. During the war two things have hap-
pened which have made the problem much more
serious.
In the first place various foreign countries, and
in particular Britain, have to a great extent liqui-
dated the overseas investments the returns on
which used to provide part of their foreign-ex-
change requirements. In the second place, the
United States has developed new lines of produc-
tion during the war which seem almost certain to
take the place to a substantial extent of things
that we used to buy from abroad. It seems un-
likely, for instance, that American factories and
mills will ever buy as much natural rubber or raw
sillv as they did before synthetic production on a
large scale was developed in this country.
The question therefore is : What new products
and services and in what quantities will American
businessmen purchase from the world in large
enough volume to enable foreigners to make pay-
ment in this country not only for the goods and
services we hope to sell but also for the service on
the loans which we shall certainly make within
the next couple of years?
Let me make one point which is perfectly clear
to most of you, but it is frequently misunderstood.
It is not necessary that the United States ever
balance its accounts with each country separately;
it is only necessary that we balance our accoimts
with the rest of the world.
The point is illustrated by a very familiar
example — the old triangular trade between the
United States, southeastern Asia, and Europe. In
the old days the United States purchased very
large quantities of rubber, tin, and some other
materials from southeastern Asia. We sold some
goods in that area, but they amounted to much less
in dollars than what we purchased from it. Mer-
chants in the rubber-producing countries pur-
chased their foreign requirements largely in Brit-
ain and Europe and made payment in part with
the proceeds of their sales to this country. That
gave merchants in Europe, and especially in Brit-
ain, available credit in New York and made it
possible for us to sell to European countries, and
especially to Britain, much larger amounts than
we bought from those particular sources. The
result was a larger trade all around than would
have been the case if each country had had to
limit its exports to each other country to the
amount it bought from that country. It is hard
to see how international trade can be either large
or prosperous unless what the bankers call a multi-
lateral system of payments can be recreated.
To create such a system again and on an im-
proved basis is, of course, one of the main pur-
poses of the International Monetary Fund. We
have to remember that the Fund agreement has
not yet been approved by many countries and that
a good many current international trade and fi-
nancial arrangements do not provide for converti-
ble foreign exchange but provide instead for direct
bilateral clearing and settlements between the
countries concerned. The second question, there-
fore, is whether and how soon it will be possible
actually to put into operation the security against
exchange controls and blocked currencies which
the multilateral system of clearings and payments
under the International Monetary Fund is in-
tended to provide. Until that system is put into
' Made before the American Merchant Marine Insti-
tute and the Propeller Club of the United States at a panel
discussion on world-trade opportunities in New York on
Oct. 17, 1945. Mr. Bunn is Adviser to the Division of Com-
mercial Policy, Office of International Trade Policy, De-
partment of State.
638
DEPARTMENT OF STATE BULLETIN
effect exporters trj'ing to sell American goods in
foreign countries will be met in many places by
regulations of exchange and imports which pre-
vent people who would like to become their cus-
tomers from doing so, and ship-owners who are
paid in foreign currencies may have trouble
bringing home their money. It is greatly to the
interest of the United States, and of every other
trading and seafaring country, to hasten the day
when currencies are convertible at stable rates and
when merchants in all countries can buy at their
own banks the foreign currency they need to make
purchases abroad. Until that is brought about
trade will be hamstrung and cargoes will be small.
The immediate and pressing problem of ex-
change control against the dollar boils down to
the fact that so many foreign countries need large
amounts of reconstruction goods from us and are
short of dollar credits to make jiayment. That
same shortage, and the fear of shortage later, pre-
vents them from adhering to the Monetary Fund
agreement. Emergency financial help is needed
to get off of dead center.
Dollar loans to foreign countries are too nar-
rowly conceived if they are thought of merely as
devices to stimulate particular exports connected
with each loan. If that is all we do we shall be
back in the same boat as soon as the money is used
up. A much more important purpose of any for-
eign lending program in today's emergency should
be to break the present log-jam — to help restore
the earning power and credit of oiu' foreign cus-
tomers and Allies, so that they may join with us in
creating a world system under which businessmen
in any country can buy any currency they need to
make a foreign payment. When that has been
accomplished, we shall have more foreign trade
than we have ever had before, and ship-owners
who receive freight charges in a foreign currency
will be able to bring their money home.
The trade that accompanies that sort of a system
must move in all directions, for neither the Inter-
national Monetary Fund nor any other monetary
scheme can keep our foreign customers in dollars
if the trade in goods and services is chronically and
largely out of balance in our favor. So I come
back to the original question : What goods and
services are we going to buy abroad in larger
quantities then we ever did before? Until we find
some answer to that question no prediction about
the volume of United States exports or of United
States cargoes will be valid for any substantial
period ahead.
Put in another way, the question might read
thus : What United States tariff rates can be re-
duced under the Trade Agreements Act in such a
way as to encourage largely increased imports of
particular foreign products and do it without
causing serious injui'y or danger to any dome.stic
industry in the United States? Anyone who can
answer that question wisely will deserve well of his
country.
Proposed International Health
Organization
REQUESTS FROM CHINA AND BRAZIL ON
CALLING OF CONFERENCE
Ministry of Foreign Affairs
Chunffking, Septemher H, 19Ii5.
Excellency :
At the United Nations Conference on Inter-
national Organization at San Francisco, the Dele-
gations of Brazil and China submitted a joint
declaration, proposing a general conference for
establishing an international health organization,
which reads as follows :
"The Delegations of Brazil and China recom-
mend that a General Conference be convened
within the next few months for the purpose of
establishing an international health organization.
"They intend to consult fui'ther with the repre-
sentatives of other delegations with a view to the
early convening of such a General Conference, to
which each of the governments here represented
will be invited to send representatives.
"They recommend that, in the preparation of a
plan for the international health organization, full
consideration should be given to the relation of
such organization to, and methods of associating
it with, other institutions, national as well as
international which already exist or which may
hereafter be established in the field of health.
"They recommend that the proposed inter-
national health organization be brought into re-
lationship with the Economic and Social Council."
The representatives of all the United Nations
voted unanimously to associate themselves with
this declaration.
OCTOBER 21, 1945
639
In accordance with the terms of this declaration
the Chinese Delegation consulted, informally and
on the technical level, with representatives of
other delegations including those of the United
States, United Kingdom, U.S.S.R., France and
Brazil with a view to the early convening of such
a general conference for establishing an inter-
national health organization. As a result of these
consultations, the Chinese Government is anxious
to ascertain if your Government is willing to join
with it and the Governments of the powers above
mentioned in sponsoring such a general con-
ference for establishing an international health
organization.
It is suggested that this conference be convened
as soon as possible.
I It is our understanding that a similar communi-
cation is being addressed to Your Government by
the Government of Brazil.
Accept [etc.]
Kan Nai-ktjaxc
Political Vice Minister in charge of
Ministerial Affairs
Ministr}^ of Foreign Affairs
His Excellency
Lt.-General Patrick Hurley,
A mencan A mbassador,
Ch ungkiiig.
Washington, September 13, 19^5.
Excellency,
I ha^e the honor to inform Your Excellency, in
accord with instructions which I have received,
that the Brazilian Government is keenly interested
in the meeting, in the near future, of the Con-
ference for the creation of an International Health
Organization, as set forth in a joint proposal by
the Brazilian and Chinese Delegations, unani-
mously approved at the United Nations Confer-
ence on International Organization, held in San
Francisco.
2. The Brazilian Government requests the co-
operation of the Government of the United States
of America to sponsor the aforementioned Con-
ference, simultaneously with the Governments of
Brazil, the Union of Soviet Socialist Republics,
Great Britain, France and China.
3. The Brazilian Government proposes that the
Conference be held in the United States at the
eai-liest possible date after the end of October next,
and would receive with great satisfaction the
acceptance of this proposal, the Government of
the United States assuming the initiative of call-
ing the meeting approximately within that period,
and of taking other necessary steps in connection
therewith.
4. I shall greatly appreciate it if Your Excel-
lency will kindly enable me to transmit to my
Government, as soon as possible, the decision of
the Government of the United States in respect
to the foregoing.
I take this opportunity [etc.]
A. BOXILITREAU FrAGOSO
Charge (P Affaires, a.i.
October 5, 1945.
Sir:
The receipt is acknowledged of your note of
September 13, 1945, requesting the cooperation of
the United States Government in the convening,
at an early date, of a conference to create an
international health organization.
At San Francisco the United States Delegation
to the United Nations Conference on International
Organization apjjroved the joint declaration of
Brazil and China to which you refer, and I wish
to assure you that the United States Goveriunent
warml}' supports the purpose of the declaration,
namely, the establishment of an organization which
can deal effectively with international health
problems.
The United States Government is therefore
happy to accept the invitation of your Govern-
ment to join with the Governments of Brazil,
Cliina, France, the United Kingdom, and the
Union of Soviet Socialist Republics in sponsoring
a conference to establish an international health
organization.
The proposal of the Brazilian Government that
the conference should be held in the United States
is also acce^Dtable to the United States Govern-
ment. On receiving information from the Em-
bassy that the other sponsoring Governments so
desire, the United States Government will asswue
the initiative and take the necessary preliminary
steps without delay.
Accept [etc.]
Dean Acheson
Acting Secretary of State
Mr. A. BouLiTREAU Fragoso,
Charge (T Affaires ad interim of Brazil.
640
DEPARTMENT OF STATE BULLETIN
Advisory Health-Group Meeting
[Released to the press October 16]
Prompt action in the development of an inter-
national health organization was urged by 30
leaders in public health and civic activities at a
two-day meeting held in the Department of State
on October 11 and 12 of an advisory health group
called by the Department under the Chairman-
ship of Dr. Thomas Parran, Surgeon General of
the United States Public Health Service.
In welcoming the gi'oup, Under Secretary of
State Dean Acheson informed them that the dele-
gates at the United Nations Conference on Inter-
national Organization in San Francisco had recog-
nized the importance of health problems and their
solution and had unanimously approved a joint
declaration proposed bj' Brazil and China calling
for the early convening of a general conference for
the purpose of establishing an international health
organization. He further stated that the Depart-
ment had received notes from Brazil and China
requesting the United States to join with them and
the United Kingdom, the Union of Soviet Socialist
Republics, and France in sponsoring the organi-
zation.
Attention was directed by the advisory group to
the destruction in Europe and Asia of facilities
for the maintenance of health and to the dispersal
of trained health personnel. Emphasis was placed
on the urgency of the need for reconstruction and
the early application of new discoveries in the field
of medicine and insect control in order to prevent
the spread of epidemics during the post-war
period.
The group recommended that the United States
Government associate itself immediately with
other nations in taking steps leading to the early
formation of a new and broad international health
organization, to be closely linked with the Eco-
nomic and Social Council of the United Nations.
Certain genei"al functions visualized for the
organization are the collection and analysis of
world-wide disease statistics as a basis for epidemic
control; assistance to national health services to
control diseases at their sources; centralization,
consolidation, and subsequent distribution of
health and medical knowledge; standardization
and control of drugs and otliei- therapeutic agents.
Citing an example of effective organized inter-
national action in the control of an epideniic, Dr.
Frank Boudreau, formerly Secretary of the Health
Section of the League of Nations, described the
action taken by the League at the request of the
Greek Government in 1928 when dengue fever, a
mosquito-transmitted disease, struck Greece, re-
ducing its effective manpower to an extent that
railroads, ports, and all essential activities were
paralyzed. Tlie League immediately summoned
from nations throughout the world a group of out-
standing experts in mosquito control, sending them
to Athens. There these experts consulted with the
Greek Government and worked out a plan which
was put into effect by the Government, bringing
the ejiideraic under control, restoring essential
services to Greece, and preventing the spread of
dengue to neighboring countries.
Emphasis was placed by the advisory group on
the importance of stamping out disease at its
source, in place of the older methods of attempting
to limit the spread of disease through interna-
tional quarantine. The control of typhus fever in
World War II was cited as a striking example of
the effectiveness of such attack. In the World
War of 1914, serious epidemics of typhus spread
throughout the armed forces and ravaged civilian
populations in central Europe. Attempts to con-
trol its spread through quarantine isolation were
ineffective because of the necessity of moving
troops regardless of disease and insect infestation.
Typhus, whicli has been thus spread over wide
areas during the war, continued to rage following
the war, particularly in Poland, where it continued
to be reintroduced by repatriates. Tlie typhus
danger became acute in World War II after the
landings of Allied forces in Italy, when typhus
broke out in Naples. Although the troops were
largely protected by new vaccines, there was great
danger of sj^read throughout the civilian popula-
tions of southern and central Europe from this
single source. By attacking the disease vig-
orously by delousing the civilian population with
the new and dramatically effective insecticide,
D.D.T., the disease was promptly stamped out in
Naples before any significant spread could occur.
It was pointed out by the advisory group that
prompt attack on old diseases at their source by
OCTOBER 21, 1945
641
new agents offers an international health agency
opportunities gi-eater than any previously existing.
The United Nations Belief and Rehabilitation
Administration was praised for the effective way
in wliich it had assumed certain international
health functions during the war. It was pointed
out that a new agency must be ready to take over
these functions when the temporary relief agency
ceases to function.
Members of the group made specific suggestions
as to the scope and structure of the contemplated
new organization, recognizing that final decision
as to these matters rests not with the United States
but with all nations concerned. The group urged
that the United States use its influence to create
an organization which would be technically compe-
tent and at the same time representative of the
interests of the peoples of the woi'ld, who, it
pointed out, are the recijiients of health services
and therefore deeply interested in all health
matters.
A complete list of those attending the two-day
session follows:
Department of State
The Honorable Dean Acheson, Under Secretary of State
Mr. William T. Ham, Acting Chief, Division of Inter-
national Labor, Social, and Health Affairs
Mr. Philip Burnett, Division of International Organiza-
tion Affairs
Miss Marcia Maylott, Division of International Organi-
zation Affairs
Miss Emma Joyce, Health Counselor, Division of Depart-
mental Personnel
Dr. L. L. Williams, Jr., Division of International Labor,
Social, and Health Affairs
Dr. H. van Zile Hyde, Division of International Labor,
Social, and Health Affairs
Mr. H. B. Calderwood, Division of International Labor,
Social and Health Affairs
U. S. Public Health Service
Dr. Thomas Parran, Surgeon General, Chairman
Dr. James A. Doull, Chief, OtBce of International Health
Relations
Dr. James A. Crabtree, Office of International Health
Relations
Dr. Michael B. Shimkin, Office of International Health
Relations
Miss Henderson
Miss Margaret Arnstein, Consultant Public Health Nurse,
State of New York Department of Health
Dr. Walter L. Bierring, Commissioner, Iowa State Depart-
ment of Health
Dr. E. L. Bishop, Director of Health, Tennessee Valley
Authority
Mr. Arch Booth, Assistant General Manager, U.S. Chamber
of Commerce
Dr. Frank G. Boudreau, Director, Milbank Memorial
Fund
Mr. Nelson H. Cruikshank, Director, Social Insurance
Activities, American Federation of Labor
Dr. Hugh S. Cumming, Director, Pan American Sanitary
Bureau
Dr. Wilburt C. Davison, Dean, Duke University School of
Medicine
Mrs. LaFell Dickinson, President, General Federation of
Women's Clubs
Dr. Louis I. Dublin, Second Vice President and Statistician,
Metropolitan Life Insurance Company
Dr. Martha Eliot. Associate Chief, Children's Bureau, De-
partment of Labor
Dr. Kendall Emerson, Managing Director, National Tu-
berculosis Association
Dr. Morris Fishbein, Editor, Journal of the American
Medical Association
Mr. Howard W. Green, Secretary, Cleveland Health
Council
Mr. George T. Guernsey, Assistant Director of Educa-
tion, Congress of Industrial Organizations
Rear Admiral John Harper, Chief of Professional Di-
vision, Bureau of Medicine and Surgery, Navy De-
partment
Dr. Victor Heiser, National Association of Manufacturers
Maj. Gen. Norman T. Kirk, Surgeon General, U.S. Army
Dr. John W. Lawlah, Dean, Howard University School of
Medicine
Dr. Ross A. McFarlaud, Medical Coordinator, Pan Ameri-
can Airways
Dr. G. Ford McGinnes, National Medical Director, Ameri-
can Red Cross
Dr. A. A. Moll, Assistant Director, Pan American Sanitary
Bureau
Dr. Joseph E. Moore, Director of Syphilology, Johns Hop-
kins University
Dr. John Musser, School of Medicine, Tulane University
Mr. Basil O'Connor, Chairman, American Red Cross
Dr. Lowell J. Reed, Dean, Johns Hopkins School of Hygiene
and Public Health
Brig. Gen. James S. Simmons, Chief, Preventive Medicine
Service, U.S. Army
Dr. Edward A. Strecker, Professor of Psychiatry, Uni-
versity of Pennsylvania
Dr. George Strode, Director, International Health Di-
vision, Rockefeller Foundation
Mr. Howard Strong, U.S. Chamber of Commerce
Dr. William H. Taliaferro, Department of Bacteriology
and Parasitology, University of Chicago
Dr. Russell M. Wilder, Mayo Clinic
Dr. C-E. A. Winslow, Editor, American Journal of Public
Health
Mr. Abel Wolman, Professor of Sanitary Engineering,
Johns Hopkins School of Hygiene and Public Health
642
DEPARTMENT OF STATE BULLETIN
International Boundary Along the Pilcomayo River
A rgentina— Paraguay
The American Embassy at Asuncion has in-
formed the Department of State of tlie exchange
of ratifications at Asuncion on August 15, 1945, of
the Complementary Treaty Establishing Defini-
tive Boundary Between the Republics of Argen-
tina and Paraguay Along the Pilcomayo River,
and special protocol, signed at Buenos Aires June
1, 1945. With the ratification of the new treaty
and the special protocol annexed thereto a defini-
tive boundary line is provided for between the two
countries along that section of the Pilcomayo
River which has been under dispute for over 68
years or since the signing of the boundary treaty
of February 3, 1876, which failed to take into
account the fact that in the area between the points
known as "Horqueta" and "Salto Palmar" there
is no actual river but only swamp lands with a
network of small streams which appear following
heavy rains.
Article 1 of the treaty establishes the new
boundary in accordance with the final recom-
mendations of the final report of the "Mixed
Argentine-Paraguayan Boundary Commission",
dated in Asuncion August 16, 1944. The final
report, which is attached to the treaty as an an-
nex, was approved by the Government of Argen-
tina through Decree Xo. 27.177 M-240 of October
9, 1944 and by the Government of Paraguay
through Decree No. 5.950 of November 9, 1944.
The commission di'ew up the boundary in accord-
ance with article 2 of the Complementary Bound-
ary Treaty and with article 2 of the special
protocol attached to the Complementary Boundary
Treaty between Argentina and Paraguay signed
July 5, 1939.
Article 2 of the 1945 treaty provides for the
establishment of a '"Mixed Commission for the De-
marcation of Boundai'ies", which will undertake
the demarcation and definition of the boundary
line fixed in article 1 above, and will also be in-
trusted with the duty of marking the boundaries
fixed by article 1 of the 1939 treaty. The commis-
sion will initiate its duties within six months after
the exchange of ratifications.
Article 3 provides that in order to insure the
' Where Argentina, Paraguay, and Bolivia meet.
permanence of the dividing line and the utilization
of the volume of water, the two Governments agree
to the execution of the works indicated in the pre-
liminary project prepared by the "Mixed Tech-
nical Commission of Hydraulic Studies and Works
of the Pilcomayo River". These works shall be
commenced in not more than two and a half years
from the date of the exchange of ratifications of
the present treaty.
Article 4 establishes a '"Mixed Technical Com-
mission for Hydraulic Works of the Pilcomayo
River" to execute and supervise the hydraulic
works referred to above. This commission will be-
gin its duties not more than three months from
the date of the exchange of ratifications. Within
the following twelve months this commission will
submit the definitive plan of the works and the
budget for them to both Governments, which in
turn will make known their decision within two
months from the date of presentation of the plan
and budget.
In Article 5 both Governments agree to estab-
lish a system of administrative control over the
waters for the whole course of the Pilcomayo
River, from the tripartite point '"Esmeralda"^
until its outlet into the Paraguayan River, as well
as of maintenance of the works and of utilization
of the volume of water and the corresponding
measures taken in each case as soon as possible to
prevent deviations and alterations in the present
course of the Pilcomayo River, in the first and
third sector and, in the definitive course of the
river, in the second sector. To this end a perma-
nent "Mixed Argentine-Paraguayan Commission
of Administration and Observation of the Pilco-
mayo River" will be formed, composed of one
expert from each country. Until such time as the
hj'draulic works provided for in article 3 are
completed, this task will be undertaken by the
"Mixed Technical Commission for Hydraulic
Works," provided for in article 4.
Article 6 provides that for the purposes of
financing and allocating the works provided for in
article 3 and for the purposes of the proper func-
tioning and regulation of the mixed commissions
jDrovided for in articles 2, 4, and 5 of the treaty, a
special protocol annexed to the treaty would be
signed on the same day.
OCTOBER 21, J 945
Article 7 provides that the treaty will enter into
force on the exchange of ratifications.
The special protocol signed also June 1, 1945.
sets forth procedure to be followed. Article -i of
the protocol provides that within six months after
the minutes of the ''Mixed Commission for the
Demarcation of Boundaries" are received, the two
Governments pledge themselves to evacuate the
areas which will pass from the jurisdiction of one
country to that of another.
Article 14 of the protocol states that within two
months following the approval of the final plan
of works and budget referred to in article 4 of the
complementary treaty, both Governments will
decide which of them will undertake the execution
of these works, which works will be assigned to
government agencies or to private firms of the
same nationality as the designated country. It is
stipulated in article 15 that the country designated
to carry out the works will defray all expenses in
connection with their execution.
The protocol also entered into force on the day
of the exchange of the ratifications thereof.
Travel to Korea
[Released to the press October 16]
Military government exercised in the American
zone of control south of the 38° parallel in Korea
under American armed forces has initiated a policy
of seeking advice on local matters from represent-
ative Koreans in their individual capacities. In
line with this policy, the opportunity to return
from abroad is now open to Koreans who are in-
terested in rendering service to their comitrymen.
Applications for exit permits are being received by
the Visa Division of the Department of State. Ap-
proval for travel to and entry into that portion of
Korea now under occupation by American armed
forces is a matter which is taken up by the Visa
Division with the War Department in the course
of applications for exit permits. The first appli-
cant has received his permit and is now on his
way to Korea.
Return to the area of Korea under American
occupation by Koreans who have been resident in
China is also recognized as desirable, and trans-
portation for such individuals is subject to aiTange-
ments being made in accordance with facilities
operated under United States Army direction in
China.
643
Far Eastern Advisory
Commission
DATE FOR FIRST MEETING
[Released to the press October 19]
Because of travel difficulties, several of the gov-
ernments which will participate in the Far East-
ern Advisory Commission have requested post-
ponement of the initial meeting originally set for
October 23. Therefore it has been decided to hold
the first meeting of the Commission on October
30, 1945.
APPOINTMENT OF REPRESENTATIVES
[Released to the press October 16]
China
The American Embassy in Chungking has in-
formed the Department of State that the Chinese
Government has designated His Excellency, Wei
Tao-ming, Chinese Ambassador in Washington,
as the Chinese representative on the Far Eastern
Advisory Commission.
[Released to the press October 17]
Great Britain
The Department of State has been informed by
the British Government that it has appointed Lord
Halifax, British Ambassador to the United States,
as its representative on the Far Eastern Advisory
Commission. Sir George Sansom, Minister Coun-
selor of the British Embassy in Washington, has
been appointed alternate for Lord Halifax.
[Released to the press October 18]
Commontvealth of the Philippines
The Commonwealth of the Philippines has ac-
cepted the invitation of the United States Gov-
ernment to attend the meeting of the Far Eastern
Advisory Commission. Brig. Gen. Carlos Ro-
mulo, Resident Commissioner of the Philippines,
has been appointed the representative on the
Commission. His alternate will be Tomas Con-
fesor, member of the Filipino Rehabilitation
Commission.
[Released to the press October 20]
New Zealand
The Department of State has been informed by
the New Zealand Government that it has ap-
pointed the Honorable C. A. Berendsen, New
Zealand Minister to the United States, as its rep-
resentative on the Far Eastern Advisory Commis-
sion.
644
DEPARTMENT OF STATE BULLETIN
The Post- War Period in the Far East
Address by JOHN CAUTER VINCENT'
[Released to the press October 20]
Travel, unless undertaken out of curiosity or for
fun, generally presui^i^oses a destination. Foreign
policy, unless undertaken out of curiosity or for
fun, presupposes objectives. And in 1945 we
can't afford foreign policy for fun or as a luxury.
We — the American people — must decide upon
our objectives and then search for policies and im-
plementing procedures best calculated to achieve
our objectives. Objectives should be so clearly
expressive of the national will as to arouse little
controversy. On the other hand, policies to
achieve these objectives may be, as we well know,
subject to considerable debate. A policy pursued
may of necessity represent not the most direct
route toward an objective but a compromise of
various views as to the best route to follow, or it
may represent deviations along the route to meet
special and immediate problems. These condi-
tions often account for divergencies between pol-
icies followed by the Government and those advo-
cated by independent writers and commentators.
A statement of objectives, as I have said, does
not generally meet with these difficulties. I am
therefore going to state a few broad objectives of
foreign policy on which I believe we can all agree
and then examine some of our policies in the light
of those objectives. I realize in what I am about
to say that our objectives have universal applica-
tion and that our policies are in many instances
also not limited to any special area. But I am
talking about the Far East— at least that is what
I was asked to do.
And I want to make one other, perhaps obvious,
distinction clear: that is, the distinction between
objectives and policies. Take, for example, two
much-used words: security and cooperation. I
have frequently heard international cooperation
spoken of as an objective of our foreign policy.
'Made at the Foreign Policy Association Forum,
"Between War and Peace," in New York, N. Y., on Oct. 20,
1945. Mr. Vincent is Director of the Office of Far Eastern
Affairs, Department of State.
It is not. It is a policy to achieve our objectives,
one of the most vital being the security of the
United States. But lest you misunderstand me,
let me add and emphasize that I consider inter-
national cooperation the most important of our
foreign policies, if we are to achieve our security
objective.
What are the objectives of our foreign policies
that I have in mind? They can be stated quite
simply. They are: (1) to provide for the security
of the United States and the maintenance of inter-
national peace and (2) to create in the relations
among states conditions conducive to mutually
beneficial commercial and cultural exchanges
which will promote international welfare and
understanding.
In a joint statement issued from Chungking on
June 24, 1944, Generalissimo Chiang Kai-shek and
Vice President Wallace enunciated an objective
directly related to those I have stated. They said :
"The objective of victory in the Pacific is the estab-
lishment of a democratic peace based on political
and social stability deriving from government de-
voted to the welfare of peoples." They then, as I
shall do, went on to name some policies which they
considered essential to the achievement of that ob-
jective. They said: "Enduring peace in the
Pacific will depend upon ( 1 ) effective, permanent
demilitarization of Japan; (2) understanding,
friendship, and collaboration between and among
the four principal powers in the Pacific area —
China, the Soviet Union, the United States, and
the British Commonwealth of Nations — and
among all United Nations willing to share in the
responsibilities of post-war international order;
and (3) recognition of the fundamental right of
presently dependent Asiatic peoples to self-
government, and the early adoption of measures in
the political, economic, and social fields to prepare
those dependent peoples for self-government
within a specified practical time limit." I believe
there will be found in America little or no disposi-
tion to question those policies.
OCTOBER 21, 1945
645
Our objectives in regard to the Far East can be
generalized. Ourpoliciescannotbe. Tlieymustbe
adapted to meet divergent geographical, political,
and social situations. In the Far East we have
(1) a defeated and so far unregeuerate Japan;
(2) Korea, which is to start on the road to inde-
pendence after two generations of subjection to
Japan; (3) China, our Ally and long-time friend,
whose principal problems, now that the menace of
Japan has been removed, are political unity and
economic reconstruction; (-t) Siam, an independ-
ent nation which has for the past five years been
under the domination of Japan; and (5) the
colonial area of southeast Asia under the sover-
eignty of our Allies.
With regard to Japan, a White House release on
September 22 gave in some 15 pages a clear sum-
mary of our policy toward Japan. It was en-
titled '"U.S. Initial Post-Surrender Policy for
Japan".^ I commend it to you. I will mention
also, but modesty forbids my commending it, a
broadcast in which I participated two weeks ago
on the same subject.' A brief quotation from the
White House release may serve to refresh your
interest.
"Japan will be completely disarmed and de-
militarized. The authority of the militarists and
the influence of militarism will be totally elimi-
nated from her political, economic, and social life.
Institutions expressive of the spirit of militarism
and aggi'ession will be vigorously suppressed.
". . . The Japanese people shall be encouraged
to develop a desire for individual liberties and
respect for fundamental human rights, particu-
larly the freedoms of religion, assembly, speech,
and the press. They shall also be encouraged to
form democratic and representative organiza-
tions.
". . . The Japanese people shall be afforded
opportunity to develop for themselves an economy
which will permit the peacetime requirements of
the population to be met."
We are all keenly interested in how these pol-
icies will be implemented. I hope this interest
will remain keen — but not impatient. General
MacArthur is in my opinion doing a good job.
We should not try to "hustle" the East, or General
MacArthur. Reform in the social, economic, and
political structure of Japan must be a gradual
process, wisely initiated and carefully fostered.
You are also no doubt interested in the pro-
posed Far Eastern Advisory Commission. 1 am
glad you are. So am I, although it will mean a
lot of additional work. It is impossible to state
here and now just how the Commission will oper-
ate. That will depend in large measure on the
Commission, but I am confident that with General
McCoy as our representative we will do our full
share in making it work.
At present, and for the past 10 months, the
State, War, Navy Coordinating Conmiittee, called
SWNCC, has been formulating policy for the
President's approval on questions of basic im-
portance, including those connected with the sur-
render and administration of Japan and of lib-
erated areas in the Far East. I am chairman of
the SWNCC Subcommittee for the Far East.
This subcommittee devotes its energies to the
preparation of policy papers and dii'ectives con-
cerning Far Eastern matters. The subcommittee
meets twice a week to consider papers presented
by specialists on the various subjects under con-
sideration. These papers, when approved, are
submitted to the over-all State, War, Navy Com-
mittee, which is composed of high-ranking officials
of the three departments. On the military as-
pects of papers, the views of the Joint Chiefs of
Staff are obtained and carefully considered.
Papers of basic importance, after being adopted
by the top Committee, are submitted by the Sec-
retary of State to the President for his approval.
The policy paper from which I have quoted was
prei^ared in SWNCC and approved by the Presi-
dent. A reading of the subheadings in that docu-
ment will give you an idea of some of the special
subjects dealt with in our papers. Those head-
ings include such subjects as war criminals;
economic demilitarization; promotion of demo-
cratic forces; fiscal, monetary, and banking poli-
cies; equality of opportunity for foreign enter-
prise in Japan; individual liberties and demo-
cratic processes. One of them, entitled "Relation-
ship to Japanese Government", calls for special
mention. Shortly after the Japanese surrender
to General MacArthur on September 9, the fol-
lowing message was sent to General MacArthur :
"1. The authority of the Emperor and the Jap-
anese Government to rule the State is subordinate
to you as Supreme Commander for the Allied
423.
' Bulletin of Sept. 23, 1945, p. 42,'
' BuLLCTiN of Oct. 7, 1945, p. 538.
646
DEPARTMENT OF STATE BULLETIN
powers. You will exercise your authority as you
deem jjroper to carry out your mission. Our re-
lations with Japan do not rest on a contractual
basis, but on an unconditional surrender. Since
your authorit}' is supreme, you will not entertain
any question on the part of the Japanese as to its
scope.
"2. Control of Japan shall be exercised thruugli
the Japanese Government to the extent that such
an ai-rangement produces satisfactory results.
This does not prejudice your right to act directly
if required. You may enforce the orders issued
by 3'ou by the employment of such measures as
you deem necessary, including the use of force.
"3. The statement of intentions contained in
the Potsdam Declaration will be given full effect.
It will not be given effect, however, because we
consider ourselves bound in a contractual rela-
tionship witli Japan as a result of that document.
It will be respected and given effect because the
Potsdam Declaration forms a part of our policy
stated in good faith with relation to Japan and
Avith relation to peace and security in the Far
East." ■•
This, I think, makas quite clear our interpreta-
tion of the Potsdam Declaration and also quite
clear for General MacArthur what his relation-
ship is to the Japanese Government.
In Korea our policy problems are both obvious
and difficult.' Korea is to be separated from Japan
and become an independent member of the family
of nations. But Korea, after years of subjection
to Japan, is not immediately prepared to exercise
self-government. We therefore advocate a period
of trusteeship during which Koreans will be pre-
pared to take over the independent administration
of their country. How long that will require
neither you nor I can say; we will agree, however,
that the briefer the period, the better.
The present division of Korea north and south
of latitude 38 into Kussian and American zones
of occupation was made for military operational
purposes and for purposes of surrender. It is
manifestly unsatisfactory from the standpoint of
administration of the country, and we hope to
work out with our Soviet Allies, who are in the
northern half of the country, a liaison and under-
standing which will solve many administrative
* BmjJTiN of Sept. 30, 1!)-!."), p. 480.
• Bulletin of June 10, 1945, p. 105S.
° Bulletin of Mar. 25, 1944, p. 275
problems piior to the establishment of a trustee-
ship in which we expect the Allies principally
interested in Korea to participate.
In the southern half of Korea, which our mili-
tary authorities are administering, a consultative
council composed of Koreans has been established.
Koreans from abroad are being encouraged to
return to Korea to participate in this council and
in the administration.
Our policy with regard to Korea is then to bring
into being as quickly as possible an independent,
democratic, and prosperous nation. As soon as it
is feasible to do so, I should like to see American
businessmen, missionaries, and cultural organiza-
tions established in Korea and contributing their
share toward implementing American policies
there.
In southeast Asia a situation has developed to
the liking of none of us, least of all to the British,
the French, the Dutch, and, I gather, to the An-
namese and Indonesians. "With regard to the
situation in French Indochina, this Government
tloes not (juestion French sovereignty in that area.
Our attitude toward the situation in the Dutch
East Indies is similar to that in regard to French
Indochina. In both these areas, however, we
earnestly hope that an early agreement can be
reached between representatives of the govern-
ments concerned and the Annamese and Indo-
nesians. It is not our intention to assist or par-
ticipate in forceful measures for the imposition of
control by the territorial sovereigns, but we would
be prepared to lend our assistance, if requested
to do so, in efforts to reach peaceful agreements in
these disturbed areas.
In a statement issued by Secretary Hull on
:\Iarch -21. 1944. entitled "Bases of the Foreign
Policy of the United States",^ there occurs the fol-
lowing paragraph in regard to "dependent peo-
ples" : "There rests upon the independent nations
a resjionsibility in relation to dependent peoples
who aspire to liberty. It should be the duty
of nations having political ties with such peo-
ples ... to help the aspiring peoples to de-
velop materially and educationallj', to prepare
themselves for the duties and responsibilities of
self-government, and to attain liberty." This
continues to be American policy.
With regard to Siam, we have never consitlered
ourselves at war with that nation, although the
Government in control in 1942 declared war on the
OCTOBER 21, 1945
647
United States. We consider Siam an independ-
ent and sovereign nation. It is our policy to foster
friendly relations with Siam and encourage the
development of healthy democratic institutions
and a sound economy. We advocate the "Open
Door"' there, as in other areas, and equality of
treatment by Siam of all nations and their na-
tionals. The British Government, which declared
war on Siam in response to Siam's declaration of
war on Great Britain, is now negotiating at Kandy
with the Siamese an agreement to terminate the
state of hostilities. We have followed these ne-
gotiations and have reason to hope that they may
be successfully concluded in the near future.'
Our policy toward our Ally China is clear and
consistent. Our policy has been, is, and will be
to encourage and assist, when we can appropriately
do so, the development of a unified, strong, and
cooperative nation with a government based on
democratic principles and popular sovereignty.
Our Ambassador, General Hurley, has worked un-
flaggingly for the realization of this policy. We
fought side by side with China in a war against
Japan which China entered four and a half years
before we did. We shall continue to collaborate
with China in the solution of its and our problems.
Generalissimo Chiang and Mao Tse-tung have
recently announced a 12-point agreement in re-
gard to the Kuomintang-Comnumist problem.
No one who knows anything about conditions in
China would argue that the agreement is defini-
tive, but it allays the fears which were so lively
a month ago that there would be wide-spread civil
war in China, and it furnishes the framework for
an adjustment of the differences between the Gov-
ernment, the Communists, and other non-govern-
ment political groups in China.
At the root of China's difficulties is the need
for certain economic reforms, particularly in the
agrarian field and in the field of taxation. China's
leaders realize this, and we may hope that, with
the return of peace, they will set about instituting
the necessary reforms. Much is written about the
industrialization of China. But without reforms,
one of the primary objectives of which would be
to increase the individual incomes of the Chinese
farmers, and without an expanded transportation
system and a sound currency, industrial develop-
ment would be meaningless to the Chinese people.
It would rest on the insecure basis of foreign mar-
kets for its continued existence. American cap-
ital and technical know-how will be available to
China, I am sure, if China's reconstruction follows
the lines I have mentioned. There is every reason
to believe that Chinese and American businessmen
can develop and expand their commercial trade
on a non-discriminatory and mutually beneficial
basis. It is our policy to encourage commercial
relations of this kind with China.
It is our policy to encourage and facilitate the
reestablishment of American business in China.
Probably not with all the speed desired, but with
all the speed we can generate, we are endeavoring
to get businessmen back into China for their sake
and for China's sake. We want them back in
Shanghai, Hong Kong, Tientsin, and other ports
as quickly as possible. We are reopening con-
sulates in these and other cities.
What I have said regarding American business-
men applies with equal force to missionaries and
representatives of cultural and i^hilanthropic or-
ganizations. We want them back in China as
soon as transportation facilities and conditions in
China will permit.
Some question may have arisen in j-our mind
with regard to the dispatch of American Marines
to north China. They have been sent there pur-
suant to military directives to serve a specific pur-
pose, that is, to assist Chiang Kai-shek in demobi-
lizing and repatriating Japanese troops in the area.
Their stay is temporary. They will be withdrawn
when they are no longer required for the purpose
for which they were sent. Generalissimo Chiang
has announced that the Marines would leave north
China as soon as they can be relieved by Chinese
Government forces. The process of relief is now
in progress.
China is in a position to form a buffer or a bridge
in our relations with the Soviet Union in the Far
East. We will all agree, I believe, that the bridge
concept is preeminently preferable, and that it
should be our policy to make it a fact. I would
go further and say that only through the coopera-
tion of China, the U.S.S.R., and ourselves can the
objectives of our policy in the Far East be achieved.
In August, the Chinese and Soviet Governments
entered into certain agreements which we hope
will stabilize the relations between those two coun-
tries. It will be our policy to cooperate with China
and the Soviet Union for stability in the Far East.
We will cooperate with neither of them in any
policy directed against the other.
' Bulletin of Aug. 19, 1945, p. 261.
648
Secretary Byrnes has indicated thai tne United
States desires cooperation with the Soviet Union
on all matters of mutual concern. This attitude
rests upon a recognition of the importance of
amicable Soviet-American relations. "We know
that Russia has imi^ortant interests in the Far
East. We expect recognition by Russia that we
also have important interests in that area. We
shall, therefore, pursue policies consistent with our
over-all objectives, best calculated to bring about
Russian recognition of our position in the Far
East and to accord fair recognition to the Russian
position in that area — and further, to bring about
a Russian understanding that our objectives in the
Far East are in harmony with the objectives of
any peacefully inclined nation.
In conclusion, let me recapitulate and pose some
questions. Our objectives are (1) to provide for
the security of the United States and the main-
tenance of international peace; (2) to create in the
relations among states conditions conducive to
mutually beneficial commercial and cultural ex-
changes which will i^romote international welfare
and understanding; and (3) the related objective,
stated by Generalissimo Chiang and Mr. Wallace,
to establish a democratic peace based on political
and social stability deriving from government de-
voted to the welfare of peoples.
Do we believe that a demilitarized and democ-
ratized Japan is in line with our objectives or do
we believe that the revival of a pre-war Japan
would better suit our purposes? The answer is
clear and emphatic. We want a completely re-
generate and reformed Japan.
Do we feel that the early development of an in-
dependent, democratic Korea is good policy, not
simply because we have had a natural predilec-
tion for independence and democracy for three cen-
turies, but because we believe that the development
of such a Korean state would further our objec-
tives? I am sure we do.
Do we desire the maintenance and strengthening
of Siamese sovereignty and democracy because it
would be "nice" for the Siamese or because it
would contribute toward the realization of our ob-
jectives in the Far East? The answer, I suppose,
is both. We can be sentimental as well as prac-
tical — as long as we are practical.
Similarly, do we feel that dependent peoples
of southeast Asia should be assisted "to prepare
themselves for the duties and responsibilities of
DEPARTMENT OF STATE BULLETIN
self-government, and to attain liberty", to use j
Mr. Hull's words? Do we feel that recognition j
given to the self-governing aspirations of depend- •
ent peoples will be conducive to peace and well-
being in the Far East ? I believe we do.
f And finally, are we sure that our desire for a
unified and democratic China is not simply an ex-
pression of our traditional good-will toward the
Chinese without reference to realities and our
objectives? I am confident that we are. Without
such a China peace in the Far East would be in
.serious jeopardy.
But — and this is my last word, or last para-
graph, I should say— we must not fall into the
error of considering the implementation of these
policies and the realization of these objectives as
our private and exclusive job. I have described
international cooperation as a policy. It is a
policy — but it is, to my mind, an overriding policy.
We are to be a participant in the United Nations
Organization. The operation of that Organiza-
tion will not, as some seem to think, furnish a
substitute for national foreign policies. It should j
be — we should make it — a convenient, an efficient, I
and an effective clearing-house for national for- |
eign policies and for their reconciliation in the
interests of international security, peace, and wel-
fai-e. Therefore, and in conclusion, I would
strongly advocate that the policies we pursue be
able to stand careful international examination.
I believe those I have summarized for the Far East
will do so.
Visit of President Rios of Chile
Statement by PRESIDENT TRUMAN
[Released to the press by the White House October 16]
President Rios of Chile left Washington yester-
day after an official visit, during which it was my
privilege to have him as a gtiest at the White
House. It was a great pleasure to meet him, not
only as a friend and statesman but also as the rep-
resentative of a democratic people and a function-
ing democracy.
We discussed the mutual desire to strengthen
the solidarity of the republics of the Western
Hemisphere on the basis of the ideals for which the
war was fought and won.
OCTOBER 21, 1945
649
Acceptance of Invitation
to Telecommunications
Conference
[Released to the press October 20]
The Government of the United States has ac-
cepted an invitation from the British Government
to participate in a confei'ence in Bermuda to
consider telecommimications questions outstand-
ing between the United States and the members
of the British Commonwealth. Representatives of
the Governments of the British Dominions will
also be represented. The conference will open in
Bermuda November 19.
Statement by Assistant Secre-
tary Russell on the Foreign
Service
[Released to the press October 16)
In assuming the position of Assistant Secretary
of State for administration, I am anxious to con-
vey to all of you in the Department and the For-
eign Service this expression of my appreciation of
the fine job you have been doing and of the loyalty
and patience you have shown during the several
reorganizations of the Department in the past year
or two.
All of you know that the Department and the
Foreign Service must be improved and expanded
to meet the great responsibilities ahead. Some
progress has been achieved, and many of you are
familiar with the plans now being made to better
the organizational structure and strengthen the
manpower of the two services. It is not my inten-
tion here to discuss these plans in detail. Rather
it is my immediate purpose to assure you — and I
sijeak equally for the Secretary — that our plans
are founded on the best in the existing structures
and will fully recognize ability and loyalty in the
men and women of both services.
During the past few months there have been
many rumors circulating in the Department and
the Foreign Service which have had a disturbing
effect on morale and efficienc_y. I am glad to be
able to dispel at least one of these rumors here
and now. I have read the report prepared by the
Bureau of the Budget for the Secretary and I find
nothing in it to warrant the fears and misgivings
which have been circulating. We are not going to
make any further changes in the structure of the
Department or the Foreign Service without first
giving the responsible officers full opportunity to
submit their views and recommendations. We
must have your confidence and you must have ours.
Apart from this we must put our house in sound
order before we can enlarge it. We cannot expect
to do the day's work, let alone plan tomorrow's,
amidst uncertainty.
^ THE CONGRESS
Facilitating Further the Disposition of Prizes Captured
by the United States. H. Rept. 1122, 79th Cong., to
accompany H. R. 42.31. 5 pp. [Favoralile report.]
First Supplemental Surplus Appropriation Rescission
Bill, 1946. H. Rept. 1125, 79th Cong., to accompany H. R.
4407. 38 pp. [Favorable report.]
Fourth Report to Congress on United States Participa-
tion in Operations of UNRRA. Message from the Presi-
dent of the United States Transmitting Fourth Report
to Congress on United States Participation in Operations
of UNRRA. H. Doc. 309, 79th Cong. 48 pp.
Supplemental E.stiraates of Appropriation for the State
Department. Communication from the President of the
United States transmitting supplemental estimates of ap-
propriation for the fiscal year 1946 in the amount of
.1!l,641,O0O for the Department of State. H. Doe. 311,
79th Cong. 4 pp.
Proposed Provision Pertaining to an Existing Appro-
priation for "Foreign-Service Pay Adjustment, Apprecia-
tion of Foreign Currencies" : Communication from the
President of the United States transmitting draft of a
proposed provision pertaining to an existing appropriation
for the fiscal year 1946, ''Foreign-Service Pay Adjust-
ment, Appreciation of Foreign Currencies". H. Doc. 320,
79th Cong. 2 pp.
Study of Naturalization Laws and Procedures : Hear-
ings before Subcommittee II of the Committee on Immi-
gration and Naturalization, House of Representatives,
Seventy-ninth Congress, first session, pursuant to H. R.
52, a bill authorizing a complete study of immigration
and naturalization laws and problems. May 9, June 4
and 5, 1945. iii, 95 pp.
Renewal of Certain Trade-marlc Registrations after
Expiry: Hearings Before the Committee on Patents,
House of Representatives, Seventy-ninth Congress, first
session on H. R. 3424, a bill to permit renewal of certain
trade-mark registrations after expiry thereof, and for
other purposes. September 13, 1945. iii, 11 pp.
Reorganization of the Executive Departments: Hear-
ings Before a Subcommittee of the Committee on the
Judiciary, United States Senate, Seventy-ninth Congress,
first session, on S. 1120, a bill to provide for the reorgani-
zation of Government agencies and for other purposes.
September 6, 7, 14, 17, and 18, 1945. iii, 131 pp.
650
^ THE DEPARTMENT ^
Appointment of Officers
Samuel D. lioykin and Elwood N. Tlionipson as Special
Assistants to the Director of the OtHee of Siiecial Political
Affairs, effective September 25, 1945.
Joseph Flack as Chief of the Division of North and West
Coast Affairs, effective October 1, 1&45.
James K. Penfiekl as I>eputy Director of the OflSce of
Far Eastern Affairs, effective October 10, 1915.
Everett F. Drunirifiht as Chief of the Division of
Chinese Atfairs, effective October 10, 1945.
[Released to the press October 15]
Tlie Department of State announced that Ralph
McGill, editor of the Atlanta Constitution, and
Col. John Hay Whitney have been appointed spe-
DEPARTMENT OF , ■ '
cial advisers and consultants, i
Colonel Whitney will work with i
tary of State William Benton and v
Kuhii, Director of the Interim Interi
mation Service. Mr. McGill will ad\
concerning the wire services and tlu
ing out of the past and present act.
Oflice of War Information and the Oi
American Affairs. Mr. McGill is acti\
on these matters at this time.
Colonel Whitney will advise on rel.
the motion-picture industry, arising from the ac-
tivities not only of the Office of War Information
and the Office of Inter- American Affairs, but also
from the past and present interests of the State
Department.
Contents — Continued
Tbeatt Information — Continued. Page
Ratification of the Charter of the United Nations: Lebanon,
Cuba, Iran, Luxembourg, Saudi Arabia, Czechoslo-
vakia, Yugoslavia, Syria, Great Britain and Northern
Ireland 626
Signing by Poland of the Charter of the United Nations . 627
Conversations on Air Agreement With Mexico 628
International Boundary Along the Pilcomayo River: Argen-
tina-Paraguay 042
The Department
The Role of International Information Service in Conduct
of Foreign Relations. Statements by Assistant Secre-
tary Benton 589
Appointment of OfBcers 650
The Foreign Service
Consular Offices 636
Statement by Assistant Secretary Russell on the Foreign
Service 649
The Congress 649
U. S. GOVERNMENT PRINTING OFFICE; I94S
THE DEPARTMENT OF STATE
D L
J
J
H
1 r
VOL. XIII, NO. 331
OCTOBER 28, 1945
In this issue
-9^'
RESTATEMENT OF FOREIGN POLICY OF THE UNITED STATES
Address by the President
NEED FOR CONTINUED ALERTNESS
THE INTER-AMERICAN SYSTEM
Addresses by Assistant Secretary Braden
MILITARY GOVERNMENT OF AUSTRIA: DIRECTIVE TO COMMANDER
IN CHIEF OF U.S FORCES OF OCCUPATION
CANADIANAMERICAN COOPERATION IN WAR AND PEACE, 1940-1945
By Elizabeth H, Armstrong
RELEASE OF FRENCH ASSETS IN THE UNITED STATES AND AMER-
ICAN PROPERTY IN FRANCE
By James Simsarian
THE CULTURAL-RELATIONS SCENE IN SOUTH AMERICA
By Herschel Brickell
For complete contents
see inside cover
Vl®^"^ O^
•^tes o^
DEC 27 1945
THE DEPARTMENT OF STATE
BULLETIN
Vol. Xin.No.331«
* Publication 2409
October 28, 1945
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Research and
Publication, Office of Public Affairs,
provides the public and interested
agencies of the Government tvith
information on developments in the
field of foreign relations and on the
work of the Department of State and
the Foreign Service. The BULLETIN
includes press releases on foreign
policy issued by the White House and
the Department, and statements and
addresses made by the President and
by the Secretary of State and other
officers of the Department, as well as
special articles on various phases of
international affairs and the functions
of the Department. Information con-
cerning treaties and international
agreements to which the United States
is or may become a party and treaties
of general international interest is
included.
Publications of the Department, cu-
mulative lists of which are published
at the end of each quarter, as well as
legislative material in the field of inter-
national relations, are listed currently.
The BULLETIN, published with the
approval of the Director of the Bureau
of the Budget, is for sale by the Super-
intendent of Documents, United States
Government Printing Office, Jf'ash-
ington 25, D. C, to whom all pur-
chase orders, tvith accompanying
remittance, should be sent. The sub-
scription price is $3.50 a year; a single
copy is 10 cents.
ontents
American Republics page
The Inter- American System. Address by Assistant Secre-
tary Braden 693
Letters of Credence. Ambassador of Haiti 700
Canada
Canadian-American Cooperation in War and Peace, 1940-
1945. By Elizabeth H. Armstrong 674
Europe I
Military Government of Austrip. Directive to Commander
in Chief of U. S. Forces of Occupation Regarding the
Military Government of Austria 661
Allied Commission on Reparations for Germany. Appoint-
ment of James W. Angell as United States Represent-
ative 688
Economic Agreements Between the U. S. S. R. and Hungary . 698
Letters of Credence. Minister of Sweden 700
Far East
Far Eastern Advisory Commission:
Appointment of French Representative 689
Appointment of Netherlands Representative 689
U. S. Assistance to the Philippines:
Statement by the President 690
Recommendations by the President 690
Control Council for Japan. Comment Upon Soviet Posi-
tion 692
Cultural Cooperation
The Culturpl-Relations Scene in South America. By
Herschel Brickell 696
Removal of Wartime Objection to Study Abroad .... 701
Visit of Ecuadoran Art Director 702
Economic Affairs
Release of French Assets in the United States and American
Property in France. By James Simsarian 687
Release of Short- Wave Broadcasting Frequencies 689
Resumption of American Business Operations in Pacific
Area 699
The Proclaimed List 701
General
Restatement of Foreign Policy of the United States. Ad-
dress by the President 653
Commissioning of U. S. S. Franklin D. Roosevelt. Address
by the President 656
Need for Continued Alertness. Address by Assistant
Secretary Braden 658
Recommendations for Universal Military Training. Mes-
sage of the President to the Congress 659
Public Opinion and Foreign Policy 678
The United Nations
Preparatory Commission of the United Nations:
Discussion on Relation Between Specialized Agencies and
the United Nations 680
Concerning the Selection of United Nations Head-
cjuarters 681
Actions Taken on Committee Reports 682
Problems Relating to Economic and Social Council. . . 684
Reception of Delegates for the General Assembly .... 684
{Continued on page 706}
Restatement of Foreign Policy
of the United States
Address by THE PRESIDENT
[Released to the press by the White House October 27]
Mayor LaGuardia, Ladies and Gentlemen : I
am grateful for the magnificent reception which
you have given me today in this great city of New
York. I know that it is given to me only as the
representative of the gallant men and women of
our naval forces, and on their behalf, as well as
my own, I thank you.
New York joins the rest of the Nation in paying
honor and tribute to the 4 million fighting Ameri-
cans of the Navy, Marine Corps, and Coast
Guard — and to the ships which carried them to
victory.
On opposite sides of the world, across two
oceans, our Navy opened a highway for the armies
and air forces of the United States. They landed
our gallant men, millions of them, on the beach-
heads of final triumph. Fighting from Mur-
mansk, the Englisli Channel, and the Tyrrhenian
Sea, to Midway, Guadalcanal, Leyte Gulf, and
Okinawa — they won the greatest naval victories
in history. Together with their brothers in arms
in the Army and Air Force, and with the men of
the Merchant Marine, they have helped to win for
mankind all over the world a new opportunity to
live in peace and dignity — and, we hope, in
security.
In the harbor and rivers of New York City and
in other ports along the coasts and rivers of the
country, ships of that mighty United States Navy
are at anchor. I hope that you and the people
everywhere will visit them and their crews, seeing
for yourselves what your sons and daughters, your
labor and your money, have fashioned mto an in-
vincible weapon of liberty.
The fleet, on V-J Day, consisted of 1,200 war-
ships, more than 50,000 supjDorting and landing
' Delivered in Central Park, New York, N.Y., in con-
nection with the celebration of Navy Day on Oct. 27, 1945,
at 1 : 30 p.m.
craft, and over 40,000 navy planes. By that day,
ours was a sea power never before equaled in the
history of the world. There were great carrier
task forces capable of tracking down and sinking
the enemy's fleets, beating down his airpower,
and pouring destruction on his war-making in-
dustries. There were submarines which roamed
the seas, invading the enemy's own ports, and de-
stroying his shipping in all the oceans. There were
amphibious forces capable of landing soldiers on
beaches from Normandy to the Philippines.
There were great battleships and cruisers which
swept enemy ships from the seas and bombarded
his shore defense almost at will.
And history will never forget that great leader
who, from his first day in office, fought to reestab-
lish a strong American Navy — who watched that
Navy and all the other might of this Nation grow
into an invincible force for victory— who sought
to make that force an instrument for a just and
lasting peace — and who gave his life in the
effort — Franklin D. Roosevelt.
The roll call of the battles of this fleet reads like
signposts circling the globe — on the road to final
victory. North Africa, Sicily, Italy, Normandy,
and southern France; Coral Sea, Midway, Gua-
dalcanal, and the Solomons; Tarawa, Saipan,
Guam, the Philippine Sea, Leyte Gulf; Iwo Jima,
and Okinawa. Nothing which the enemy held on
any coast was safe from its attack.
Now we are in the process of demobilizing our
naval force. We are laying up ships. We are
breaking up aircraft squadrons. We are rolling
up bases and i-eleasing officers and men. But when
our demobilization is all finished as planned, the
United States will still be the greatest naval
power on earth.
In addition to that naval power, we shall still
have one of the most powerful air forces in the
world. And just the other day, so that on short
653
654
DEPARTMENT OF STATE BULLETIN
notice we could mobilize a powerful and well-
equipped land, sea, and air force, I asked the
Conf^ress to adopt universal training.
Why do we seek to preserve this powerful naval
and air force, and establish this strong Army re-
serve ? Why do we need them ?
We have assured the world time and again —
and I repeat it now — that we do not seek for our-
selves one inch of territory in any place in the
world. Outside of the right to establish necessary
bases for our own protection, we look for noth-
ing which belongs to any other power.
We do need this kind of armed might however,
and for four principal tasks :
First, our Army, Navy, and Air Force, in col-
laboration with our Allies, must enforce the terms
of peace imposed upon our defeated enemies.
Second, we must fulfil the military obligations
which we are undertaking as a member of the
United Nations Organization — to support a last-
ing peace, by force if necessary.
Third, we must cooperate with other American
nations to preserve the territorial integrity and
the political independence of the nations of the
Western Hemisphere.
Fourth, in this troubled and uncertain world,
our military forces must be adequate to discharge
the fundamental mission laid upon them by the
Constitution of the United States — to "provide for
the common defense" of the United States.
These four military tasks are directed not
toward war — not toward conquest — but toward
peace.
We seek to use our military strength solely to
preserve the peace of the world. For we now
know that that is the only sure way to make our
own freedom secure.
That is the basis of the foreign policy of the
people of the United States.
The foreign policy of the United States is based
firmly on fundamental principles of righteousness
and justice. In carrying out those principles we
shall firmly adhere to what we believe to be right ;
and we shall not give our approval to any com-
promise with evil.
But we know that we cannot attain perfection
in this world overnight. We shall not let our
search for perfection obstruct our steady progress
toward international cooperation. We must be
prepared to fulfil our responsibilities as best we
can, within the framework of our fundamental
principles, even though we recognize that we have
to operate in an imperfect world.
Let me restate tlie fundamentals of that foreign
policy of the United States :
1. We seek no territorial expansion or selfish
advantage. We have no plans for aggression
against any other stat«, large or small. AVe have
no objective which need clash with the peaceful
aims of any other nation.
2. We believe in the eventual return of sovereign
rights and self-government to all peoples who have
been deprived of them by force.
3. We shall approve no territorial changes in
any friendly part of the world unless they accord
with the freely expressed wishes of the people
concerned.
4. We believe that all peoples who are prepared
for self-government should be permitted to choose
their own form of government by their own freely
expressed choice, without interference from any
foreign source. That is true in Europe, in Asia,
in Africa, as well as in the Western Hemisphere.
5. By the combined and cooperative action of
our war Allies, we shall help the defeated enemy
states establish peaceful, democratic governments
of their own free choice. And we shall try to
attain a world in which Nazism, Fascism, and
military aggression cannot exist.
6. We shall refuse to recognize any goverimient
imposed upon any nation by the force of any
foreign power. In some cases it maj' be impossible
to prevent forceful imposition of such a govern-
ment. But the United States will not recognize
any such government.
7. We believe that all nations should have the
freedom of tlie seas and equal rights to the naviga-
tion of boundary rivers and waterways and of
rivers and waterways which pass tlirough more
than one country.
8. We believe that all states which are accepted
in the society of nations should have access on
equal terms to the trade and the raw materials of
the world.
9. We believe that the sovereign states of the
Western Hemisphere, without interference from
outside the Western Hemisphere, must work to-
gether as good neighbors in the solution of their
common problems. J
10. We believe that full economic collaboration 1
between all nations, great and small, is essential to
OCTOBER 28, 1945
the improvement of living conditions all over the
world, and to the establisliment of freedom from
fear and freedom from want.
11. We shall continue to strive to promote
freedom of expression and fi-eedom of religion
throughout the peace-loving areas of the world.
12. We are convinced that the preservation of
peace between nations requires a United Nations
Organization composed of all the peace-loving na-
tions of the world who are willing jointly to use
force if necessary to insure peace.
That is the foreign policy which guides the
United States now. That is the foreign policy
with which it confidently faces the future.
It may not be put into eilect tomorrow or the
next day. But none the less, it is our policy ; and
we shall seek to achieve it. It may take a long time,
but it is worth waiting for, and it is worth striving
to attain.
The Ten Commandments themselves have not
yet been universally achieved over these thousands
of years. Yet we struggle constantly to achieve
them, and in many ways we come closer to them
each year. Though we may meet set-backs from
time to time, we shall not relent in our efforts to
bring the Golden Rule into the international affairs
of the world.
We are now passing through a difficult phase of
international relations. Unfortunately it has al-
ways been true after past wars that the unity
among Allies, forged by their conmion peril, has
tended to wear out as the danger passed.
The world can not afford any let-down in the
united determination of the Allies in this war to
accomplish a lasting peace. The world can not
afford to let the cooperative spirit of the Allies in
this war disintegrate. The world simply cannot
allow this to happen. The people in the United
States, in Russia and Britaui, in France and China,
in collaboration with all other peace-loving people,
must take the course of current history into their
own hands and mould it in a new direction — the
direction of continued cooperation. It was a com-
mon danger which united us before victory. Let it
be a common hope which continues to draw us
together in the years to come.
The atomic bombs that fell on Hiroshima and
Nagasaki must be made a signal, not for the old
process of falling apart but for a new era — an era
of ever closer unity and ever closer friendship
among peaceful nations.
655
Building a peace requires as much moral stam-
ina as waging a war. Perhaps it requires even
more, because it is so laborious and painstaking
and undramatic. It requires undying patience
and continuous application. But it can give us,
if we stay with it, the greatest reward that there
is in the whole field of human effort.
Differences of the kind that exist today among
the nations that fought together so long and so
valiantly for victory are not hopeless or irre-
concilable. There are no conflicts of interest
among the victorious powers so deeply rooted
that they can not be resolved. But their solution
will require a combination of forbearance and
firmness. It will require a steadfast adherence
to the high principles we have enunciated. It
will also require a willingness to find a common
ground as to the methods of applying these prin-
ciples.
Our American policy is a policy of friendly
partnership with all peaceful nations, and of full
support for the United Nations Organization. It
is a policy that has the strong backing of the
American people. It is a policy around which we
can rally without fear or misgiving.
The more widely and clearly that policy is un-
derstood abroad, the better and surer will be the
peace. For our own part, we must seek to under-
stand the special problems of other nations. We
must seek to understand their own legitimate
urge toward security as they see it.
The immediate, the greatest threat to us is the
threat of disillusionment, the danger of an in-
sidious skepticism — a loss of faith in the effec-
tiveness of international cooperation. Such a loss
of faith would be dangerous at any time. In an
atomic age it would be nothing short of disas-
trous.
There has been talk about the atomic bomb
scrapping all navies, armies, and air forces. For
the present, I think that such talk is 100 percent
wrong. Today control of the seas rests in the fleets
of the United States and her Allies. There is no
substitute for them. We have learned the bitter
lesson that the weakness of this great Republic in-
vites men of ill-will to shake the very foundations
of civilization all over the world.
What the distant future of atomic research will
bring to the fleet which we honor today, no one
can foretell. But the fundamental mission of the
Navy has not changed. Control of our sea ap-
656
DEPARTMENT OF STATE BULLETIN
proaches and of the skies above them is still the
key to our freedom and to our ability to help
enforce the peace of the world. No enemy will
ever strike us directly except across the sea. We
cannot reach out to help stop and defeat an ag-
gressor without crossing the sea. Therefore, the
Navy, armed with whatever weapons science
brings forth, is still dedicated to its historic task:
control of the ocean approaches to our country
and of the skies above them.
The atomic bomb does not alter the basic for-
eign policy of the United States. It makes the
development and application of our policy more
urgent than we could have dreamed si.x months
ago. It means that we must be prepared to ap-
proach international problems with greater speed,
with greater determination, and with greater in-
genuity, in order to meet a situation for which
there is no precedent.
We must find the answer to the problems created
by the release of atomic energy — as we must find
the answers to the many other problems of peace —
in partnership with all the peoples of the United
Nations. For their stake in world peace is as great
as our own.
As I said in my message to the Congress, dis-
cussion of the atomic bomb with Great Britain
and Canada and later with other nations cannot
wait upon the formal organization of the United
Nations. These discussions, looking toward a free
exchange of fundamental scientific information,
will be begim in the near future. But I emphasize
again, as I have before, that these discussions will
not be concerned with the jsrocesses of manufac-
turing the atomic bomb or any other instruments
of war.
In our possession of this weapon, as in our pos-
session of other new wea^jons, there is no threat
to any nation. The world, which has seen the
United States in two great recent wars, knows that
full well. The possession in our hands of this new
power of destruction we regard as a sacred trust.
Because of our love of peace, the thoughtful people
of the world know that that trust will not be vio-
lated, that it will be faithfully executed.
Indeed the highest hope of the American people
is that world cooperation for peace will soon reach
such a state of perfection that atomic methods of
destruction can be definitely and effectively out-
lawed forever.
We have sought, and we will continue to seek,
the attainment of that objective. We shall pur-
sue that course with all the wisdom, patience, and
determination that the God of Peace can bestow
upon a people who are trying to follow in His
path.
Commissioning of U. S. S. "^Tranklin D. Roosevelt
Address by THE PRESIDENT '
•>•>
[Released to the press October 27]
Admiral Daubin, Captain Soucek, Mrs. Roose-
velt, Ladies and Gentlemen : One of the pleas-
ant duties in the exacting daily life of a President
is to award honors to our fighting men for courage
and valor in war. In the commissioning of this
ship, the American people are honoring a stalwart
hero of this war who gave his life in the service
of his country. His name is engraved on this great
carrier, as it is in the hearts of men and women
of good-will the world over — Franklin D. Eoose-
velt.
If anyone can be called the father of the new
American Navy which is typified by this magnifi-
' Delivered at the New York Navy Yard on Oct. 27,
1945, at 11 a. ru., in connection with the commissioning of
the U.S.S. Franklin D. Roosevelt.
cent vessel, it is he. From his first day as Pres-
ident he started to build it.
Even as he started to build the Navy, he began
to work for world peace. By his realistic good-
neighbor policy, by reciprocal trade agreements,
by constant afipeal to international arbitration in-
stead of force, he worked valiantly in the cause of
peace. By his constant battle for the forgotten
man he sought to remove the social and economic
inequalities which have so often been at the root
of conflict at home and abroad. And when he saw
the clouds of aggression forming across the seas
to the east and to the west, he issued warning
after warning which, had they been heeded in time,
might have staved off this tragic conflict.
But through it all, he never faltered in his work
to build up the American Navy. For he under-
OCTOBER 28, 1945
stood, as few men did, the importance to the sur-
vival of tliis country of the mission of its Navy—
the control of the sea. The Axis powers under-
stood. That is why Germany sought to drive us
from the sea by her submarines. That is why
Japan tried to destroy our Navy. They knew that
if they succeeded they might conquer all the
nations of the earth one by one, while the Allies
were helpless to reach each other across the oceans
of the world.
We won the Battle of the Oceans. By that vic-
tory the United Nations were knitted into a fight-
ing whole; and the Axis powers were doomed to
defeat everywliere.
That victory we owe to the men and women in
the shipyards of the Nation who in the last five
and a half years built carriers like this one, and
over a hundred thousand other ships. "We owe it
to the workers in our factories who built 85,000
naval planes such as those which will soon take
their places on the flight deck of this ship. We
owe it to the fighting men who took those ships
across the seas, running them right up to the home
shores of the enemy; to the men who flew those
planes against the enemy and dropped destruc-
tion on his fleet and aircraft and war industries.
We owe it to that great leader whose name this
mighty carrier bears, who understood the impor-
tance of overwhelming naval power, and who
rolled up his sleeves — and got it.
Building this Navy was only a part of a still
larger program of war production with which the
workers and industries of this nation amazed the
whole world, friend and foe alike. It showed the
abundant richness of our Nation in natural re-
sources. But it also showed the skill and energy
and power and devotion of our free American
people.
Having done all this for war, can we do any
less for peace? Certainly we should not. The
same riches, the same skill and energy of America
must now be used so that all our people are better
fed, better clothed, better housed; so that they can
get work at good wages, adequate care for their
health, decent homes for their families, security
for their old age, and more of the good things of
life.
When we set these goals before ourselves we
know that we are carrying on the work and the
vision and the aims of the man whose name is on
this ship. And no man in our generation, or in
657
any generation, has done more to enable this Nation
to move forward toward those objectives.
Commissioning this ship symbolizes another
objective toward which Franklin D. Eoosevelt
started this Nation and the other nations of the
^yorld — the objective of world cooperation and
peace. He who helped to formulate the Atlantic
Charter and to organize the United Nations, he
who pointed the way in cooperation among nations
at Casablanca, Cairo, Quebec, Tehran, Dumbarton
Oaks, and Yalta, and who planned the conference
at San Francisco— he knows as he looks down upon
us today that the power of America as expressed
in this "mighty mass of steel is a power dedicated
to the cause of peace.
For fourteen years, ever since 'Japan first in-
vaded Manchuria, men and women have lived in a
world ruled or threatened by force intended for
aggression and conquest. Until El Alamein,
Stalingrad, and Midway, the powers of evil were
stronger than the powers of good— threatening to
spread their rule across the world. We will not
run that risk again.
This ship is a symbol of our commitment to the
United Nations Organization to reach out any-
where in the world and to help the peace-loving
nations of the world stop any international gang-
ster. A hundred hours after leaving New York
this ship could be off the coast of Africa. In five
days she could cross the western Pacific from Pearl
Harbor to the Philippines. This vessel alone
could put more than a hundred fighting planes
over a target.
We all look forward to the day when law rather
than force will be the arbiter of international rela-
tions. We shall strive to make that day come soon.
Until it does come, let us make sure that no pos-
sible aggressor is going to be tempted by any weak-
ness on the part of the United States.
These, then, are the two huge tasks before us:
realizing for our own people the full life which
our resources make possible; and helping to
achieve for people everywhere an era of peace.
Franklin D. Roosevelt gave his life in search for
the fulfillment of these tasks. And now, the Amer-
ican people are determined to carry on after him.
He did not find either of these tasks easy. Nei-
ther will we. But we approach them in the spirit
of Franklin D. Roosevelt, whose words are in-
scribed in bronze on this vessel : "We can, we will,
we must !"
658
DEPARTMENT OF STATE BULLETIN
Need for Continued Alertness
Address by ASSISTANT SECRETARY BRADEN ^
[Release J to the press October 27]
Mr. Chairman, Ladies and Gentlemen : For
the privilege of being with you and for the honor
of addressing so distinguished a gathering, I find
it hard adequately to express my pleasure and my
gratitude. Equally diflicult is it for me to voice
the admiration which I, like every other patriotic
American, hold for the United States Navy.
That Navy, because of the inspiration, skill, and
valor of its leaders and because of the deteimina-
tion, discipline, and heroism of its men, has cleared
the enemy from the seas. That Navy in union witli
our other armed forces and those of our Allies
has won victory over the Axis aggressors, who
would have enslaved the world. That Navy, with
unhesitating and infinite sacrifice, has defended
our fundamental freedoms and the sacred tenet
that government shall be with the consent of tlie
governed.
With grateful recognition of our Navy's deeds,
we solemnly pray that never again must it endure
the horror of modern conflict. With God's help
our prayers will be answered in the measure to
which each and every American citizen remains
alert, ready to defend the rights and dignity of tlie
human individual and instantly to act against
would-be aggressors.
It is well thus on Navy Day to recall these things
because the Nazis, while defeated on the battle
fronts, have not yet been eradicated. They sur-
vive in great numbers to spread their malevolent
ideologies and underground to egg on their satel-
lite and petty imitators. To this I can testify
from personal observation. I have witnessed the
suffering of a great nation, who ten years ago —
just as we did — would have said with full con-
viction "It can't happen here", and yet today it has
happened there. I have sensed the heaviness of
depression which seized a people cruelly abused
by a self-styled savior supported by a clique aping
its European Nazi prototype.
We read in our morning papers that a "state of
siege" has been decreed in this or that country,
little realizing, if at all, the terror and deprivation
involved in those words. A "state of siege" is the
negation of the Bill of Eights, on which our na-
tional existence is based — that very Bill of Eights
for the preservation of which we have fought this
and other wars. A "state of siege" suspends all
representative govermnent, civil liberties, the right
of assembly, and freedom of both speech and press.
In more concrete terms, a "state of siege" permits
swaggering officers to beat any peaceful citizen
simply because he refuses to hail the "leader." It
permits a hoodlum with brass knuckles to strike
the face of a young girl because she cries "long
live democracy'''. It permits arrests without
charge. It permits torture. It permits sabre-
wielding mounted police to ride down men,
women, and cliildren. This and much more is
what a "state of siege" means.
As we sincerely feel for a people subjected to
such oppression and as we condemn the perpe-
trators thereof, so must we be as alert as in the
blackest days of war to meet the menace latent in
the continuation of such conditions. Let us not
forget that the European Nazis began by subju-
gating their own peoples before they attempted
to subjugate their neighbors. History must not
repeat itself.
One of the tragic aftermaths of great wars has
been the rapidity with which victorious nations
lose sight of that for which they have struggled
and died. So anxious are we to return to the
security and felicity of our firesides, our farms,
and all our callings, that wars won on the field
of combat are too often lost in the early relaxa-
tion which follows the last shot. We fell the tree
and do not eradicate the underground roots which
will grow again. We must resist both the lassitude
and the temptation to indulge our selfish interests,
which as natural reactions follow and replace the
sti'ain and common effort of war.
We must not — we cannot and be secure — com-
promise our principles. To do so even as an
expedient may be fatal, and in any event we would
pay the inevitable price of appeasement.
The performance of the American people in this
war speaks for itself. May we in peace do as well.
' Made at the Navy Day dinner in Washington on Oct.
27, 1945.
OCTOBER 28, 1945
659
Recommendations for Universal
Military Training
MESSAGE OF THE>RESIDENT TO THE CONGRESS
[Released to the press by the White House October 23]
Mr. Speaker — Mr. President — ^and Members
OF THE Congress of the United States :
The United States now has a fighting strength
greater than at any other time in our history. It
is greater than that of any other nation in the
world.
We are strong because of many things: our
natural resources which we have so diligently de-
veloped, our great farms and mines, our factories,
shipyards, and industries which we have so ener-
getically created and operated. But above all
else, we are strong because of the courage and
vigor and skill of a liberty-loving people who are
determined that this nation shall remain forever
free.
With that strength comes grave responsibility.
With it must also come a continuing sense of
leadership in the world for justice and peace.
For years to come the success of our efforts for
a just and lasting peace will depend upon the
strength of those who are determined to maintain
the peace. We intend to use all our moral in-
fluence and all our physical strength to work for
that kind of peace. We can ensure such a peace
only so long as we remain strong. We must face
the fact that peace must be built upon power, as
well as upon good-will and good deeds.
Our determination to remain powerful denotes
no lack of faith in the United Xations Organi-
zation. On the contrary, with all the might we
have, we intend to back our obligations and com-
mitments under the United Nations Charter. In-
deed, the sincerity of our intention to support the
Organization will be judged partly by our willing-
ness to maintain the power with which to assist
other peace-loving nations to enforce its author-
ity. It is only by strength that we can impress
the fact upon possible future aggressors that we
will tolerate no threat to peace or liberty.
671572 — 45 2
To maintain that power we must act now. The
latent strength of our untrained citizenry is no
longer sufficient protection. If attack should come
again, there would be no time under conditions of
modern war to develop that latent strength into
the necessary fighting force.
Never again can we count on the luxury of time
with which to arm ourselves. In any future war,
the heart of the United States would be the enemy's
first target. Our geographical security is now
gone — gone with the advent of the robot bomb,
the rocket, aircraft carriers, and modern airborne
armies.
The surest guaranty that no nation will dare
again to attack us is to remain strong in the only
kind of strength an aggressor can understand —
military power.
To preserve the strength of our nation, the alter-
native before us is clear. We can maintain a large
standing army, navy, and air force. Or we can
rely upon a comparatively small regular army,
navy, and air force, supported by well-trained citi-
zens who in time of emergency could be quickly
mobilized.
I recommend the second course — that we depend
for our security upon comparatively small pro-
fessional armed forces, reinforced by a well-trained
and effectively organized citizen reserve. The
backbone of our military force should be the
trained citizen who is first and foremost a civilian,
and who becomes a soldier or a sailor only in time
of danger — and only when the Congress considers
it necessary. This plan is obviously the more prac-
tical and economical. It conforms more closely to
long-standing American tradition.
In such a system, however, the citizen reserve
must be a trained reserve. We can meet the need
for a trained reserve in only one way — ^by universal
training.
Modern war is fought by experts — from the
atomic scientist in his laboratory to the fighting
man with his intricate modern weapons. The day
of the minuteman who sprang to the flintlock
660
DEPARTMENT OF STATE BULLETIN
hanging on his wall is over. Now it takes many
months for men to become skilled in electronics,
aeronautics, ballistics, meteorology, and all the
other sciences of modern war. If another national
emergency should come, there would be no time
for this complicated training. Men must be
trained in advance.
The sooner we can bring the maximum number
of trained men into service, the sooner will be the
victory and the less tragic the cost. Universal
training is the only means by which we can be
prepared right at the start to throw our gi-eat
energy and our tremendous force into the battle.
After two terrible experiences in one generation,
we have learned that this is the way — the only
way — to save human lives and material resources.
In the pi'esent hour of triumph, we must not
forget our anguish during the days of Bataan.
We must not forget the anxiety of the days of
Guadalcanal. In our desire to leave the tragedy
of war behind us, we must not make the same mis-
take that we made after the first World War when
we quickly sank back into helplessness.
But the basic reason for universal training is a
very simple one — to guarantee the safety and free-
dom of the United States against any potential
aggressor. The other benefits ai'e all by-prod-
ucts — useful indeed, but still by-products. The
fundamental need is, and always will be, the na-
tional security of the United States and the safety
of our homes and our loved ones.
Such a system as I have outlined would provide
a democratic and efficient military force. It would
be a constant bulwark in support of our ideals of
government. It would constitute the backbone of
defense against any possible future act of aggres-
sion.
It has been suggested in some quarters that there
should be no universal training until the shape of
the peace is better known, and until the military
needs of -tliis country can be estimated and our
commitments under the United Nations Organiza-
tion can be determined. But it is impossible today
to foresee the future. It is difficult at any time to
know exactly what our responsibilities will require
in the way of force. We do know that if we are
to have available a force when needed, the time
to begin preparing is now.
The ne«d exists today — and must be met today.
If, at some later time, conditions change, then
the progi'am can be reexamined and revalued. At
the present time we have the necessary organiza-
tion, the required camp installations, and the es-
sential equipment and training grounds immedi-
ately available for use in a training program.
Once we disband and scatter this set-up, it will
be much harder and more ex2:)ensive to reestablish
the necessary facilities.
The argimient has been made that compulsory
training violates traditional American concepts of
liberty and democracy, and even that it would en-
danger our system of government by creating a
powerful militar}' caste. The purpose of the pro-
gram, however, is just the contrary. And it will
have just the contrary result. The objective is not
to train professional soldiers. It is to train citi-
zens, so that if and when the Congress should
declare it necessary for them to become soldiers,
they could do so more quickly and more efficiently.
A large trained reserve of peace-loving citizens
would never go to war or encourage war, if it could
be avoided.
Until we are sure that our peace machinery is
functioning adequate^, we must relentlessly pre-
serve our superiority on land, and sea, and in the
air. Until that time, we must also make sure that
by planning — and by actual production — we have
on hand at all times sufficient weapons of the latest
nature and design with which to repel any sudden
attack and with which to launch an efPective
counter-attack.
That is the only way we can be sure — until we
are sure that there is another way.
But research, new materials, and new weapons
will never, by themselves, be sufficient to withstand
a powerful enemy. We must have men trained
to use these weapons. As our armed forces become
more and more mechanized, and as they use more
and more complicated weapons, we must have an
ever inci-easing number of trained men. Techno-
logical advances do not eliminate the need for men.
They increase the need.
Even the atomic bomb would have been useless
to us unless we had developed a strong army, navy,
and air force with which to beat off the attacks of
oiu- foe and then fight our way to points within
striking distance of the heart of the enemy.
Assume that on December 7, 1941, the United
States had had a supply of atomic bombs in New
Mexico or Tennessee. What could we have done
with them?
(Continued on page 699)
OCTOBER 28, 1945
661
Military Government of Austria
DIRECTIVE TO COMMANDER IN CHIEF OF U. S. FORCES OF OCCUPATION
REGARDING THE MILITARY GOVERNMENT OF AUSTRIA'
[Released to the press October 28]
1. The Purpose and Scope of this Directive:
a. This directive is issued to you as Command-
ing General of the United States forces of occupa-
tion in Austria. As such you will serve as United
States member of the Allied Council of the Allied
Commission for Austria and will also be respon-
sible for the administration of military govern-
ment in the zone or zones assigned to the United
States for purposes of occupation and administra-
tion. It outlines the basic policies which will
guide you in those two capacities after the ter-
mination of the combined command in Austria.
Supplemental directives will be issued to you by
the Joint Chiefs of Staff as may be required.
h. As a member of the Allied Council you will
urge the adoption by the other occupying powers
of the princii^les and policies set forth in this di-
rective and, pending Allied Council agreement,
you will follow them in your zone. It is antici-
pated that substantially similar directives will be
issued to the Commanders in Chief of the United
Kingdom, the Union of Soviet Socialist Repub-
lics, and French forces of occupation.
c. In the event that recognition is given by the
four governments to a provisional national gov-
ei-nment of Austria, such government should be
delegated authority in appropriate matters to
conduct public affairs in accordance with the prin-
ciples set forth in this directive or agreed upon
by the occupying powers. Such delegation, how-
ever, shall be subject to the authority of the oc-
cupying powers and to their responsibility to see
that their policies are in fact carried out.
d. Any provisional national government of
Austria which is not recognized by all of the four
Governments of the occupying powers shall not
be treated by you as possessing any authority.
Only individuals who recognize your supreme
authority in your zone will be utilized by you in
administration.
PART I
General and Political
2. The Basis of Military Government:
a. The rights, power and status of the military
government in Austria prior to the unconditional
surrender and total defeat of Germany, were based
upon the military occupation of Austria and the
decision of the occupying powers to reestablish
an independent Austrian state. Thereafter tlie
rights, powers and status are based, in addition,
upon such surrender or defeat. The Text of the
Instrument of Unconditional Surrender of Ger-
many published as a separate document has been
made available to you.^ You will assure that the
policies set forth in that Instrument are carried
out in your zone of occupation insofar as they are
applicable in Austria even though the defeat of
Germany is not followed by a formal signing of
the Instrument.
b. Subject to the provisions of paragraph 3 be-
low, you are, by virtue of your position, clothed
with supreme legislative, executive, and judicial
authority in the areas occupied by forces under
your command. This authority will be broadly
construed and includes authority to take all meas-
ures deemed by you necessary, appropriate or de-
sirable in relation to military exigencies and the
objectives set forth in this and other directives.
c. You will issue a proclamation continuing in
force such proclamations, orders and insti'uctions
as may have heretofore been issued by Allied Com-
manders in your zone, subject to such changes as
you may determine. Authorizations of action by
the Supreme Allied Commander, Mediterranean,
' Prepared by the State-War-Navy Coordiuating Com-
mittee and transmitted to General Mark Clark by the
Joint Chiefs of Staff on June 27, 1945. For the directive
regarding military government of Germany, see Bullktin
of Oct. 21, 1945, p. 596.
' Bulletin of July 22, 1945, p. 105.
662
or by the Supreme Commander, Allied Expedi-
tionary Force, may be considered as a2:)plicable to
you unless inconsistent ■with this or other direc-
tives.
3. The Allied Council and Zones of Occupation:
a. Tlie four Commanders in Chief, acting
jointly, will constitute the Allied Council which
will exercise supreme authority in Austria. The
United States proposal for an agreement on the
organization of the Control Machinery in Austria
published as a separate docimient has been made
available to you. Wlien approved by the occupy-
ing powers, the text of the agreement on Control
Machinery in Austria will be furnished you. For
purposes of administration of military govern-
ment, Austria will be divided into four zones of
occupation. When the occupying powers have
agreed upon the zones of occupation in Austria,
the text of the protocol in that regard will be fur-
nislied you.
i. The authority of the Allied Council to for-
mulate policy and procedures and administrative
relationships with respect to matters affecting Aus-
tria as a whole will be paramount throughout
Austria. This authority shall be broadly con-
strued to the end that, through maximum uni-
formity of policy and procedures throughout
Austria, the establishment of an independent Aus-
trian Government may be accelerated. In your
capacity as a member of the Allied Council, you
will seek maximum agreement witli respect to
policy and maximum uniformity of action by the
Commanders in Chief in their respective zones of
occupation. You will carry out and support in
your zone the policies agreed upon in the Allied
Council. In the absence of such agreed policies
you will act in accordance with this and other
directives of the Joint Chiefs of Staff.
c. The Allied Council should cooperate with
the Control Council in Germany in effecting the
severance of all political and administrative con-
nections between Austria and (iermany, and the
elimination of German economic and financial in-
fluences in Austria. You will in every way pos-
sible assist the accomplishment of this purpose.
d. The Allied Council should adopt procedures
to effectuate, and you will facilitate in your zone,
the equitable distribution of essential commodities
between the zones. In the absence of a conflicting
policy of the Allied Council, you may deal directly
DEPARTMENT OF STATE BULLETIN
with one or more zone commanders on matters of
special concern to such zones.
e. Pending the formulation in the Allied Coun-
cil of uniform policies and procedures with respect
to travel and movement of persons to and from
Austria, no i:)ersons shall be permitted to cross the
Austrian frontier in your zone except for specific
l)urposes approved by you.
/. The military goverimient personnel in your
zone, including those dealing with regional and
local branches of the departments of any central
Austrian administrative machinery, shall be se-
lected by your authority except that liaison officers
may be furnished by the Commanders of the other
three zones. The respective Commanders in Chief
shall have exclusive jurisdiction throughout the
whole of Austria over the members of the armed
forces under their command and over the civilians
who accompany them.
4. Basic Objectives of Military Government in Aus-
tria :
a. You will be chiefly concerned in the initial
stages of military goverimaent with the elimina-
tion of German domination and Nazi influences.
Consistently ^yith this purpose, you will be guided
at every step by the necessity to ensure the recon-
struction of Austria as a free, independent and
democratic state. It will be essential therefore
that every measure be undertaken from the early
stages of occupation with this objective in mind.
h. The Allied Council should, as soon as it is
established, proclaim the complete political and
administrative separation of Austria from Ger-
many, and the intention of the occupying powers
to pave the way for the reestablishment of Austria
as an independent democratic state. You will
make it clear to the Austrian people that militaiy
occupation of Austria is intended principally (1)
to aid Allied military operations and the strict en-
forcement of the applicable provisions of the Ger-
man unconditional surrender instrument in
Austria; (2) to eliminate Nazism, Pan-German-
ism, militarism, and other forces opposed to the
democratic reconstitution of Austria; (3) to co-
operate with the Control Council for Germany in
the application and enforcement of measures de-
signed to prevent the recurrence of German ag-
gression; (4) to establish Allied Control over the
use and disposition of German property in
Austria; (5) to effect the complete political and
administrative separation of Austria from Ger-
OCTOBER 28, 1945
many and fre« Austria from Nazi and German
economic and financial influences; (6) to facilitate
the development of a sound Austrian economy de-
voted to peaceful pursuits and not vitally depend-
ent upon German supplies, markets and technical
and financial assistance; and (7) to foster the res-
toration of local self-government and the estab-
lishment of an Austrian central government freely
elected by the Austrian people themselves. Other
objectives of the occupation will be to apprehend
war criminals, to care for and repatriate displaced
persons and prisoners-of-war who are members of
the armed forces of the United Nations, and to
carry out approved programs of reparation and
restitution insofar as these are applicable to
Austria.
c. You will assure that there is no fraterniza-
tion by your troops with any German elements
remaining in Austria. While in the initial period
of occupation the relationship of the troops to
the Austrian civil population will be distant and
aloof but courteous, a progressively more friendly
relationship may be permitted as experience justi-
fies.
5. Denazification:
a. A Proclamation dissolving the Nazi Party,
its formations, affiliated associations and super-
vised organizations, and all Nazi public institu-
tions which were set up as instruments of Party
domination, and prohibiting their revival in any
form, should be promulgated by the Allied Coun-
cil. You will assure the prompt effectuation of
that policy in your zone and will make every effort
to prevent the reconstitution of any such organiza-
tion in underground, disguised or secret form.
Eesponsibility for continuing desirable non-politi-
cal social services of dissolved Party Organizations
may be transferred by the Governing Body to
appropriate central agencies and by you to appro-
priate local agencies.
b. All laws which extended the political struc-
ture of National Socialism to Austria or other-
wise brought about the destruction of the Austrian
state or which established discriminations on
grounds of race, nationality, creed, or political
opinion should be abrogated by the Allied Council.
You will render them inoperative in your zone.
c. All members of the Nazi Party who were
German nationals prior to March 13, 1938, Ger-
mans who entered Austria after that date, and
663
other Germans directly connected with the Nazi
exploitation of Austria will immediately be re-
moved from government positions and all other
categories of employment listed below, and will be
expelled from Austria in accordance with para-
graph 21. All Austrian members of the Nazi
Party who have been more than nominal partici-
pants in its activities, all active supporters of
Nazism and other persons hostile to Allied pur-
poses will be removed and excluded from public
oifice and from positions of importance in quasi-
public and private enterprises such as (1) civic,
economic, and labor organizations, (2) corpora-
tions and other organizations in which the Ger-
man Government or subdivisions have a major
financial interest, (3) industry, commerce, agri-
culture, and finance, (4) education, and (5) the
press, publishing houses and other agencies dis-
seminating news and propaganda. Persons are to
be treated as more than nominal participants in
Party activities and as active supporters of Nazism
when they have (1) held office or otherwise been
active at any level from local to national in the
Party and its subordinate organizations, (2) au-
thorized or participated affirmatively in any Nazi
crimes, racial persecutions or discriminations, (3)
been avowed believers in Nazi doctrines, or (4)
voluntarily given substantial moral or material
support or political assistance of any kind to the
Nazi Party or Nazi officials and leaders. No such
persons shall be retained in any of the categories
of employment listed above because of adminis-
trative necessity, convenience or expediency.
d. Property, real and personal, owned or con-
trolled by the Nazi Party, its formations, affili-
ated associations and supervised organizations,
and by all persons subject to arrest under the pro-
visions of paragraph 7 below, and found within
your zone will be taken under your control pend-
ing a decision by the Allied Council or higher
authority as to its eventual disposition.
e. All archives, monuments and museums of
Nazi inception, or which are devoted to the per-
petuation of militarism, will be taken under your
control and their properties held pending decision
as to their disposition by the Allied Council.
/. You will make special efforts to preserve
from destruction and take under your control
records, plans, books, documents, papers, files, and
scientific, industrial and other information and
data belonging to or controlled by the following:
664
DEPARTMENT OF STATE BULLETIN
( 1 ) The central German Government and its
subdivisions, the oftices of the Reichsstatthalter,
the former Austrian state and its subdivisions,
Gernum and Austrian military organizations, or-
ganizations engaged in military research, and
such other governmental agencies as may be
deemed advisable;
(2) The Nazi Party, its formations, affiliated
associations and supervised organizations;
(3) All police organizations, including security
and political police;
(4) Important economic organizations and in-
dustrial establishments including those controlled
by the Nazi Party or its personnel ;
(5) Institutes and special bureaus devoting
themselves to racial, political, militaristic or sim-
ilar research or propaganda.
6. Elimination of pre-Nazi ^Fascists Influences :
a. You will remove and exclude from the posi-
tions enumerated in sub-paragraph 5 c above all
persons who took an active and prominent part
in the undemocratic measures of the pre-Nazi
Fascist regime or in any of its para-military or-
ganizations such as the Heimwehr and the Ost-
maerkische Sturmscharen.
b. You will prevent the revival of any organi-
zation seeking to restore the pre-Nazi Fascist
regime.
7. Suspected War Criminals and Security Arrests:
a. You will search out, arrest, and hold, pend-
ing receipt by you of further instructions as to
their disposition, Adolf Hitler, his chief Nazi as-
sociates, other war criminals, and all persons who
have participated in planning or carrying out
Nazi enterprises involving or resulting in atroci-
ties or war crimes.
b. All persons who if permitted to remain at
large would endanger the accomplishment of your
objectives will also be arrested and held in cus-
tody until their disposition is otherwise deter-
mined by an appropriate semi-judicial body to be
established by you.
[Note : There follows at this point in the direc-
tive a detailed list of categories of Nazi war crim-
inals and others who are to be arrested. Some of
these have not yet been found. It is considered
that to publish the categories at this time would
put the individuals concerned on notice and ^you^d
interfere with their apprehension and punish-
ment, where appropriate. The list of categories
is, therefore, withheld from publication for the
25resent.]
If in the light of conditions which you encounter
in Austria you believe that it is not immediately
feasible to subject certain persons within these
categories to this treatment, you should report
your reasons and recommendations to your Gov-
ernment through the Joint Chiefs of Staff. If you
believe it desirable, j'ou may postpone the arrest
of those whose cases you have reported, pending a
decision conmiunicated to you by the Joint Chiefs
of Staff. In no event shall any differentiation be
made between or special consideration be accorded
to person arrested, either as to manner of ari-est,
or conditions of detention, upon the basis of wealth
or political, industrial, or other rank or position.
In 3'our discretion you may make such exception
as you deem advisable for intelligence or other
military reasons.
8. Demilitarization:
a. In your zone you will assure that all units of
the German armed forces including para-military
organizations are dissolved as such and that their
personnel are promptly disarmed and controlled
in accordance with the policies and procedures set
forth in the Instrument of Unconditional Sur-
render of Germany or in other directives which
maj' be issued to you. Prior to their final disposi-
tion you will arrest and hold all military personnel
who are included under the jj revisions of para-
graph 7. Subject to military considerations and
priority to be accorded repatriation of United
Nations nationals, the Allied Council should co-
operate with the Control Council for Germany in
arranging the early repatriation or other disposi-
tion of German members of the German armed
forces, including para-military organizations,
found within Austria. The two Allied agencies
should likewise concert the prompt return to Aus-
tria of Austrian members of the German armed
forces found within Germany, except those held as
active Nazis, suspected war criminals, or for other
reasons.
b. The Allied Council should proclaim, and in
your zone you will effectuate, the total dissolution
of all military and pai'a-military organizations to-
gether with all associations which might serve to
keep alive militarism in Austria.
c. All persons who have actively supported or-
ganizations jjromoting militarism or who have
been active proponents of militaristic doctrines
OCTOBER 28, 1945
665
will be removed and excluded from any of the
categories of employment listed in subparagraph
5 c.
d. You will seize or destroy all arms, ammuni-
tion and implements of war, including all aircraft,
military and civil, and stop the production thereof.
9. Police:
With the exception of the Kriminalpolizei
(Criminal Police) , all elements of the Sicherheits-
polizei (Security Police), e.g., Geheime Staats-
polizei (Gestapo), and the Sicherheitsdienst der
S.S. will be abolished. Criminal and ordinary
police will be purged of Nazi personnel and uti-
lized under the control and supervision of the
military government.
10. Administration oj Justice:
a. All extraordinary courts, including the
Volksgerichtshof (People's Court) and the Son-
dergerichte (Special Courts), and all courts and
tribunals of the Nazi Party and of its formations,
affiliated associations and supervised organizations
will be abolished immediately.
h. All ordinary' criminal, civil and administra-
tive courts, except those previously re-established
by Allied authority, will be closed. After the
elimination of all Nazi or other objectionable fea-
tures and personnel you will permit those which
are to exercise jurisdiction within the boundaries
of your zone to resume operations under such reg-
ulations, suiDervision and control as you may con-
sider appropriate. Courts which are to exercise
jurisdiction over territory extending beyond the
boundaries of your zone will be reopened only
with the express authorization of the Allied Coun-
cil and under its regulation, supervision and con-
trol. The power to review and veto decisions of
German and Austrian courts shall be included
within the power of supervision and control.
11. Political Prisoners :
Subject to military security and to the interests
of the individuals concerned, you will release all
persons found within your zone who have been
detained or placed in custody on grounds of race,
nationality, creed or political opinion and treat
them as displaced persons. You should make pro-
vision for the review of convictions of alleged
criminal offenses about which there may be sub-
stantial suspicion of racial, religious or political
persecution, and in which sentences of imprison-
ment have not been fully served by pei'sons im-
prisoned within your zone.
12. Reconstitution of an Administrative System:
a. As soon as Nazi and Fascist influences have
been eliminated from public offices in Austria, the
reconstitution of Austrian administrative agen-
cies shall be carried out in such a way as not to
prejudice the political and constitutional future
of Austria. The Allied Council should be respon-
sible for the early establishment of such nation-
wide administrative and judicial machinery as
may be required to facilitate the uniform execution
of its policy throughout Austria, to ensure free-
dom of transit and communication to and between
the separate zones of occupation, and to lay the
foundation for the restoration of an Austrian na-
tional administrative system. Administrative offi-
cials with powers extending throughout Austria
should be appointed only by or under the authority
of the Allied Council.
b. The formal abrogation of the Anschluss (Act
of March 13, 1938) will not be considered as re-
establishing the legal and constitutional system of
Austria as it existed prior to that event. Such
portions of earlier Austrian legislation or of Keich
legislation relating to Austria may be retained or
restored to force as is deemed appropriate for the
purposes of military government and the reconsti-
tution of Austria on a democratic basis. In so far
as it may prove desirable to utilize constitutional
laws for Austrian administration, suitable provi-
sions of the Austrian Constitution of 1920, as
amended in 1925 and 1929, should be applied.
c. You will assure the severance of all connec-
tions between regional (Gau) and local agencies
on the one hand and Reich administrative agencies
on the other, and will reconstitute Austrian Pro-
vincial (Land) and local administration at the
earliest possible moment. You may utilize such
agencies of the present regional and local adminis-
trations as may be deemed useful.
13. Restoration of Regional and Local Self-Govern-
ment :
As a member of the Allied Council, you will
urge the restoration of regional and local self-
govei-nment throughout Austria at the earliest pos-
sible moment. In the absence of agi-eement, you
will facilitate the holding of elections to local and
regional public office within your zone. If prior
to or during occupation, local and regional popu-
lar councils or similar organs appear, they may
666
DEPARTMENT OF STATE BULLETIN
be granted temporary recognition pending ap-
proval by the Allied Council and be utilized in
administration in the event that they possess pojju-
lar support and are free from Nazi or Fascist
sympathizers and affiliations.
14. Establishment of Independent Austrian Gov-
ernment :
The Allied Council should, and in your zone you
will, make it clear to the Austrian people that the
Allied Powers do not intend through military
government to appoint or establish a national gov-
ernment for Austria but will aid the Austrian
people themselves to prepare for the election of a
national assembly by democratic means. The Aus-
trian people will be free to determine their own
form of government provided the new regime be
democratic in character and assume appropriate
internal and international responsibilities and
obligations.
15. Political Activity and Civil Rights:
a. At the earliest possible moment you will per-
mit such political activity and organization by
democratic groups as neither threatens military
security nor presents substantial danger of public
disorder nor engenders suspicion and disunity
among the United Nations.
h. You will prohibit the propagation in any
form of Nazi, Fascists, militaristic, and pan-Ger-
man doctrines.
c. To the extent that military interests are not
prejudiced and subject to the provisions of the
two preceding subparagraphs and paragraph 16,
you will permit freedom of speech, assembly, press,
association, and religious worship.
d. For purposes of military government you
may consider as Austrian citizens all persons who
held Austrian citizenship on or before March 13,
1938, or who would have automatically acquired
citizenship by operation of the law of Austria in
force on March 13, 1938. The acts of July 30,
1925 and August 16, 1933 should not be considered
as depriving of citizenship Austrians who have
entered the service of foreign states or who have
taken up arms against the Reich since 1938. Ger-
man laws purporting to affect Austrian citizenship
should be ignored.
16. Public relations and Control of Public Informa-
tion :
As a member of the Allied Council you will
endeavor to obtain agreement for uniform or coor-
dinated policies with respect to (a) control of pub-
lic information media in Austria, (b) accredit-
ing of foreign correspondents, (c) press censor-
ship, and (d) issuance of official news commimi-
ques dealing with matters within the jurisdiction
of the Allied Council. United States policies in
these matters will be sent to you separately and
you will be guided by these in your negotiations in
the Allied Council.
17. Education:
a. You will initially close all schools and uni-
versities except those previously re-established by
Allied autliority. The closure of Nazi educational
institutions, such as Adolf Hitler Schulen, Napolas
and Ordensburgen, and of Nazi organizations
within other educational institutions, will be per-
manent.
b. A coordinated system of control over Aus-
trian education and an affii'mative program of re-
orientation will be established designed completely
to eliminate Nazi, Fascists and militaristic doc-
trines and to encourage the development of demo-
cratic ideas.
c. You will permit the reopening of elementary
(Volksschulen), middle (Hauptschulen), and
vocational (Berufsschulen) schools at the earliest
possible date after Nazi and other objectionable
personnel has been eliminated. Textbooks and
curricula which are not free of Nazi, Fascists and
militaristic doctrines shall not be used. The Allied
Council should assure that programs are devised
for the early reopening of secondary schools, uni-
vei-sities and other institutions of higher learning.
After Nazi and other objectionable personnel and
features have been eliminated and jjending the
formulation of such programs by the Allied Coun-
cil, you may formulate and put into effect an in-
terim progi'am within your zone and, in any case,
you will encourage the reopening of such institu-
tions and departments which offer training which
you consider immediately essential or useful in the
administration of military government and the
purposes of the occupation.
d. It is not intended that the military govern-'
ment will intervene in questions concerning de-
nominational control of Austrian schools, or in
religious instruction in Austrian schools, except
in so far as may be necessary to ensure that relig-
ious instruction and administration of such schools
conform to such Allied regulations as are or may
be establislied pertaining to jjurging of personnel
and curricula.
OCTOBER 28, 1945
667
18. Religious Affairs:
a. The Allied Council should leave to the Aus-
trian churchmen of the respective faiths the revi-
sion of the constitutions, rituals or internal rela-
tionships of purely ecclesiastical bodies.
b. You will protect freedom of religious belief
and worship.
c. You will refrain from intervening in matters
concerning religious instruction in schools, the
establishment or continuation of denominational
schools and the re-establishment of ecclesiastical
control of any publicly supported schools.
d. You will take necessary measures to protect
churches, shrines, church schools, and other ec-
clesiastical property from damage and from any
treatment which lacks respect for their religious
character.
e. You may permit religious bodies to conduct
appropriate youth, sport, and welfare activities
and to receive contributions for such purposes.
/. Subject to the provisions of paragraph 15,
you will permit the establishment or revival of
religious periodicals and the publication of other
religious literature.
19. Treatment of Displaced Persons and Refugees
in Austria:
a. Subject to any international agreements and
to the agreed policies of the Allied Council, you
will undertake the repatriation, return to former
residence or resettlement of displaced persons who
are (1) nationals of the United Nations and of
neutral states, (2) stateless persons, (3) nationals
of enemy or former enemy countries who have been
persecuted by the enemy for reasons of race, na-
tionality, creed or political opinion, (4) nationals
of Italy, as rapidly as military considerations and
arrangements with their respective governments
permit. Due consideration will be given to the
wishes of the individuals involved, and preference
will be accorded to nationals of the United Nations
and persons freed from concentration camps or
other j^laces of detention.
b. You will establish or maintain centers for the
assembly and repatriation, resettlement or return
of the foregoing displaced persons. Subject to the
general control and responsibility of military gov-
ernment, existing Austrian agencies will be re-
quired to maintain essential supply and other
services for them, including adequate food, shel-
ter, clotliing and medical care.
671572 — 45 3
c. Subject to your general control, you will hold
existing Austrian agencies responsible for the care
and disposition of refugees and those displaced
persons who are nationals of Germany or former
enemy countries not otherwise provided herein.
You will facilitate their repatriation or return,
subject to whatever control you may deem neces-
sary, as rapidly as military considerations and
ajjpropriate arrangements with authorities in
their respective home countries permit.
d. Subject to agreed policies of the Allied Coun-
cil, you will determine the extent to which
UNRRA, the Inter-Governmental Conmiittee on
Refugees, or other civilian agencies will partici-
pate in handling displaced pei-sons and refugees.
e. You will accord liaison on matters connected
with displaced persons to representatives of each
of the other Occupying Powers accredited there-
for by their respective Commander in Chief and
to representatives of any of the United Nations
and neutral states and of Italy accredited therefor
by the Allied Council or other competent author-
ity. You will arrange for such representatives to
have access to displaced persons who are nationals
of their countries and are authorized to permit
them to use the facilities of their governments
for pur^joses of repatriation.
/. The term "displaced persons" includes (1)
non-Austrian civilian nationals who have been
obliged to leave their own countries or to remain
in Austria by reason of the war, (2) stateless per-
sons, and (3) persons who have been persecuted
by the enemy for reasons of race, nationality, creed
or political ojiinion. The term "refugees" includes
Austrian civilian nationals within Austria who
are temporarily homeless because of military oper-
ations, or are residing at some distance from their
homes for reasons related to the war.
20. Return of Austrian Civilians to Austria:
In accordance with military considerations and
appropriate arrangements with authorities in
sending countries, you will cooperate in rapid
repatriation of Austrian civilian nationals out-
side Austria, exclusive of active Nazis and persons
suspected of having committed war crimes or held
for other reasons.
21. The Removal of German Officials and Civilians
from Austria:
a. All German officials, members of the Nazi
Party who were German nationals prior to March
668
DEPARTMENT OF STATE BULLETIN
13, 1938, Germans who entered Austria after that
date and other Germans directly connected with
the Nazi exploitation of Austria, except those
whom it may be desirable to hold for security or
other reasons, should be expelled from Austria.
The Allied Council should consult with the Con-
trol Council in Germany regarding the removal
to Germany of such persons. Removal will be ef-
fected at the earliest time consistent with the
availability of transport facilities and with the
prospect of orderly absorption into Germany.
b. Subject to instructions issued by the Allied
Council in accordance with the provisions of the
subparagraph a above, you will in your zone take
all practicable measures to facilitate and expedite
the removal to Germany of all German officials
and of German citizens to be repatriated.
22. Diplomatic and Consular Officials and
Properties:
All diplomatic and consular officials of coun-
tries with which any one of the United Nations
has been at war since December 31, 1937 will be
taken into protective custody and held for further
disposition. The diplomatic and consular prop-
erty and records belonging to such countries or
governments and to their official personnel will be
seized and secured if not found in the custody of
a protecting power.
23. Arts and Archives:
Subject to the provisions of paragraph 5 above,
you will make all reasonable efforts to preserve
historical archives, museums, libraries and works
of art.
PART II
Econoniic
General Econoniic Provisions
24. The Allied Council should ensure the direc-
tion of the Austrian economy in such a way as to
carry out the objectives set forth in paragraph 4 b
of this directive and should establish centralized
control and administration of the Austrian econ-
omy to the extent necessary to achieve the maxi-
mum utilization of Austrian resources and equi-
table distribution of essential goods and services
and to obtain uniformity of policies and opera-
tions throughout Austria.
You will urge the establishment of such cen-
tralized control and administration and, pending
agreement in the Allied Council, you will take
such measures in your own zone as are necessary to
carry out the provisions of this directive.
25. To the maximum extent possible without
jeopardizing the successful execution of measures
required to implement the objectives outlined in
paragraph 4 Z> of this directive, Austrian author-
ities and agencies should be used, subject to such
supervision as is necessary to ensure that they
carry out their task. For this purpose appropri-
ate authority should be given to Austrian agencies
and administrative services, subject to strict ob-
servance of the provisions of this directive regard-
ing denazification and dissolution or prohibition
of Nazi and Fascist organizations, institutions,
principles, features and practices.
2G. You will preserve all significant records
pertaining to important economic, financial and
research organizations and activities. You will
institute or assure the maintenance of such statis-
tical records and reports as may be necessary to
carry out the objectives of this directive.
27. You will initiate appropriate surveys which
may assist you in achieving the objectives of the
occupation. In particular, you will promptly un-
dertake surveys of supplies, equipment and re-
sources in your zone. You will endeavor to obtain
prompt agreement in the Allied Council to similar
surveys in the other zones of occupation and urge
appropriate steps to coordinate the "methods and
results of these and other future surveys under-
taken in the various zones. You will keep the
Allied Council and your government currently
apprised of the information obtained by means of
intermediate reports or otherwise.
Responsibility for Supplies from U.S. Military
Sources
28. Imports of supplies from U.S. Military
supply sources, for which you will assume respon-
sibility, will be limited to the basic essentials nec-
essary in your zone (a) to avoid disease and un-
rest which might endanger the occupying forces
and (b) for the care of displaced persons. Im-
ports will be undertaken only after maximum utili-
zation of indigenous supplies.
Agriculture, Industry and Internal Commerce
29. You will make maximum use of supplies
and resources available within Austria and you
will require the Austrians to use all means at their
disposal to maximize the production of foodstuffs
and other essential goods and to establish as rap-
idly as possible effective rationing and other ma-
OCTOBER 28, 1945
669
chinery for the distribution thereof. You will
urge upon the Allied Council that uniform ration
scales be applied throughout Austria.
30. The Allied Council should assure to the
maximum possible extent the free movement and
equitable distribution of goods and services
throughout Austria.
31. The Allied Council should facilitate emer-
gency repair and construction for the minimum
housing needs of the civil population and restora-
tion of transportation and communications serv-
ices and public utilities essential to the objectives
outlined in paragraph 4 i.
32. In order to supplement the measures taken
by the Control Council in Germany for the indus-
trial disarmament of Germany and pending final
decision as to the steps necessary in Austria to
eliminate Germany's war potential, you should, in
cooperation with the other zone commanders, take
steps to
a. prevent the production, acquisition and de-
velopment of all arms, ammunition and imple-
ments of war, including all types of aircraft, and
all parts, components and ingredients specially
designed or produced for incorporation therein ;
b. seize and safeguard, pending instructions as
to disposal, all facilities which are specially de-
signed or adapted to the production of the items
mentioned in a and cannot be converted to non-
military production, using in such conversion only
materials and equipment readily available and not
emanating from Germany ;
c. take an inventory of all German-owned plant
and equipment in Austria, and all plant and equip-
ment regardless of ownership erected or expanded
in Austria subsequent to Anschluss, in the follow-
ing industries: iron mining; steel and ferro-
alloys; armaments (including aircraft) ; machin-
ery (including automotive vehicles, agricultural
machinery, locomotives and rolling stock, bearings
and other special components, electrical machinery,
and general industrial equipment) ; electronic
equipment; electric power; non-ferrous metals,
including light metals; rubber and oil, including
synthetic rubber and oil; wood pulp; synthetic
fibers; instruments; optical glass; chemicals (in-
cluding pharmaceuticals and plastics) and photo-
graphic equipment ; in order that the Allied Coun-
cil may determine what portion of it is redundant
to the development of a sound peacetime Austrian
economy and make recommendations to the gov-
ernments of the occupying powers regarding the
treatment of these industries ;
d. prevent large-scale exportation of light
metals pending subsequent instructions on tlie
policy to be followed regarding the Austrian light
metals industry ;
e. prevent the construction of plant capacity for
the production of synthetic oil and rubber; and
establish procedures, in consultation with the
Control Council for Germany, for reviewing any
projected construction of new or expanded capacity
for materials the production of which is prohibited
or limited in Germany as a measure of industrial
disarmament, in order to ensure that such expan-
sion is not for the purpose of evading controls in
Geimany ;
/. close initially all laboratories, research insti-
tutions and similar teclmical organizations except
those considered necessary for the protection of
public liealth and safety, and provide for the main-
tenance and security of physical facilities where
deemed necessary and for the detention of such
personnel as are of interest to technological and
counter-intelligence investigations. After the pro-
visions of paragraphs 5, G, 7 and 8 (e) have been
applied, the reopening of laboratories, research in-
stitutions and similar organizations should be per-
mitted under license and periodic supervision, in
accordance with policies which will be communi-
cated to you.
33. Without prejudice to the possible eventual
transfer of equipment or production on reparation
account in accordance with any Allied agreements
which may be reached, the Allied Council should
facilitate the conversion of industrial facilities to
non-military production. In such conversion it
will be your policy to give priority to the produc-
tion of essential goods and equipment in short
supply.
34. The Allied Council should assure that all
semi-official or quasi-public business and trade or-
ganizations of an authoritarian character are abol-
ished and that any organizations of commerce, in-
dustry, agriculture and handicrafts which the
Austrians may wish to establish are based on demo-
cratic principles.
35. The Allied Council should adopt a policy
prohibiting cartels or other private business ar-
rangements and cartel-like organizations includ-
ing those of public or quasi-public character, such
as the Wirtschaftsgruppen, which provide for the
670
DEPARTMENT OF STATE BULLETIN
regulation of marketing conditions, including pro-
duction, prices, exclusive exchange of technical in-
formation and processes, and allocation of sales
territories. Such necessary public functions as
have been discharged by these organizations
should be absorbed as rapidly as possible by ap-
proved public agencies. Pending agreement in
the Allied Council, you should take no action in
your own zone with regard to this paragraph.
36. The Allied Council should adopt policies de-
signed to prevent or restrain inflation of a char-
acter or dimension which would endanger accom-
plishment of the objectives of the occupation. The
Allied Council in particular, should direct and
empower Austrian authorities to maintain or es-
tablish controls over prices and wages and to take
the fiscal and financial measures necessary to this
end.
Labor, Health and Social Insurance
37. The Allied Council should permit the self-
organization of employees along democratic lines,
subject to such safeguards as may be necessary to
prevent the perpetuation or revival of Nazi, Fascist
or militarist influence under any guise or the con-
tinuation of any group hostile to the objectives
and operations of the occupying forces. The
Allied Council should permit free collective bar-
gaining between employees and employers regard-
ing wages, hours, and working conditions and the
establishment of machinery for the settlement of
industrial disputes. Collective bargaining shall be
within the framework of such wage, hour and other
controls as may be instituted or revived.
38. The Allied Council should permit the reten-
tion or reestablishment of health services and facil-
ities and non-discriminatory systems of social in-
surance and poor relief.
Reparation and Restitution
39. As a member of tlie Allied Council and as
zone commander you will ensure that the programs
of reparation and restitution embodied in Allied
agreements are carried out in so far as they are
applicable in Austria. The Allied Council should
cooperate with the Control Council in Germany
for this purpose. You should urge the Allied
Council to an agreement that, until appropriate
Allied authorities formulate reparation and resti-
tution program for application in Austria,
a. no removals should be permitted on repara-
tion account ; and
b. restitution to other countries should be con-
fined to identifiable looted works of art, books,
archives and other cultural property.
Foreign Trade
40. The Allied Council should take prompt
steps to re-establish Austrian customs autonomy
subject to the provisions of jiaragraph 51 and es-
tablish centralized control over all trade in goods
and services with foreign countries.
41. In the control of foreign trade the objectives
of the Allied Council should be (a) to obtain as
much as possible of Austria's essential irhports
through regular trade; (b) encourage the devel-
opment by Austrians as rapidly as possible of for-
eign markets and sources of supply; and (c) to
promote the orientation of Austrian trade away
from Germany.
The Allied Council should seek to obtain from
sources other than military supply sources any
imports essential to the achievement of the objec-
tives set forth in this directive. Arrangements
may be made with appropriate authorities in Ger-
many for the importation of essential supplies
from Germany, whenever in your judgment such
supplies cannot be readily obtained from other
sources.
The Allied Council should favor the conclusion
of such arrangements for the exchange of Austrian
goods and services with those of foreign countries
including the development of entrepot trade, as
will aid in the revival of the Austrian economy on
a sound basis and will not prejudice the eventual
development of trade on a multilateral basis.
The Allied Council in cooperation with the Aus-
trian authorities, should make a survey of Austrian
foreign exchange resources and of the possibilities
for foreign markets and sources of supply for
Austrian industry and trade to serve as the basis
of a program for the development of a sound econ-
omy. You will communicate to your government
through the Joint Chiefs of Staff the results of
such a survey, together with such recommenda-
tions as you may deem appropriate.
42. The Allied Council should adopt a policy
which would forbid participation of Austrian
firms in international cartels or other restrictive
contracts and arrangements, and should order the
prompt termination of all existing Austrian par-
OCTOBER 28, 1945
671
ticipation in such cartels, contracts and arrange-
ments. Pending agreement in the Allied Council,
you should take no action in your own zone with
regard to this paragraph.
PART III
Financial
General Provisions
43. The Allied Council should adopt, for appli-
cation throughout Austria, uniform financial
measures which are necessary to the accomplish-
ment of the objectives stated in paragraph 4 (6)
of this directive and which are in conformity with
the principles and policies set forth below. You
will urge the establishment of centralized adminis-
tration of such measures to the extent necessary to
achieve these objectives and, pending agreement in
the Allied Council, you will adopt such necessary
measures in your own zone as are in conformity
with the provisions of this directive.
44. In the administration of financial matters
you will follow the principles set forth in para-
graph 25 of this directive.
45. You will maintain such accounts and rec-
ords as may be necessary to reflect the financial
operations of the military government in your
zone, and you will provide the Allied Council with
such information as it may require, including in-
formation in connection with the use of currency
by your forces, any governmental settlements,
occupation costs, and other expenditures arising
out of operations or activities involving partici-
pation of your forces.
46. You will take measures to safeguard books
and records of all public and private banks and
other financial institutions.
47. Subject to any agreed policies of the Allied
Council, you are authorized to take the following
steps :
a. to prohibit, or to prescribe I'egulations re-
garding transfers or other dealings in private or
public securities or real estate or other property ;
i. to close banks, insurance companies and
other financial institutions for a period long
enough for you to introduce satisfactory control,
to ascertain their cash position, to apply the pro-
visions of paragraphs 5, 6, 7 and 8 (c) of this di-
rective, and to issue instructions for the determi-
nation of accounts and assets to be blocked under
paragraph 55 below ;
c. to close stock and commodity exchanges and
similar institutions for such periods as you deem
appropriate and apply the provisions of para-
graphs 5, 6, 7 and 8 (c) of this directive;
d. to establish a general or limited moratorium,
or moratoria, to the extent necessary to carry out
the objectives stated in this directive. In particu-
lar, it may prove desirable to prevent foreclosures
of mortgages and the exercise of similar remedies
by creditors against individuals and small busi-
ness enterprises ;
e. to issue regulations prescribing the purposes
for which credit may be extended and the terms
and conditions governing the extension of credit ;
/. to put into effect such further financial meas-
ures as you deem necessary to accomplish the pur-
poses stated in this directive.
48. The Allied Council should designate a suit-
able bank, preferably the former Vienna Branch
of the Reichsbank, to perform under its direction
central banking functions. Simultaneously, all
connections between such designated bank and in-
stitutions or persons in Germany should be sev-
ered in accordance with paragraph 57 of this di-
rective. When satisfied that this bank is under
adequate control, the Allied Council may, by en-
suring that credits are made available only in
schillings through the zone commanders or au-
thorized issuing banks or agencies, place such
bank in a position to finance other banks or other
financial institutions for the conduct of approved
business.
Pending the designation of such a bank by the
Allied Council, you may designate a bank in your
zone to perform similar functions under your
direct control and supervision and subject to the
conditions specified above.
In an emergency you are also authorized to make
direct advances, in schillings only, to other finan-
cial institutions.
Currency
49. The Allied Council should regulate and
control the issue and volume of currency in Austria
in accordance with the following provisions :
a. United States forces and other Allied forces
within Austria will use only Allied military schil-
lings for pay of troops and other military require-
ments. Allied military schillings will be declared
legal tender in Austria. As long as Reichsmarks
are legal tender in Austria, Allied military schil-
612
DEPARTMENT OF STATE BULLETIN
lings will circulate in Austria interchangeably
with Reichsniarks at a rate of one Allied military
schilling for one Reichsmark. Reichskreditkassen-
scheine and other military currency issued by the
Germans will not be legal tender in Austria ;
6. without authorization by the Allied Council,
no Austrian governmental or private banks or
agencies will be permitted to issue banknotes or
currency ;
c. appropriate Austrian authorities should, to
the maximum extent possible, be required by the
Allied Council to make funds available free of
cost in amounts sufficient to meet all expenses of
the forces of occupation, including the cost of
Allied military government, the pay of Allied
military personnel, and to the extent that compen-
sation is made therefor the cost of such private
property as may be requisitioned, seized, or other-
wise acquired by Allied authorities for reparation
or restitution purposes;
d. as soon as administratively practicable, a
general conversion into Allied Military schillings
of the Reichsmark and Rentenmark currency cir-
culated in Austria should be undertaken by the
Allied Council or by you in coordination with the
other zone commanders.
You will receive separate instructions relative
to the currency which you will use in the event that
for any reason adequate supplies of Allied Military
schillings are not available.
You will not announce or establish, until re-
ceipt of further instructions, any general rate of
exchange between the Allied Militarj' schilling on
the one hand and the U.S. dollar and other cur-
rencies on the other. However, the rate of
exchange to be used exclusively for pay of troops
and military accounting purjjoses will be ten
Allied Military schillings for one U.S. dollar.
Public Finance
50. Subject to any agreed policies of the Allied
Council, you will take such action as may be nec-
essary to insure tliat all laws and practices relat-
ing to taxation or other fields of finance, which
discriminate for or against any persons because of
race, nationality, creed or political opinion, will
be amended, suspended or abrogated to the extent
necessary to eliminate such discrimination. Con-
sistent with the foregoing purpose, the Austrian
authorities should be required to take such action
in the field of taxation as is necessary to assure an
adequate inflow of revenues. Any public revenue
in Austria previously collected by the German
government may be used for approved public
expenditures.
61. Pending the determination of the long-
range Austrian customs and trade policy, the Aus-
trian authorities may impose duties on imports for
revenue purposes. Duties for other purposes
should only be imposed with the approval of the
Allied Council. No duties will be imposed on im-
ports for military account or for the account of
such relief agencies as may be designated.
52. Subject to any agreed policies of the Allied
Council, you will prohibit :
a. the payment to ex-soldiers of all military
pensions, or other emoluments or benefits, except
compensation for physical disability limiting the
recipient's ability to work at rates which are no
higher than the lowest of those for comparable
physical disability arising from non-military
causes ;
b. the payment of all public or private pensions
or other emoluments or benefits granted or con-
ferred
(1) by reason of membership in or services
to the former Nazi party, its formations, affili-
ated associations or supervised organizations or
any pre-Nazi Fascist organizations, such as the
Heimwehr and the Ostmarkische Sturnscharen ;
(2) to any person who has been removed
from an office or position in accordance with
paragraphs 5, 6 and 8 (c) ; and
(3) to any person arrested and detained in
accordance with paragraph 7 during the term of
his arrest, or permanently, in case of his subse-
quent conviction.
53. The Allied Council should exercise general
control and supervision over the expenditures of
public funds to the extent necessary to achieve the
purposes of the occupation.
54. The Allied Council should promptly initiate
a survey for the purpose of ascertaining (a) the
amount of the German government debt held in
Austria, (b) the amount of all outstanding internal
public debts in Austria, and (c) the fiscal position
of Austria. You will promptly submit recommen-
dations concerning the treatment of these debts,
taking into consideration the effect on Austrian
public credit of policies on this matter.
OCTOBER 28, 1945
673
Property Control
55. Subject to any agreed policies of the Allied
Council, you will impound or block all gold, silver,
currencies, securities accounts in financial institu-
tions, credits, valuable papers, and all other assets
falling within the following categories:
a. Property owned or controlled, directly or in-
directly, in whole or in part, by any of the follow-
ing:
(1) the governments, nationals or residents
of the German Reich, Italy, Bulgaria, Rumania,
Hungary, Finland and Japan, including those
of territories occupied by them ;
(2) the Austrian State, the municipal and
provincial government and all governmental au-
thorities within Austria, including their agen-
cies and instrumentalities;
(3) the Nazi party, its formations, affiliated
associations and supervised organizations, its
officials, leading members and supporters;
(4) all organizations, clubs or other associa-
tions prohibited or dissolved by military gov-
ernment ;
(5) absentee owners, including United Na-
tions and neutral governments;
(6) any institution dedicated to public wor-
ship, charity education or the arts and sciences,
which has been used by the Nazi party to further
its interests or to cloak its activities;
(7) persons subject to arrest under the pro-
visions of paragraph 7, and all other persons
specified by military government by inclusion
in lists or otherwise ;
b. Property which has been the subject of trans-
fer under duress, or wrongful acts of confiscation,
disposition or spoliation, whether pursuant to
legislation or by procedures purporting to follow
forms of law or otherwise ;
c. Works of art or cultural material of value or
importance, regardless of the ownership thereof.
You will take such action as will ensure that any
impounded or blocked assets will be dealt with
only as permitted under licenses or other instruc-
tions which you may issue. In the case partic-
ularly of projaerty blocked under a (2) above, you
will proceed to adopt licensing measures which,
while maintaining such property imder surveil-
lance, would permit its use in consonance with this
directive. Property taken from Austrians under
the conditions stated in b above should be restored
as promptly as possible, subject to appropriate
safeguards to prevent the cloaking of Nazi, Ger-
man or militaristic influence.
The Allied Coimcil should seek out and reduce
to the possession and control of a special agency
all property interests of any type and description
owned either directly or indirectly by Germany or
a national or a resident thereof.
External Financial and Property Relations
56. All foreign exchange transactions, including
those arising out of exports and imports, shall be
controlled for the purpose of achieving the objec-
tives set forth in this directive. To effectuate such
objectives the Allied Council should
a. seek out and reduce to the possession and
control of a special agency all Austrian (public
and private) foreign exchange and external assets
of every kind and description located within or
outside Austria;
i. prohibit, except as authorized by regulation
or license, all dealings in gold, silver, foreign ex-
change, and all foreign exchange transactions of
any kind ;
c. make available any foreign exchange proceeds
of exports for payment of imports necessary to the
accomplislmient of the objectives set forth in this
directive and authorize no other outlay of foreign
exchange assets except for purposes approved by
the Allied Council or other appropriate authority ;
d. establish effective controls with respect to all
foreign exchange transactions, including :
(1) transactions as to property between
persons inside Austria and persons outside
Austria ;
(2) transactions involving obligations
owed by or to become due from any person in
Austria to any person outside Austria; and
(3) transactions involving the importation
or exportation from Austria of any currency,
foreign exchange asset or other form of
property.
57. The Allied Council should, in cooperation
with the Control Council in Germany, take steps
necessary to sever aU managerial and other organi-
zational connections of banks, including postal
banking offices, and all other business enterprises
located in Austria with banks and business enter-
prises or persons located in Germany.
674
DEPARTMENT OF STATE BULLETIN
Canadian-American Cooperation
in War and Peace, 1940-1945
BY ELIZABETH H. ARMSTRONG'
T
I HE COOPERATION between
the United States and
Canada which took so
close a form in the course
of the recent war is based on a long history of in-
creasingly friendly relations between the two
countries, as well as on a common language and a
common way of life. Relations between Canada
and the United States before World War II were
based less on common institutions than on the con-
stant interchange of population, tourists, books,
movies, across an unguarded and ever peaceful
frontier. Perhaps the best pre-war example of
joint institutions was the International Joint Com-
mission, established in 1909, primarily to prevent
disputes regarding the use of boundary waters but
also to settle all questions pending between the
United States and Canada involving the "rights,
obligations or interests of either along their com-
mon frontier and to make provisions for the ad-
justment and settlement of all questions." In the
course of its existence the International Joint
Commission has disposed of a number of prob-
lems, largely concerned with boundary waters,
which might have caused untold delays and con-
siderable friction.
In the course of the last few decades, Canada,
while remaining loyal to its heritage of British
tradition, has become more and more North Amer-
ican in its general outlook and in the orientation of
its foi'eign policy, which, nevertheless, emphasizes
world rather than regional approaches. How in-
terdependent the basic defense interests of Canada
and the United States had become in the years
immediately preceding World War II was clearly
revealed by President Roosevelt's speech at Kings-
ton in 1938 when he said that "the people of the
United States will not stand idly by if domination
of Canadian soil is threatened by any other em-
pire". This famous statement found an echo in
the minds and hearts of both Canadians and
Americans that foretold the even closer coopera-
tion that the war years were to bring about.
Wartime cooperation between Canada and the
United States arose from the desperate situation
facing the world in 1940 when German power had
swept through western Europe to the very shores
of the Atlantic. It was based on the urgent neces-
sity shared by Canada and the United States for
curbing the aggression of the Axis powers and
concerting plans for the defense of the northern
part of this hemisphere.
Military Cooperation
Canadian-Ajnei'ican military cooperation was
based upon the Ogdensburg agreement of August
18, 1940, between President Roosevelt and Prime
Minister King, which provided that a Permanent
Joint Board of Defense should be set up at once.
The Board was to consider in a broad sense the
defense of the northern half of the Western Hemi-
sphere and to commence immediate studies relat-
ing to sea, land, and air problems including
personnel and material. The most significant
thing about the creation of this Joint Defense
Board lay in the fact that it was clearly intended
that its functions should extend beyond immediate
wartime needs and should constitute the perma-
nent advisory instrument for planning the de-
fense of both the United States and Canada in the
post-war period.
Owing to security restrictions little has been
published of the work of the Joint Defense Board
in the five years that it has existed. Nevertheless,
it is well known that the Board has been at the
' Miss Armstrong is Assistant in tlie Division of Inter-
national Organization Affairs, Office of Special Political
Afifairs, Department of State.
OCTOBER 28, 1945
675
very core of the joint measures taken for the de-
fense of this continent against German and Japa-
nese aggression. The close and friendly relation-
ship of its members, one with the other, constitutes
a happy demonstration of the ease with which
Canadians and Americans work together and is
an excellent augury for the future cooperation of
the two peoples.
Even before the United States entered the war,
joint Canadian-American measures were taken for
the defense of the northeastern approaches to the
North American Continent. After Pearl Harbor
a policy of the closest cooperation between all the
armed services of Canada and the United States
was initiated. Soon after our entry into the war
the United States and Royal Canadian navies be-
gan to cooperate in the patrol of the North At-
lantic sea lanes and in the escorts provided for
the convoy service to British ports. These meas-
ures were especially helpful during the summer of
1942 when the submarine menace to North Ameri-
can shores was at its height.
In the course of 1942 a Canadian Joint Staff
mission was set up in Washington for the purpose
of coordinating Canada's war effort with that of
the United States and of the other Allies. A train-
ing scheme for a joint special service force was
established in which Canadian soldiers were
teamed with American troops. Canadian and
American forces served jointly in Newfoundland,
Iceland, and Alaska, while units of the Royal
Canadian Air Force flew together with American
air units in both Alaska and the Aleutians. Ca-
nadian troops also took an active part in the oper-
ations leading to the occupation of Kiska in the
Aleutians in 1943. In the final phase of the war
against Japan, a Canadian army force of 30,000
men, equipped with United States weapons so as
to minimize supply problems, was being prepared
to fight as an integral part of the United States
armies. Canadian Navy and Air Force con-
tingents, while operating with their British com-
rades, would have been for the most part under an
American supreme commander.
The construction of the Alaska Highway, which
had been envisioned by President Roosevelt and
others as early as 1937, was one of the outstanding
examples of Canadian- American wartime coopera-
' ExECTjTivE Agreement Series 246.
'BmxETiN of Apr. 26, 1941, p. 494.
tion. The extension of communication facilities in
the Pacific northwest, the expansion of the North-
west Air Staging Route, and the extension of
meteorological service in that area were the natu-
ral accompaniment of the building of this great
strategic road.
The agreements signed by Canada and the
United States on March 17 and 18, 1942 provided
for the construction of a highway along a route
following the general line of airports, Fort St.
John - Fort Nelson - "Watson Lake - Wliitehorse -
Boundary - Big Delta.= The United States under-
took to build the highway, to make the necessary
surveys, and to provide for road maintenance until
the termination of the war and six months there-
after, unless Canada should prefer to resume re-
sponsibility at an earlier date. It was further
agreed that at the end of the war the Canadian
part of the highway should revert to Canadian
ownership and should become an integral part of
the Canadian highway .system, subject to the
understanding that at no time should any discrim-
inatory conditions in relation to the use of the road
as between Canadian and United States civilian
traffic be imposed.
The construction of the Alaska or Alcan High-
way, beset as it was with engineering and other
difficulties, nevertheless served a great purpose in
providing a practical demonstration to the peoples
of both Canada and the United States that they
had a joint responsibility for the defense of the
great Pacific northwest and that in happier days
they might share a prosperous future in this area.
Economic Cooperation
The chief measures taken for economic coopera-
tion between Canada and the United States grew
out of the Hyde Park declaration made by Presi-
dent Roosevelt and Prime Minister King on April
20, 1941.^ Its underlying cause was the necessity
for obtaining sufficient American exchange for
Canada, together with the desire to avoid a dupli-
cation of productive effort and provide a coordina-
tion of the economic facilities of Canada and the
United States. The principle was laid down that
each country was to provide the other with those
defense articles which it was best able to produce
so that the most prompt and effective utilization
of North American productive facilities could be
procured not only for local and hemisphere de-
671572—45
676
DEPARTMENT OF STATE BULLETIN
fense but also for aid to the United Kingdom and
the other democracies. The United States under-
took to buy enough Canadian war products to allow
Canada in turn to pay for essential war materials
from the United States. The Hyde Park declara-
tion has been rightly called an extension of Ogdens-
burg * into the economic field.
In May 1941, sliortly after the Hyde Park dec-
laration, a Material Coordinating Committee, con-
sisting of members of the Office of Production
Management and their counterparts in the Ca-
nadian AVartime Industries Board, was set up to
collect and exchange information on raw mate-
rial supplies in both countries and to consider their
maximum utilization for hemisphere defense.
The Material Coordinating Committee also served
as the Canadian link M'ith the Combined Raw
Materials Board on which Canada was not directly
represented, although it was a member of the Com-
bined Production and Resources Board as well as
of the Combined Food Board.* A month later,
in June 1941, the joint economic committees were
established to consider the possibilities of effecting
an efficient, economical, and coordinated use of
combined resources and a reduction of probable
post-war economic dislocation.
A Joint War Production Committee was set
up in November 1941 to provide arrangements for
uniform specifications, quick exchange of supplies,
and the break-up of transportation bottlenecks.
In March 1943 a Joint Agricultural Committee
was established to review continuously Canadian-
American food production and distribution and
to further developments which might be of help
in wartime agricultural and food problems.
Later, at the 1943 Quebec conference, a Joint
Canadian-American War Aid Committee was
formed by President Roosevelt and Prime Minister
King. It was to study problems arising out of the
operations of Lend-Lease and Mutual Aid pro-
grams and to make recommendations concerning
them.
In addition to the excellent work of coordina-
tion accomplished by the joint Canadian-Ameri-
can committees, a good deal of practical coopera-
tion was achieved through the simplification of
border barriers (some of which however still
exist) and the close contact between control officers
of both countries. The War Production Board,
for instance, worked out a program by which
priorities for critical materials were allotted to
Canadian war industry on the same basis as to
American. The result was a very substantial de-
gree of integration of industry in the two countries
for war production purposes.
Political Cooperation
The political cooperation which existed between
Canada and the United States during the years of
World War II, to a hitherto unprecedented degree,
in no way implied that any formal alliance had
been established between the two countries. The
wartime cooperation of the two North American
countries, however, did involve the pooling of
resources, of materials, and even of high policy in
the interests (1) of hemisphere defense and (2)
after December 7, 1941, of winning the war. But
it remained clearly understood by the two govern-
ments and indeed by the Canadian and American
peoples that, although they were in this desperate
fight together and were willing to give each other
everything that was needed to bring it to a suc-
cessful conclusion, there was no question at all of
any hard and fast arrangements. In the larger
sense, there was no necessity for any clearer defi-
nition of the relations between Canada and the
United States in wartime. The governments and
the peoples understood each other and were con-
tent in their mutual wartime cooperation, which
they felt in no way conflicted with their own par-
ticular and basic loyalties.
Canadian-American Relations at International Con-
ferences
During the latter years of the recent war Canada
took a prominent part in a number of conferences
held in this country. In all of them the policies of
the Canadian delegations were not far apart from
those of the representatives of the United States,
and an atmosjDhere of cordial cooperation existed
between representatives of the two countries.
Canada took a prominent part in the Food Con-
ference held at Hot Springs, Virginia, in 1943,
and Mr. L. B. Pearson, Minister Counselor of the
Canadian Embassy in Washington (now Canadian
Ambassador), was chosen to be Chairman of the
Interim Food Commission. Canada played an
equally vital role at the UNRRA Conference held
at Atlantic City in 1943 and at the International
Labor Office Conference at Philadelphia in the fol-
* For article on the Combined Boards, by Courtney
Brown, see Bulletin of July 1, 1945, p. 17.
OCTOBER 28, 1945
677
lowing year, in each case sending delegates of
cabinet rank. The Canadian Government pro-
duced a carefully thought out plan for financial
and monetary reform which its delegation pre-
sented to the Bretton Woods conference held in the
summer of 1944. Canada also presented a plan of
its own for the international control of civil avia-
tion to the Chicago conference in the same year.
Canadian- American Relations and the Proposed
International Organization
Canada, always interested in the principle of
collective security during its membership in the
League of Nations, throughout World War II
expressed hope for the post-war creation of a bet-
ter international organization than the League had
proved to be. Even before the Dumbarton Oaks
Conversations, Canadian public opinion had be-
gun to favor a strong post-war international
organization, and considerable interest was
aroused in favor of a world police force.
At the conclusion of the Dumbarton Oaks Con-
versations, when the governments of the United
Nations were asked to express their comments in
view of the proposed San Francisco conference,
the Canadian Government expressed certain ob-
jections based on the consciousness of Canada's
position as an important secondary or middle
power and the feeling that this position should be
recognized in view of Canada's high military and
industrial potential as compared with other small
nations.
In explanation of Canada's "middle power" pol-
icy it should be said that one of the most striking
phenomena of the present war has been the growth
of Canadian national feeling. It is largely based
on pride in the splendid achievements of Canada
in the industrial and agricultural, as well as in the
military field. Canada, a country of less than
12,000,000 people, raised an army of well over
three quarters of a million men, an air force of
almost 200,000, and a navy that from tiny begin-
nings finally totaled over 90,000 men and 500 ships.
Canada's industrial potential increased so rapidly
in the course of the war that she became the fourth
largest industrial country among the United Na-
tions. All this military and economic war effort
was expended m the closest cooperation with the
United States. In addition, Canadian scientists
were engaged in atomic research in close collabora-
tion with their American and British colleagues.
The Canadians regarded two revisions of the
Dumbarton Oaks Proposals as of fimdamental
importance to them : (1) that secondary powers be
represented as such on the Security Council and
(2) that decisions of the Security Council be bind-
ing only on the members thereof and that some
machinery be devised for other powers to be heard
before being committed.
In a speech made on March 19, 1945, Prime
Minister Bang made it clear that the Canadian
delegation at San Francisco would be instructed
to work toward the following objectives: (1)
recognition of the relative standing of secondary
states; (2) the clarification of the position on the
enforcement of diplomatic, military, and economic
sanctions; and (3) the definition of the relations
between the Security Council and any interna-
tional authority set up to supervise long-term
measures of control for enemy territory.
The Canadian delegation at San Francisco did
an excellent job in interpreting Canada's desire for
the recognition of the importance of middle
powers and for some representation of such powers
when matters affecting their essential interests
were discussed by the Security Council. With
quiet and tactful determination the Canadian
delegation pursued its policy and was rewarded by
a somewhat modified, but none the less important,
recognition of the princii^le involved.
To those who observed the Canadian delega-
tion at San Francisco it was notable that although
the delegates never deviated from representation
of their own country's interests, in so doing they
inevitably played an important role in helping to
place North American viewpoints before the other
delegations.
Canada's Commonwealth Relations vis-a-vis Its
Relations to the United States
There can be little doubt that Canada, the
senior dominion of the British Commonwealth,
in spite of its deejj and traditional loyalty to the
mother comitry, today is well aware that its rela-
tions with the United States constitute the most
important factor in its foreign jDolicy. More than
ever before and largely as a result of the recent
war, Canadians, both English- and French-speak-
ing, have realized that theirs is a North American
country whose future peace and prosperity is in-
61B
dissolubly linked with that of the United States.
This, however, in no way implies that Canada will
not always remain deeply attached to Great
Britain. But today as never before Canadians
are masters of their own destiny, for the recent
war made them an industrial and military power
in their own right.
Throughout the war, with its intimate linking
of Canada and the United States for a myriad
of war purposes, there has been no thought what-
ever on the jDart of any responsible American of-
ficial of any desire to interfere in Canada's rela-
tion to the United Kingdom. Canadians, for their
part, are more aware than any others of the pro-
found changes that have occurred in American
political thought on organization for peace since
the refusal of the United States to take its place
in the League of Nations little more than a quarter
of a centur}' ago. It may be assumed that this is
deepl}' welcome to Canada as is any develojiment
which tends to bring about a closer identity of
viewpoint between the United States and the na-
tions of the British Commonwealth, including,
most especially, the United Kingdom.
It is a heartening fact that the close cooperation
of the Canadian and American peoples and gov-
ernments is based not only on mere geograjihical
contiguity but also on a common approach to
similar problems and on common necessities. The
close association of World War II has proved once
and for all that the two countries can be a military
and industrial unit without in any way impairing
the separate political entity of its component parts
based on separate long-standing traditions.
Canadians and Americans often speak, think,
and act alike. But each nationality prefers its
own land, its own tradition, and its own particular
way of doing things. Canadian-American rela-
tions today are an example of mutual tolerance
and understanding between nations. Canadians
no longer are concerned, as they were throughout
the nineteenth century, lest their country be swal-
lowed up by the United States; nor do Americans
speak any more of the inevitability of annexation.
A common experience in M-ar and peace has at last
brouglit both countries to an appreciation one of
the other and of the particular gifts that each has
to contribute to the common "peace, order and
good government" of this hemisphere and of the
world as a whole.
DEPARTMENT OF STATE BULLETIN
Public Opinion and
Foreign Policy
October 13, 1945
Dear General McCoy:
I am very sorry indeed that I cannot attend the
forum of the Foreign Policy Association to speak
to your members in person. The fine work your
organization has been domg has my complete sup-
port. There is, in my opinion, no more urgent
task before us at this time than the building of an
informed public oj^inion on the problems of for-
eign policy. Without a firm foundation of public
understanding the United States cannot fulfill its
responsibilities or exercise the leadership which
our position as a great democracy demands of us.
The American people are embarking on a new
course of full participation in international affairs,
full cooperation in the solution of the problems of
peace. Not only our humanitarian impulses, but
considerations of self-interest dictate this foreign
policy. We are aware, and we shall become in-
creasingly aware that the road we have taken is
hard. The way of cooperation is laborious and
often discouraging. It will demand of all of us
great j^atience, and more than that, a much clearer
understanding than we have ever had of the prob-
lems of other jjeoples.
Unless we exercise this patience and attain this
understanding, there will be widespread disillu-
sionment and loss of faith in the possibility of an
expanding international collaboration. Such a de-
velopment would jeopardize the future security
and well-being of the American people. There-
fore I urge the Foreign Policy Association and
other public spirited citizen groups to redouble
their efforts at public education in the field of in-
ternational relations.
Your government welcomes this cooperation,
and will do its utmost to make available the facts
and interpretation of policy on wliich an intelli-
gent public opinion must be based.
Very sincerely j'ours,
Harry S. Truman
Major General Frank Eoss McCoy,
President, Foreign Policy Association,
New York, N. Y.
OCTOBER 28. 1945
679
The Charter of the United Nations:
Entry Into Force
[Released to the press on October 24]
The Charter of the United Nations, together
with the Statute of the International Court of
Justice, came into force today, October 24, 1945.
The international Organization to be known as
the United Nations thereby came into being.
A Protocol of Deposit of Ratifications was signed
on October 24 by the Secretary of State. The
Protocol sets forth the fact that the requirements
of the Charter for its coming into force have been
met and lists the ratification instruments or docu-
ments which have been i^laced in the possession of
the Department of State for deposit with the
original of the Charter. Facsimile copies of the
Protocol will be furnished by the Government of
the United States to each of the other governments
signatory to the Charter.
The procedure for bringing the Charter into
force is stated in the Charter itself. Under the
terms of article 110 the deposit of instruments of
ratification by the United States, China, France,
the Soviet Union, the United Kingdom, and a ma-
jority of the other signatory countries is necessary
in order to bring the Charter into force. Inasmuch
as there are fifty-one signatory countries, the mini-
mum niunber of instruments which had to be de-
posited in order to bring the Charter into force was
twenty-nine, provided this number included the
five countries specifically named.
The text of the Protocol of Deposit of Ratifica-
tions signed by the Secretary of State is as fol-
lows:
PROTOCOL OF DEPOSIT OF RATIFICATIONS OF
THE CHARTER OF THE UNITED NATIONS
Whereas, paragraph 3 of Article 110 of the
Charter of the United Nations, signed at San
Francisco on June 26, 1945, provides as follows :
"3. The present Charter shall come into force
upon the deposit of ratifications by the Republic
of China, France, the Union of Soviet Socialist
Republics, the United Kingdom of Great Britain
and Northern Ireland, and the United States of
America, and by a majority of the other signatory
states. A protocol of the ratifications deposited
shall thereupon be drawn up by the Government
of the United States of America which shall com-
municate copies thereof to all the signatory
states.";
Whereas, the Charter of the United Nations
has been signed by the Plenipotentiaries of fifty-
one states ;
Whereas, instruments of ratification of the
Charter of the United Nations have been deposited
by
the Republic of China on September 28, 1945,
France on August 31, 1945,
the Union of Soviet Socialist Republics on
October 24, 1945,
the United Kingdom of Great Britain and
Northern Ireland on October 20, 1945, and
the United States of America on August 8, 1945 ;
and by
Argentina on September 24, 1945,
Brazil on September 21, 1945,
the Byelorussian Soviet Socialist Republic on
October 24, 1945,
Chile on October 11, 1945,
Cuba on October 15, 1945,
Czechoslovakia on October 19, 1945,
Denmark on October 9, 1945,
the Dominican Republic on September 4, 1945,
Egypt on October 22, 1945,
El Salvador on September 26, 1945,
Haiti on September 27, 1945,
Iran on October 16, 1945,
Lebanon on October 15, 1945,
Luxembourg on October 17, 1945,
New Zealand on September 19, 1945,
Nicaragua on September 6, 1945,
Paraguay on October 12, 1945,
the Philippine Commonwealth on October 11,
1945,
Poland on October 24, 1945,
Saudi Arabia on October 18, 1945,
Syria on October 19, 1945,
680
DEPARTMENT OF STATE BULLETIN
Turkey on September 28, 1945,
the Ukrainian Soviet Socialist Republic on
October 24, 1945,
Yugoslavia on October 19, 1945 ;
And whereas, the requirements of paragraph 3
of Article 110 -with respect to the coming into
force of the Charter have been fulfilled by the de-
posit of the aforementioned instruments of ratifi-
cation ;
Now, THEREFORE, I, James F. Byrnes, Secretary
of State of the United States of America, sign this
Protocol in the English language, the original of
which shall be deposited in the archives of the
Government of the United States of America and
copies thereof communicated to all the states sig-
natory of the Charter of the United Nations.
Done at Washington this twenty-fourth day of
October, one thousand nine hundred foi'ty-five.
James F. Byrnes
Seo'etary of State
of the United States of America
STATEMENT BY EDWARD R. STETTINIUS, JR.'
October 24, 1945.
I have just received word that the United
Nations Charter has come into force today. I am,
of course, delighted at the news. I am sure the
American people share with me a strong sense of
the significance of this occasion, and are prepared
to give their full support to the United Nations to
the end that our common aim of building a new
and better world shall be attained.
OCCASION OF SIGNING OF THE PROTOCOL
OF DEPOSIT OF RATIFICATIONS
Statement by the Secretary of State
[Released to the press October 24]
Ladies and Gentlemen : Shortly after 3 o'clock
this afternoon a representative of the Soviet Em-
bassy deposited with the Department the Soviet
(iovernment's instrument of ratification of the
United Nations Charter.
Twenty-nine nations, including the United
States, China, France, the Union of Soviet Social-
ist Republics, and the United Kingdom, have now
deposited their instruments of ratification.
The United Nations Charter is now a part of the
law of nations.
This is a memorable day for the peace-loving
peoi^les of all nations.
As I have fi'equently said, the maintenance of
peace depends not upon any document but upon
what is in the minds and hearts of men. But the
peoples of this earth who yearn for peace must be
organized to maintain that peace. This Charter
provides the organization.
In the days ahead of us we will do our utmost,
in cooperation with the other United Nations, to
keep the peace and promote the well-being of all
peoples.
It is now my happy privilege to sign the Protocol
which, in accordance with article 110 of the United
Nations Charter, will attest to the fact that the
Charter has come into force.
Preparatory Commission of the United Nations
DISCUSSION ON RELATION BETWEEN SPECIALIZED AGENCIES AND THE UNITED NATIONS
[Released to the press by the Preparatory Commission of the
United Nations October 11]
The Executive Committee of the Preparatory
Commission of the United Nations which met this
afternoon at Chur.ch House, Westminster, Mr.
Noel-Baker (United Kingdom) presiding, consid-
ered the first of the series of complete reports
which are now being submitted to the Executive
Committee by its ten working committees. The
' Mr. Stettinius is United States Representati%-o on the
Prepai-atory Commission of tlie United Nations, wliicli is
now meeting in London.
reports of these ten committees will be embodied
in the final report, which will be presented by the
Executive Committee to the Preparatory Commis-
sion, to meet in London on November 8.
The report submitted to the Executive Commit-
tee today was that of Committee 8, which had dis-
cussed the relationship between specialized agen-
cies and the United Nations. The Committee has
made in its report a number of suggestions for
bringing into relationship with the United Na-
tions the various intergovernmental agencies
which have been or may be established to deal
OCTOBER 28, 1945
681
with economic, social, educational, health, and
similar matters. These suggestions implement
the provisions of the Charter which entrust the
United Nations with the responsibility for co-
ordinating the policies and activities of these
agencies, and fm-nish a possible basis for the
agreements to be concluded with them. Among
other things the report suggests methods for finan-
cial and administrative coordination.
As a result of the discussion in the Executive
Committee, several changes were made in the draft
of the report. Among these it was decided that the
phrase used in the report "all important existing
specialized agencies" be replaced by the language
of article 57 of the Charter, which refers to "the
various specialized agencies".
After some discussion the Executive Committee
agi'eed to transmit to the Preparatory Commission
the observations laid before it by Committee 8
regarding the relationship between specialized
agencies and the United Nations. It was further
agreed that it be recorded in the minutes that the
decision was taken on the understanding that the
transmission itself does not mean either approval
or disapproval of these observations, and that tlie
minutes of the Executive Committee meeting
which considered them will also be transmitted to
tlie Preparatory Commission in order to make
clear the views of the various delegations.
This decision was taken by a vote of 10 in favor,
with 2 abstentions and 2 qualified votes.
Certain proposals, submitted by Gladwyn Jebb,
Executive Secretary, concerning the printing and
distribution of the Executive Conunittee's final
report to the Preparatory Commission, were
approved. Copies of both the final report and the
appendixes will be mimeographed in the two work-
ing languages of the Executive Coimnittee (Eng-
lish and French) and dispatched by airmail on
October 20. Subsequently the reports will be
printed in the five official languages (English,
French, Chinese, Kussian, and Spanish). These
printed reports will be available in London on or
about November 1. The Executive Secretary was
authorized to have sufficient copies of the final re-
port for circulation to all delegations to the Pre-
paratory Commission, to the League of Nations
and the specialized agencies, to the press, and so far
as possible to such private national organizations
as may apply.
It was amiomiced that the Union of South
Africa has taken executive action for the rati-
fication of the Charter, which has now been ratified
by a total of 33 states, of which 12 have deposited
the instruments of ratification in Washington.
The next meeting of the Executive Committee
will be held on Friday, October 12, at 10 : 30 a.m.
CONCERNING THE SELECTION OF UNITED
NATIONS HEADQUARTERS
[Released to the press by the Preparatory Commission of the
United Nations October 15]
Wlien the Executive Committee met this morn-
ing, Mr. Noel-Baker (U.K.) presiding, it was
found necessary to reconsider the program of
work. It was originally intended that the Execu-
tive Committee should conclude its work by Thurs-
day, October 18. Certain suggestions to this end
were submitted at the beginning to today's meet-
ing by the Executive Secretary (Gladwyn Jebb).
It was then intimated by M. Roschin, deputizing
for M. Gromyko (U.S.S.R.), that the Soviet Dele-
gation needed further consultation with its gov-
ernment. M. Roschin therefore suggested that the
Executive Committee should suspend its meeting
for two or three days.
Escott Reid (Canada) suggested that time
should be allowed for the drafting and coordina-
tion of the committee reports.
Eventually it was agreed that the next meeting-
be held on Thursday next, when all delegations will
be ready to take final decisions.
The problem of selecting the site for the head-
quarters of the United Nations was brought up by
Mr. Stettinius (U.S.A.). Should the Executive
Committee's decision in favor of the United States
be confirmed by the Preparatory Commission and
the General Assembly, it would be necessary, Mr.
Stettinius said, to take practical stej^s for the selec-
tion of a suitable site. For this purpose a proper
organ of the United Nations should analyze and
assemble the various proposals and then transmit
them in useful form to the Preparatory Com-
mission.
On the suggestion of Wellington Koo (China)
it was agreed that this should be done by Com-
mittee 10.
Mr. Hasluck (Australia), M. Entezam (Iran),
and other delegates pressed for the publication of
the report on the private meeting at which the
question of the location of the headquarters had
682
DEPARTMENT OF STATE BULLETIN
been discussed. It was agreed that the delegations
would be given another two days to insert any cor-
rections they might like to make and that the ver-
batim record would then be made available to the
press.
Mr. Noel-Baker announced that he would be
leaving this country on Thursday and suggested
the election of a new chairman to take his place.
On the proposal of M. Roschin (U.S.S.R.), Mr.
Stettinius was elected chairman.
ACTIONS TAKEN ON COMMITTEE REPORTS
[Released to the press by the Preparatory Commission of the
United Nations October 12]
The Executive Committee of the Preparatory
Commission of the United Nations met this morn-
ing at Church House, Westminster, under the
chairmanship of Mr. P. J. Noel-Baker, Minister of
State. The Committee considered a report sub-
mitted by Committee 9 on the transfer to the
United Nations of the League of Nations' functions
and assets. This report had been adopted in Com-
mittee 9 after 8 delegates had voted in favor, one
against, and one abstention.
The report recommended that the functions and
assets of the League of Nations of a teclinical and
non-political character should be taken over by the
United Nations, subject to certain exceptions and
without prejudice to such action as the United
Nations may subsequently take. It was further
recommended that continuity be maintained in the
work done by the League of Nations on such mat-
ters as economic and health questions and the con-
trol of the drug traffic. The library and archives
of the League of Nations should be taken over.
M. Gromyko (U.S.S.R.) objected to any recom-
mendation which might suggest that all non-politi-
cal functions of the League should be taken over.
There was no strict line of demarcation between
political and economic functions, nor was there
any legal or political connection between the
United Nations and the League. Organs of the
United Nations should decide for themselves which
functions of the League were to be continued.
Mr. Hasluck (Australia) supported the view
that the organs of the United Nations should
themselves decide this question.
Mr. Stettinius (U.S.) felt that the draft, which
had been very carefully prepared, amply met the
Soviet and Australian objections.
Dr. Wellington Koo (China), urging the need
to carry on the technical work of the League,
stated that Japan had reintroduced in the Far
East the traffic in harmful drugs and that urgent
action was necessary. He wished to see the adop-
tion of the report.
A vote was taken, 10 delegations voting in favor
of the adoption of the report, with U.S.S.R. and
Australia voting against and Czechoslovakia and
Yugoslavia abstaining. The Australian Delegate
emphasized that his objection to the report con-
cerned the text only.
The Executive Committee then considered the
report submitted by Committee 5 on the privileges
and immunities to be accorded to officials of the
United Nations and the specialized agencies. The
report recommended that certain diplomatic privi-
leges would be essential to the i^roper discharge of
the officials' duties, but that such privileges should
be strictly limited to officials whose work demanded
them. The projDOsed creation of an international
passport for United Nations' officials should not in
any way infringe upon the sovereign right of
states to demand visas, where necessary, but it
should be imderstood that such visas would be
granted quickly.
The report was adopted with minor modifica-
tions.
The Executive Committee also adopted the cur-
lent progress report on the work of the technical
committees.
The next meeting will be on Monday, October
15, at 10 a.m.
[Released to tlie press by the Preparatory Commission of the
United Nations October 18]
At today's meeting of the Executive Committee,
before the debate on the agenda of the day, Well-
ington Koo (China) raised the problem of select-
ing a specific place within the United States for
setting up the permanent headquarters of the
United Nations. He suggested that Committee 10
should prepare a comparative study based on the
Ijrojwsals which have been received.
M. Gromyko (U.S.S.R.) said that he had under-
stood that the problem was to be discussed not
only by a subcommittee but eventually also by the
Executive Committee and that the Executive Com-
mittee would then make specific recommendations
to the Preparatory Commission.
This view was supported by Mr. Hasluck'
(Australia). On the otlier hand Professor Web-
ster (U.K.) contended that no special resolution
OCTOBER 28, 1945
683
was needed. Mr. Stevenson (U.S.) said that it
would be difficult for the Executive Committee to
make any specific recommendation. Eventually it
was agi-eed to postpone further discussion.
The Executive Committee is now entering its
final stage. Six of its subcommittees have already
completed their reports, and three of them have
been passed by the Executive Committee. The re-
ports passed are those of Committees 5 (Court and
Legal), 8 (Specialized Agencies), and 9 (League
of Nations) ; those ready for consideration are the
reports of Committees 4 (Trusteeship), 3 (Eco-
nomic and Social) and 7 (Finance). It is hoped
that the remaining reports will be finished by Fri-
day night, but there were some doubts expressed
at today's meeting whether it will be possible for
the Executive Conomittee to conclude its work with-
in the time schedule, that is by October 24 at the
latest. All delegates, however, were in favor of
adhering to the dates agreed on for the meeting of
the Preparatory Commission (Novembers) and of
the General Assembly (December 4) .
When today the Executive Committee continued
the discussion of the report of Committee 4 (Trus-
teeship), M. Gromyko (U.S.S.R.) objected to the
creation of a temporary Trusteeship Committee
as suggested by Committee 4. He said that the
Charter did not provide for such a substitute for
the Trusteeship Council, and that confusion would
thereby be created.
Mr. Stevenson (U.S.) said that complete agree-
ment had been reached about the creation of the
Trusteeship Coimcil at the earliest possible
moment. The setting up of a temporary Trustee-
ship Committee was a means to that end.
M. Massigli (France) said that as a result of the
attitude taken up by the Soviet Delegation an
entirely new situation had arisen. It might be
found necessary to examine alternative sugges-
tions.
Professor Webster reminded the Committee
that the report had been unanimously adopted in
the subcommittee and suggested that it be passed ;
objections could be raised in the subsequent debate
before the Preparatory Commission.
The report of Committee 4 was eventually
adopted by 7 votes against 3 (U.S.S.R., Czecho-
slovakia, Yugoslavia) , with 4 abstentions (Mexico,
Chile, Iran, France) .
At the beginning the the meeting Adlai Steven-
son (U.S.) was elected chairman in the place of
Mr. Stettinius, who had to return to the United
States for health reasons.
The next meeting of the Executive Committee
will be held on Friday, October 19, at 10 : 30 a.m.
[Releaeed to the press by the Preparatory CommlBSlon of the
United Nations October 22]
At the meeting of the Executive Committee of
the Preparatory Commission of the United Na-
tions on October 22 M. Gromyko (U.S.S.R.) raised
a number of objections to various committee re-
ports which are now coming up for consideration
before the Executive Committee concludes its
work. After prolonged discussion of the pro-
posed Russian amendments, some of which were
carried, the Executive Committee adopted the re-
port dealing with the Economic and Social Council
but deferred discussion of the committee report
dealing with financial matters. The Executive
Committee then began to consider the report on
the Security Council.
The Executive Committee has so far passed the
final recommendations of five of its ten working
committees, namely those of Committee 3 (Eco-
nomic and Social Council), 4 (Trusteeship), 5
(International Court and Legal Problems), 8
(Specialized Agencies), and 9 (League of Na-
tions). Awaiting approval for eventual submis-
sion to the Preparatory Commission are the re-
IJorts of Committees 1 (General Assembly), 2
(Security Council), 6 (Secretariat), 7 (Financial
Arrangements), and 10 (General).
Presenting the report on the Security Council,
Mr. Blaisdell (U.S.) said that part of the report
had had the unanimous support of all the mem-
bers of Committee 2. Against another part of the
report certain delegations, particularly those of
the Union of Soviet Socialist Republics, Checho-
slovakia, Yugoslavia, and Chile, had reserved their
right to raise questions before the Executive Com-
mittee. The Australian Delegate (Mr. Hasluck)
made reservations concerning the selection of the
President of the Security Council. In his view
the presidency should be held in a personal capac-
ity and should be for an annual term.
Mr. Hasluck also said that he most emphat-
ically disagreed with the interpretation sometimes
given to the position of the Security Council, ac-
cording to which the Executive Committee had
better leave the Security Council alone. In Mr.
Hasluck's opinion this was a most unhealthy tend-
684
DEPARTMENT OF STATE BULLETIN
ency. At the beginning of their work the United
Nations should not be perpetually faced with the
idea that the Security Council was so remote and
exclusive that no suggestion could be made regard-
ing its activities. The Security Council did not
act for itself. It acted for and on behalf of the
whole of the United Nations. No particular
power, Mr. Hasluck continued, had any right to
lift the Security Council out of the Charter or to
set it apart from the other organs of the United
Nations. Mr. Hasluck said that he recognized the
need for a strong Security Council, but he refused
to recognize it as an isolated and supersensitive
body.
The debate was then adjourned until Tuesday,
October 23, 10 a. m.
PROBLEMS RELATING TO
ECONOMIC AND SOCIAL COUNCIL
[Released to the press by the Preparatory Commission of the
United Nations October 19]
The Executive Committee of the Preparatory
Commission of the United Nations discussed on
October 19 problems relating to the creation and
the work of the Economic and Social Council. Mr.
Stevenson (U.S.), in the chair, pointed out that
his Government, considering the need for eco-
nomic and social reconstruction in all parts of the
world, attached the greatest importance to the
preparations for the setting up of the Economic
and Social Council. The relevant report which
was now being considered by the Executive Com-
mittee showed how they could create the ma-
chinery which would enable the Economic and So-
cial Council to take prompt action.
In the discussion which followed, Dr. Welling-
ton Koo (China) drew attention to the urgent
problem of the traffic in opium and other dan-
gerous drugs. The Japanese, he said, did every-
thing to promote the abuse of opium and other
drugs. The Chinese Government had now found
it necessary to embark on yet another campaign
against the opium danger. Dr. Wellington Koo,
on behalf of his Government, expressed the earnest
hope that the Economic and Social Council, upon
its establishment, would without delay set up a
separate Standing Commission to take the place of
the League of Nations Opium Advisory Commis-
sion.
A number of delegates, associating themselves
with the statement of the chairman, stressed the
importance of the Economic and Social Council
for the reconstruction of the world and expressed
their satisfaction with the report that had been
submitted to the Executive Committee.
Today the Executive Committee concluded its
general discussion on the reports of Committees
3 (Economic and Social) and 7 (Finance) but de-
cided to postpone decisions on these reports until
a later meeting.
The date of the next meeting will be fixed by the
chainnan, either tonight or early tomorrow
morning.
RECEPTION OF DELEGATES
FOR THE GENERAL ASSEMBLY
[Released to the press by the Preparatory CommiBsion of the
United Nations October 23]
This conference has been arranged because vari-
ous members of the press have expressed interest
in the plans for the forthcoming General Assem-
bly of the United Nations. These plans are still
rudimentary, but journalists may be glad to know
something about tlie proposed arrangements.
It is hoped that the Preparatory Commission of
the United Nations will meet at Church House on
November 8. Its plenary meetings will be held
in the wartime House of Commons. On December
4, if present plans can be carried out, the first
General Assembly of the United Nations will be
held in Central Hall, Westminster. Mainly be-
cause of the difficulty of heating, the original proj-
ect to use Westminster Hall will almost certainly
have to be abandoned. Plans are already in hand
for adapting Central Hall to make it a fitting cen-
ter for the world Assembly. Technical arrange-
ments to this end are the responsibility of the
Ministry of Works.
It is anticipated that several hundred delegates
and experts will be coming to London for the
Preparatory Commission and anything up to 2,000
for the General Assembly. A great task of organ-
ization lies before those who are responsible for
receiving and accommodating these visitors. It
is expected that many of the 50-odd United Nations
will send their Foreign Minister as chief delegate,
and it is hoped that Mr. Bevin will lead the United
Kingdom Delegation. Other leading statesmen,
diplomats, and economic and legal experts will
accompany their chiefs.
Technical arrangements for botli conferences,
together with all committee meetings, servicing by
OCTOBER 28, 1945
685
secretariat, reproduction and distribution of docu-
ments running into millions of words, interpreting
and translating, press facilities and public rela-
tions, and so forth, will be the responsibility of the
United Nations. Reception, accommodation, and
entertainment of delegates will be provided by the
new Conference Department of the Foreign Office
under Col. G. R. Codrington, C.B., D.S.O.
Delegates wishing to use British travel facil-
ities to reach London from abroad will apply
through the local British Embassy or Legation to
the Ministry of War Transport. Others will come
by any alternative service they may prefer. On
their arrival, acconamodation will be provided for
them, if so desired, by the Foreign Office Confer-
ence Department. Finding rooms in over-
crowded London is a problem which admits of
no easy solution. To begin with, the Foreign
Office does not yet know how many visitors to
expect. Cables were sent some time ago to all the
United Nations asking for information on this
point, but half of them have not yet replied.
This greatly complicates the whole problem of
negotiation with hotel proprietors, and so forth,
and speedy information is essential. One well-
known London hotel is refusing 600 applications
daily, and all are booked up far in advance.
An appeal for private hospitality has already
been launched by the Travel Association of Great
Britain and some arrangement on these lines may
prove to be the best solution when it is known pre-
cisely what we shall need.
Most de-requisitioned buildings are unsuitable
for conversion to hotels in the time available and
His Majesty's Government, while able to requi-
sition hotels and equipment, has no powers to
requisition staflp, and is moreover anxious not to
alienate a hard-working industry whose coopera-
tion is essential.
Transport to and from the conferences will be
provided by cars and drivers supplied by the Army,
Navy, and Air Force. It is also proposed to
appoint a special liaison officer from one of the
services to each delegation, choosing whenever
possible an officer with some experience of the
country with whose nationals he will be working.
At war-time conferences in various parts of the
world, British marines acted as guards, doorkeep-
ers, messengers, and so forth. About 150 marines
will be detailed for the same services during the
General Assembly.
Our visitors will be interested to see something
of the effects of war on London, the rebuilding
plans, and the switch-over to peace-time conditions
in Britain's great industries. It is hoped to or-
ganize tours for this purpose and to show them,
possibly by air trips, such industrial enterprises
as shipbuilding yards, aircraft factories, and loco-
motive works. Special demonstrations of scien-
tific inventions like radar and television may be
arranged.
A suggestion has been made that a West End
cinema should be set aside for the period of the
Assembly in order to show outstanding British
films free of charge to all holders of an Assembly
pass.
It is hoped to enlist the cooperation of the
W.V.S. to help our visitors on excursions to the
London shops and on visits to places of special in-
terest to them. Certain English families are pro-
posing to open their homes in the evening to for-
eign visitors who wish to see something of English
domestic life.
Cable and wireless have offered to transmit per-
sonal messages from delegates to their own homes
free, provided that the country of destination also
foregoes its charges.
The G.P.O. have agreed to mark the choice of
London for the meeting place of the United Na-
tions by stamping all letters posted in London dur-
ing December with a specially designed United
Nations cancelation mark.
The health of our visitors will be looked after
by the provision of first-aid rooms at Church
House and Central Hall, and by the preparation
of a list of doctors recommended to any delegates
who may require medical advice.
There will be no attempt at ostentatious enter-
taining. Our visitors will receive emergency
ration cards with a leaflet explaining to what these
entitle them and how the British rationing system
works. It will be our endeavor to extend a warm
welcome to every visitor, and at the same time not
to send him or her away with a distorted impres-
sion of life in post-war England.
It is hoped that visiting journalists who so desire
may be accommodated in the homes of London
pressmen, thereby obtaining closer contacts and a
better cross-section of London life than they would
be likely to enjoy if left to themselves.
686
DEPARTMENT OF STATE BULLETIN
Educational and Cultural
Conference
APPOINTMENT OF WILLIAM G. CARR
ON SECRETARIAT
[Released to the press October 23]
William Benton, Assistant Secretary of State,
announced on October 23 the appointment of Wil-
liam G. Carr to represent the Government of the
United States on the conference secretariat at the
conference to consider the creation of an Educa-
tional and Cultural Organization of the United
Nations, which is scheduled to convene at London
on November 1, 1945. This appointment was made
in answer to the invitation of the British Govern-
ment, serving as host to the conference, which has
requested other governments to name oflScials to the
international secretariat.
Dr. Carr is associate secretary of the National
Education Association and secretary of its Educa-
tional Policies Commission. He is a graduate of
Stanford University, where he also received the
Ph.D. degree.
Dr. Carr is the author of a number of books on
the subject of education for international under-
standing. His publications include: Education
for World Citizenship (1928), and Only by Un-
derstanding (1945). He edited New Frontiers in
International EdiK'ation (1944).
FRANCIS M. CROWLEY AND MARK STARR
TO JOIN U.S. DELEGATION
[Released to the press October 271
At the invitation of the Department of State,
Dr. Francis M. Crowley, dean of the Graduate
School of Education, Fordham University, has ac-
cepted a place as technical expert on the American
Delegation to the London conference on a United
Nations Educational, Scientific, and Cultural Or-
ganization. Dean Crowley is one of the country's
most eminent educatoi-s and further strengthens
the Delegation.
Mr. Mark Starr, educational director for the
International Ladies' Garment Workers' Union,
A. F. of L., will join the American group in Lon-
don as an adviser about November 10. He declined
at first to accept the invitation tendered him by
the Department of State because he could not leave
promptly with the rest of the Delegation, but now
informs the Department he can leave early in
November, thus missing only the first few days of
the conference.
United Nations Food and
Agriculture Organization
AGRICULTURAL COMMITTEE PANELS
The Agricultural Committee set up on October
22 the following panels to frame recommenda-
tions :
1. Rural Social Welfare
Headed by the representative of France.
2. Education, Extension, and Exchange of Scien-
tific Information
United States
3. Production Research and Techniques
United Kingdom
4. Soil Resources Development and Conservation,
which will include irrigation, drain-
age, erosion control, salinity control,
and range management
New Zealand
5. Integration and Coordination of Agricultural
Programs and Policies, Including Na-
tional and International
United States
6. Credit Cooperatives and Related Matters
United Kingdom,
7. Industrial Needs for Agriculture, Including
Machinery, Fertilizer, and Pesticides
Belgium
8. Special Needs for War-Devastated Countries
Poland
9. Special Needs for Countries in Tropical and
Sub-tropical Regions
India
SIGNING OF THE FAO CONSTITUTION
At the plenary session on the night of October
22, the Food and Agriculture Organization con-
stitution was signed by Brazil, Colombia, Cuba,
and Poland.
OCTOBER 28, 1945
687
Release of French Assets in the United States
And American Property in France
BY JAMES SIMSARIAN ^
IrEEZING REGtJLATIONS of the
Treasury Department f)Ter
French assets in the United
States were substantially re-
laxed by the issuance of General License no. 92
by the Secretary of the Treasury on October 5,
1945. France is the first of the liberated countries
of Europe and the Far East to have the assets of
its nationals unblocked in this country. At prac-
tically the same time, the French Minister of
Finance announced that controls over American
assets in France are also being relaxed substan-
tially.
Negotiations are now proceeding with the gov-
ernments of the other liberated countries concern-
ing the release of Treasury controls over the assets
in the United States of their nationals.
There are no Treasury freezing restrictions
remaining on current ti'ansactions with France as
a result of the issuance of General License no. 92
and the modification of General Ruling no. 5A.
The Treasury Department modified General Rul-
ing no. 5A on October 5 to lift import and export
controls over checks, drafts, bills of exchange, and
other payment instructions being sent to or from
France.
Beginning on April 10, 1940 with Norway and
Denmark, Treasury freezing controls were insti-
tuted with the issuance of Executive Order 8389
by the President to protect the assets in the United
States of countries being overrun by the enemy.
French assets were subjected to Treasury controls
on June 17, 1940.^ Treasury restrictions have
been applicable to the assets in tlie United States
of the enemy countries and the four neutral coun-
tries in Europe — Portugal, Spain, Sweden, and
Switzerland — as well as the countries occupied by
the enemy. In addition to extending protection to
the assets of the occupied coimtries, the freezing
restrictions of the Treasury Department have been
designed to prevent the enemy from securing any
benefit from any blocked assets in this coimtry and
to protect American institutions from conflicting
claims to these assets.
The French Minister of Finance, in a letter dated
September 26, 1945 to the Secretary of the Treas-
ury, recognized that, in the exercise of its con-
trols over French assets in the United States, the
Treasury "Department has been inspired by the
principles and aims which were solemnly set forth
in the United Nations Declaration of January 5,
1943, and Resolution No. VI of the United Nations
Monetary and Financial Conference". The French
Minister at the same time recognized that the
application of these principles "has effectively
prevented the enemy from looting French assets
in the United States during the war to the great
detriment of the common enemy and to the advan-
tage of the French people."
Treasury controls over French assets in the
United States are not actually released with respect
to assets in which persons in France had an inter-
est on October 5, the date of the issuance of Gen-
eral License no. 92, until the Government of France
certifies that such assets are in fact French-owned.
This certification is required in order to preclude
the release of assets which are held in French
names but are in fact enemy -owned. The Govern-
ment of France proposes to check the beneficial
ownership of these assets prior to their certification.
Assets belonging to French nationals who are not
within France or within any other blocked country
' Mr. Simsarian is Assistant Chief of the Division of
Economic Security Controls, Office of Financial and De-
velopment Policy, Department of State.
' Bulletin of June 22, 1940, p. 682.
688
DEPARTMENT OF STATE BULLETIN
are effectively unblocked without certification ex-
cept that property in the United States belonging
to corjJorations and other organizations, wherever
located, which are owned by persons in France
will continue to be blocked until certified by the
French Government.
The French Minister of Finance on September
26, 1945 announced the following modifications
of restrictions over American property in France :
1. Sequestration measures imposed during the
German occupation of France on property, rights,
and interests belonging to nationals of the United
States have been removed in all important partic-
ulars, and any that still remain will inunediately
be terminated.
2. Except for particular cases in which French
authorities have reason to believe that the mainte-
nance of control is necessary to prevent transfers
of assets in which an enemy might have an inter-
est or to avoid the completion of transactions which
might be directly or indirectly to the benefit of an
enemy, French authorities, with regard to assets
in the franc zone of nationals of the United States,
will abolish all restrictions imposed for the pur-
pose of controlling property in which an enemy
interest might have existed.
3. Nationals of the United States holding assets
in France shall be authorized to administer such
assets and their income, within the framework of
the controls and regulations of the French Gov-
ernment, without the application of measures to
them which would be discriminatory in relation to
nationals of any other country.
4. The Ministry of Finance intends to pursue a
policy of liberalizing exchange-control restric-
tions, to the fullest extent that French dollar re-
sources will permit, with respect to transfers of
funds from the franc zone to the United States.
5. The Ministry of Finance will authorize per-
sons residing in the franc zone who, without hav-
ing violated French law, owe dollar obligations
to any governmental agency, individual, or firm
in the United States to discharge such obligations
when they are due; and, if necessary, it will au-
thorize such persons to purchase dollars for this
purpose.
6. The Ministry of Finance is now prepared to
authorize current payments from the franc zone
to the United States of profits, dividends, interest,
royalties, and payments for purposes of duly au-
thorized commercial transactions, and other pay-
ments relating to current business, including bal-
ances accrued from the same sources during the
war.
7. The Ministry of Finance will examine care-
fully requests for transfers of capital from France
to the United States when transfers of that type
might serve a useful economic or commercial pur-
pose and when transfers of small amounts are of
substantial importance to the interested parties.
Allied Commission on
Reparations for Germany
APPOINTMENT OF JAMES W. ANGELL AS
UNITED STATES REPRESENTATIVE
[Released to the press October 23]
James W. Angell has been appointed by the
President as American representative on the Al-
lied Commission on Reparations — Germany. His
predecessor on the Commission was Edwin
Pauley, who is now devoting his full time to the
problem of Japanese reparations.
As Assistant Administrator of the Foreign Eco-
nomic Administration, Mr. Angell has actively
participated in the formulation of United States
policy on German reparations. He was educated
at Harvard University, where he received his A.B.
and Ph.D. degrees. From 1924 until World War
II lie was a professor of economics at Columbia
University. He is internationally known for his
economic writings. Since the war he has served
full time in Washington, first as Chief Economist
of the Office of Civilian Requirements, War Pro-
duction Board, and more recently in the FEA.
During the 1920's he made a first-hand study of
conditions in Germany and in 1929 wrote The Re-
covery of Gennany, a book dealing with repara-
tions and industrial recovery of Germany after
World War I. His father, James Rowland An-
gell, was the late president of Yale University.
A delegation headed by Mr. Angell will leave
shortly for Paris and Berlin to join with other
Allied members of the Commission on Repara-
tions in implementing the Potsdam protocol.
Dudley M. Phelps, Acting Director of the Office
of Financial and Development Policy and Chief
of the Division of Foreign Economic Develop-
ment of the Department of State, has been ap-
OCTOBER 28, 1945
689
pointed as deputy to Mr. Angell. Mr. Phelps re-
ceived his Ph.D. degree in economics from the
University of Michigan in 1931 and is now profes-
sor of business administration in that institution,
on leave of absence. He became associated with
the Department of State early in 1942 and has
since served in various capacities both in Wash-
ington and abroad. Early in the present year he
was a member of the Rosenman Mission ^ which
surveyed the urgent needs of the liberated coun-
tries of western Europe for goods and services
from abroad and also needs of a financial character
for the reconstruction and restoration of their
economies.
Release of Short-Wave
Broadcasting Frequencies
[Released to the press on October 22]
The Department of State released on October
22 three of the Government's short-wave broad-
casting frequencies so that the American press
associations can meet the present emergency and
secure access to the additional radio channels re-
quired for sending American news to Japan and
the Far East generally.
This action is in line with the Department's
policy to help American commercial enterprises
which are distributing American information
abroad.
Tlie Department recently called in Ralph
McGill, editor of the Atlanta Constitution, to
consult with Ferdinand Kuhn, Director of the
Interim International Information Service, and
Assistant Secretary of State Benton in a study of
the relations of the Government with the Amer-
ican press associations, including advice on bar-
riers impeding their operation abroad.
The question of press communications is one of
the topics scheduled for discussion between Amer-
ican and British authorities at a telecommunica-
tions conference to be held in Bermuda next month.
The radio frequencies released by the Depart-
ment of State today are part of a pool of fre-
quencies used by the Government during the war
for short-wave broadcasting. Jurisdiction over
the frequencies was transferred from the Office
■ Buu-ETiN of May 6, 1945, p. 860, and July 8, 1945, p. 55.
of War Information to the Department of State
by order of President Truman on August 31, 1945.
The text of the letter from the Department of
State to the Federal Communications Commission,
releasing the frequencies, follows :
October 22, 1945.
Dear Patjl :
This will confirm our telephone conversation of
October 19.
Growing out of the present emergency, and in
line with the great and urgent importance of
providing to the American press associations
communication facilities for enlarging the trans-
mission of news to the Far East, the State De-
partment is very happy to rearrange its schedule
of shortwave broadcasting in order to release
three frequencies.
This move on the part of the State Department
may illustrate my feeling that the Government
should do what it can to support the press asso-
ciations and other privately operated organiza-
tions in their efforts to disseminate the news
about America throughout the world.
Very sincerely yours,
William Benton
The Honorable Paul A. Porter,
Chairman, Federal Convrmmicationa
Commission,
Washington, D. C.
Far Eastern Advisory
Commission
APPOINTMENT OF FRENCH REPRESENTATIVE
[Released to the press October 23]
The Department of State has been informed by
tlie French Government that it has appointed
P. E. Naggiar, former French Ambassador to
China and Russia, as its representative on the Far
Eastern Advisory Commission.
APPOINTMENT OF NETHERLANDS
REPRESENTATIVE
[Released to the press October 23]
The Department of State has been informed by
the Netherlands Government that it has appointed
Dr. A. Loudon, Netherlands Ambassador to the
United States, as its representative on the Far
Eastern Advisory Commission.
690
DEPARTMENT OF STATE BULLETIN
U.S. Assistance to the Philippines
Statement by THE PRESIDENT
[Released to the press by the White House OctobPr 25]
Since President Osmena's arrival in Washing-
ton early this month, I have had several confer-
ences with him, Secretary Ickes, and High Com-
missioner McNutt.
All Americans feel a very warm friendship for
the Filipino people, who stood by us so heroically
throughout the war and who now are in dire need
of help. I consider a program of assistance to
the Philippines essential to our relationship with
the people there.
We have made some progress, and further con-
ferences will be held before President Osmena and
High Commissioner McNutt return to Manila.
Recommendations by THE PRESIDENT
[Keleased to the press by the White House October 26]
The President has sent the following letters and
memorandum to the High Commissioner to the
Philippines and the heads of various Government
departments and agencies, recommending specific
steps to carry out the United States program of
assistance to the Philippines :
To the High Commissioner to the Philippines!
In the provinces near Manila thousands of
sharecroppers organized some years ago to de-
mand a more equitable division of the product of
their labor. For several years there was no ef-
fective solution of the problem. During the war
the tenants organized a guerrilla army which re-
portedly did good work against the enemy. After
the enemy was defeated in their localities, they
did not disband and today they constitute a spe-
cial problem which threatens the stability of gov-
ernment. On the other hand, their legitimate
claim to fair treatment and the assistance they ren-
dered in resistance to the enemy require that they
be not dealt with in a ruthless manner.
I therefore request you to order a prompt inves-
tigation of agrarian unrest in the Philippines with
the cooperation of the Commonwealth Govern-
ment, and to recommend the remedies or reforms
which ought to be taken by the Commonwealth
government and by the United States Govern-
ment.
To the Alien Property Custodian:
The United States Army has found and taken
custody of considerable valuable property belong-
ing to enemy nationals in the Philippines.
Enemy property includes agricultural leaseholds
held through "dummies". It is desirable that
all property in which the enemy has or had interest
should pass under the civil control of the United
States government which is responsible for its
custody under the usually accepted terms of inter-
national law.
I therefore direct that the Alien Property Cus-
todian vest title in all enemy property in the
Philippines and make lawful disposition of it.
Should these operations extend beyond the date
of independence, I shall endeavor to arrange by
treaty, or otherwise, for the completion of the
processes of vesting and liquidation.
To the Attorney General:
While the mass of the Filipino people and many
of their leaders remained staunchly loyal during
invasion and rendered invaluable assistance to
our arms, it is necessary to admit that many per-
sons served under the puppet governments spon-
sored by the enemy. Some of these, especially
those engaged in health and educational work,
remained at their posts of duty with an evident
intention to sustain the physical and cultural wel-
fare of their people. Others of the clerical and
custodial services continued in office in order to
earn their accustomed livelihood and participated
in no \\&y in enemy policy. But, regrettably, a
number of persons prominent in the political life
of the country assisted tlie enemy in the formula-
tion and enforcement of his political policies and
the spread of his propaganda. Others in the field
of trade and finance seized upon the occasion to
enrich themselves in property and money at the
expense of their countrymen.
Reports have appeared in the press which indi-
cate that a number of persons who gave aid and
comfort to the enemy ai'e now holding important
offices in the Commonwealth government. Re-
ports further indicate that the Commonwealth
government is only beginning to investigate,
OCTOBER 28, 1945
691
charge, and try the ofPenders. It is essential that
this task be completed before the holding of the
next Commonwealth general election.
Considering that disloyalty to the Common-
wealth is equally disloyalty to the United States,
I request that you send experienced personnel to
the Philippines to discover the status and to rec-
ommend such action as may be appropriately taken
by the United States. Such recommendations
should be made through the United States High
Commissioner to the Philippine Islands. I am
further requesting that the Secretaries of War
and Navy direct the staffs of their intelligence
sections to cooperate with you and make available
to you all records and evidence bearing on this
important problem.
Kepresentatives of the Federal Bureau of In-
vestigation assigned to the Philippines should be
directed to report through the United States High
Commissioner in connection with this and other
operations in the Philippine Islands.
To the Secretary of War:
As a result of prolonged enemy occupation of
the Philippines the law enforcement agencies of
the Commonwealth Government were seriously
disorganized. Bearing in mind the fact that the
War Department was responsible originally for
the organization of the Philippine Constabulary,
which had such an excellent record prior to the
war, I believe that the War Department should
assist in every possible way by the assignment of
officers and men and the transfer of necessary
equipment in reorganizing the Constabulary on a
non-military basis.
President Osmeiia has advised me that the War
Department has already been of assistance in this
task and that considerable progress has been made
by the Commonwealth Government. Both he and
I feel, however, that continued assistance until
the reorganization is completed would be helpful.
I ask that this continued assistance be extended
to the Commonwealth Government so that law and
order may be fully restored in the shortest possible
time, and that you submit a report to me as soon
as a program has been formulated.
Memorandum, to the Secretary of the Treasury and
the Secretary of War:
It is my understanding that due to a shortage of
legal currency in certain areas in the Philippine
Islands early in the war and continually thereafter
until the reoccupation of the islands by our forces.
a considerable quantity of emergency currency was
issued, some by properly authorized officers of the
United States Government and some by repre-
sentatives of the Philippine Government. It
would api^ear that to the extent that this currency
was used either directly or indirectly for the pros-
ecution of the war, its redemption is a responsibil-
\{y of the United States Government.
I request that the War and Treasury Depart-
ments make a careful analysis of this situation and
submit recommendations as to the necessary steps
which should be taken to discharge the obligations
that are properly responsibilities of the United
States Government. Any arrangement proposed
for the redemption of this curiency should include
provisions designed so far as possible to avoid any
windfall to speculators.
To the Secretary of the Treasury:
During the period of their military invasion of
the I'hilippine Islands, the Japanese issued an un-
backed fiat peso and tried unsuccessfully to force
its parity with the legitimate Philippine peso.
The issue was so unlimited that it came to be worth-
less, and upon our landing in Leyte it was offi-
cially and quite properly declared not to be legal
tender. However, during the invasion period it
had a rapidly declining value as a medium for local
trade, and numerous contracts which involved the
enemy currency were settled or entered into.
While it would be against the public interest to
validate completely these contracts and settle-
ments, a measure is needed to serve as a standard
for judgments between debtors and creditors.
Since you have representation in the Philippines
through a mission of the Foreign Funds Division,
I request that you cooperate with the High Com-
missioner and the Commonwealth Government in
drawing up a schedule showing the relative trend
of the purchasing power and exchange rates of the
Japanese Philippine peso during the period of in-
vasion.
To the Surplus Property Administrator:
Prolonged enemy occupation and active warfare
in the Philippine Islands have left in their wake a
tremendous problem of relief and rehabilitation.
It seems apparent that there must be large supplies
of surplus government property now available
which could be used to great advantage in the
Philippines in the program which must be under-
taken there by the Philippine Government. Such
692
DEPARTMENT OF STATE BULLETIN
items as construction equipment, medical supplies
and hospital equipment are badly needed.
Where such supplies can be used directly by the
government of the Philippine Commonwealth, I
believe this Government should make the supplies
available without cost to the Commonwealth. It
might perhaps be desirable to arrange the transfer
on such terms as would prevent the property from
being later offered for sale to the general public.
Since there is at present no legal authority to
effect such transfers, I believe we should seek such
authority.
To the Administrator of Veterans'' Affairs:
In connection with a general program of re-
establishment of oiderly government in the
Philippine Islands and the discharge of just obli-
gations of the United States Government therein,
I request that the Veterans' Administration make
a careful analysis of all phases of past and current
benefits payable in the Philippine Islands to
American and Filipino veterans, and submit to
me at the earliest possible date a report which
should be accompanied by recommendations for
any new legislation which may be required.
To the President of the Exj)ort-Import Bank:
In connection with the rehabilitation of the Phil-
ippine Islands and the restoration of the normal
economic life of the Islands, I believe that the
Export-Import Bank should participate in this
program. It should, it seems to me, be possible
to work out a program to operate in the Islands
on a purely business basis which would be of great
assistance in restoring normal economic condi-
tions.
May I have your comment on this suggestion,
and in the event that you feel that the bank is
at present without legal authority to function in
the Philippines, your suggestions as to steps that
might be necessary to permit it to do so ?
To the Ad?m?ustrafor of the War Shipping Ad-
ministration:
In connection with the rehabilitation of the Phil-
ippines and the restoration of normal economic life
of the Islands, I am very anxious that all possible
steps, consistent with our obligations elsewhere,
be taken to supply adequate shipping to the Philip-
pine Islands.
I would be glad to have a statement from you
as to the plans of the War Shipping Adminis-
tration and the amount of tonnage which is ex-
pected to be available for Philippine trade, par-
ticularly in the near future.
To the Chairman of the Reconstruction Finance
Corporation:
The almost complete lack of consumers goods
in the Philippines — goods ordinarily imported
from the United States — has brought about serious
price inflation and black markets which cause great
distress among the people. An excellent start has
been made by the Foreign Economic Administra-
tion in cooperation with the War Shipping Ad-
ministration to eliminate inflation by facilitating
normal import trade.
You are, therefore, requested to direct the United
States Commercial Company to use resources and
personnel witliin its jurisdiction to continue and to
advance the Philippine program which it has un-
dertaken, and, where necessary, to sell goods on
credit terms not exceeding two years in duration.
Control Council for Japan
COMMENT UPON SOVIET POSITION
[Released to the press October 25]
In commenting upon the Soviet position re-
garding a Control Council for Japan at his press
conference yesterday, the Secretary of State was
referring only to the original Soviet position
about which he had been questioned.
The original Soviet proposal of September 24
concerning control machinery for Japan, pre-
sented to the Council of Foreign ^linisters and re-
ferred to and reaffirmed in Mr. Molotov's letter
of October 1 to the Secretary of State, appeared
to propose a Control Council for Japan which in
important aspects would closely resemble the Con-
trol Council for Germany.
The proposal provided that in the event of dis-
agreement among the members of the Council the
question at issue shoidd not be decided by the
chairman but should be referred back to the gov-
ernments for decision.
Recent diplomatic exchanges indicate that the
Soviet Government is not now insisting on this
position. Because discussion of the question is
continuing, further comment at this time would
not be helpful.
OCTOBER 28, 1945
693
The Inter-American System
Address by ASSISTANT SECRETARY BRADEN '
[Released to the press October 26]
Mr. Ciiairmax, Excellency, Governor Edge,
Distinguished Guests, Ladies, and Gentlemen :
To be in this distinguished company and to ad-
dress so imposing an audience are honors for
which I am deeply grateful. Also I am proud to
assist at this opening seminar, "New Jersey Meets
Her World Neighbors", which is so appropriately
held, under the auspices of the New Jersey Educa-
tion Association, at one of the oldest and most
respected institutions in this country — Rutgers
University.
It is my purpose this evening, in summary fash-
ion, to review for you a few of the more salient de-
velopments in our inter- American relations. By
doing so I trust that I may induce this splendid
gathering to agree with me that despite all the ob-
stacles and set-backs naturally to be expected in
every undertaking, the 21 American republics
have evolved a reasonably just and practical
method for living together. At least foundations
have been laid on which a solid edifice of interna-
tional friendship and cooperation can successfully
be erected, providing all hands in good faith ap-
ply their best efforts to the task.
There are, of cmirse, important differences in
language and origin, in economic and social con-
ditions, in climate, and in many other ways among
these New World countries. Some of these di-
vergencies form difficult barriers to mutual under-
standing; whereas others, such as those in the
field of culture and in natural wealth, can be em-
ployed to benefit all concerned.
Conversely, the American i-epublics in many
cases enjoy geographical proximity and comple-
mentary resources ; they share a pioneer tradition
and similar histories in their struggles for inde-
pendence ; and above all, they have in common an
underlying aspiration to be governed by those of
their own choosing — and for liberty.
That these aspirations have not been and are
not yet always realized is not the point. We may
be imperfect democracies in a world of imperfect
governments. That also is not the point. The
vital thing is that the urge toward human liberty
' Made at Kutgers University, New BrunswiclJ, N. J., on
Oct. 26, 1945.
is there, and that this urge has produced through-
out the years an improvement in man's relation-
ship to man, which holds promise for the future.
This longing for freedom and equality has
passed from the national to the foreign field.
Thus, at the University of Buenos Aires in 1936,
I was able truthfully to say that the ideal of the
inter-American system is "the application of
democracy to international relations"'. Tliis
tenet was most cogently expressed and converted
into United States policy in 1933 by our late,
revered President, Franklin D. Roosevelt, when
he dedicated this country to the principle of the
good neighbor: "The neighbor who resolutely
I'espects himself and, because he does so, respects
the rights of others — the neighbor who respects
his obligations and respects the sanctity of his
agreements in and with a world of neighbors."
This is a policy of respect ; first, self-respect, and
then mutual respect, since we cannot hope for the
latter unless we have the former. To work it
must be reciprocal — a two-way street.
While the good-neighbor policy governs all our
international relations, it is especially associated
with our relations with the other American re-
publics where it is a cornerstone, comparable in
importance only to that foundation of our policy —
the Monroe Doctrine.
The Doctrine has on occasion been widely crit-
icized, largely because of the many misconcep-
tions and malinterpretations which have distorted
its true intent. The Monroe Doctrine was for-
mulated because the independence of the United
States was threatened when, upon the Congress of
Vienna, the absolute monarchs of continental Eu-
rope formed the so-called "Holy Alliance". One
of those kings sought to reconquer his American
empire. This constituted a threat to the security
of the United States and on December 2, 1823
Monroe declared :
". . . we could not view any interposition for
the purpose of oppressing (the newly independent
countries), or controlling in any other manner
their destiny, by any European power in any other
light than as the manifestation of an unfriendly
disposition toward the United States."
694
DEPARTMENT OF STATE BULLETIN
The Monroe Doctrine was not the creation of
any individual or group; it voiced the thoughts
which had been maturing in the minds of many
of our statesmen for more than 30 years.
In essence, President Monroe proposed :
(1) To prevent in this hemisphere any form
of colonization, acquisition of territory, political
control, or interference on the part of European
powers.
(2) Non-intervention of the United States in
the then existing Spanish colonies, or in those of
other European nations.
(li) That this declaration, unilaterally enun-
ciated by the United States, was made to guaran-
tee it.s own protection and security.
We have employed the Monroe Doctrine fre-
quently to insure the security of the Americas.
But, as in all human endeavor, its application has
been by trial and error. While we attempted to
protect the peace and security of America, we were
frequently helpless to prevent certain European
countries from flagrantly infringing the rights of
our sister republics. This fact, combined with the
alleged spirit of condescending superiority at-
tributed to the Doctrine, unhappily caused the
other American republics at times to lose sight
of the occasions when they had benefited there-
from. For these reasons, they sometimes felt a
latent irritation against the United States for
having promulgated a doctrine which, in their
opinion, detracted from their sovereignty and
dignity.
But, I repeat, the essential purpose of the Mon-
roe Doctrine was the defense of the national polit-
ical liberty of the United States — and of the other
American countries.
Towards the middle of the nineteenth century
there emerged in the political sphere a new factor
of primary importance. This factor was the in-
crease of surplus wealth and such wide distribu-
tion thereof as to enable its holders frequently to
influence and, at times, dictate the policies of their
respective governments in benefit of their private
interests.
The industrial revolution of the nineteenth
century, the inventions it brought, the new techni-
cal methods which rapidly followed, and above
all, the expansion and improvement of communi-
cations progressively increased the world's wealth.
This greatly augmented availability of wealth
created for the modern world two of its most
complex and enduring problems: (a) The over-
flowing of surplus wealth beyond national fron-
tiers and (b) its distribution within each country.
The first brought an intensified nationalism which,
in turn, fomented a somewhat paradoxical corol-
lary — imperialism. The internal distribution of
wealth created the political and economic problems
around which the world of our day still revolves
and upon the proper and timely accommodation
of which the future tranquillity of mankind
depends.
The impact of this new wealth on the inter-
national relations of the United States was chris-
tened "dollar diplomacy". Financiers short-
sightedly demanded that their foreign invest-
ments and dividends be guaranteed by guns and
lives. The American public, alert to the implica-
tion of this, called it the "big stick" policy. This
so-called policy inaugurated in the name of se-
curity and "business" was anything but "good
business". It did not contribute to the security
of the United States. There followed interven-
tion for economic ends in several of the other
American republics. These are well known to all.
It is fair to say, however, that in some cases these
interventions were not for our own selfish benefit
but, rather, to prevent non- American nations from
taking unilateral action in the Western Hemi-
sphere. This procedure became known as th*
Theodore Roosevelt corollary to the Monroe
Doctrine.
The war with Spain in 1898 marked a decisive
point in so-called American imperialism. The
United States, which had helped Cuba to attain
her independence, acquired the right of interven-
tion in that new nation — a right incorporated in
its constitution as the Piatt Amendment, which
later was abrogated voluntarily under President
Franklin D. Eoosevelt. At the same time, we as-
sumed responsibility for the Philippine Islands,
whose brave people we are proud to have helped all
along the road towards complete independence.
The first World War really ended tlie nine-
teenth century — a century which started with
glorious ideals of freedom and closed in cynical
materialism. Yet in the midst of that materialism
high moral standards of universal application en-
dured and were given expression by Woodrow
Wilson in these words :
"The day of conquest and aggrandizement is
gone by; so also the day of secret covenants en-
tered into in the interest of private governments
OCTOBER 28, 1945
and likely at some unlooked-for moment to upset
the peace of the world."
Unfortunately, if World War I spelled a lower-
ing of public conscience, the post-war period was
no better and Wilson's concepts were largely dis-
regarded.
This lack of moral integrity contributed to the
establishment of Fascism and the ideology of ag-
gression. The non-Fascist world was stricken with
that disease called "appeasement" — which, again,
is nothing more than the lack of moral integrity.
The 20 years between the two wars were only a
truce, during which the world carried on a secret
struggle. The inability of world leaders to satisfy
humanity's common aspirations of peace, liberty,
decency, and justice again i-esulted in catastrophe.
We contributed to this catastrophe by an aloof-
ness prompted by fatigue from a war fought for
reasons which, being more acute in Europe, at
times produced the illusion that they did not exist
in the Americas.
Even under these unfavorable circumstances
constructive forces persisted here. The United
States, through Secretary of State Stimson, as-
sured the American republics that the Monroe
Doctrine would not be invoked to uphold inter-
vention in the domestic affairs of our southern
neighbors, and we have consistently upheld this
principle ever since.
Shortly thereafter the good-neighbor policy
was born. We set to work to institute a series of
radical changes in world, and particularly in in-
ter-American, relations. The United States ma-
rines were withdrawn from Haiti. Financial
control of the Dominican Republic by American
officials was curtailed and finally ended. The
Piatt Amendment was abrogated in 1934 and was
replaced by a new treaty recognizing the full sov-
ereignty of Cuba.
In the Montevideo conference in 1933, at which
I had the honor of participating as a delegate
under Secretary Hull, our government agreed with
the other nations that "No state has the right to
intervene in the internal or external affairs of
another."
With the banishment of force and intervention,
morality and law became the supreme rules gov-
erning relations between the American countries.
The juridical equality of American states was
established.
These principles were confirmed at the Buenos
Aires conference in 1936 and were formalized in
695
the Declaration of American Principles' at the
Lima conference on the eve of the second World
War. This Declaration ranks as one of the great
achievements of this continent. The preamble
expresses high aspirations of humanity. It reads :
"The need for keeping alive the fundamental
jjrinciples of relations among nations was never
greater than today; and
"Each state is interested in the preservation of
world order under law, in peace with justice, and
in the social and economic welfare of mankind."
Three of the eight articles of this Declaration
merit quotation :
"1. AH differences of an international character
should be settled by peaceful means.
"2. The use of force as an instrument of na-
tional or international policy is proscribed.
"3. Relations between States should be governed
by the precepts of international law."
Thanks to these solid foundations the American
republics were able at the Panama, Habana, and
Rio de Janeiro meetings successfully to adapt our
collective system to wartime needs. Then with
the approach of victory the inter-American con-
ference at Mexico City last March produced the
important resolution known as the Act of Chapul-
tepec. This accord will shortly be implemented
by a formal treaty. At Mexico City there were
also economic and social declarations of great im-
port, which insisted that man's social well-being
must be the first objective of nations' efforts.
The peoples of the 21 American republics share
a common aspiration for liberty and justice, for
order and self-government. In a word, they de-
sire democracy. While these objectives have not
been attained in full measure anywhere, they have
been accepted by all as the basic principles which
they will individually and collectively strive to
make effective. They have realized that they can-
not hope to succeed in those particulars unless this
hemisphere can be made secure against aggression
from both within and without. As a result, the
inter-American system has come into being and
has functioned with much success. We have made
a good beginning. If we can and will improve
upon that beginning, the future will be bright,
and the inter-American system will form one of
the strongest pillars of world organization for
peace and progress.
' Bulletin of Dec. 31, 1938, p. 494.
696
DEPARTMENT OF STATE BULLETIN
The Cultural-Relations Scene in South America
BY HERSCHEL BRICKELL
F
|iVE YEARS AGO if someone in
the Department of State
had decided to make a
round tour of South Amer-
ica in search of evidence of the operation of the
good-neighbor policy, his trip would have been
altogether different, from one 1 made recently.
The first difference vfould naturally have been
in flying time. Almost by the minute Good
Neighbors are becoming nearer neighbors, and
within a week after V-J day, which found me in
Montevideo, air schedules began to improve, be-
fore one of the new planes had gone into service.
Now it is possible to fly from Miami to Buenos
Aires in three days — two days less than it used to
take for a boat trip between New York and the
nearest South American ports. Night flying will
halve this time, new planes will reduce it still
further, and when jet propulsion arrives the me-
tropolises of North and South America will be as
near in point of time as Chicago and San Francisco
are today, or nearer.
Now it is possible to fly to Balboa from Miami
at night and to be in Lima late the next afternoon.
The regular schedule from Bogota, once one of the
world's most inaccessible capitals, to Miami is a
day, and this will shortly be cut by several hours.
To fly to Rio de Janeiro for a two weeks' vacation
will be commonplace tomorrow, and so the fan-
tastic story of the drawing together of peoples
runs on.
As important as these facts are in connection
with our efforts to be friends with our neighbors,
' Mr. BrkkfU is Assistant Chief, Division of Cultural
Cooperation, Office of International Information and Cul-
tural Affairs, Department of State.
they do not point up the really important differ-
ences between what an observer would have seen
five years ago and what I saw the other day. Five
years ago, this putative observer woiild not have
found a cultural attache working in South Amer-
ica. He would have discovered a few scattered
cultural institutes, locally supported and spon-
sored, but not one representative collection of our
books.
He would, if he had searched diligently enough,
have encountered one of our college professors or
research workers teaching or digging, but he
would not have met, as a familiar feature of many
college landscapes, a large number of our most
distinguished teachers at work as members of the
faculties of leading universities there.
He would have found a few hundred staidents
of Englisli in the institutes then in existence in-
stead of the thousands who now cram all the avail-
able lecture halls, listen eagerly to courses by radio,
and never overlook a chance to practice what Eng-
lish they know on anyone who looks like a North
American tourist.
He would have found, five years ago, a certain
number of graduates of our universities in each
community, but they were far oaitnumbered by
young people who had been educated in France
or England. Today, after four years of operation
of a student-exchange progi-am that has brought
hundreds of boys and girls to do graduate work
here, I saw so many of these new friends in every
community I visited I did not try to count them.
I made the long swing around, Miami to Buenos
Aires, Buenos Aires across to Santiago, and home
by the Pacific side, in the excellent company of
Watson Davis, Director of Science Service. We
OCTOBER 28, 194S
697
had two things very much in mind : one of them
Mr. Davis' special interest, since Science Service
has the contract for the translation program of
the American republics branch of the Division of
Cultural Cooperation ; the other mine.
In the translation program we are doing what
we can to bring about a freer interchange of the
scientific and literary products of the two con-
tinents by the use of whatever methods lie at hand
or can be invented. Mr. Davis wished to study
the Buenos Aires publishing situation at first hand,
since Buenos Aires is now second only to New
York as a New World publishing center; and I
to find out especially about the status of our cul-
tural-relations efforts with that rich and impor-
tant country.
I should like to summarize my impressions of
my three weeks' stay in the Argentine Republic
by saying that I had the delightful experience
of being fairly and courteously ti-eated by every
Argentme of every class with whom I came in
contact. I put this down as very good evidence
that there is in general the most friendly feeling
possible toward citizens of the United States in
a country that has often puzzled us, and still does.
(The Argentines insist they are too much like us
to be understood easily.)
One of the oldest of all cultural institutes in the
other American republics is the Instituto Cultural
Argentino - Norte Americano, or Icana. It was
founded as the result of the combined efforts of
Argentine friends of the United States and of
members of the local North American colony some
time before our own institute program got under
way. Icana owns its building and has 4,000 stu-
dents of English. A part of its faculty separated
itself from the parent institution not long ago and
started another institute, which has 1,200 students !
I saw nothing in the Icana beehive of activity that
impressed me so much as the children's classes,
dozens of small Argentines learning to speak
English, while many of their parents were busy
with the same task in other classrooms.
South America has many fine cities, including
the incredible, bewitching, and fantastic Rio de
Janeiro, which can only be described as too beauti-
ful. It is one of the places that has to be seen to
be believed, and even after it has been seen it has
the effect of a singularly charming backdrop
which may vanish at any moment. Sao Paulo has
a skyline like any large city in the United States,
and such places as Porto Alegi-e and Belo Hori-
zonte are larger and handsomer than one had some-
how expected. But Buenos Aires, as the Argen-
tines I used to know in Europe and especially in
Spain used to say, claims its right to be listed
among the great cities of the world.
Right now, to be sure, it is the largest world
capital so little touched by World War II, and
this makes it seem very rich and well kept by com-
parison with our own war-weary municiiaalities.
But even forgetting the full shop windows and the
shining automobiles, shining only because they
have been given good care, and tlie baitcher shops
and the restaurants, where the cooking is Franco-
Italian of excellent quality, Buenos Aires is a
singularly handsome and substantial city. If a
fair measure of a people's culture is the kind of cit-
ies it produces, then the Argentines do not need to
doff their bonnets to anyone. Even the subway is
a model of beauty and comfort.
This bird's-eye view of a continent is no place
to go into details about the publishing industry
in Argentina. But anyone who knows about the
business of manufacturing and selling books,
which is an interest of both Watson Davis's and
mine, would be bound to be impressed by the size,
the scope, and the efficiency of the Buenos Aires
arrangements. Old and famous Spanish houses
such as Espasa of Madrid and Salvat of Barcelona
have made their contribution to this situation, it
is true, but much of the enterprise and ingenuity
is purely Argentine.
As an example for indicating the extent of the
translation of our books on a purely commercial
basis, we were talking one day to a group of scien-
tists and educators about some volumes on peda-
gogy and related subjects which they thought we
ought to help to have put into Spanish. Within
a day or so we had found very nearly the whole
list already well translated and printed !
In Brazil, to back-track for a moment, we have
cultural attaches stationed at Rio, Sao Paulo, and
Porto Alegre. We have successful cultural insti-
tutes in these three cities and also in Curitiba,
Fortaleza, Bahia, and Florianopolis. The one in
Sao Paulo, with 2,500 students of English, will
shortly move into a mansion with almost a city
block of grounds around it, and it expects to have
at least 3,000 students as soon as this space becomes
€98
DEPARTMENT OF STATE BULLETIN
available. Like all our cultural institutes, it will
have an excellent library of our best books and
also a full selection of our magazines.
In Argentina, Rosario and Cordoba have flour-
ishing "Icanas", housed in bright, cheerful build-
ings that symbolize in their atmosphere as much
as in their decorations the friendship of the peo-
ple of the Argentine with the people of the United
States. Several other Argentine cities, such as
Santa Fe, Mendoza, and Tucuman, would like to
have similar "Icanas" and no doubt will have in
time.
In Santiago there are both a cultural attache
and a successful cultural institute. In a few other
places such as Concepcion and Valdivia there are
English classes which we sponsor, and I heard
exactly the same kind of enthusiastic reports from
the teachers in these places as those that came to
my ears from the workers in the institutes in the
capital. The general tenor of these reports is un-
varying, namely that the demand for English les-
sons and for information about everything in the
United States far outruns any available supply of
teachers or materials.
There would have been considerably more time
to study the situation in Lima if it had not been
that a late start from Santiago found us spending
the night in Arica, where we saw a large Chinese
colony celebrating the victory over Japan. In
Arica, a picturesque port from which an extraor-
dinary railroad climbs its winding way to La Paz,
Bolivia, mounting from sea level to an elevation
of some 14,000 feet in less than 24 hours, there
were no signs of our cultural-relations activities,
although if we opened an institute there tomorrow
its English classes would probably all be filled the
first week. Lima, like Santiago, has a cultural
attache and a large and flourishing institute with
all the necessary equipment and every type of cul-
tural activity : a library, classes in English and
Spanish, educational motion-picture equipment,
and lectures.
At Call, the capital of the fertile Departamento
del Valle in Colombia, my companion, Watson
Davis, and I went separate ways : he to Mexico in
the interests of Science Service and moi-e transla-
tions, and I to catch my breath and to see some of
the friends I left behind when I gave up being a
field worker to became a cultural attache. It
seemed somehow symbolical of a happy and satis-
fying journey that one of our returned students
was waiting to greet me at the airport and that
the time I spent waiting for the plane to Panama
two days later was passed in discussing with one
of our former travel grantees the exciting plans
for a modern agricultural college, modeled after
similar institutions in the United States.
If we could increase every phase of our cultural-
relations program fivefold, I believe we should be
considerably short of what the other American
republics want as badly as they need. Everywhere
I heard the anxious question : Are you going ahead
with what you have so well begun, or are you
going to forget us now that the war is over?
It is no exaggeration to say that upon the an-
swer to this question hinges much of the final
success or failure of the good-neighbor policy.
Economic Agreements Between
The U.S.S.R. and Hungary
The Department of State told correspondents
that it had been informed some time ago that the
Soviet and Hungarian Governments were nego-
tiating a one-year commodities-exchange agree-
ment and a five-year economic-collaboration agree-
ment. Correspondents were told that it was both
natural and right that those two countries should
seek to make mutually beneficial trade agreements
and prepare the way for normal economic inter-
course. The Department has felt that, in the case
of Hungary, as well as of other ex-satellite states,
the conclusion of any long-term economic agree-
ment of substantial scope during the armistice pe-
riod was a matter of concern and responsibility
for all three signatories of the respective armistice
agreements and of the Crimea declaration on liber-
ated Europe. That declaration stated that the
three principal Allies would concert their policies
with the view to assisting liberated countries to
solve their pressing political and economic prob-
lems. The Department has accordingly expressed
this view to the Soviet and British Governments
and has stated that this country would be glad to
discuss with them the formulation of a program of
economic collaboration to assist the economic recov-
ery of Hungary.
OCTOBER 28, 1945
699
Resumption of American
Business Operations in
Pacific Area
[Released to the press October 26]
Prompt resumption of American business opera-
tions in the Pacific area is expected, the Depart-
ment of State announced on October 26 in sum-
marizing the steps taken to facilitate it.
Regular steamship service between the United
States and the Far East will be resumed after No-
vember 1, with the lines accepting private ship-
ments. Air transportation, now confined to service
by way of India, will soon be available across the
Pacific. At the request of the Department of
State, the War Department has agreed whenever
possible to have food, quarters, and local transpor-
tation furnished to American businessmen travel-
ing in the Far East, when such accommodations
are not obtainable in the usual way.
Communications have been reestablished with
principal cities on a commercial basis, and efforts
are being made to bi'ing about the reestablishment
of banking services. American consular officers
are on duty in the principal cities of China and at
Hong Kong, Manila, and Singapore.
Since the presence of representatives of Ameri-
can firms is recognized as necessary to the restora-
tion of trade, the Department has been granting
passports to these representatives since shortly
after V-J Day. The Chinese Government has
authorized its consulates in this country to grant
visas to American businessmen without reference
to Chungking, and this cooperative act has greatly
speeded the trader on his way.
Living and business conditions in the Far East
are not yet normal, according to reports received
from the Department's representatives, and the re-
turning American businessman is faced at times
with shortages and inconveniences, but these are,
at the same time, looked upon as indications of the
need for his return. It is the Department's policy
as John Carter Vincent, Director of the Office of
Far Eastern Affairs recently pointed out, to en-
courage and facilitate the reestablishment of
American business in China. "Probably not with
all the speed desired," Mr. Vincent said, "but with
all the speed we can generate, we are endeavoring
to get businessmen back into China for their sake
and for China's sake".
James C. Dunn To Return
From London
Statement by THE SECRETARY OF STATE
[Released to the press October 25]
I have asked Assistant Secretary of State James
C. Dunn, who is serving as my Deputy on the
Council of Foreign Ministers, to return tempo-
rarily to the Department of State. Mr. Dunn will
leave London about November 4 and during his
absence Ambassador Winant will carry on as my
Deputy.
PRESIDENT TRUMAN— Con iinwerf from page 660.
Assume that the United States and Japan both
had had a supply of the bombs on December 7,
194L Wliich would have survived?
Suppose that both England and Germany had
had the atomic bomb in September of 1940 during
the "Blitz" over England. Which country would
have been destroyed?
The answer is clear that the atomic bomb is of
little value without an adequate army, air, and
naval force. For that kind of force is necessary
to protect our shores, to overcome any attack, and
to enable us to move forward and direct the bomb
against the enemy's own territory. Every new
weapon will eventually bring some counterde-
fense against it. Our ability to use either a new
weapon or a counterweapon will ultimately de-
pend uiDon a strong army, navy, and air force,
with all the ^millions of men needed to supply
them — all quickly mobilized and adequately
equipped.
I urge that the Congress pass this legislation
promptl}^ — while the danger is still fresh in our
minds — while we still remember how close we
came to destruction four years ago — while we can
vividly recall the horrors of invasion which our
Allies suffered — and while we can still see all the
ravages and ruin of war.
Let us not by a short-sighted neglect of our
national security betray those who come after us.
It is our solemn duty in this hour of victory to
make sure that in the years to come no possible
aggressor or group of aggressors can endanger
the national security of the United States of
America.
700
DEPARTMENT OF STATE BULLETIN
Foreign Trade Agreements:
Regulations for Public Notice
And Presentation of Views
[Released to the press October 26]
Executive Order No. 6750 of June 27, 1934, is
hereby amended to read as follows :
Whereas section 4 of the act approved June
12, 1934, 48 Stat. 945, as amended by Public Law
130, 79th Congress, approved July 5, 1945, pro-
vides as follows :
' "Sec. 4. Before any foreign trade agreement is
conchided with any foreign government or instru-
mentality thereof under the provisions of this
Act, reasonable public notice of the intention to
negotiate an agreement with such government or
instrumentality shall be given in order that any
interested person may have an opportunity to pre-
sent his views to the President, or to such agency
as the President may designate, under such rules
and regulations as the President may prescribe;
and before concluding such agreement the Presi-
dent shall seek information and advice with re-
spect thereto from the United States Tariff Com-
mission, the Departments of State, War, Navy,
Agricultiire, and Commerce and from such other
sources as he may deem ai^propriate."
Now, Therefore, by virtue of the authority
vested in me by the foregoing statutory pi'ovisions,
I hereby prescribe the following regulations gov-
erning the procedure with respect to the giving of
public notice of the intention to negotiate foreign
trade agreements and with respect to the granting
of opportunity to interested persons to present
their views :
1. At least thirty days before any trade agree-
ment is concluded under the provisions of the said
act of June 12, 1934, as amended, commonly known
as the Trade Agreements Act, the Secretary of
State shall cause notice of the intention to nego-
tiate such agreement to be published in the Fed-
eral Register. Such notice shall also be issued to
the press and published in the Department of
State Bulletin, the Treasury Decisions, and the
Foreign Commerce Weekly.
2. Persons desiring to present their views with
respect to any such proposed agreement shall pre-
sent them to the Committee for Reciprocity In-
formation. The said Committee shall consist of
members designated from the personnel of their
i-espective agencies by the Chairman of the United
States Tariff Commission, the Secretary of State,
the Secretary of the Treasury, the Secretary of
War, the Secretary of the Navy, the Secretary of
Agriculture, the Secretary of Commerce, and the
heads of such other agencies as the Secretary of
State may designate on the recommendation of
the Committee. The chairman of the Committee
shall be designated from among the members of
the Committee by the Secretary of State. The
Committee may designate such subcommittees as
it may deem necessary.
3. The Committee shall accord reasonable op-
portunity to interested persons to present their
views on any proposed or existing trade agree-
ment or any asj^ect thereof. The form and man-
ner in which such views may be presented, the
place at which they shall be presented, and the
time limitations for such presentation shall from
time to time be prescribed by the Committee.
The provisions of Executive Order No. 8190 of
July 5, 1939, relating to the Committee for Reci-
procity Information are hereby revoked.
Harry S. Truman
The WnrrE House,
October 25, 19J^
Letters of Credence
Ambassador of Haiti
The newly appointed Ambassador of Haiti, Mr.
Jacques C. Antoine, presented his letters of cre-
dence to the President on October 17. For text of
these credentials and the reply by the President
see Department of State press release 772.
Minister of Sweden
The newly appointed Minister of Sweden, Her-
man Eriksson, presented his letters of credence to
the President on October 23. For the texts of his
remarks and the President's reply see Department
of State press release 795.
OCTOBER 28, 1945
701
Removal of Wartime Objection
To Study Abroad
[Released to the press on October 22]
On December 28, 1942 the Department of State
announced that, because of the increasingly ex-
igent demands of the war upon the manpower
supply of the United Nations, it had been found
necessary to suspend, for the duration of the war,
the award of official fellowships and travel and
maintenance grants to students from the United
States for study in the other American republics.'
Since, with the end of the war, the conditions
which led to the issuance of the announcement are
rapidly disapj^earing, particularly with the re-
turn to civilian life of large numbers of war vet-
erans, the Department is withdrawing its pre-
vious objection to study abroad by United States
citizens. In doing so, however, it draws atten-
tion to the fact that the educational institutions
in a number of countries outside the Western Hem-
isphere are not in condition to receive students
from this country, in addition to which transpor-
tation facilities are at present difficult to obtain.
The Department hopes however that, as soon as
travel conditions improve, repi'esentative Amer-
ican citizens will undertake either graduate study
or research, or supervised short-term imdergrad-
uate study, in foreign countries and thus recip-
rocate the confidence shown by the many foreign
students who have come to United States educa-
tional institutions during the war despite hard-
ships of travel and living accommodations.
An announcement regarding the resumption of
the Government's travel- and maintenance-grant
program for study in the other American repub-
lics and the fellowships under the Convention
for the Promotion of Inter-American Cultural
Relations will be made at a later date. Inquiries
regarding application forms for these programs
should be addressed to the United States Office of
Education, Washington 25, D. C.
The Proclaimed List
[Released to the press October 28]
The Secretary of State, acting in conjunction
with the Acting Secretary of the Treasury, the
Attorney General, the Secretary of Commerce,
and the Acting Director of the Office of Inter-
American Affairs, on October 28 issued Cumula-
tive Supi^lement 7 to Revision IX of the Pro-
claimed List of Certain Blocked Nationals.
Cumulative Supplement 7 to Revision IX super-
sedes Cumulative Supplement 5 dated July 27,
1945, and Noncumulative Supplement 6 dated
September 14, 1945.
Part I of Cumulative Supplement 7 contains 6
additional listings in the other American re-
publics. In the case of Alfredo E. INIoll, a sub-
stantial amount of the evidence occasioning the
listing was discovered by the occupation authori-
ties in Germany. Part I also contains 353 dele-
tions; Part II contains 25 additional listings
outside the American republics and 27 deletions.
The names of a considerable number of persons
and enterprises in Brazil have been deleted in the
current supplement. These deletions are possible
because of the effective action taken by the Bra-
zilian Government to eliminate Axis enterprises
and because the laws of Brazil are deemed ade-
quate to control deleted persons whose activities
still require supervision. With some exceptions,
the deletions for Brazil do not indicate that con-
tinued control by the Brazilian Government is
umiecessary; on the contrary, it means that the
laws of Brazil are deemed to be adequate to control
the activities and assets of undesirable persons
whose names have been deleted.
^ THE FOREIGN SERVICE ^
Consular Offices
The American Consulate General at Singapoi'e
was reopened October 10, 1945.
Confirmations
On October 26, 1945 the Senate confirmed the
nomination of Avra M. Warren to be Envoy
Extraordinary and Alinister Plenipotentiary to
New Zealand.
' Bulletin of Jan. 2, 1943, p. S.
702
DEPARTMENT OF STATE BULLETIN
Visit of Ecuadoran Art
Director
[Released to the press October 25]
Nicolas Delgudo, Director General of Fine Arts
in tlie Ministry of Education, Quito, Ecuador, is
in the United States for the purpose of establish-
ing relations between leading art centers of this
country and of Ecuador, and of making a special
study of the organization and administration of
nuiseums in the United States. He has held such
posts as professor of painting in the National
School of Fine Arts of Ecuador, and later pro-
fessor of painting and of the history of colonial art
in the National Museum. He is now officially
charged by the Government of Ecuador with the
organization of museums and is Director of La
Casa Colonial, a museum in Quito. He is also
directing the cataloguing of private and public
art collections and of buildings of archeological,
historical, and artistic value.
Mr. Delgado visited the United States in
1939—4:0, when he was commissioned by his Gov-
ernment to take charge of the Ecuadoran exhibit
at the Golden Gate International Exposition.
He has also studied and traveled widely in Europe.
As a guest of the Department of State, he
intends to spend three months in the United
States.
THE CONGRESS
Foreign Commerce Weekly
The following articles of interest to readers of
the BuLLEmN appeared in the October 13 issue
of Foreign Commerce Weekly, a publication of the
Department of Commerce, copies of which may be
obtained from the Superintendent of Documents,
Government Printing Office, for 10 cents each :
"Danish Industry Now : Position and Pros-
pects", by John Manfred Hager, senior economic
analyst, American Legation and Consulate Gen-
eral, Copenhagen.
"Reconstructing Manila: Extensive Plans Now
Set", by John M. Beard, senior economic analyst,
American Consulate General, Manila.
"Drugs and Pharmaceuticals in Contemporary
Turkey", by Paul S. Gninn, consul, American
Consulate General, Istanbul.
Foreign War Belief Operations. Jlessage from the
President of the United States transmitting the cumula-
tive rep<irt on refugees and foreign war relief operations
from July 1, ISMO, through April 30, 1945. H. Doc. 262,
79th Cong, viii, 99 pp.
Supplemental Estimate of Appropriation for the Export-
Import Bank of Washington. Communication from the
President of the United States transmitting supplemental
estimate of appropriation for thi> fiscal year 1946 in the
amount of |104,000 for the Export-Import Bank of Wash-
ington. H. Doc. 336, 79th Cong. 2 pp.
Universal Military Training. Address of the President
of the United States before a joint session of the Senate
and House of Representatives presenting his recommenda-
tions with respect to universal military training. H. Doc.
359, 79th Cong. 7 pp.
Surplus Disposal in Canada. Report of the Committee
on Military Affairs, pursuant to S. Res. 46. S. Rept. 199,
Part 4, 79th Cong, ii, 5 pp.
Reorganization of Government Agencies. Rejjort from
the Committee on the Judiciary to accompany S. 1120,
a bill to provide for the reorganization of Government
agencies, and for other purposes. S. Rept. 638, 79th Cong,
ill, 36 pp. [Favorable report.]
Arctic Weather Reporting Stations. S. Rept. 656, 79th
Cong., to accompany S. 765. 5 pp. [Favorable report.]
Convention on International Civil Aviation : Hearings
before the Committee on Foreign Relations, United States
Senate, Seventy-ninth Congress, first session, on Execu-
tive A, a Convention on International Civil Aviation, Chi-
cago, 111.. December 7, 1944. February 20, 23, March 6,
9, 19, 20, 23, and 26, 1945.
Entrance of South American Cadets to Merchant Marine
Academy: Executive Hearings before the Committee on
the Merchant Marine and Fisheries, House of Representa-
tives, Seventy-ninth Congress, first session, on H.R. 1751,
a bill to authorize the course of instruction at the United
States Blerchant Marine Academy to be given to not
exceeding twenty persons at a time from the American
Republics, other than the United States. September 27,
1945. iii, 16 pp.
First Supplemental Surplus Appropriation Rescission
Bill, 1946 : Hearings before tlie subcommittee of the Com-
mittee on Appropriations, House of Representatives,
Seventy-ninth Congress, first session, on the first supple-
mental surplus appropriation rescission bill, 1046. Part I,
Departments and Civil Agencies, ii, 964 pp.
OCTOBER 28, 1945
703
THE DEPARTMENT
Establishment of the Interim Foreign
Economic and Liquidation Service'
1 In accordance with the authority contained in Part
III, paragraph 11 of Executive Order 9630, there is hereby
established within the Department the Interim Foreign
Economic and Liquidation Service.
2 The Service will carry out the functions transferred
to the Department from the Foreign Economic Adminis-
tration and the office of the Army-Navy Liquidation Com-
missioner by Executive Order 9630.
3 The Service shall be administered by the Special
Assistant to the Secretary and Foreign Liquidation Com-
missioner under the general direction of the Secretary,
reporting to him through the Assistant Secretary for Eco-
nomic Affairs.
4 The Service shall continue to operate as an organ-
izational entity within the Department pending a deter-
mination as to which of its functions shall be continued in
the permanent organization of the Department after which
the Service shall be liquidated.
5 The records, property, and appropriation balances
transferred to the Department by Executive Order 9630
shall be utilized in the operation of the Service until the
Service finally is liquidated and for the operation of the
functions continued in the jiermanent organization of the
Department.
6 The personnel transferred to the Department by Exec-
utive Order 9630 shall be utilized in the Interim Service
for such time as their services may be required. At the
discretion of the Assistant Secretary for Administration,
any of the personnel transferred to the Department by
Executive Order 9630 may be temporarily detailed or trans-
ferred to the permanent organization of the Department
in accordance with approved personnel policies for the per-
formance of functions which may be continued after the
final liquidation of the Interim Service.
James F. Btbnes
Establishment of a Deputy on Financial
Affairs in the Office of the Assistant
Secretary for Economic Affairs ^
1 There is hereby established in the Office of the As-
sistant Secretary for Economic Affairs a Deputy on Finan-
cial Affairs who shall coordinate the work of the Oflice
of Financial and Development Policy and of the Office
of Economic Security Policy. He shall also coordinate
the policy of the Office of Foreign Liquidation with the
policy of the other offices named ; and shall carry out
such other functions as the Assistant Secretary may
from time to time direct.
2 Departmental Orders 1301 of December 20, 1944 and
1311 of March 9, 1945 are amended accordingly.
James P. Btenes
Establishment of an OflB.ce of Foreign
Liquidation^
1 This Order is issued to establish an Office of Foreign
Liquidation which will take action, in accordance with
the prevailing foreign policy of the United States, in-
volving problems incident to Lend Lease, Surplus War
Property disposal and supplying requirements in liberated
areas.
2 There is hereby established an Office of Foreign
Liquidation which shall be administered by the Special
Assistant to the Secretary and Foreign Liquidation Com-
missioner under the general direction of the Secretary,
reporting to him through the Assistant Secretary for eco-
nomic affairs.
3 The Office shall be responsible for taking necessary
action (based on prevailing foreign policy) on the con-
tinuing phases of problems in connection with the func-
tions of Lend Lease, Surplus War Property and liberated
area requirements transferred to the Department of State
under the terms of Executive Order 9630.
4 The Foreign Liquidation Commissioner shall carry
out his functions in accordance with the delegation of
authority dated October 20, 1945.
James P. Byenes
Establishment of the Ofl&ce of Economic
Security Policy*
I There is hereby established under the Assistant Sec-
retary in charge of economic affairs the Office of Economic
Security Policy which shall be under the direction of the
Deputy to the Assistant Secretary for Economic Affairs.
The Office of Economic Security Policy shall be responsible
for initiation, formulation and coordination of policy and
action by the Department of State for economic security
policy, including economic aspects of the occupation of
Germany, Austria, Japan and Korea.
II There shall be established within the Office of Eco-
nomic Security Policy (a) Division of Economic Security
" Departmental Order 1343, dated Oct. 19, 1945 and effec-
tive Oct. 20, 1945.
' Departmental Order 1344, dated Oct. 19, 1945 and effec-
tive Oct. 20, 1945.
' Departmental Order 1345, dated Oct. 19, 1945 and effec-
tive Oct. 20, 1945.
* Departmental Order 1346, dated Oct. 19, 1945 and effec-
tive Oct. 20, 1945.
704
DEPARTMENT OF STATE BULLETIN
Controls, (b) Division of German and Austrian Economic
Affairs, and (c) Division of Japanese and Korean Eco-
nomic Affairs. Each division shall have responsibility for
the initiation, formulation and coordination of policy and
action of programs as follows :
A Division of Economic Security Controls. (1) Foreign
funds or properties; (2) export control — applicability to
specified designees; (3) control and disposition of enemy
property in the United States and in other countries; (4)
prevention of concealment or flight of enemy assets and
capital; (5) protection or restoration of patent, copyright
or similar rights affected by the war; (6) administration
of financial and economic controls in accordance with the
several inter-American Conferences including replacement
of Axis concerns; and (7) collection, evaluation and or-
ganization of biographic data.
B Division- of Oerman and Austrian Economic Affairs.
(1) Economic and financial matters related to the oc-
cupation and control of Germany in accordance with the
principles established by the Potsdam Conference; (2)
Economic and financial aspects of the occupation and con-
trol of Austria and its reestablishment as an independent
state; (3) Reparations, restitution and economic and
financial aspects of peace treaties insofar as these relate to
Germany and Austria.
Division of Japanese and Korean Economic Affairs.
(1) Economic and financial matters related to the occupa-
tion and control of Japan ; (2) Economic and financial
aspects of the occupation and control of Korea and its re-
establishment as an independent state; (3) Reparations,
restitution and economic and financial aspects of peace
treaties insofar as these relate to Japan and Korea.
III The following functions and administrative units
shall be transferred to the Office of Economic Security
Policy together with personnel and records :
A The Division of Economic Security Controls
B The Office of the Adviser on German Economic
Affairs
C The Office of the Adviser on Far Eastern Economic
Affairs
D The function of reparations and financial aspects
of peace treaties involving Germany, Austria, Japan and
Korea, now being handled by the Division of Financial
Affairs
B The function of formulating policy with respect to
the industrial aspects of occupation and peace treaties
involving Germany, Austria, Japan and Korea, now being
handled by the Division of Foreign Economic Development.
IV Code symbols shall be as follows :
A Office of Economic Security Policy (ESP)
B Division of Economic Security Controls (ES)
C Division of German and Austrian Economic Affairs
(GA)
D Division of Japanese and Korean Economic Affairs
(JK)
V Departmental Orders amended. Departmental Order
1311 dated March 9, 1945 and any other orders, the pro-
visions of which are in conflict herewith, are accordingly
amended.
James F. Byrnes
Delegation of Authority to the Foreign
Liquidation Commissioner'
Pursuant to the provisions of the Surplus Property Act
of 1944 (58 Stat. 765), Surplus Property Board Revised
Regulation 8 dated September 25, 1945 (10 F.R. 12452),
designating the Department of State as the disposal agency
for all surplus property located in foreign areas, except-
ing certain ves.sels, and Executive Order 9630, dated Sep-
tember 27, 1945 (10 F. R. 121:45), transferring to the
Department of State all functions of the Army-Navy Liqui-
dation Commissioner, and all functions of the War Depart-
ment and the Navy Department relating to the disposi-
tion abroad of property capturetl from the enemy, and
transferring to the Secretary of State so much of the func-
tions of the Secretary of War and the Secretary of the
Navy as related thereto, it is hereby ordered that :
1 Tliere is hereby delegated, as herein provided, to the
Foreign Liquidation Commissioner the authority now or
hereafter vested in the Secretary of State or the De-
partment of State to dispose of, subject to the authority
of the Surplus Property Administrator under the Surplus
Property Act of 1944, all surplus property, including scrap,
salvage, waste materials, property captured from the
enemy, and surplus property of Lend-Lease origin, in the
control of or for the disposal of which the Department
of State may be responsible, located in foreign areas.
2 The Foreign Liquidation Commissioner will exercise
the authority hereby delegated imder the general super-
vision of, and in conformity with such directions, orders,
or instructions as may from time to time be issued by,
the Secretary of State in the execution of the foreign
policies of the United States, and he will report to the
Secretary of State through the Assistant Secretary of State
for Economic Affairs.
3 Provisions of law and regulations requiring owning
agencies to file with the Department of State, as the dis-
posal agency, declarations of surplus real and personal
properties located in foreign areas, shall be complied with
by filing in such manner as the Foreign Liquidation Com-
missioner may direct.
4 The Foreign Liquidation Commissioner is authorized,
with the approval of the Assistant Secretary for Economic
Affairs, to designate :
(a) One or more Deputy Commissioners who may in
the order prescribed in the instrument of appointment
exercise all of the authority and perform all of the func-
tions hereunder of the Commissioner in his absence, and
one or more assistant Commissioners who may in the order
prescribed in the instrument of appointment exercise all
of the authority and perform all of the functions of Com-
missioner hereunder in the absence of the Commissioner
and the Deputy Commissioners ;
(b) Field Commissioners, Deputy Representatives, Offi-
cers, and Assistants ;
(c) In such representative capacities as may be deemed
necessary, such officers and enlisted personnel of military
or naval establishments as may be detailed to the Depart-
' Departmental Order 1347, dated and effective Oct. 20,
1945.
OCTOBER 28, 1945
705
uient of State pursuant to Executive Order 9630 of Septem-
ber 27, 1945 ( 10 F.R. 12245) .
5 The Foreign Liquidation Commissioner or his local
representatives are authorized to call upon the War and
Navy Departments, and the military commander of any
Theater of Operations, command, department or base in
foreign areas and the Naval Commander of any area,
several areas or fleet, or the Commandant of a Naval Dis-
trict, in foreign areas for the assignment within his
Command to the local representative of the Commissioner,
of such military and Naval personnel, transportation, and
administrative services, or facilities as may be required to
be furnished by them pursuant to paragraphs 8 and 9 of
Executive Order 0630, dated September 27, 1945 (10 F.R.
12245).
6 The Commissioner is authorized, with the approval
of the Assistant Secretary for Economic Affairs, to re-
delegate and authorize successive redelegations of all or
any part of his authority and functions hereunder to such
Deputy Commissioners, Assistant Commissioners. Field
Conmiissioners, Deputy Representatives, Officers, Assist-
ants, and to any United States Government agency, with
the consent of such agency, or subject to such conditions,
directions and restrictions as may be prescribed by the
Commissioner or his authorized representatives, either in
the instrument of delegation, or otherwise from time to
time, to a person under the complete control of such Gov-
ernment agency.
7 Such personnel as may be necessary to enable the
Commissioner to carry out his functions shall be sui^plied
by the Division of Departmental Personnel and the Divi-
sion of Foreign Service Personnel.
8 The Foreign Liquidation Commissioner will maintain
records of all his transactions and require that such rec-
ords be kept by each foreign representative in the form
and manner prescribed by him.
9 This Order is effective as of the close of business Oc-
tober 20, 1945.
James F. Bybnes
Appointment of Officers
Emilio G. Collado as Deputy on Financial Affairs to the
Assistant Secretary for Economic Affairs, effective Octo-
ber 20, 1945.
Dudley Maynard Phelps as Acting Director of the Office
of Financial and Development Policy, concurrently with
his duties as Chief of the Division of Foreign Economic
Development, effective October 20, 1945.
John Stam Hooker as Deputy Director of the Office of
Financial and Development Policy, effective October 20,
1945.
Thomas B. McCabe as Special Assistant to the Secretary
and Foreign Liquidation Commissioner, effective October
20, 1945.
Seymour J. Rubin as Acting Director and Deputy Di-
rector of the Office of Economic Security Policy, effective
October 20, 1945.
Edwin M. Martin as Chief of the Division of Japanese and
Korean Economic Affairs, effective October 20, 1945.
William T. Turner as Chief of the Division of Japanese
Affairs, effective October 22, 1945.
Ellis O. Briggs as Director of the Office of American
Republic Affairs, effective October 22, 1945.
Abram Bergson as Consultant in the Division of Foreign
Economic Develniiment, effective October 22, 1945.
Benjamin Gerig as Adviser to the Division of Interna-
tional Organization Affairs, concurrently with his duties
as Chief of the Division of Dependent Area Affairs,
effective October 6, 1945.
John P. Young as Associate Chief and Adviser on Foreign
Investment in the Division of Foreign Economic Develop-
ment, effective October 1, 1945.
J. Anthony Panuch as Deputy to the Assistant Secre-
tary for Administration, effective October 24, 1945.
Alfred McCormack, Special Assistant to the Secretary
in charge of research and intelligence, to be in charge of
the Interim Research and Intelligence Service, effective
October 24, 1945.
Donald S. Russell as Chairman and William Benton as
Member on the Board of Foreign Service Personnel and
the Board of Examiners for the Foreign Service, effective
October 17, 1945.
Confirmations
On October 22, 1945 the Senate confirmed the nomi-
nation of Spruille Braden as Assistant Secretary of
State.
Publications
of the DEPARTMENT OF STATE
For sale by the Superintendent of Documents,
Government Printing Office, Washington 25, D. C,
who is the authorized distributor of Government
publications. To avoid delay, address requests
direct to the Superintendent of Docmnents, ex-
cept in the case of free publications, which may
be obtained from the Department of State.
*Report on First /Session of the Council of For-
eign Ministers, by James F. Byrnes, Secretary
of State, October 5, 1945. Publication 2398.
10 pp. 5^.
Broadcast from Washington, D. C, over the network
of the Columbia Broadcasting System. The first ses-
sion of the Council of Foreign Ministers was held in
London from September 11, 1945 to October 2, 1945.
^Department of State Bulletin Index, Volume
XII, Numbers 289-313, January 7-June 24,
1945. Publication 2395.
A cumulative list of the publications of the Department
of State, from October 1, 1929 to July 1, 19i5 {publication
2373) may be secured from the Department of State.
706 DEPARTMENT OF STATE BULLETIN
OntentS — continued
The United Nations — Continued
Educational and Cultural Conference: Page
Appointment of William G. Carr on Secretariat . . . '. 686
Francis M. Crowley and Mark Starr To Join U. S. Dele-
gation 686
United Nations Food and Agriculture Organization:
Agricultural Committee Panels 686
Signing of the FAO Constitution 686
Treaty Information
The Charter of the United Nations: Entry Into Force . . 679
Statement by Edward R. Stettinius, Jr 680
Occasion of Signing of the Protocol of Deposit of Ratifica-
tions. Statement by the Secretary of State .... 680
Signing of the FAO Constitution 686
Foreign Trade Agreements. Regulations for Public Notice
and Presentation of Views 700
The Department
James C. Dunn To Return From London. Statement by
the Secretary of State 699
Establishment of the Interim Foreign Economic and Liqui-
dation Service 703
Establishment of a Deputy on Financial Affairs in the Office
of the Assistant Secretary for Economic Affairs. . . . 703
EstabUshment of an Office of Foreign Liquidation .... 703
Establishment of the Office of Economic Security Policy . , 703
Delegation of Authority to the Foreign Liquidation Com-
missioner 704
Appointment of Officers 705
Confirmations 706
The Foreign Service
Consular Offices 701
Confirmations 701
Publications
Foreign Commerce Weekly 702
Department of State 705
The Congress. . 702
U. S. GOVERNMENT PRtNTINfi OFFICEi IS49
THE DEPARTMENT OF STATE
BU
J
-A
1 r
J .
1
VOL. XIII, NO. 332
NOVEMBER 4, 1945
In this issue
NEIGHBORING NATIONS IN ONE WORLD
Address by the Secretary of State
THE VOICE OF AMERICA
Address by Assistant Secretacy Benton
THE ST. LAWRENCE WATERWAY AND WORLD TRADE
By Edward G. Miller, Jr.
POSTSCRIPTS ON THE THIRD INTER-AMERICAN RADIOCOMMUNICATIONS
CONFERENCE
By Robert R. Burton and Donald R. MacQuivey
^©NT o^
For complete contents
see inside cover
U. S. SUPERINTENDENT OF DOCUMENTS
DEC 271945
THE DEPARTMENT OF STATE
BULLETIN
^^."T o»
Vol. XIII'No. 332»
• Publication 2419
November 4, 1945
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Research and
Publication, Office of Public Affairs,
provides the public and interested
agencies of the Government with
information on developments in the
field of foreign relations and on the
work of the Department of State and
the Foreign Service. The BULLETIN
includes press releases on foreign
policy issued by the White House and
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addresses made by the President and
by the Secretary of State and other
officers of the Department, as well as
special articles on various phases of
international affairs and the functions
of the Department. Information con-
cerning treaties and international
agreements to which the United States
is or may become a party and treaties
of general international interest is
included.
Publications of the Department, cu-
mulative lists of which are published
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legislative material in the field of inter-
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ontents
American Republics p
Recognition of Government of Venezuela 734
Normal Relations With New Brazilian Administration , . 734
Postscripts on the Third Inter-American Radiocommuni-
cations Conference. By Robert R. Burton and Donald
R. MacQuivey 735
The Caribbean
Meeting of Anglo-American Caribbean Forestry Commit-
tee 737
Europe
Participation by Civil Authorities in Government of Ger-
many 72 J
Visit of Prime Minister Attlee 714
Mail Service to Italy 734
Hungarian Minister to the United States 734
Far East
Far Eastern Advisory Commission:
Advisers to United States Representative 728
Appointment of Temporary Secretary 72s
Appointment of Indian Representative 728
List of Representatives 728
Opening Session:
Statement by the Secretary of State 728
Motion Presented by Chinese Representative .... 729
Japanese Reparations Mission:
Announcement by the President 729
Members of the Mission 729
Directive From General MacArthur to the Imperial Japa-
nese Government 730
Departure From Shanghai of the S. S. Lavaca 733
Near East
U. S. Supply Arrangements for the Middle East 727
Cultural Cooperation
Dickson Reck Returns From China 733
General
The Voice of America. Address by Assistant Secretary
Benton 712
Pearl Harbor Investigation 732
Areas Opened for Civilian Travel 733
The United Nations
Neighboring Nations in One World. Addre.ss by the Secre-
tary of State 709
Meeting of the Preparatory Commission of the United
Nations:
Agreement on the Security Council 720
Discussion on the Secretariat 721
Discussions on the Report on the General Assembly . . 721
Discussions on Location of United Nations Permanent
Headquarters 722
Food and Agriculture Organization of the United Nations:
Food and Agriculture Subcommittee of the Emergency
Economic Committee for Europe 724
Position of Soviet Delegation Regarding FAO. Report
by the Chairman 726
Final Plenary Session 726
{Continued on Page 742)
Neighboring Nations in
ONE WORLD
Ihe subject about which I wish to speak briefly
this evening is "Neigliboring Nations in One
World."
It was no accident that President Roosevelt, who
did so much to develop our inter-American sys-
tem, did even more to develop the world commu-
nity of the United Nations. For today all nations
are neighbors, and although we may have special
relations with our nearer neighbors in the Amer-
icas, we must remember that we and they are parts
of a single, interdependent world.
When we consider the principles which govern
our inter-American system as it has been worked
out in recent years, it is well to remember that
these principles were not always recognized by us
in our relations with our neighbors. There were
times, not so far distant, when we tried "dollar
diplomacy" and intervention and were accused of
"Yankee imperialism."
But we have learned by experience that to have
good neighbors we must be a good neighbor.
We have discovered that understanding and
good-will cannot be bought and cannot be forced.
They must spring spontaneously from the people.
We have learned also that there can be no lasting
friendship between governments unless there is
understanding and good-will between their
l^eoples.
In the inter-American system the members do
not interfere in the internal affairs of their neigh-
bors nor do they brook interference in those inter-
nal affairs by others. Freedom means more than
freedom to act as we would like them to act.
But we do want other people to know what our
people are thinking and doing. And we want to
know what other people are thinking and doing.
Only with such knowledge can each people deter-
mine for itself its way of life.
We believe other nations have a right to know
of our own deep attachment to the principles of
Address by
THE SECRETARY OF STATE ^
democracy and human rights ; our profound belief
that governments must rest upon the free consent
of the governed ; and our firm conviction that peace
and understanding among nations can best be fur-
thered by the free exchange of ideas.
While we adhere to the policy of non-interven-
tion, we assert that knowledge of what other people
are thinking and doing brings understanding; and
understanding brings tolerance and a willingness
to cooperate in the adjustment of differences.
Censorship and blackouts, on the other hand,
breed suspicion and distrust. And all too often
this suspicion and distrust are justified. For cen-
sorship and blackouts are the handmaidens of
oppression.
The policy of non-intervention in internal affairs
does not mean the ajsproval of local tyranny. Our
policy is intended to protect the right of our neigh-
bors to develop their own freedom in their own
way. It is not intended to give them free I'ein to
plot against the freedom of others.
We have learned by bitter experience in the
past ten years that Nazi and Fascist plans for ex-
ternal aggression started with tyrannies at home
which were falsely defended as matters of purely
local concern. We have learned that tyranny any-
where must be watched, for it may come to threaten
the security of neighboring nations and soon be-
come the concern of all nations.
If, therefore, there are developments in any
country within the inter- American system which,
realistically viewed, threaten our security, we con-
' Delivered before the Herald Trihune Forum in New
Tork, N. Y., on Oct. 31, 1945 and released to the press
Nov. 1.
709
710
DEPARTMENT OF STATE BULLETIN
suit with other members in an effort to agree upon
common policies for our mutual protection.
We Americans can take genuine pride in the
evolution of the good-neighbor policy from what,
in a way, were its beginnings in the Monroe Doc-
trine. We surely cannot and will not deny to other
nations the right to develop such a policy.
Far from opposing, we have sympathized with,
for example, the effort of the Soviet Union to draw
into closer and more friendly association with her
central and eastern European neighbors. We are
fully aware of her special security interests in
those countries, and we have recognized those in-
terests in the arrangements made for the occupa-
tion and control of the former enemy states.
We can appreciate the determination of the peo-
ple of the Soviet Union that never again will they
tolerate the pursuit of policies in those countries
deliberately directed against the Soviet Union's
security and way of life. And America will never
join any groups in those countries in hostile in-
trigue against the Soviet Union. We are also con-
fident that the Soviet Union would not join in
hostile intrigue against us in this hemisphere.
We are concerned to promote friendship, not
strife, among neighbors everywhere. For twice
in our generation strife among neighbors has led
to world conflict. Lasting peace among neighbors
has its roots in spontaneous and genuine friend-
ship. And that kind of friendship among nations
depends upon mutual respect for one another.
It is our belief that all peoples should be free
to choose their own form of government, a govern-
ment based upon the consent of the governed and
adapted to their way of life.
We have put that belief into practice in our
relations with our neighbors. The Soviet Union
has also declared that it does not wish to force the
Soviet system on its neighbors. The whole-hearted
acceptance of this principle by all the United Na-
tions will greatly strengthen the bonds of friend-
ship among nations everywhere.
But the point I wish to emphasize is that the pol-
icy of the good neighbor, unlike the institution of
marriage, is not an exclusive arrangement. The
best neighbors do not deny their neighbors the
right to be friends with others.
We have learned that our security interests in
this hemisphere do not require its isolation from
economic and cultural relations with the rest of the
world.
We have freely accepted the Charter of the
United Nations, and we recognize the paramount
authority of the world community. The Charter,
while reserving to us and other nations the inher-
ent right of individual and collective self-defense
in case of armed attack, requires that enforcement
action taken under regional arrangements be sanc-
tioned by the Security Council of the United Na-
tions Organization.
Moreover, we adhere strictly to the policy that
cooperation among the American republics does
not justify discrimination against non-American
states. The American republics have practiced the
policy of equal treatment for all states which
respect the sovereignty and integrity of their
fellow states.
Inter-American cooperation is not inconsistent
with world-wide cooperation among the nations.
Regional arrangements, like the inter-American
system, which respect the rights and interests of
other states and fit into the world system can
become strong pillars in the structure of world
peace.
But we cannot recognize regional arrangements
as a substitute for a world system. To do so would
not promote the common and paramount interests
of all nations, large and small, in world peace.
We live in one world; and in this atomic age
regional isolationism is even more dangerous than
is national isolationism.
We cannot have the kind of cooperation neces-
sary for peace in a world divided into spheres of
exclusive influence and special privilege.
This was the great significance of the Moscow
Declaration of 1943.^ That joint statement of
policy pledged the world's most powerful nations
to mutual cooperation in winning the war and
maintaining the peace. It was a landmark in our
efforts to create a world community of nations and
to abandon the discredited system of international
relations based uj^on exclusive spheres of influence.
Out of the Moscow Declaration have come the
Dumbarton Oaks, Tehran, Crimea, San Francisco,
and Potsdam conferences. And the United Na-
tions Organization and the London Council of
Foreign Ministers were created in the spirit of that
Declaration.
International cooperation must — as I empha-
sized in my recent report on the London Council —
depend upon intelligent compromise. It does not
require us or any other nation to neglect its spe-
cial relations with its nearer neighbors. But it
■ BxjLLETiN of Nov. 6, 1943, p. 308.
NOVEMBER 4, 1945
does require that all neighborly relations be fitted
into an organized system of international relations
■world-wide in scope.
The world system which we seek to create must
be based on the principle of the sovereign equality
of nations.
That does not mean that all nations are equal in
power and in influence any more than all men are
equal in power and influence. But it does mean
equal respect for the individuality and sovereignty
of nations, large and small. Nations, like individ-
uals, should be equal before the law.
That principle is the cornerstone of our inter-
American system as it is the cornerstone of the
United Nations.
Adherence to that principle in the making of
the peace is necessary if we are to achieve endur-
711
ing peace. For enduring peace is indivisible. It
is not the exclusive concern of a few large states or
a few large groups of states. It is the concern of
all peoples.
Believing this, the position of the United States
will continue to be that the nations, large and
small, which have borne the burdens of the war
must participate in making the peace.
In centuries past powerful nations have for va-
rious purposes tried to divide the world among
themselves. They failed, and in failing left a
trail of blood through the centuries. Such efforts
have even less chance of success in the modern
world where all nations have become neighbors.
Today the world must make its choice. There
must be one world for all of us or there will be no
world for any of us.
Participation by Civil Authorities
in Government of Germany
[Released to the press by the White House October 31]
26 October 1945.
Dear Mr. President:
You will recall that, when you were in Frank-
furt, you and I agreed upon the desirability of so
organizing the Army's current f imctions in Europe
as to facilitate turning U.S. participation in the
government of Germany over to civil authority at
the earliest possible moment. It is my understand-
ing that the War Department completely supports
this view. Every organizational step we have
taken has been accomplished in such a way as to
facilitate eventual transfer. Nevertheless I am
quite sure that thei-e is a very widespread lack of
realization as to the governing intent along this
line, basing this statement upon the frequency with
which visitors express astonishment that this pur-
pose exists as a guiding policy.
Naturally I am not in position to recommend
an exact date on which such transfer should take
place, since I have assiimed that the four inter-
ested governments would firet have to agi'ee in
principle and thereafter to make arrangements for
simultaneous change from military to civil repre-
sentatives. Moreover, there may be considerations,
important to our government, of which I am mi-
aware. However, from our local viewpoint, other
govei-nments could well be asked to agree to the
proposal at the earliest date that can be mutually
agreed upon, in no event later than June 1, 1946.
As quickly as the matter could be agreed in prin-
ciple, but not before, then actual completion of
the American civil organization should be mider-
taken by whatever civilian you might, at that time,
designate as its eventual head. Such things as
these require time but I am confident that we
should not allow this detail to obscure, in the mind
of any interested pei'son, the clarity of the objec-
tive toward which we are striving.
The matter of civil government of Germany is
entirely separate from the occupational duty of
the Army, wliich responsibility will persist as
long as our own Government deems necessary.
The true function of the Army in this region is
to provide for the United States that reserve of
force and power than can insure within our zone
the prompt enforcement of all laws and regula-
tions prescribed by the Group Council, or in the
absence of such law- and regulation, the policies
laid down by our own Government for the United
States zone.
As you pointed out when here, separation of oc-
cupational and governmental responsibility is
sound just as soon as there is no longer any military
or security reason for holding them together, if
for no other reason than because of its conformity
to the American principle of keeping the Army as
such out of the civil government field.
Eespectfully,
DwiGHT D. Eisenhower
712
DEPARTMENT OF STATE BULLETIN
The Voice of America
Address by
ASSISTAIMT SECRETARY BENTON'
[Released to the press October 30]
The voice of America is a voice with ten thou-
sitnd tongues. It is all that the people of other
lands hear about us and all that they read about
us. It is the American movies they see and the
American G.I.'s and tourists they meet.
I am glad we Americans speak with ten thou-
sand voices. Some critics would call it a con-
fusion of voices. But it is the democratic way of
peoples speaking to peoples. The alternative
way — the single voice — is the way of censorship
and of ministries of propaganda.
My theme tonight is that the people of the
United States, through their Government and
their State Department, have a vital national in-
terest in the voice of America. Their national
security may be at stake if this voice is inadequate
or distorted — if it fails to represent us with reason-
able fullness and fairness as we really are, our
history and our culture, our faults and our fears,
our hopes and our ambitions for our democratic
processes and our free society.
Today 38 short-wave radio transmitters, oper-
ating all over the world under the direction of
our Government, are known to millions in Asia,
Africa, and Europe by the name, the Voice of
Amenca. Here is an example of the new role of
government. The Voice of America radio pro-
grams supplement and help to clarify the message
of America's ten thousand tongues. Further, they
reach vast areas of the world which otherwise
would be completely shut off from America.
There are people in Iceland, in China, Iran, the
Argentine, and the Balkans — millions of ordinary
people all over the world who listen eagerly for
America's voice. During the war these Voice of
America broadcasts went out over the air every
day in the year in 40 languages. Today, in the
backwash of the war, they go out in 18 languages.
They give people in foreign lands straight, im-
jiartial news from America, news in their own lan-
guages, news untainted by special pleading or by
propaganda.
' Delivered before the Herald Tribuve Forum in New
York, N. Y., on Oct. 30, 1945.
The radio Voice of America was developed in
war by the Government. Now before the Ameri-
can people and the Congress is the broad and in-
clusi%'e question: "What role shall the Govern-
ment play in America's voice abroad in peace-
time?"
Is it enough, in the rapidly contracting world
of today, for our people and our Government to
be presented to the peoples of the world as a
giant, completely equipped with battleships, super-
fortresses, and atomic bombs, but voiceless except
for diplomatic exchanges and the erratic inter-
2)lay of private communication?
There is one basis for judging the future in-
formation policy of the Government abroad upon
which we can all agree.
Does an expanded peacetime role for govern-
ment help us to achieve national security? Is it
worthwhile deliberately to explain ourselves to
the rest of the world ? Does this help give us will-
ing and friendly allies, in times of crisis as well
as in peace? Is understanding also a force? Isn't
it the kind of force that we prefer? Suppose we
had to choose between two investments in se-
curity — between a year's cost of tlie radio Voice
of America and its rough equivalent, a year's cost
of operating one battleship in a fleet of battle-
ships?
These are new questions for America. They
will be debated in the next few weeks and over
the years to come. BattleshiiDs are the traditional
symbols of our security. But to speak to the other
peoples of the world about America — to speak
through such new and miraculous channels as
short-wave radio — to seek security through under-
standing rather than through force — that is a
new role for our Government.
In the field of short-wave radio beamed abroad,
we have not yet decided how best to operate or
manage or control; we only know that the Gov-
ernment must put up most of the money to under-
write the cost if a job is to be done.
The American people have deliberately chosen
a policy of active participation in world affairs.
As a people we are becoming aware of the danger
NOVEMBER 4. 1945
713
inherent in that policy. We do not propose to
forsake the policy, but we must realize that the
danger is greater if America is misundei-stood
abroad. The next few years — perhaps the next
few months — are crucial. The new United Na-
tions Organization will be meeting its first tests.
America will be trying to revive world trade on a
sound basis. The time to build the kind of peace
we want is now, and in the years just ahead.
Yet the plain fact is that as we enter this crucial
period America is neither fairly nor fully under-
stood by the peoples of other nations.
America is a legendary country to most of the
world. It has been a land of legend through most
of its history. The legend has changed from time
to time. In the seventeenth and eighteenth cen-
turies, America was a land of freedom ; in the nine-
teenth century, during the great waves of immigra-
tion, it was also the land of opportunity.
The American legend today is a curious and con-
tradictory mixture. A legend can hardly be other-
wise.
We are known to be immensely strong. Yet
Axis propagandists found ready belief for the
story that good living had made us so weak and
spineless we would not and could not fight.
We are acclaimed as generous and open-handed
with billions to spend on lend-lease and rehabilita-
tion — a veritable Uncle Santa Claus. At the same
time we are called Uncle Shylock.
We believe in freedom of speech for all, yet
sinister capitalists are said to control the means of
communication.
We stand for free enterprise, but our critics
abroad stress our great combines and monopolies.
Tlie Metropolitan Opera House is the goal of all
foreign opera stars, but we are said to have no
music except swing.
We believe in due j^rocess of law, yet the world
pictures the gangsters shooting it out on the streets
of Chicago.
Now I am not going to suggest that any role
that the Government can plaj' abroad will clarify
this picture readily or quickly. Like education,
of which it is a part, information is a slow, labori-
ous business that works no miracles and produces
no millenimn of understanding. It can, however,
help to correct mistaken ideas. It can make avail-
able the facts about our actions and our policies,
as they develop out of our customs, our laws, our
institutions, and our politics.
A government information service abroad to
strengthen America's voice should, in major cities,
include a room or three or four rooms or a building
where the ordinary people of Amsterdam or Cairo
or Chungking — for example — can go to find out
about the United States. During the war we de-
veloped small United States libraries in many for-
eign cities. They were used by newspaper writers,
school teachers, doctors, fai-mers, engineers, stu-
dents, and people of the street. There is intense
curiosity abroad about the United States. I am
thinking of the long lines of anxious people who
came to our American library of information in
Melbourne on the day of President Roosevelt's
death. They wanted to know what would happen
to our Government. Would we have an immediate
election? Who would succeed the President and
how and why? Their concern was real and im-
mediate. I am thinking of the foreign youngster
who stopped in at an American picture exhibit
to ask why the boundaries of our states are so
straight. I have in mind a doctor who stops in at
the American library in -Montevideo to search
American medical journals for news of the latest
treatment of infantile paralysis. It is a remarka-
ble fact that the British Government's Stationery
Office has printed and sold more copies of many
American war documents than has our own Gov-
ernment Printing Office. An example is "Target —
Germany," the official report of the operations of
our Eighth Air Force. British bookshops sold
several hundred thousand copies of this report.
A few weeks ago the veteran scholar and world
traveler, Henry Seidel Canby, returned from Aus-
tralia and New Zealand. He reported that our
libraries there — I quote — "Have enabled tlie right
people at the right time to learn for themselves,
from books and not from propaganda, what Amer-
ica was, is, had, could offer, what we were think-
ing and how we felt. They and all such institu-
tions should be part of our permanent foreign
policy," he said.
Far more important than the rooms, of course,
are the books, j^eriodicals, and documents they
house. Few of you can have any conception of
what these mean, for example, to the liberated peo-
ple whose only link with us for the past five years
has been the radio Voice of America. Let me read
a few lines from a letter that came to me from
Athens just the other day. My correspondent is a
stranger to me, Mr. Nicholas Chantiles. This is
what he said : "I knew there was a whole treasure
714
DEPARTMENT OF STATE BULLETIN
behind those library doors. Books and magazines
full of that unrivaled American democratic spirit,
books where the authors are free to express their
ideas and beliefs whatever they may be." I confess
I was moved by that letter.
In wartime we have discovered, too, tlie im-
mense value of official American political docu-
ments to the newspapers, the scholars, and opin-
ion-makers of other countries — documents which
the commercial news sei'vices do not cable in full
and which, therefore, will be sent abroad only by
the Govei-nmeat. Foreign editors ask for the com-
plete texts of presidential siaeeches, acts of Con-
gress, reports such as General Marshall's on M^hich
to base their editorial comments and special
articles.
Our Government documentary films have won
appreciative audiences abroad. Just the other
night I saw a small documentary that has gone
overseas, about the jeep. It showed how Ameri-
can ingenuity produced for war a vehicle that has
captured the fancy of the whole world. It was a
simple but entertaining film. Millions of people
in other lands have been instructed by it. It was
a piece of information about Americans.
Finally, I should like to tell you briefly what a
United States information jwogram should be in
terms of people. The bone and marrow of any
good program are, of course, the people who run it.
There is no substitute for face-to-face relation-
ships. We need only a few hundreds of Govern-
ment information people abroad, directed on pol-
icy by our Ambassadors and available to foreign
editors and broadcasters and others. They should
be real Americans in the sense that they know
America. Having homesteaded in Montana as a
boy, I submit to this New Yoi-k audience that I am
personally partial to those wlio have deep roots
and varied experience in rural and western and
southern America. With such knowledge of
America, they can represent America more faith-
fully in foreign lands.
Perhaps even more important people, over the
long pull, are those we systematically exchange
with other countries— the students, professoi-s,
technicians, scientists, and others. Here in the
United States, such visitors see us as we ai-e and
take that story home. They become our friends
and remain our friends. Those American students
and experts we send abroad to foi-eign universities
and governments go as representatives of our tra-
ditions and culture.
These are some of the materials available to the
State Department in its efforts to represent the
American people in the development of America's
voice overseas. Such efforts need not compete with
our private businesses ojDerating abroad. They ^
should only supplement and facilitate normal com-
mercial and private communications. They should
operate chiefly in those areas where private agen-
cies will not or cannot function profitably. Nor
should we conduct vague, well-meaning good-will
campaigns. Our information program should be
modest, realistic, and candid. America's voice
should be neither the big stick nor the super-sales-
man. The Government's role will represent only
a fraction of the gi-eat volume of communication
between ourselves and our friends abroad — a frac-
tion, but a highly important and indispensable
fraction.
Ultimately, there are only two roads to national
security. One is sheer physical power. The other
is mutual understanding with the othei' countries
of the world. We now need to follow both roads.
But we must hope that we shall need to invest less
of our resources in military power as we invest
more of our thought and attention in the task of
mutual understanding.
In an atomic age, understanding, not bombs, is
the last, best hope of earth.
Visit of Prime Minister Attlee
The Wliite House announced on October 30 that
Prime Minister Attlee will visit the President at
Washington early in November to discuss with him
and Prime Minister Mackenzie King of Canada
2)rbblems to which the discovery of atomic energy
has given rise. The Prime Minister is expected
to arrive in Washington so that discussions can
begin about November" 11.
Oath of Office Taken by
Spruille Braden
Spruille Braden took the oatli of office as As-
sistant Secretary of State at ceremonies in the
Department of State on October 29, 1945.
NOVEMBER 4, 1945
715
The St. Lawrence Waterway
And World Trade
BY EDWARD G. MILLER, JR.
T
I HE PROPOSAL NOW BEFORE
Congress that the United
States join with Canada
in developing the naviga-
tion and power phases of the Great Lakes-St. Law-
rence waterway is the most important and far-
reaching project of this kind ever imdertaken by
two nations. It involves the opening of a deep-
water ship channel into the heart of North Amer-
ica, connecting the great and productive midlands
of this continent directly with the sealanes of the
world, and the construction of electric power
facilities with a capacity of 2,200,000 horsepower
and an average annual output of 13,200,000,000
kilowatt-hours of electricity.
This will be the second largest single-dam source
of power in the world, being exceeded only by
Grand Coulee. The output of the proposed power
plant will surpass the output of both hydroelectric
and thermoelectric plants in all but eight countries
of the world. It will generate as much power as all
of the hydroelectric development of the Tennessee
Valley area at a lower cost than any plant in the
United States, with the possible exception of
Niagara.
The completion of this xerogram will be an out-
standing example of international cooperation.
It will strengthen the traditionally friendly rela-
tions between this country and Canada.^ In the
commercial field Canada is this countr3''s second
best customer, ranking next to the United King-
dom. We are Canada's best customer.
The over-all cost of developing the water re-
sources of the Great Lakes-St. Lawrence Basin will
be shared equally by the United States and
Canada. The shipping and hydroelectric power
also will be shared equally by the two countries.
The project's economic value to this Nation will
rival the TVA and the Panama Canal combined.
672574—45 2
From the international viewpoint this project —
like the trade-agreements program, the Bretton
Woods agi'eement, the Economic and Social Coun-
cil of the United Nations Organization, and the
other instruments of economic cooperation — has an
imi^ortant place in the program to expand world
trade and to foster friendly international com-
mercial relations. Domestically, the project will
not only be of great benefit to the 50 million people
in the Great Lakes-St. Lawrence area, but will
also bring long-range benefits to the country 'as a
whole. In addition to the long-range contribu-
tion to our national welfare, the undertaking will
provide immediate benefits in the form of gainful
employment for an estimated average of 20,000
workers a year for four years.
In speaking before the Detroit Board of Com-
merce on October 24, 1945, Senator George D.
Aiken said :
"In any workable plan of post-war full employ-
ment and expanding foreign trade, the St. Law-
rence Project should be given first i^riority.
"During the reconversion period, it will provide
constructive^ jobs for tens of thousands of war
workers and returning servicemen.
"When completed, it will stimulate agricultural
and industrial exports at cheaper rates of trans-
portation.
"It will permit the importation of needed raw
materials which we must obtain from abroad be-
cause we do not have them here, or because we want
to conserve our own.
"Cheap electricity in a region long starved of
low-cost power will create new industries, new
freight tonnage, new employment and increase
purchasing power."
' Mr. Miller is Assi.stant to the Under Secretary of State.
- For an article entitled "Canadian-American Coopera-
tion in VPar and Peace. 1940-45," by Elizabeth Armstrong,
see Bulletin of Oct. 28, 1945, p. 674.
716
DEPARTMENT OF STATE BULLETIN
CtJBRENT Legislation
The legislation, currently before Congress, was
introduced in both houses on October 2 as a joint
resolution, providing for approval of the major
portions of a 1941 agreement between the United
States and Canada to develop the seaway and
power project. In the Senate, S.J. Res. 104 was
introduced by Senator Barkley for himself and
for Senators Wagner, Aiken, La Follette, Fer-
guson, Langer, Vandenberg. Shipstead, Hill, and
Taylor. Seldom has any bill had such strong bi-
partisan sponsorship. The bill was referred to
the Committee on Foreign Relations.
In the House, identical resolutions have been
introduced by Representatives Sabath, Dingell,
Robertson, Dondero, all of which have been re-
ferred to the Committee on Rivers and Harbors.
It is expected that the measure will first be taken
up in the Senate but no date has yet been set for the
hearings.
President Urges "Speedy Enactment"
In a message to Congress on October 3, urging
the "speedy enactment" of this legislation, Presi-
dent Truman said :
"The St. Lawrence Seaway will make it possible
to utilize our war-expanded factories and ship-
ping facilities in the development of international
economic cooperation and enlarging world com-
merce. New and increasing opportunities for pro-
duction and employment by private enterprise can
be expected from this cheap water transportation.
"The completion of the Seaway will bring many
benefits to our great neighbor and Ally on the
north. The experience of two wars and of many
years of peace has shown beyond question that tlie
prosperity and defense of Canada and of the
United States are closely linked together.
"By development of our natural water-power re-
sources, we can look forward with certainty to
greater use of electricity in the home, in the fac-
tory, and on the farm. . . . Increase in the con-
sumption of electricity will mean more comforts
on the farms and in city homes. It will mean more
jobs, more income, and a higher standard of liv-
ing. . . ."1
Before Public Many Years
The question of developing the water resources
of the Great Lakes-St. Lawrence Basin has been
before the public for many years and has been
before Congress several times. Interest in the de-
velopment of the Seaway dates from the early set-
tlement of the North American Continent. Ex-
plorers, pioneers, traders, and ultimately the Gov-
ernments of the United States and Canada have
been attracted by the idea of providing the land-
locked Midwest with a deep-water route from the
Great Lakes to the Atlantic Ocean. To the navi-
gational aspirations of the early settlers has been
added the twentieth-century incentive to harness
and utilize the enormous volume of potential elec-
tric power latent in the rapids of the St. Lawrence
River.
During the last 60 years Canada and the United
States have spent large sums of money in deep-
ening channels between the Great Lakes. Canada
has spent additional sums in building a series of
14-foot canals with 22 locks to by-pass the rapids
of the St. Lawrence River between the lower end
of Lake Ontario and Montreal. Canada also has
spent large amounts of money in the construction
of the Welland Canal, skirting Niagara Falls.
The first serious interest in the Seaway on the
part of the U.S. Congress was shown in 1916, when
the Congress ordered an investigation of its pos-
sibilities. Since that time, every President from
Wilson to Truman has favored the project.
Many Studies
Various branches of the Government have made
surveys of the project. The Department of Com-
merce survey in 1941 was the most exhaustive of
the eight such studies that have been made. Each
of these surveys or studies has favored the project,
and each has shown that the navigation and power
features of the project will pay for themselves
many times over in the savings they will bring.
There have been two serious private studies
which reported unfavorably on the project: one
issued by the Brookings Institution in 1928, and
one issued by tlie Niagara Frontier Planning
Board in the spring of 1940.
On the basis of the studies that have been made
and in response to public interest in the develop-
ment of these water resources, the Govermnents of
the United States and Canada signed, at Wash-
ington on July 18, 1932, the Great Lakes-St. Law-
rence Waterway Treaty, providing for the con-
struction of a 27-foot waterway. The treaty then
went to the Congress, where extensive hearings
' Buu^mN of Oct. 7, 1945, p. 528.
NOVEMBER 4, 1945
717
were held by the Senate Foreign Relations Com-
mittee during 1933. This conmiittee overwhelm-
ingly reconmiended the ratification of the treaty,
but consideration on the floor of the Senate was
delayed until March 1934. After extensive de-
bate, the treaty was favored by a majority of 46
to 42 but, lacking the necessary two-thirds vote,
failed to be approved.
During the ensuing years there continued to be
agitation on the part of the supporters of the
project for further steps to realize plans for the
development of the St. Lawrence Basin. Accord-
ingly, negotiations were again undertaken with
Canada which resulted in the signature of an
agreement dated March 19, 1941 ' between the two
governments providing for the conclusion of the
seaway and power project. The agreement dif-
fered in some respects from the earlier treaty,
and it was made subject to approval by the Con-
gress of the United States and the Parliament of
Canada. It was submitted to the approval of the
Congress, and hearings were held before the House
Rivers and Harbors Committee in the summer and
fall of 1941. The main issue during these hear-
ings concerned the economic features of the proj-
ect. The coimnittee approved the bill by a vote
of 17 to 8, but within two weeks after it was re-
ported to the House the attack on Pearl Harbor
occurred. This bill, along with other long-range
projects, was postponed since priority was given
to other war measures.
No further steps were taken toward the ap-
proval of the agreement before late in 1944. At
that time the Commerce Committee of the Senate
held hearings on a bill introduced by Senator
Aiken to approve the agreement, but the hearings
were confined to the constitutional issue of whether
the agreement should be submitted to the Senate
for its advice and consent to ratification as in the
case of a treaty. No report was made by the com-
mittee. An effort was then made to bring about
the approval of the 1941 agreement through an
amendment from the floor of the Senate of the
pending Rivers and Harbors Bill. This amend-
ment was defeated on December 12, 1944, but many
of the Senators who voted against the approval of
the agreement made it clear that they were not
casting their votes on the merits of the proposal
but felt that the agreement should be considered
separately and after full hearings.
S. J. Res. 104 and its companion measures in the
House again propose the approval of the 1941
agreement but differ somewhat from the earlier
measures which have been introduced for this pur-
pose. Particularly, the pending bills would ex-
cept from the approval of the Congress articles
VII and IX of the 1941 agreement, and the bills
would express the sense of the Congress that it
would be desirable for the President to negotiate
separate treaties with reference to the matters cov-
ered in these articles. The articles in question re-
late to the [perpetual navigation rights of the ships
of the United States and Canada in the waters
of the Great Lakes-St. Lawrence system, to the
maintenance of the scenic beauty of Niagara Falls,
and to the diversion of water from Niagara River.
The exception from approval of these articles is
proposed in order to meet objections which have
been raised in connection with the constitutional
issue on the ground that the subject matter of these
articles could be handled only through treaties,
since there would be involved the modification of
rights established by earlier treaties between the
United States and Canada. Also, the joint reso-
lution would authorize the President to investigate
the feasibility of making the Seaway self-liqui-
dating.
The joint resolution should, therefore, afford an
opportunity for considering the St. Lawrence pro-
posal on its merits.
Those For and Against the Project
In the course of the extensive consideration that
has been given to the project, many arguments for
and against it have been presented by many in-
dividuals and groups. Those for the undertaking
include government officials, many governors, and
mayors; numerous chambers of commerce scat-
tered widely over the north central part of the
United States; several national farm organiza-
tions, notably the National Grange and the Na-
tional Farmers Union; and many State farm-
bureau organizations. Senator Aiken pointed out
to the Senate in 1944 that approximately 700 labor
unions — some international, some State, and some
local— have endorsed the seaway and power proj-
ect, including 62 labor unions in the city of Buffalo
alone.
The National St. Lawrence Association, organ-
ized in 1944, with headquarters in Detroit, has been
' BuixEnN of Mar. 22, 1941, p. 307.
718
DEPARTMENT OF STATE BULLETIN
particularly active in support of the project. The
predecessor of this organization was the Great
Lakes-St. Lawrence Tidewater Association.
The opposition to the project has come mainly
from railroads, lake carriers, power interests, coal
and ore interests, and other related groups. Cer-
tain chambers of commerce, the National St. Law-
rence Project Conference, certain labor unions in
transportation and coal mining, and some cities
and ports, such as Boston, New York, Buffalo, and
New Orleans, have worked against it.
Railkoads and Carriers
Railroads and other carriers have held simul-
taneously that the Seaway is not needed and will
not be used and that it will take away a large por-
tion of their existing business. There is a mass of
evidence to show that the Seaway is feasible from
the standpoints of both economics and navigation
and that it will be used. As for the contention
that the Seaway will carve out a big slice of the
carriers' existing business, the St. Lawrence sur-
vey, conducted by the Department of Commerce
in 1941, points to the prospective increase in all
freight traffic in the decade beginning in 1950.
This increase is estimated at between 242 million
and 374 million tons a year greater than the aver-
age of 1930-39. The 10 million tons of additional
American traffic would be a fraction of the ex-
pected increase in shipping. Assuming that the
average increase will be 300 million tons for the
decade of 1950, the St. Lawrence Seaway would
carry only 3 percent of the increase; railroads,
highways, airways, and other waterways, 97 per-
cent. Thus it is maintained that the St. Lawrence
Seaway is an alternative method of meeting a part
of our future transportation requirements.
With reference to the effect of the seaway and
power project on the ports of Buffalo, Boston, and
New York, the Commerce Department survey re-
ported the following conclusions:
"The study indicates that New York will lose
some foreign traffic and that Buffalo will lose some
of its grain-transfer business. On the other hand.
New York Harbor will acquire new water-borne
traffic to and from the Great Lakes area. Simi-
larly, Buffalo also will gain new traflic, both do-
mestic and foreign. In each case, the additional
traffic will more than offset the losses. The net
gain for Boston will be largest of all."
It was pointed out that this conclusion is based
upon the premise that the small amount of trans-
shipment business in foreign commerce which
these ports would lose would be compensated by
the increased coastwise movement of traflic and
the growth of the economic activity of the coun-
try as a whole.
As for the fears ex^iressed by other cities, par-
ticularly those of the South and Southwest, the
survey's analysis concluded that those misgivings
are based on the "improbable premise that this
country's economy will remain static without any
prospect of growth and expansion in the future,
and upon an inaccurate analysis of the origin
and destination of traffic to and from the Middle
West."
Labor is assured by the survey that the increased
activity in the Great Lakes ports, stemming fi-om
the increase in exports and imports as a result of
the deep-water Seaway, would more than offset
any displacement of workers due to diversion of
traffic from American to foreign bottoms.
The supply of economically usable iron oi'e in
the Great Lakes area is estimated to be sufficient
to last only 15 to 20 years. The Commerce De-
partment survey points out that "When the ulti-
mate exhaustion of the Lake Superior resources
is in sight, the self -protection of the iron and steel
industry in the Great Lakes area requires, as an
insurance, the availability of a source of ore other
than Lake Superior mines. Low-cost, water-borne
transportation via the Seaway would then become
an absolute necessity if the steel industry in the
Great Lakes area is not to disintegrate. . . ."
Division of Costs
According to 1941 estimates the proposed sea-
way and power project will involve the expendi-
ture of an additional $277,000,000 by the United
States and $144,000,000 by Canada. Canada will
be given credit for the $133,000,000 already spent
on the Seaway, principally in the construction of
the Welland Canal, which was completed in 1932.
The United States has spent only about $17,000,-
000, exclusive of certain imi^rovements made after
the war started. Of the $277,000,000 which was
the United States share of the project's cost. New
York State has offered to repay $93,373,000 for the
power, thus reimbursing the Federal Government
for all United States expenditures in connection
with the power-development phases of the project.
The net cost to be borne by the Federal Govern-
ment, which applies largely to the Seaway, was
estimated in 1941 at approximately $185,000,000
NOVEMBER 4, 1945
719
plus interest during the construction period. The
1941 estimate may have to be increased by about 15
percent to correspond to present-day costs.
Actually, the 2,350-mile Seaway, from Duluth,
Minnesota, to the Atlantic Ocean, already exists
except for a relatively small section. With the ex-
ception of some dredging here and there in the
channels connecting the Lakes — principally in the
St. Clair and Detroit Kivers — the major portion of
the work will entail the construction of a power
station, dams, locks, and canals in the St. Lawrence
River between Ogdensburg, New York, and Mont-
real, Canada, a distance of 113 miles.
From the power plant at Massena, New York,
the United States share will be 1,100,000 horse-
power of electricity, the same as Canada's. Most
of New York State and much of New England,
both notably lacking in other sources of energy,
lie within the area in which this vast supply of
energy will be available. Interconnections would
make it possible to ship power, in emergencies, as
far as Chicago and Washington, D. C.
The energy to be generated at Massena is im-
portant, not just because this is the biggest, most
productive example of international cooperation
ever undertaken in this field, but also because
human welfare is tied directly to the availability
of energy.
In the early stages of man's development, he
relied mainly upon his own exertion or upon draft
animals for the energy needed in his daily tasks.
His progress toward higher levels of living has
been based for the most part upon energy from
inanimate sources — coal, oil, fuelwood, gas, and
falling water.
Nine tenths of the world's energy is now ob-
tained from these sources; of these, falling water
is of especial importance, for, unlike fuels, it satis-
fies man's energy requirements without impover-
ishing his resources for the future.
The special value of water power has been rec-
ognized in most of the world. Italy, Norway, Swe-
den, Switzerland, New Zealand, and Japan, with
little energy available from other sources, have
gone far in developing water power as an effective
substitute. Countries with abundant resources of
coal and other fuels also have developed their wa-
ter-power resources, particularly in sectors like
our Northeast that are remote from other sources
of energy. The wisdom of this course is reflected
not only in benefits accruing directly to the people
from the availability of ample supplies of energy,
but also in the position of our country in the world
family of nations. There is abundant evidence
that the strength of nations, for peace or for war,
is measured largely in terms of their capacity to
j)roduce energy and turn it to productive purposes.
The countries that consume large quantities of
energy produce most of the world's raw materials,
manufacture most of the world's processed goods,
and transport most of the world's freight and pas-
sengers from one point to another. Before World
War II the United States, the United Kingdom, the
Soviet Union, and Germany, producing two thirds
of the world's energy, provided roughly two thirds
of the raw materials, manufactures, and transpor-
tation required in the world. This relation was
no less true in wartime; for by 1944, when the
United States was producing half the woi'ld's en-
ergy, it was producing half the world's airplanes,
tanks, munitions, and other instruments of war.
The deep-water navigation made possible by the
St. Lawrence jDroject will help to promote the in-
ternational trade so desirable to ourselves and so
essential to the rest of the world. The power made
available by this project will serve the same end —
because the welfare of the world will depend to a
considerable extent on the international exchange
of manufactures and raw materials. Every bit of
power that we add to our capacity increases our
ability to absorb the world's raw materials and
to provide the manufactures needed in areas less
fortunately endowed with energy resources.
In the effort to produce more energy in the years
ahead, the various nations will be striving toward
the more efficient utilization of present sources and
will be expanding facilities for utilizing resources
hitherto untapped. .,
The United States has only begun to harness its
water resources for the production of hydroelec-
tric power. The proposed St. Lawrence power de-
velopment would be one of the greatest of its kind
in the world. The constant and even flow of
power available there has been described as a
"power engineer's dream."
International Relations
In commenting on the St. Lawrence Seaway and
Power Project, in a statement to the press on Oc-
tober 4, Under Secretary of State Dean Acheson
said :
". . . The rapids of the St. Lawrence have al-
(Continued on page 727)
720
DEPARTMENT OF STATE BULLETIN
Meeting of the Preparatory Commission
Of the United Nations
AGREEMENT ON THE SECURITY COUNCIL
[Released to the press by the Preparatory Commission of the
United Nations October 23]
After some further discussion unanimous agree-
ment on the report concerning the Security Council
was reached at today's meeting of the Executive
Committee of the Preparatory Commission of the
United Nations.
With a view to clarifying the situation which
had arisen as a insult of yesterday's discussion,
Adlai Stevenson (who acted as chairman) made a
statement on behalf of the United States Delega-
tion in which he expressed his conviction that all
delegations of the Executive Committee were
equally anxious to bring the Security Council as
soon as possible into being. Any suggestion, Mr.
Stevenson said, that yesterday's discussion has
brought out anything which would not conform
with this common desire was wholly unwarranted.
Unanimous agreement had been reached on the
points which were important and the first measures
taken which will put at the disposal of the Secur-
ity Council the force it needs to maintain peace
and security. It will be a most historic and sig-
nificant step forward when the Military Staff Com-
mittee meets. For the first time in war or peace
the chiefs of staff, or their representatives, of
China, France, the Soviet Union, the United King-
dom, and the United States will all meet together,
this time to work for the enforcement of lasting
peace under the Charter of the United Nations.
The peoples of the world are waiting for the Secur-
ity Council to be established and to begin func-
tioning with an intensity and hope and
expectation that is certainly as great as for any of
the other oi-gans of the United Nations.
Mr. Stevenson then proposed a new preamble to
the report on the Security Council in which article
24 of the Charter is quoted, according to which
the members of the United Nations —
"In order to ensure prompt and effective action
by the United Nations . . . confer on the Security
Council primary responsibility for the mainte-
nance of international peace and security, and
agree that in carrying out its duties under this
responsibility the Security Council acts on their
behalf."
It is furthermore said in the preamble that the
recommendations of the report are made for the
purpose of —
". . . assisting the Security Council to organ-
ise itself initially as soon as possible and thus to
be in a position to begin promptly the exercise of its
resijonsibilities under the Charter."
The delegates of Australia, United Kingdom,
Netherlands, Canada, China, France, Czechoslo-
vakia, and Iran expressed their approval of the
United States statement.
Mr. Hasluck (Australia) exi^ressed pleasure
that a clear statement of the United States position
had been made. He accepted tlie new text of the
preamble as a compromise, though he would still
prefer it if the business of the Security Council
had been listed rather more fully. He liad not
been suspicious of the Security Council but had
objected to the "hands off" policy which had be-
come apparent in the discussion of the Security
Council.
Professor Webster (U.K.) mentioned the im-
portance of the Military Staff Committee and said
that his delegation would like to see the Military
Staff Committee organized and set up as promptly
as possible.
Adrian Pelt (Netherlands) pointed out that,
wliile the United States proposal did not quite
meet the point of view of the Netherlands Delega-
tion, he would accept it.
The Executive Committee then adopted the re-
port on the Security Council, and after some fur-
ther discussion also the report on financial ar-
rangements (Committee 7).
NOVEMBER 4, 1945
DISCUSSION ON THE SECRETARIAT
[Released to the presa by the Preparatory Commission of the
United Nations October 23]
The Committee then took up the report on the
arrangements for the Secretariat (Committee 6).
Dr. Pelt, presenting the report, said that miani-
mous agreement had been reached in Committee 6
on parts of the repoi-t, whereas other pai'ts were
being submitted to the Executive Committee with
a two-thirds majority and in one instance only
with a single majority.
M. Gromyko (U.S.S.K.) said that his delegation
objected to the proposed structure of the Secre-
tariat, being of the opinion that separate secre-
tariats should be established.
Mr. Stevenson (U.S.) offered as a suggestion
for possible consideration that the Secretariat
should be organized on a basis corresponding to
the f mictions of the principal organs of the United
Nations and that each of the organs of the United
Nations should alwaj's have at its disposal such
staff as may be required for the performance of
work falling within its competence.
M. Gromyko did not find this proposal accept-
able. He said that it did not touch the substance
of the matter, and left the fimdamental scheme for
the organization of the Secretariat unchanged.
Professor Webster said that this fundamental
difference could not be resolved by any formula.
721
The British Delegation had at first been attracted
by the Soviet proposal, but on giving it closer at-
tention it found the original scheme to allow for
greater efficiency.
M. Massigli (France) said that the Soviet Dele-
gate might like to know why he and other dele-
gates had adopted the original proposal of the re-
port. The reason was that the Soviet proposal
would result in an enormous increase in staff and
corresponding expenditure.
Referring to one particular point of the report
Pi'ofessor Webster suggested that the proposed de-
partment for trusteeship should not be authorized
to undertake the work in connection with the sup-
pression of slavery in non-self-governing terri-
tories only. Slavery, Pi'ofessor Webster said, did
not exist only in non-self-governing territories,
and in drafting the report attention should be
given to the fact.
Throughout the discussion the Soviet and Yugo-
slav Delegates maintained their objections to the
proposed scheme for the organization of the Sec-
retariat. The Czechoslovak Delegation abstained
on one point, while supporting the Soviet proposal
in all other points. The Czechoslovak Delegate
(Dr. Kerno) explained that the provision of the
one point on which he abstained could be embodied
into the Russian jDi-oposal.
With these objections noted the report was
approved.
DISCUSSIONS ON THE REPORT ON THE GENERAL ASSEMBLY
[Released to the press by the Preparatory Commission of the
United Nations October 24]
The Executive Committee met today in almost
continuous session with a last meeting convened
for 8 :30 p.m. to clear up some of the outstanding
points on the agenda. Today's discussion was
devoted entirely to the report on the General
Assembly, which is one of the last two sub-
committee reports still awaiting the Executive
Committee's approval.
In the report discussed today it was suggested
that the General Assembly and the other principal
organs of the United Nations should be con-
vened at the earliest possible moment so that
prompt attention could be given to the considera-
tion of pressing world problems. For this pur-
pose it was proposed to divide the first session
of the General Assembly into two parts: (1) or-
ganizational; (2) substantive. It was, however,
pointed out that urgent matters could also be
raised at the first part of the General Assembly,
which will be held in London early in December.
At the beginning of the meeting the Soviet Dele-
gate, M. Gromyko, announced that he had several
observations to make. He first objected to the
creation of a special coimnittee to deal with mat-
ters concerning tlie agenda of the General As-
sembly. This committee, he maintained, was not
necessary since its functions could be carried out
by the main committee of the General Assembly.
This suggestion met with the approval of most
delegates, and it was eventually agreed to transfer
agenda questions to the General Committee of the
Assembly .
M. Gromyko then expressed doubts as to
whether the creation of a special nomination com-
mittee was necessary. This led to a prolonged
722
DEPARTMENT OF STATE BULLETIN
discussion, in which the Soviet point of view w^s
supported by the delegates of Australia, Mexico,
Czechoslovakia, and Yugoslavia, but opposed
mainly by the delegates of the Netherlands and
China. Professor Webster (U. K.) said that he
held no strong views on the subject. He men-
tioned a document advocating the nomination
committee which, in the committee stage, had had
strong Soviet support.
[Released to the press by the Preparatory Commission of the
United Nations October 25]
After prolonged but unsuccessful attempts at
reconciling divergent views on the constitution of
the General Assembly the Executive Committee
proceeded today to take vote on one of the thorn-
iest problems, that of the composition of the
General Committee.
Agreement had been reached on the functions
of the General Committee, which would have to
assist the General Assembly in directing its work.
M. Gromyko (U.S.S.R.) insisted throughout the
discussion, which went on well past midnight yes-
terday and was continued this morning, that the
principle of broad representation by states should
be applied in the election of the members of the
Committee. He also maintained that the decision
about the composition of the General Committee
should not be taken now but later on by the
Preparatory Commission, so that the problem
could be meanwhile studied more thoroughly.
On the other hand, a number of delegates felt
that not only the question of equitable geograph-
ical distribution but also considerations of per-
sonal competence should be a guiding principle
for the nomination.
Three votes were taken on the part of the report
dealing with the General Committee.
The Soviet point of view was supported by
Czechoslovakia and Yugoslavia; a compromise
proposal was carried, according to which the
Soviet amendment as suggested by the minority
would be recorded in the report to the Preparatory
Commission. France and Iran abstained from
the vote.
As a result the original recommendations will
go forward to the Preparatory Commission, ac-
cording to which the General Committee will be
composed of a President, seven Vice-Presidents,
and the chairmen of the main committees and of
the Credentials and Agenda Committees.
After 16 hours of intensive discussion, during
which very great but unsuccessful attempts were
made to reach unanimity, the Executive Commit-
tee adopted tonight the report on the General As-
sembly. The great bulk of the report was ap-
proved, though certain proposals concerning the
structure and composition of the committees of
the General Assembly did not secure the necessary
majority for inclusion among the recommenda- aj
tions going forward to the Preparatory Commis- ''
sion. In such cases the views of both the majority
and the minority were exj^lained in footnotes of
the report so that the members of the Preparatory
Commission would be in a position to understand
the issues at stake.
A series of votes was taken in the course of the
discussion, with the Soviet, Yugoslav, and Czecho-
slovak Delegates maintaining their objections to
the majority proposals. The delegates of China
and France abstained from voting in a number of
cases.
At the end of today's meeting it was agreed to
suggest to the Preparatory Commission that a
planning commission should be established at the
earliest possible moment, which should advise the
Secretary-General on all arrangements necessary
for providing the physical facilities required by
the United Nations. The members of the Plan-
ning Commission will be nominated by the Secre-
tary-General on an international basis. The chair-
man of the Commission should be a high oflBcial
of the United Nations Secretariat, and the mem-
bers should be recognized experts.
DISCUSSIONS ON LOCATION OF
UNITED NATIONS PERMANENT
HEADQUARTERS
[Released to the press by the Preparatory Commission of the
United Nations October 26]
The Executive Committee today resumed dis-
cussion on the location of the permanent head-
quarters of the United Nations. Questions still
to be settled were those of practical procedure and
of choosing a specific site in the United States.
In a memorandum the Executive Secretaiy had
raised the question of whether the Secretary-Gen-
eral, with the bulk of the Secretariat, should pro-
NOVEMBER 4, 1945
ceed immediately on election to the permanent
headquarters or whether, on the contrary, it would
be better to make arrangements for some interim
regime. The Australian Delegation submitted to
the Executive Committee a revised version of the
Executive Secretary's paper, and a discussion en-
sued on which of the recommendations comprised
in the two documents should go forward to the
Preparatory Commission. Wellington Koo
(China), criticizing the Executive Secretary's
paper, expressed some concern at the allusion to
an internationalized enclave which might be re-
quired to accommodate the headquarters of the
United Nations. He said that, in view of the fact
that the majority of the Executive Committee had
voted in favor of the United States, it was c[uestion-
able whether an internationalized territory should
be regarded as a necessary condition.
M. Massigli (France) emphasized that before
deciding on the precise site the necessary condi-
tions for it should be laid down.
Professor Webster ( U.K. ) , supporting M. Mas-
sigli's point, said that it was necessary to establish
these conditions very clearly so that no controversy
should arise between the host government and the
United Nations.
Mr. Turgeon (Canada) suggested that the Pre-
paratory Commission should take effective steps
toward starting negotiations with the United
States Government.
Mr. Stevenson (U.S.), replying to a question of
the Canadian Delegate, restated the United States
Government's attitude toward the setting up of
the United Nations headcjuarters in the United
States. He said that the United States had not
sought nor would they in future seek for the head-
quarters of the United Nations to be set up in the
United States. This decision must be arrived at
by all of the United Nations, free from any influ-
ence or pressure on the part of the United States
Government. The best evidence of the United
States position was indicated by Mr. Stettinius'
abstention from voting when the issue was before
the Executive Committee. The United States had
made it equally clear that it was eager to welcome
the United Nations should they choose to select the
United States as the permanent seat.
The Executive Committee met later in the after-
noon to continue the discussion on the further pro-
672574 — 45 3
723
cedure for the selection of a place for the United
Nations headquarters. A revised recommendation
which had meanwhile been prepared by a subcom-
mittee failed to find approval.
The Australian Delegate (Mr. Hasluck) pressed
liis view that, after having selected the United
States, the Executive Committee should tui-n its
attention to the choice of a specific site and the
requisite requirements.
M. Massigli (France) objected on the ground
that there should be no decision on the site until the
draft treaty had been drawn up embodying the re-
quirements necessary for the establisliment of the
headquarters.
Ratification of the Charter of
The United Nations
t Released to the press October 31]
Since the Charter of the United Nations came
into force on October 24, instruments of ratifica-
tion of that document have been deposited with
the Department of State for Greece, India, and
Peru.
Greece
Cimon P. Diamantopoulos, Ambassador of
Greece, deposited his Government's instrument of
ratification of the Charter on October 25.
India
Sir Girja Shankar Bajpai, K.C.S.I., K.B.E.,
CLE., Eesident General of India, on October 30
deposited the Indian instrument of ratification of
the Charter.
Peru
Pedro Beltran, Ambassador of Peru, deposited
on October 31 the instrument of ratification of the
Charter by Peru.
The fourth paragraph of article 110 of the
Charter provides that "The states signatory to the
present Charter which ratify it after it has come
into force will become original Members of the
United Nations on the date of the deposit of their
resj^ective ratifications." The Charter is now in
force with respect to 32 nations.
724
DEPARTMENT OF STATE BULLETIN
Food and Agriculture Organization o:
FOOD AND AGRICULTURE
SUBCOMMITTEE OF THE EMERGENCY
ECONOMIC COMMITTEE FOR EUROPE
THE Emergency Economic Committee for
Europe consists of representatives of the Gov-
ernments of Belgium, Denmark, France, Greece,
Luxembourg, the Xetherhinds, Norway, Turkey,
the United Kingdom, and the United States of
America. The Governments of Czechoslovakia
and Yugoslavia are represented by observers. It
is hoped that all the European Allies will accept
full membership shortly.
The Emergency Economic Committee is an ad-
visory body which has no executive powers and
can only act by means of recommendations to its
member governments. It jjrovides a place where
European governments can consult together and
where thej- can raise questions of production, sup-
ply, and distribution which need to be discussed
and considered on a common basis. Its objective
is to assist countries of Europe to help themselves
and to help each other before appealing for out-
side assistance to the rest of the world.
The Emergency Economic Committee for Eu-
rope has set up subcommittees dealing with food
and agriculture, industry and materials, public
utilities, enemy exportable surpluses. Of these
subcommittees, the Food and Agriculture Subcom-
mittee has been the most active.
At the outset of its deliberations, the Food and
Agriculture Subcommittee concentrated upon the
assistance which could be given to European coun-
tries to insure the full harvesting of the 1945 crops
and the preparations for sowing for the 1946 har-
vest. To this end special surveys of immediate re-
quirements for agricultural machinery, tractors,
and fertilizers were initiated.
In collecting and correlating the information
obtained from European governments, the Food
and Agriculture Subcommittee was able to make
use of the Combined Working Party.
The Combined Working Party had been set up
in 1944 to prepare estimates of the food and agri-
culture positions in European countries. This
Working Party consisted at tlie outset of repre-
sentatives of UNRRA, the United States, and the
United Kingdom. At the suggestion of the Food
and Agriculture Subcommittee of the Emergency
Economic Committee for Europe three represent-
atives of European governments have been added
to the Central Committee of the Combined Work-
ing Party. Although the Combined Working
Party maintains a separate entity, it works in close
association with the secretariat of the Emergency
Economic Committee for Europe.
The Food and Agriculture Subcommittee has
given special consideration to the necessity of
adapting to immediate post-war conditions the ex-
isting methods of allocation and coordinated pur-
chasing of foodstuffs in world short supply. It
has also prepared a series of recommendations re-
garding the disposal of such European food sur-
pluses as are available. These documents have
been submitted to the Combined Food Board with
the suggestion that the new proposals should be
adopted as part of the international allocation
machinery.
The Emergency Economic Committee recom-
mended that representatives of European coun-
tries should be added to the Combined Food Board
Commodity Conunittees where such countries had
a substantial interest as producers or consumers of
the commodities concerned. The Combined Food
Board was itself considering a similar suggestion,
and invitations have now been issued to a number
of European as well as other countries to become
membei-s of the Combined Food Board Commodity
Committees.
Special attention has been given by the Food and
Agriculture Subcommittee to steps which are
necessary to see that Combined Food Board alloca-
tions are implemented in European countries. Al-
locations are made, usually, on a quarterly basis.
In some cases deliveries do not take place within
the expected period. On the other hand, there
have been cases where countries have been able
to purchase larger quantities of the commodities
in question than the formal allocation justifies.
The Food and Agriculture Subcommittee has,
therefore, established a system whereby the Euro-
NOVEMBER 4, 1945
725
B United Nations
pean governments will make periodic returns of
the allocated foodstuffs received, so that if there
is material delay in the receipt of such foodstuffs
the Emergency Economic Committee for Europe
can take the matter up with the Combined Food
Board or with the supplying countries concerned.
As a part of this work a special Fertilizer Work-
ing Committee has been set up on the recommenda-
tion of the Food and Agriculture Subcommittee to
take over from the Operations Group of the Lon-
don Fertilizers Committee responsibility for the
coordination of all arrangements in Europe neces-
sary to give effect to the efficient production, pro-
curement, and shipment of fertilizers in accord-
dance with the allocations of the Combined Food
Board. The Fertilizer Working Committee is not
only steering the supplies of fertilizers to where
they are needed in Europe ; it is also encouraging
production of fertilizers in the European countries.
In September the Food and Agriculture Sub-
committee organized a conference of food and
agriculture stati.sticians. A separate report is sub-
mitted on this conference.
At the beginning of October a European Seeds
Conference was held to make recommendations
regarding the redistribution of seeds in Europe.
It was attended by representatives of European
countries needing seeds for their 1946 s-eason and
also by countries having supplies of seeds avail-
able for export. This conference was attended by
the chairman of the Seeds Committee of tlie Com-
bined Food Board and by representatives of the
Control Commissions of occupied territories.
Arrangements have been made for a sjoecial
European conference to be held in London in
October to discuss the question of the infestation
of foodstuffs. This conference will be attended
by experts from the European countries who will
review the measures adopted during the war for
destroying rats, mice, and insects whose depreda-
tions lead to the loss of enormous quantities of
valuable food supplies. The European conference
will consider not only what measures the different
European countries can take to reduce infestation
and loss but also, in that rats, mice, and insects
know no national boundaries, what international
measures can be adopted in Europe to safeguard
supplies in transit and in warehouses.
A further European conference has been ar-
ranged to discuss the new insecticides invented
during the period of the war and the benefits these
can confer on agriculture and on the preservation
and storage of foodstuffs.
Much of the statistical and other information
which the Food and Agriculture Subcommittee is
collecting in conjunction with the Combined
Working Party will be of direct interest to the
Food and Agriculture Organization. Arrange-
ments have been made to keep the Interim Commis-
sion informed of the activities of the Food and
Agriculture Subcommittee, so that, when at a later
date the Food and Agriculture Organization itselt
assumes the responsibilities which are being en-
trusted to it, it will be able to take up and carry
forward much of the work which the Food and
Agriculture Subcommittee of the Emergency Ec-
onomic Committee for Europe has begun.
On the recommendation of the Food and Agri-
culture Subcommittee of the Emergency Economic
Committee for Europe a conference was held in
London during the week beginning the I7th
September of European food and agriculture
statisticians to consider the collection and com-
pilation on comparable bases and the utilization of
food and agriculture statistics of the different
European countries.
This conference was arranged in association
with UNRRA and the Interim Commission, and
preliminary plans for the conference were worked
out in cooperation with the Combined Working
Party.
The conference was attended by representatives
of Belgium, Canada, Denmark, France, Luxem-
bourg, the Netherlands, Norway, United King-
dom, and United States of America. Czechoslo-
vakia, Yugoslavia, and the U. S. S. R. sent ob-
servers. Representatives also attended on behalf
of UNRRA. the Combined Food Board, the Allied
Commissions of Austria, Rome, C. M. F., and the
Control Commission in Germany.
The conference concentrated its attention more
on the methods and techniques of assembling and
analyzing data rather than on the actual statistics
themselves. Sources and coverage of the main
statistics were reviewed with the object of
726
DEPARTMENT OF STATE BULLETIN
elucidating differences of treatment. The occasion
was also taken to exchange information on de-
velopments resulting from experience gained by
individual countries and by individual groups
during the war years.
Much had been done before the war to improve
and standardize agricultural-jjroduction statistics,
but little comparable progi-ess had been made in
statistical work on the utilization of supplies or
on food-consumption levels. Special features of
the program were the food-consumption-level in-
quiry undertaken jointly for their own three
countries in 1943 by the United Kingdom, the
United States, and Canada, and the studies of the
food and agriculture situations in European
countries begun early in 1944 by the Combined
Working Party on European Food Supplies.
The conference held five plenary sessions at
which papers were read and discussed on matters
relating to food and agriculture statistics. Five
working groups were set up for the discussion,
respectively, of the special problems connected
with:
1. Cereals, potatoes, sugar, and feedingstuffs
2. Milk, dairy produce, fats, and oils
3. Meat
4. Fish
5. Nutrient factors in foodstuffs generally
The conference was highly successful, partly in
regard to the definite recommendations it made
and partly in consequence of the personal con-
tacts which were established between members of
the Combined Working Party and the statisticians
from the European countries.
The conference agreed as to the bases to be
adopted for the collection of future statistics and
authorized the Combined Working Party to issue
as soon as possible suggested definitions of terms
currently used in its work. It was further
agreed that a digest of European statistics on food
and agriculture should be prepared by the Com-
bined Working Party for circulation to the
Emergency Economic Committee for Europe, the
Combined Food Board, UNRRA, the Food and
Agriculture Organization, and the liaison com-
mittees in countries represented at the conference.
It may be said that, as a result of the confer-
ence, the Combined Working Party has now been
' Made at the plenary session on Oct. 27, 1945. L. B.
Pearson, Canadian Ambassador to tlie U.S., is chairman
of the Conference.
definitely established as the recognized authority
for collecting and coordinating statistical infor-
mation regarding food and agriculture in Euro-
pean countries and that the material which it
provides should be more rapidly available and
enable such organizations as the Emergency Eco-
nomic Committee for Europe, the Combined Food
Board, et cetera, to plan their activities on a more
factual foundation than has been possible in the
past.
POSITION OF SOVIET DELEGATION
REGARDING FAO
Report by the Chairman ^
This morning I had a conversation with the head
of the Soviet Delegation. He assured me that his
Government has the same objectives and sets for
itself tlie same tasks as FAO, that it endorses the
idea of international cooperation for the improve-
ment of agricultural production and the bettering
of the food situation of the United Nations.
The Government of the U.S.S.R. feels, however,
that the organizational forms of FAO still require
study. It has also become necessary for the Soviet
Union to consult on these questions with those
Soviet Union republics which are large producers
of agricultural products and agricultural raw ma-
terials.
For these reasons the U.S.S.R. is abstaining
from becoming a member of the FAO at this time
and its representatives will continue to attend the
first session of the FAO only as observers.
I know that I am speaking for every member of
the Conference when I say that it is our earnest
hope that the Government of the U.S.S.R. will
soon be able to accept the constitution of the FAO,
which is the first of the specialized organizations
to be set up under the United Nations. The
U.S.S.R., as a member of the United Nations and
as one of the nations which has already ratified
the Charter, will be greatly interested and con-
cerned in the work of FAO. We hope, therefore,
that it will not be long before it expresses that
interest by accepting all the rights and obligations
of full membership in our organization.
FINAL PLENARY SESSION
The final plenary session of the Conference on
Food and Agriculture of the United Nations,
which met in Quebec, was held on November 1.
NOVEMBER 4, 1945
727
U.S. Supply Arrangements for the Middle East
[Released to the press October 30]
The recent joint statement by the United States
and the United Kingdom Govermnents announc-
ing the dissolution of the Middle East Supply
Center on November 1, 1945 ^ expressed the desire
of the two Governments that normal private trad-
ing channels be resumed as rapidly as practicable
and their desire to assist the governments of the
Middle East during the period of transition from
wartime restrictions to normal peacetime com-
mercial practices not only in maintaining essential
supi^lies but also in adjusting their economies in an
orderly manner to the new conditions.
To achieve these objectives, the United States
Government will for the time being continue the
office of the regional Economic Counselor in Cairo,
with such staff as is required, to assist the Middle
East countries in meeting their essential needs
for commodities from the United States remain-
ing in short supply. This office will at all times
work in close conjunction with American officers
at the various diplomatic posts in the Middle East.
Questions relating to the supply of scarce com-
modities from British-controlled sources should,
of course, be addressed to the British Supply Mis-
sion (Middle East), with which the office of the
regional Economic Counselor will maintain close
relations.
The only limits imposed by United States regu-
lations on the export of commodities from the
United States, now that the shipping situation has
been relieved, will be those necessitated by supply
shortages. On September 10, 1945 the United
States supply authorities placed most commodities
under "general license", which means that they
can be exported without restriction.^ There re-
mains a limited group of commodities of which
the supply is still such as to require some export
restriction and forward programming in order to
insure a fair world-wide distribution taking into
account the needs of liberated areas.
This group of commodities which the United
States still subjects to export-licensing control is
made up primarily of foodstuffs but also includes
iBuujiTiN of Sept. 30, 1945, p. 493.
2 Btjixetin of Sept. 16, 1945, p. 397.
' BcxLETiN of Oct. 7, 194.5, p. 529.
leather and some leather manufactures, rubber and
a few rubber products (including tires), a very
limited list of drugs and chemicals, cotton textiles
and yarn, lumber and sawmill products, newsprint,
a few petroleum products, a selected list of iron
and steel manufactures, lead and tin, trucks and
passenger cars, and fertilizers. Certain of these,
principally in the field of foodstuffs, the United
States is for the present unable to supply. A list
of commodities unavailable from the United States,
will be communicated to the Middle East govern-
ments within the next few days. With respect to
the remainder, it is anticipated the steady improve-
ment in the supply situation in the United States
will make it possible to meet Middle East demands
within reasonable limits.
Where allocations are necessary they will be es-
tablished and administered by export-licensing
authorities in the United States. The appropri-
ate officials of the Middle East governments will be
kept fully informed of such restrictions. No grad-
ing or reviewing of individual import licenses will
be undertaken by United States authorities either
in Washington or in the Middle East.
Communications with the local governments on
allocations and other matters relating to imports
from the United States will be through the United
States diplomatic missions in the area, which will
work in close conjunction with the office of the re-
gional Economic Counselor in carrying out the
desire of the American Government to assist the
Middle East countries in meeting the problems of
transition to peacetime conditions of trade.
MILLER — Continued from page 719.
ways constituted a natural barrier to our foreign
trade. At a time when we are making every effort
to clear the channels of world commerce as a step
toward world peace, we should remove this nat-
ural barrier. . . .
"For well over a century the United States and
Canada have worked together in peace and part-
nership. One of the few pending matters between
the two countries is the approval of the 1941 agree-
ment with Canada providing for the construction
of the St. Lawrence Seaway and Power Proj-
ect."^
728
DEPARTMENT OF STATE BULLETIN
Far Eastern Advisory Commission
ADVISERS TO UNITED STATES
REPRESENTATIVE
[Released to the press October 29]
The Department of State announced on October
29 that Mr. Erie R. Dickover and Col. C. Stanton
Babcock will be advisers to Maj. Gen. Frank R.
McCoy, United States Representative on the Far
Eastern Advisory Commission. Mr. Dickover was
formerly Chief of the Division of Japanese Af-
fairs in the Department.
APPOINTMENT OF TEMPORARY SECRETARY
[Released to the press October 29]
The Honorable Nelson T. Johnson, formerly
United States Ambassador to China and Minister
to Australia, has been appointed temporary Secre-
tary of the Far Eastern Advisory Commission.
APPOINTMENT OF INDIAN REPRESENTATIVE
[Released to the press October 29]
The Government of India has accepted the in-
vitation of the United States Government to at-
tend the meeting of the Far Eastern Advisory
Commission. The Indian Resident General in
Washington, Sir Girja Shankar Bajpai, has been
appointed as his country's representative on the
Commission.
LIST OF REPRESENTATIVES
Australia
Dr. H. V. Evatt, Minister for External A fairs
Canada
Mr. Lester B. Pearson, Canadian Ambassador in
Washington
China
Dr. Wei Tao-ming, Chinese Ambassador in
Washington
France
Mr. P. E. Naggiar, Former French Am,bassador
to China and Russia
Great Britain
Lord Halifax, British Ambassador in Washing-
ton
Alternate: Sir George Sansom, Minister Coun-
selor of British Emhasi^y^ Washington
' Held In Washington on Oct. 30, 1945.
' The President received representatives of the partici-
pating nations at the White House on Oct. 30, 1945 at
11 : 15 a.m.
India
Sir Girja Shankar Bajpai, hidian Resident Gen-
eral in Washington
Netherlands
Dr. A. Loudon, Netherlands Ambassador in
Wa-fhington
New Zealand
Mr. C. A. Berendsen, New Zealand Minister in
Washington
Philippines
Brig. Gen. Carlos Romulo, Resident Commis-
sioner of the Philippines
Alternate: Mr. Tomas Confesor, Member of
Filipino Rehabilitation Commission
LTnited States
Maj. Gen. Frank R. McCoy
OPENING session'
Statement by THE SECRETARY OF STATE
[Released to the press October 30]
It is a pleasure to follow the Pi'esident in ex-
tending a cordial welcome to you who have been
designated by your governments to meet together
to consider the non-military problems involved in
implementing Japan's instrument of surrender.^
From the beginning of the war it has been the
purpose of the United States Government that this
great struggle should be won and the resulting
peace should be maintained by the cooperation
and the joint action of the United Nations con-
cerned.
Immediately after the surrender of Japan this
Government projDosed the establishment of this
Commission.
I am happy that today you have met to organize
and make plans for the future.
It is the hope of our Government that there
should be adopted measures adequate to effect the
military security of peaceful nations and at the
same time to bring about such a change in the
spirit and the ambitions of the Japanese Govern-
ment and people that in the future Japan may live
in peaceful association with other nations.
To create conditions which will facilitate this
transformation in Japan will require the utmost
wisdom, and not only wisdom, but understand-
ing, tolerance, and faith.
The establishment of an advisory commission
with as many membei-s and of the character of
this Commission is an interesting experiment.
NOVEMBER 4, 1945
729
Representing different governments, it is certain
that you have varying interests and varying views
about the problems involved in the occupation of
Japan. In order to function effectively it will be
necessary that each representative should be will-
ing to sympathetically consider the viewpoint of
his colleagues and in a spirit of cooperation make
concessions to each other.
Wliile I know the task may be a difficult one,
I am sure that the Commission will function with
efficiency. My confidence is based upon the
thought that if we could cooperate to win the war
we certainly should be able to cooperate in imple-
menting the terms of surrender.
I shall now ask General Frank McCoy, the rep-
resentative of the United States on this Commis-
sion, to act as temporary chairman.
Motion Presented by CHINESE REPRESENTATIVE
The following motion was presented by Dr.
Wei Tao-ming, Representative of China on the
Far Eastern Advisory Commission, at its opening
session on October 30, 1945 :
"In view of the fact that new suggestions have
been made with regard to the terms of reference
of this Commission and that they ai'e being ex-
amined by the United States, China, the United
Kingdom, and the Soviet Union, the four powers
M'hich initiated the invitations for this Commis-
sion to meet, the Chinese Delegation believes that
it will be advantageous to the progress and out-
come of this Conference if the said powers are
allowed sufficient time to continue their discus-
sions with a view to reaching an agreement be-
fore the Conference proceeds further. Besides,
there are so many documents which have just been
distributed that all the delegations would cer-
tainly need time to study.
I move, therefore, that for these purposes the
Conference be adjourned for one week to be re-
assembled on November 6, 1945."
Japanese Reparations Mission
ANNOUNCEMENT BY THE PRESIDENT
[Released to the press by the White House November 1]
The President announced on November 1 that
Ambassador Edwin W. Pauley, the jiersonal rep-
resentative of the President on reparations mat-
ters, would leave for the Far East early this
month for the purjDose of developing a program
for exacting reparations from Japan. The Presi-
dent announced at the same time the members of
Ambassador Pauley's staff who will accompany
him.
In making the announcement the President
said:
"The problem of what to do with Germany and
Japan is one of the greatest challenges in the
whole effort to achieve lasting peace.
"The program for reparations from Germany
which was developed by Ambassador Pauley and
adopted at the Berlin Conference will go a long
way toward helping us achieve complete victory
over Germany, by depriving her of the means ever
again to wage another war. The reparations
program which Ambassador Pauley will develop
for Japan will be directed toward the same
fundamental goal — to put an end for all time to
Japanese aggression.
"In carrying out this mission for me Ambassa-
dor Pauley and his staff will work in close co-
operation with General MacArthur and his staff
and will make full use of the surveys which have
already been made by the industrial experts now
on General MacArthur's staff."
MEMBERS OF THE MISSION
ED^\^N W. Pauley, Personal Representative of
President and Chief of Mission
Martin T. Bennett, mdustrial engineer
Lt. Col. G. S. Carter, chief of secretariat
Dr. Arthue G. Coons, special adviser to Chief of
Mission
JosiAH E. DuBois, counsel and financial adviser
Luther H. Gulick, adviser on government and
administration
Comdr. J. P. HuRNDALL, resources consultant
David R. Jenkins, agricultural economist
William Green Johnston, industrial consultant
Stanley E. Joiner, secretary
Charles Karl, secretary
0^\^N Lattimore, chief economist
Sgt. John Mattles, secretary
H. D. Max\\'ell, special assistant to Chief of Mis-
sion
Benjamin Olsen, secretary
730
DEPARTMENT OF STATE BULLETIN
Directive from General MacArthur to the
Imperial Japanese Government
1. In order to remove restrictions on political,
civil and religious liberties and discrimination
on grounds of race, nationality, creed or polit-
ical opinion, the Imperial Japanese Government
will:
a. Abrogate and immediately suspend the oper-
ation of all provisions of all laws, decrees, orders,
ordinances and regulations which:
(1) Establish or maintain restrictions on free-
dom of thought, of religion, of assembly and of
speech, including the unrestricted discussion of the
Emperor, the Imperial Institution and the Im-
perial Japanese Government.
(2) Establish or maintain restrictions on the
collection and dissemination of information.
(3) By their terms or their applications, oper-
ate unequally in favor of or against any person
bj' reason of race, nationality, creed or political
opinion.
b. The enactments covered in Paragi-aph a,
above, shall include, but shall not be limited to,
the following:
(1) The peace preservation law (Chian Iji Ho,
law niunber 54 of 1941, promulgated on or about
10 March 1941).
(2) The ijrotection and surveillance law for
thought offense (Shiso Han Hogo Kansatsu Ho,
law number 29 of 1936, promulgated on or about
29 May 1936).
(3) Regulations relative to ajjplication for pro-
tection and surveillance law for thought offense
(Shiso Han Hogo Kansoku Ho Shiko Rei, Impe-
rial ordinance number 401 of 1936, issued on or
about 14 November 1936).
(4) Ordinance establishing protection and sur-
veillance stations (Hogo Kansoku-Jo Kaneica Im-
perial ordinance number 403 of 1936, issued on or
about 14 November 1936).
(5) The precautionary detention procedure
(Ministry of Justice order, Shihosho Rei, number
50, issued on or about 14 May 1941).
(7) The national defense and peace preservation
law (Kikubo Hoan Ho, law number 49 of 1941,
promulgated on or about 7 March 1941).
(8) National defense and jjeace preservation
law enforcement order (Kokubo Hoan Ho Shiko
Rei, Imperial ordinance number 542 of 1941, is-
sued on or about 7 May 1941) .
(9) Regulations for appointment of lawj'ers
under peace preservation laws (Bengoshi Shitei
Kitei, Ministry of Justice order, Shihosho Rei,
number 47 of 1941, issued on or about 9 May 1941).
(10) Law for safeguarding secrets of military
material resources (Gunyo Shigen Himitsu Hogo
Ho, law number 25 of 1939, promulgated on or
about 25 March 1939).
(11) Ordinance for the enforcement of the law
for safeguarding secrets of military material re-
sources (Gunyo Shigen Himitsu Hogo Ho Shiko
Tei, Imperial Ordinance number 413 of 1939, is-
sued on or about 24 June 1939).
(12) Regulations for the enforcement of the
law of safeguarding secrets of militai-y material re-
sources (Gunyo Shigen Himitsu Hogo Ho Shiko,
Kisaku Ministries of War and Navy ordinance nr
3 of 1939, promulgated on or about 26 June 1939).
(13) Law for the protection of military secrets
(Gunki Hogo Ho, law number 72 of 1937, promul-
gated on or about 17 August 1937, revised by law
number 58 of 1941).
(14) Regulations for the enforcement of the
law for the protection of military secrets (Gunki
Hogo Ho Shiko Kisku, Ministry of War ordinance
nbr 59, issued on or about 12 December 1939 and
revised by Ministry of War ordinance numbers 6,
12 and 58 of 1941).
(The religious body law (Shukyo Dentai Ho,
law number 77 of 1939, promulgated on or about
8 April 1939).
(16) All laws, decrees, orders, ordinances and
regulations amending, supplementing or imple-
menting the foregoing enactments).
c. Release immediately all pei-sons now de-
tained, imprisoned, under "protection or surveil-
lance", or whose freedom is restricted in any other
NOVEMBER 4, 1945
731
manner who have been placed in that state of
detention, imprisonment, "protection and surveil-
lance", or restriction of freedom :
(1) Under the enactments referred to in Para 1
a and b above.
(2) Without charge.
(3) By charging them teclinically -with a minor
offense, when, in reality, the reason for detention,
imprisonment, ''Protection and Surveillance", or
restriction of freedom, was because of their
thought, speech, religion, political beliefs, or as-
sembly. The release of all such persons will be
accomplished by 10 October 1945.
d. Abolish all organizations or agencies created
to carry out the provisions of the enactments re-
ferred to in Para 1 a and b above and that part of,
or functions of, other offices or sub divisions of
other civil departments or organs which supple-
ment or assist them in the execution of such pro-
visions. These include, but are not limited to :
(1) All secret police organs.
(2) Those departments in the Ministry of Home
Affairs, such as the Bureau of Police, charged with
supervision of publications, supervision of public
meetings and organizations, censorship of motion
pictures, and such other departments concerned
with the control of thought, speech, religion or
assembly.
(3) Those departments, such as the special
higher police (Tokubetsu, Koto, Keisatsu Bu), in
the Tokyo Metropolitan Police, the Osaka Metro-
politan Police, and other Metropolitan Police, the
Police of the Territorial Administration of Hok-
kaido and the various prefectural police charged
with supervision of publications, supervision of
public meetings and organizations, censorship of
motion pictures, and such other departments con-
cerned with the control of thought, speech, religion
or assembly.
(4) Those departments, such as the Protection
and Surveillance Commission, and all Protection
and Surveillance Stations responsible thereto un-
der the Ministry of Justice charged with protec-
tion and surveillance and control of thought,
speech, religion, or assembly.
e. Remove from office and employment the Min-
ister of Home Affairs, the Chief of the Bureau of
Police of the Ministry of Home Affairs, the Chief
of the Tokj'o Metropolitan Police Board, the Chief
of Osaka Metropolitan Police Board, the Chief of
any other Metropolitan Police, the Chief of Police
of the Territorial Administration of Hokkaido,
the Chiefs of each prefectural police department,
the entire persomiel of the special higher police of
all metropolitan, territorial and prefectural police
departments, the guiding and protecting officials
and all other personnel of the Protection and Sur-
veillance Commission and of the Protection and
Surveillance Stations. None of the above persons
will be reappointed to any position under the
Ministry of Home Affairs, the Ministry of Jus-
tice or any police organ in Japan. Any of the
above persons whose assistance is required to
accomplish the provisions of this directive will be
retained until the directive is accomplished and
then dismissed.
f. Prohibit any further activity of police of-
ficials, members of i:)olice forces, and other govern-
ment, national or local, officials or employees which
is related to the enactments referred to in Para 1
a and b above and to the organs and fiuictions
abolished by Para 1 d above.
g. Prohibit the physical punishment and mis-
treatment of all persons detained, imprisoned, or
under protection and surveillance under any and
all Japanese enactments, laws, decrees, orders, or-
dinances and regulations. All such persons will
receive at all times ample sustenance.
h. Ensure the security and preservation of all
records and any and all other materials of the
organs abolished in Para 1 d. These records may
be used to accomplish the provisions of this direc-
tive, but will not be destroyed, removed, or tam-
pered with in any way.
i. Submit a comi^rehensive report to this Head-
quarters not later than 15 October 1945 describing
in detail all action taken to comply with all pro-
visions of this directive. This report will contain
the following specific information prepared in the
form of separate supplementary reports :
( 1 ) Information concerning persons released in
accordance with Para 1 c above. (To be groujied
by prison or institution in which held or from
which released or by office controlling their protec-
tion and surveillance).
(a) Name of person released from detention or
imprisonment or person released from protection
and surveillance, his age, nationality, race and
occupation.
(b) Specification of criminal charges against
732
DEPARTMENT OF STATE BULLETIN
each person released from detention or imprison-
ment or reason for which each person was placed
under protection and surveillance.
(c) Date of release and contemplated address
of each person released from detention or im-
prisonment or from protection and surveillance.
(2) Information concerning organizations abol-
ished under the provisions of this directive:
(a) Name of organization.
(b) Name, address, the title of position of per-
sons dismissed in accordance with Para 1 e.
(c) Description by type and location of all files,
records, reports, and any and all other materials.
(3) Information concerning the prison system
and prison personnel.
(a) Organization chart of the prison system.
(b) Names and location of all prisons, deten-
tion centers and jails.
(c) Names, rank and title of all prison officials
(governors and assistant governors, chief and as-
sistant chief wardens, wardens and prison doc-
tors).
(■i) Copies of all orders issued by the Japanese
Government including those issued by the gov-
ernors of prisons and prefectural officials in ef-
fectuating the provisions of this directive.
2. All officials and subordinates of the Japanese
Government affected bv the terms of this direc-
tive will be held personally resjwnsible and strictly
accountable for compliance with and adherence to
the spirit and letter of this directive.
Pearl Harbor Investigation
[Released to the press October 31]
At his press and radio news conference on Oc-
tober 31, the Secretary of State called attention
"to the portion of the report of the Army Pearl
Harbor Board which referred to Secretary Hull
and which was released to the press on August 29,
1945.
The Secretary cited that section of the report
(page 223) which states "Evidently the action 'to
kick the whole thing over' was accomplished by
presenting to the Japanese the counterproposal of
the 'Ten Points' ^ which they took as an ulti-
matum. It was the document that touched the
button that started the war, as Ambassador Grew
so aptly expressed it." The Secretary also cited
a later reference in the report (page 224) that "It
seems well established that the sending of this
'Ten Point' memorandum by the Secretary of
State was used by the Japanese as a signal of
starting the war by the attack on Pearl Harbor."
Mr. Byrnes called attention to the Navy League
speech of Secretary Forrestal of October 27 in
New York, which Mr. Byrnes said was based upon
documents found on the Japanese heavy cruiser
Nachi, which was sunk in the harbor of Manila
Bay. Those documents included the original plans
for the attack on Pearl Harbor, the Secretary
added, and disclosed the following: The operation
' See Peace and War, V. S. Foreign- Policy 1931-1941,
Department of State publication 1983, p. 811.
plan providing for the outbreak of the war and
the attack on Pearl Harbor was published on the
6th of November, 1941 as Combined Fleet Top
Secret Operation Number One and Y-Day was
set in Combined Fleet Top Secret Number Two
published on November 7, 1941, which fixed the
8th of December, 1941, Japanese time, and the
7tli of December, 1941, United States time, as
Y-Day.
At the request of correspondents, Secretary
Byrnes authorized the following comment for
direct quotation :
"The so-called ultimatum of Secretary Hull was
dated the 26th of November and I call attention
to these original documents of the Japanese in
the hope that it may forever dispose of the claim
of the statement of the Army Board that the so-
called ultimatum of Secretary Hull started the
Japanese war. It was three weeks before Mr.
Hull gave his 'Ten Point' memorandum to the
representatives of Japan that official orders were
given that the Japanese Fleet should attack on the
7th of December. I may say that you will all be
glad to know that the Secretary of State did not
start the war with the ultimatum, but three weeks
before that, the Japanese had given orders to
attack on December 7th and I wanted to dispose
of that in justice to my good friend Secretary
Hull."
NOVEMBER 4, 1945
Departure from Shanghai of
the S.S. "Lavaca"
[Released to the press October 31]
The Department of State lias received from the
American Consulate General at Shanghai a list of
civilian personnel which left Shanghai on board
the S.S. Lavaca on October 13, 1945. The ship is
expected to arrive at San Francisco on November 2.
The names of the passengers are listed in press
release 821. The following table is a summary of
the passenger list by countries:
Nationality Number
American 173
British 87
Canadian 29
French 23
Swiss 17
Chinese 8
Swedish 8
Portuguese 6
Netherlands 5
Egyptian 3
Belgian 1
Total 360
Dickson Reck Returns
From China
[Released to the press November 2]
Dickson Reck, specialist in industrial standards,
organization, and management, who has been for
the past year in China under the cultural-cooiJera-
tion program of the Department of State, has re-
cently returned to the United States. Mr. Reck
accompanied S. T. Shang, Secretary-General of
the Chinese Standards Committee, to the meeting
of the United Nations Standards Coordinating
Committee held in New York on October 8. Dur-
ing the next three months Mr. Reck and Mr.
Shang will visit American standardizing agencies,
engineering societies, and manufacturing plants to
arrange for the transmission of technical data and
American specifications to the Chinese Standards
Committee. Mr. Shang is also instructed by the
Chinese Government to become familiar with
American methods of developing and extending
standards into industrial and agricultural pro-
duction and distribution practice and to get a
733
first-hand impression of American production
methods in order to facilitate the development of
standards in China.
Mr. Reck assisted the Chinese Government in
organizing their national standards organization,
in developing the methods and procedures for
establishing standards, and in building a program
of standards development work.
Areas Opened for
Civilian Travel
[Released to the press October 30]
The Joint Chiefs of Staff with the concurrence
of the Secretary of State have removed all areas
except Germany, Austria, the main islands of
Japan, Formosa, Nansei Shoto and Nanpo Shoto,
and Korea from the list of areas of active opera-
tions into or through which civilians may not go
without a military permit.
The approval of the Supreme Allied Com-
mander, Southeast Asia, must be obtained, how-
ever, for civilian travel in the Southeast Asia
Command, which comprises Burma, Siam (Thai-
land), Malaya, Sumatra, Java, Borneo, Celebes,
New Guinea, and the Solomon Islands. This ap-
proval is obtained by the State Department from
the Supreme Allied Commander, Southeast Asia.
Although military control of travel has been
greatly diminished, the critical situation with re-
gard to living conditions and transportation con-
tinues to prevail in areas formerly under military
control as well as in other European and Asiatic
areas. Consequently, Americans are advised to
undertake only the most essential travel this win-
ter, bearing in mind that all liberated countries
are suffering from lack of heat, housing, and
transportation and have acute shortages of food.
Furthermore, transportation to the United States
is difficult to obtain in most instances owing to the
movement homewai'd of American military forces,
and civilian travelers may therefore expect a delay
of from six months to a year in returning to the
United States.
Passport applications will be accepted for the
areas listed as under military control only in cases
of strong national interests. Passport applica-
tions for travel to other areas are discouraged, as
734
DEPARTMENT OF STATE BULLETIN
indicated above, and should be restricted to those
persons having urgent and compelling business or
personal reasons for proceeding abroad.
The clerks of Federal courts throughout the
country are being furnished with detailed infor-
mation regarding civilian travel in critical areas,
and those desiring to avail themselves of such in-
formation should make inquiry to the clerk of the
nearest Federal court. American diplomatic and
consular officers abroad will continue to render all
possible help under existing conditions to Amer-
ican businessmen traveling in the national interest.
Hungarian Minister to the
United States
[Released to the press November 2]
The United States Government has informed
the Hungarian Provisional Government that it is
agreeable to the ajDpointment of Aladar de
Szegedy-Maszak as Envoy Extraordinary and
Minister Plenipotentiary from Hungary to the
United States.
Mail Service to Italy
[Released to the press November 1]
The Department of State announced on Novem-
ber 1 that expanded parcel-post and regular mail
service will become available to Italy and the
Vatican City as of November 2, 1945. The ex-
tended service will be available to all of Italy ex-
cept the provinces of Trieste, Gorizia, Fiume,
Pola, and Zara. However, gift parcels may be
sent to the cities of Trieste, Gorizia, and Pola.
Gift parcels up to 11 pounds in weight are now
acceptable for dispatch to the above-designated
localities. Only one parcel may be sent by the
same sender to the same addressee in Italy during
any 7-day period. Packages may not exceed $25
in value and must be conspicuously marked "gift
parcel". The customs declaration must clearly
indicate the contents and value of each parcel.
Only one declaration is required for each parcel.
Packages may contain only such items as are not
prohibited in the international mails to Italy and
must conform to the regulations established by
the Foreign Economic Administration.
Regular mail service has been extended to all
of Italy with the exception of the five provinces of
Trieste, Gorizia, Fiume, Pola, and Zara and now
comprises letters, postcards, printed matter in
general, printed matter for the blind, commercial
papers, and samples of merchandise. Airmail ar-
ticles for these areas may not exceed one pound.
First-class matter may be registered, but special-
delivery service is not available at this time.
Regular mail service to the five provinces above
mentioned is still restricted to postcards and let-
ters weighing not more than two ounces for dis-
patch by air and surface means.
Recognition of Government
Of Venezuela
[Released to the press October 30]
Secretary of State Byrnes announced on the
afternoon of October 30 that the Government of
the United States has extended full recognition to
the Government of Venezuela, which is now or-
ganized under Seiior Romulo Betancourt.
The American Ambassador in Caracas informed
the new Minister for Foreign Affairs of Vene-
zuela of this action.
Before making its decision to recognize the new
Government of Venezuela the Government of the
United States of America exchanged views and
consulted with the governments of the other
American republics.
Normal Relations With New
Brazilian Administration
[Released to the press November 3]
The Secretary of State announced on November
2 that the American Ambassador at Rio de Janeiro,
Adolf A. Berle, Jr., was instructed to carry on
normal relations with the new administration in
Brazil. He stated further that the question of
recognition did not arise since established pro-
cedures were followed in the assumi:)tion of the
executive power by the President of the Federal
Supreme Court of Brazil. The Secretary added
that consultation with other American republics
reflects general agreement with this position.
NOVEMBER 4, 1945
735
Postscripts on the Third Inter-American
Radiocommunications Conference
By ROBERT R. BURTON and DONALD R. MACQUIVEY'
S RADIO COMMUNICATIONS ARE
developed in the next few
years, the reLited prob-
lems will be met with
greater ease, partially because of the success of the
Third Inter- American Eadiocommunications Con-
ference.
In 1937 the First Inter-American Radio Con-
ference was convened in Habana, Cuba, to draw
up a basic radio agreement (called the Inter-
American Radiocommunications Convention) ,
regulations in tlie form of an Inter-American
Arrangement Concerning Radiocommunications,
and a North American Regional Broadcasting
Agreement. The Second Inter-American Radio
Conference was held in Santiago, Chile, in 1940
and the Habana arrangement, which further im-
plemented the basic agreements of the Habana
convention, was revised. The Third Inter-
American Radio Conference,- which was scheduled
to be held in Rio de Janeiro in 1943 but which
was delayed by the war, opened on September 3,
1945 and concluded its discussions on September
25. The signing of the Inter-American Radio-
communications Convention took place on Sep-
tember 27, 1945.
At the opening sessions of the Conference, it
was decided to create four major committees:
1. Initiatives
2. Juridical-Administrative
3. Technical
4. Drafting
The Initiatives Committee considex-ed all pro-
posals from the various delegations and appor-
tioned them either to the Juridical-Administrative
Committee or to the Technical Committee. The
Juridical-Administrative Committee handled the
bulk of the work of redrafting the Habana con-
vention to bring it down to date. The Technical
Committee concerned itself with frequency allo-
cations and other technical problems. The Draft-
ing Committee prepared the final documents in
English, French, Spanish, and Portuguese.
Within the Juridical-Administrative Commit-
tee four subcommittees were created to deal with
problems on organization, rates, miscellaneous ad-
ministrative questions, and freedom of informa-
tion. Adolf A. Berle, Jr., American Ambassador
to Brazil, was especially active in the work of the
Subcommittee on Freedom of Information, which
handled such items as interchange of cultural
broadcast programs, interchange of news and in-
formation, rights in broadcasts, and radio com-
munications to multiple destinations. Tliese sub-
jects were subsequently incorporated into the Rio
de Janeiro convention as articles 25 to 28, inclu-
sive.
The United States Delegation to the Conference
consisted of representatives of the Departments of
State, War, Navy, and Commerce, the Federal
Comunications Commission, and the Office of Inter-
American Affairs. Ambassador Berle was chair-
man.
For many months prior to the Conference, the
American Delegates and other interested partici-
pants had made a thorough study of the Habana
convention for the purpose of revising it to suit
jDresent needs. As a residt of this preparation,
the American Delegation was able, shortly after
the opening of the Conference, to lay before the
other delegations a revised text of the Habana
convention, in English, Spanish, and Portuguese.
'Mr. Burton is Chief of tlie Radio Overseas Utiliza-
tion Section, International Information Division, OflBce
of International Information and Cultural Affairs, De-
partment of State. Mr. Burton was a member of the U. S.
Delegation.
Mr. MacQuivey is Divisional Assistant, Telecommuni-
cations Division, Office of Transport and Communica-
tions Policy, Department of State.
' See "Third Inter-American Radio Conference", by
Harvey B. Otterman, Buixetin of Aug. 26, 1945, p. 292.
756
DEPARTMENT OF STATE BULLETIN
The immediate effect was to focus the thinking of
all the delegations on the changes proposed. The
outcome was the unanimous adoption of most of
these proposals. Compromises were made on
those portions of the revised convention which
did not receive unanimous approval so that the
final draft was acceptable to all parties.
The principal accomplishments of the Confer-
ence were:
(1) the signing, on September 27, 1945, of a
telecommunications convention ;
(2) adoption of regulations for future confer-
ences;
(3) adoption of a series of resolutions and rec-
ommendations ; and
(4) laying of the groundwork for a world tele-
communications conference, so far as the
American republics are concerned.
Of these, the only legally enforceable instrument
is the convention, which must be ratified befoi'e it
takes effect.
The convention includes a definition of the
"American Region", wherein it will apply. Pro-
vision is made for the organization and operation
of an Office of Inter-American Telecommunica-
tions (O.I.T.). This office would be a central re-
pository and disseminating agency for informa-
tion concerning inter-American telecommunica-
tions and would perform many of the functions
for the Americas comparable with the responsi-
bility on a world-wide basis of the Bureau of the
International Telecommunication Union, located
at Bern, Switzerland.
A new conference proceduie involving three
types was set up, which makes provision for rela-
tively infrequent 2ilenipotentiary conferences for
the consideration of basic jjolicies and the revision
of inter-American telecommunications conven-
tions, for administrative conferences at more fre-
quent intervals to consider matters implementing
the convention adopted at the plenipotentiary con-
ferences, especially in the technical field, and for
emergency conferences, which may be called on
reasonably short notice, to consider sjiecific urgent
problems in restricted fields. Such meetings will
be known as administrative conferences with lim-
ited agenda.
Finally, the Conference included in the conven-
tion, among other things, principles for the use
of radio frequencies, principles regarding the es-
tablislmient of rates, and arbitration procedure to
be followed in the event of disagreement. No pri-
orities were set up regarding the type of service
which would have first call on the use of radio
frequencies, but it was recognized that the emer-
gency services and those for which no other means
of communication can be provided should be given
primary consideration.
Considerable attention was given to the inter-
change of cultural, news, and information broad-
cast programs. The O.I.T. is to have a separate
department to consider such problems.
The regulations attached to the convention pro-
vide specific details such as the set-up of future
conferences, organization and membership of com-
mittees, their duties, and voting procedures.
Only two resolutions were adopted. One of
these indicated that it was desirable to separate
those problems of interest only to aviation from
consideration in detail by the general telecommu-
nications body, and to leave these details to the
approjjriate aviation organization. The other
resolution regarded freedom of information in
radio communications and recommended that
regulations be adopted permitting free inter-
change of information in accordance with the
American democratic views on the subject.
Several recommendations were adopted. These
called for:
( 1 ) a broadcast conference to be held sometime
soon after the world telecommunications
conference ;
(2) a study of very-high-frequency (vhf)
broadcasting to be conducted;
(3) transmission of telecommunications infor-
mation to the International Civil Aeronau-
tics Organization;
(4) a joint meeting of American region com-
missions of the International Meteorolog-
ical Organization to consider its telecom-
munication needs ;
(5) definition of "meteorological telecommu-
nications";
( 6 ) organization of an inter- American network
of monitoring stations ;
(7) all broadcast I'eceivers to cover the fre-
quency range 535 kc to 1605 kc ;
(8) all American countries to adopt standard
zone time, using only the time for meridi-
ans which are multiples of 15 degrees from
the Greenwich meridian ;
(9) reduction in telecommunications rates;
I
NOVEMBER 4. 1945
737
(10) elimination of special taxes;
(11) expedition of press messages;
(12) over-all study of rates; and
(13) standardization in the American region of
instruction of radio operators and tech-
nicians.
Subjects brought up for study preparatory to
the next world conference included means whereby
the speed of airline communication might be in-
creased, training of amateurs who wish to operate
radiotelephone equipment in the 14-megacycle
band, a new frequency allocation list proposed by
the United States, and the proposed Central Fre-
quency Registration Board.
The United States Delegation felt that the Con-
ference was very successful. It not only enabled
representatives of the American republics to agree
on the subjects discussed above but also provided
a means for them to become better acquainted
personally and to discuss mutual problems infor-
mally. No effort was made to develop a "hemi-
sphere bloc" to act as a unit at the world confer-
ence. In fact, the expression of individual national
views is encouraged. The objective — a better un-
derstanding of inter-American problems — was
accomplished. As a result, much time and effort
should be saved when the world telecommunica-
tions conference convenes.
Meeting of Anglo-American
Caribbean Forestry Committee
According to the Anglo-American Caribbean
Commission, a meeting of the Forestry Subcom-
mittee of the Research Committee on Agriculture,
Nutrition, Fisheries, and Forestry of the Carib-
bean Research Council will be held in Port-of-
Spain, Trinidad, January 14-24, 1946.
In addition to attendance by members of the
subcommittee, invitations have been extended to
the governments concerned for the attendance of
at least one forester from each of the following
Caribbean territories: Trinidad and Tobago (rep-
resenting also Barbados and the Windward and
Leeward Islands), British Guiana, British Hon-
duras, Jamaica, Martinique, Guadeloupe, Nether-
lands Guiana, Puerto Rico, and the Virgin Islands.
The three island republics of Cuba, Haiti, and
the Dominican Republic have also been invited to
send forestry experts as observers to the meeting.
The meeting will deal on a technical level with
forest problems in the Caribbean region and will
( 1 ) examine the present status of forest research,
(2) detei-mine future needs in such research, and
(8) formulate for the consideration of the Carib-
bean Research Council and the Anglo-American
Caribbean Commission a program of future re-
search and development.
Transmittal of U.S. -U.K.
Petroleum Agreement to
the Senate'
Message of THE PRESIDENT
[Released to the press by the White House November 1]
To the Senate of the United States:
With a view to receiving the advice and con-
sent of the Senate to ratification, if it appi'ove
thereof, I transmit herewith an agi-eement on
petroleum between the Government of the United
States of America and the Government of the
United Kingdom of Great Britain and Northern
Ireland, signed in London September 24, 1945.
With the agreement I transmit for the informa-
tion of the Senate the report made to me by the
Secretary of State relating thereto, together with
a copy of a letter addressed to me by the Secre-
tary of the Interior and Petroleum Administrator
for War relating to the agreement, and also a list
of territories to which the agreement is intended
to apply.
Haekt S. Truman
^ THE DEPARTMENT ^
Alien Enemy Control Section
[Released to the press November 2]
By Departmental order effective October 24, the
Secretary of State has established under Assist-
ant Secretary Braden an Alien Enemy Control
Section to handle the cases of enemy aliens who
were brought to this country from other American
republics during the course of the war and remain
in the custody of this Government. The direc-
tive provides for the establishment of an orderly
' For text of the agreement, see Bulletin of Sept. 30,
1945, p. 481. Enclosures not printed.
738
DEPARTMENT OF STATE BULLETIN
procedure for disposing of these cases on an in-
dividual basis in accoi'dance with standards to
be approved by the Secretary.
Immediately after the attack on Pearl Harbor
and on a number of occasions thereafter, groups
of enemy aliens considered to be dangerous to
hemispheric security were deported to the United
States from various of the other American re-
publics for internment here with a view to later
repatriation. A large number of these persons
have already been repatriated to Germany, Italy,
and Japan at their own request or with their con-
sent, most of them during the war in exchange
for Americans interned in enemy countries. A
considerable number of others, including many
who were leaders in anti-American activities, now
decline to return to their native countries, wishing
to move back to Latin America or to remain here.
It is the disposition of the latter cases with which
the new Alien Enemy Control Section is con-
cerned.
The desirability of ridding this hemisphere of
dangerous Axis nationals was recognized by all
the American republics at the Mexico City con-
ference last winter ; the Final Act of that confer-
ence included a recommendation that measures
be taken "to prevent any person whose deportation
was deemed necessary for reasons of security of
the Continent from further residing in this
hemisphere, if such residence would be prejudicial
to the future security or welfare of the Americas."
Pursuant to that recommendation, on September
8 the President of the United States by proclama-
tion authorized the Secretary of State to order the
repatriation of dangerous alien enemies deported
to this country during the war.^
In proceeding with this program the Depart-
ment intends to follow an orderly procedure
wholly consistent with American concepts of fair-
ness and equity. A preliminary review of the
cases is now going on, with a view to releasing as
quickly as possible those persons who may safely
'BmXETiN of Sept. 9, 194.'5, p. 361.
'For article, "Eliinination of Axis Influence in This
Hemisphere: Measures Adopted at the Mexico City Con-
ference", b.v Thomas C. aiann, see BijLLjniN of May 20,
1&45, p. 924 ; see also Bulletin of July 1, 1945, p. 21, for
statement by Assistant Secretary Clayton on security
against renewed German aggression.
"Departmental Order 13r)2, dated Oct. 26, 1945, and
effective Oct. 24, 1945.
be allowed to remain in this hemisphere. Any
person who appears to be so clearly dangerous as
to make his repatriation desirable will be given
ample opportunity for a hearing, and before a
repatriation order is issued his case will be re-
viewed by a high officer of the Department.
Finally, the Department does not propose to order
repatriation in any case until after consultation
with the other American reiJublic concerned.
The over-all objective of this program is to ac-
complish the purposes of resolution VII of the
Mexico City conference, especially "to prevent
Axis-inspired elements from securing or regaining
vantage points from which to disturb or threaten
the security or welfare of any [American] Repub-
lic". It is the ijolicy of the Department to pursue
that objective in close cooperation with the other
American republics.^
Establishment and Functions of the
Alien Enemy Control Section^
Purpose. The purpose of this order is to establish an
Alien Enemy Control Section and to ti'ansfer certain re-
sponsibilities from the Special Projects Division to that
Section.
1 EstatUshmenf of the Alien Enemy Control Section.
There is hereby established an Alien Enemy Control Sec-
tion (routing symbol A-Br/A), which will function under
tlie direction and supervision of the Assistant Secretary
for American Republic Affairs.
2 Functions, (a) The Alien Enemy Control Section
will have responsibility for the initiation of policy and
action with respect to all matters concerning the disposi-
tion of alien enemies, presently in the United States, who
were removed from otiier American republics during the
course of the war. In the discharge of its responsibility,
this Section will have the following functions :
(1) The examination of all aspects of the problem in
eon.sultation with other interested agencies of the Gov-
ernment and officers of the Department.
(2) The preparation for approval of the Secretary of
a statement of the standards to be employed in deciding
and disposing of the cases in question.
(3) The making of recommendations to the Assistant
Secretary for American Republic Affairs with respect to
the establishment of an orderly and fair procedure for
arriving at a decision in each case in the light of the
standards approved by the Secretary, and for properly
disposing of each case in accordance with such decision,
the procedure to include: (i) a preliminary administra-
tive review of each case; (li) the providing of an oppor-
tunity for a hearing, before a board to be later
constituted, in any case wliere the finding from such pre-
liminary i-eview is in favor of removal; and (iii) a final
NOVEMBER 4, 1945
739
review by an officer of the Department of a rank not less
than Assistant Secretary in any case where the finding
of the hearing board is in favor of removal.
(4) The assembling of all available evidence and in-
formation with respect to the enemy aliens in question.
(5) The conducting of a preliminary administrative
review of each case and the carrying out or making of
arrangements for such further steps as may be necessary
for arriving at a decision on, and the di.sposing of each
case in accordance with the procedure approved by the
Assistant Secretary for American Republic Affairs.
(6) The handUng of all pertinent correspondence and
the answering of all pertinent inquiries on the subject
of the enemy aliens in question. (The Division of Co-
ordination and Review will take steps to insure that all
outgoing correspondence referring to these persons, of
whom a list will be provided, is routed through the Alien
Enemy Control Section.)
(7) The consulting with the Department of Justice with
respect to any litigation pending or which may arise in
connection with the problem.
(8) In addition to the foregoing functions, the perform-
ing of all other functions which shall prove necessary to
the fulfillment of its responsibility and which shall be ap-
proved by- the Assistant Secretary for American Republic
Affairs.
(b) It shall also be the responsibility of the Alien Enemy
Control Section to collaborate with other offices and divi-
sions of the Department in the formulation and execution
of a program to implement Resolution No. VII of the Inter-
American Conference on Problems of War and Peace with
respect to enemy aliens in the other American republics.
In all cases affecting such enemy aliens, the Special Proj-
ects Division shall consult with the Alien Enemy Control
Section.
3 Transfer of functions. The responsibility of the Spe-
cial Projects Division in connection with the initiation of
policy and action with respect to all matters concerning
the disposition of alien enemies, presently in the United
States, who were removed from other American republics
during the course of the war is hereby transferred to the
Alien Enemy Control Section.
4 Dcpurtmeiital orders amended. Departmental Order
1301 of December 20, 1944, and any other orders, the pro-
visions of which are in conflict herewith, are accordingly
amended.
James F. Btbnes
Establishment of the Interim Research
and Intelligence Service '
Purpose. This order is issued to e.stablish the Interim
Research and Intelligence Service (routing syml)ol IRIS)
as an organizational entity in the Department of State
for the period Octolier 1 througli December 31, 1945, pur-
suant to the provisions of Executive Order 9621 of Sep-
tember 20, 1945 (10 F.R. 17645).
1 Establishment and functions of the Service. There
is hereby established the Interim Research and Intelli-
gence Service which shall be responsible for those func-
ti<ms of the Office of Strategic Services transferred to
the Department of State by Executive Order 9621, until
other disposition is made of these functions.
2 Head of the Service. The head of the Interim Re-
search and Intelligence Service shall be the Special As-
sistant to the Secretary in charge of research and
intelligence.
3 Personnel, records, property and funds. All pev-
sonnel, records, property and appropriation balances
transferred from the Office of Strategic Services to the
Department of State by determination of the Bureau of
the Budget, pursuant to Executive Order 9621, shall be
placed initially under the Interim Research and Intelli-
gence Service.
4 Amendment of previous orders. Any departmental
orders, the provisions of which are in conflict herewith,
are accordingly amended.
James F. Btenes
Establishment and Responsibilities of
the Special Assistant to the Secretary in
Charge of Research and Intelligence
Purpose. This Order establishes the position of Special
Assistant to the Secretary in charge of research and in-
telligence and outlines his responsibilities.
1 Position. There is hereby established the position of
Special Assistant to the Secretary in charge of research
and intelligence, to rank with Assistant Secretaries.
2 Responsibilities. The Special Assistant to the Secre-
tary in charge of research and intelligence shall be re-
sponsible :
(a) For advice and assistance to the Secretary with
respect to the development of a coordinated program for
the procuring and production of foreign intelligence needed
by the Department of State.
(b) For advice and assistance to the Secretary with
respect to the development of a compreliensive and co-
ordinated foreign intelligence program for all Federal
agencies concerned with that type of activity.
(c) For the direction of such organization units as are
hereafter established in the Department for the procuring
and production of foreign intelligence.
(d) For the direction, until December 31, 1945, of the
Interim Research and Intelligence Service.
(e) For the performance of those functions of the Di-
rector of Strategic Services and of the United States Joint
Chiefs of Staff, relating to the functions of the Interim
Research and Intelligence Service, as are transferred to
tlie Secretary of State pursuant to Executive Order 9621
of September 20, 1945 (10 F.R. 17645).
' Departmental Order 1350, dated Oct. 26, 1945 and effec-
tive Oct. 24, 1945.
"Departmental Order 1351, dated Oct. 26, 1045 and
effective Oct. 24, 1945.
740
DEPARTMENT OF STATE BULLETIN
3 Organization. The office of the Special Assistant to
the Secretary in charge of research and intelligence shall
include such deputies, advisers, assistants and appurtenant
staff as may be deemed necessary.
4 Departmental Orders Amended. Departmental Order
1301 of December 2<), 1944 and any other orders, the pro-
visions of which are in conflict herewith, are accordingly
amended.
James F. Bybnes
Divisions of Communications and
Records and Central Services ^
Purpose. This order is issued to improve the organiza-
tion of the Department by segregating the functions re-
lating to communications and records.
1 Reestablishment of a Division of Communications and
Records. There is hereby reestablished in the Office of
Departmental Administration a Division of Communi-
cations and Records.
2 Functions of the Division. The Division of Communi-
cations and Records shall be responsible for the formula-
tion of policies and the development and establishment of
procedures and regulations governing the dispatch, re-
ceipt, and distribution of all correspondence and tele-
graphic communications that are transmitted via the diplo-
matic channels (telegraphic and diplomatic poueb) be-
tween the United States and other countries. Specifically
it shall:
(a) Formulate the policies, procedures, and regulations
governing the general use of such diplomatic channels for
the above communications ;
(b) Negotiate with other agencies of the United States
Government concerning their use of such diplomatic
channels ;
(c) Establish methods of coordination for the outgoing
communications originating in other Government agencies
for transmission via these channels, in order to eliminate
any conflict in policy as expre.ssed in them and determine
the clearances required for such comanunications ;
(d) Determine the routing of all incoming communica-
tions within the Department, for action and information,
the distribution of copies of outgoing telegrams and air-
grams for information within the Department of State
and the paraphrase and distribution of telegrams and
airgrams to other Government agencies ;
(e) Operate the telegraph office of the Department of
State, including the coding and decoding of security
messages for all Government departments ;
(f) Formulate regulations for the use of the diplo-
matic channels of communication by private individuals
and organizations, including negotiation with United
States cen.sor.ship and customs officials :
(g) Administer and operate the system for transmit-
' Departmental order 1354, dated Oct. 20, 1945 and effec-
tive Nov. 1, 1945.
ting written communications within the Department of
State and between the Department and the foreign mis-
sions and Government agencies in Washington, including
the messenger system of the Department, and operate
the domestic mail handling system for the Department ;
(h) Have general jurisdiction over the tiling system
and record-retirement program for Departmental cor-
respondence and the operation of the central Depart-
mental files and records;
(i) Have responsibility for developing research into
flies and records in connection with requests from the
Department and other agencies for technical data and
information ;
(j) Collaborate with the Division of Foreign Report-
ing Services as regards those functions transferred to
its jurisdiction from DC/L to maintain the accurate
distribution and dispatching of that type of reporting
services for which FR is held responsible.
3 To maintain supervision of DC/L functions. The
liaison functions of the Commercial Liaison Section
(DC/L) shall be the responsibility of the Division of
Communications and Records except for those specific
operations which are assigned to FR.
4 Functions of the Division of Central Services. Func-
tions of the Division of Central Services, other than those
described in paragraphs 2 and 3 of this order, will con-
tinue to be the responsibility of the Division of Central
Services.
5 Effective date. The transfer of the existing com-
munications and records functions shall be made as of
November 1, 1945. The transfer of tlie functions of the
Diplomatic Mail and Potich Section and any related mail
activities and of messenger functions shall be effective
at dates to be specified by the Director of the Office of
Departmental Administration.
6 Transfer of personnel and records. The personnel
at present performing any of the functions hereby as-
signed to the Division of Comunications and Records, to-
gether with the records and equipment pertaining thereto,
are hereby transferred to that division.
7 Ro7iting symbols. The routing symbol for the Division
of Conmiunications and Records shall be DC; the rout-
ing symbol for the Division of Central Services shall be
changed to CS. The corresponding symbols for the several
subordinate units of the two divisions sliall be changed
accordingly.
8 Departmental order amended. Departmental Order
1301 of December 20, 1944 (section XVII, paragraph 4)
is hereby amended.
James F. Bybnes
Appointment of Officers
Lt. Richard F. Cook as Executive Officer in the Office of
Transport and Commiuiications Policy, effective Octo-
ber 25, 1945.
Walter K. Scott as Chief of the Division of Communica-
tions and Records, effective October 30, 1945.
I
NOVEMBER 4, 1945
741
^ THE CONGRESS ^ ^
THE FOREIGN SERVICE ^
Additional Appropriation, Fiscal Year 1946, for United
Nations Kelief and Rehabilitation Administration.
II.Rept. 1166, 70tli Cong., to accompany H.J.Res. 266.
7 pp. [Favorable report.]
United Nations Relief and Rehabilitation Administra-
tion, 1046 : Hearing.s before the Subcommittee of the Com-
mittee on Appropriations, Hou.se of Representatives, Sev-
enty-ninth Congress, first session, on a House joint reso-
lution making appropriations for the United Nations Relief
and Rehabilitation Admini-stration for the fiscal year 1946.
ii, 273 pp.
Supplemental Estimates of Appropriation and Drafts of
Proposed Provisions for the Department of State. Com-
munication from the President of the United States trans-
mitting supplemental estimates of appropriation for the
fiscal year 1946 in the amount of $9,060,059.36, together
with drafts of proposed provisions pertaining to existing
appropriations, for the Department of State. H.Doc. 367,
79th Cong. 3 pp.
Study of Immigration and Naturalization Laws and
Problems: Hearings before the Committee on Immigra-
tion and Naturalization, Hou.se of Representatives, Sev-
enty-ninth Congres.s, first session, pursuant to H.Res. 52,
authorizing a study of immigration and naturalization
laws and problems. Part 1, April 24 and May 2, 1945,
iii, 42 pp. ; Part 2, July 3, 1945, iii, 24 pp.
To Grant a Quota to Eastern Hemisphere Indians and
To Make Them Racially Eligible for Naturalization : Hear-
ings before the Committee on Immigration and Natural-
ization, House of Representatives, Seventy-ninth Congress,
first session, on H.R. 173, H.R. 1584, H.R. 1624, H.R. 1746,
H.R. 2256, H.R. 2609, bills to grant a quota to Eastern
Hemisijhere Indians and to make them racially eligible
for naturalization. Part 2, July 3, 1945. ii, 2 pp.
Return of Vested Property to Persons Not Hostile to
the United States : Hearing before Subcommittee No. 1
of the Committee on the Judiciary, House of Represen-
tatives, Seventy-ninth Congress, first session, on H.R. 3750,
a bill to amend the First War Powers Act, 1941, September
12, 1945, Serial No. 7. iii, 60 pp.
Consular Ofl&ces
Tlie American Consulate General at Batavia,
Java, was established on October 24, 1945.
Publications
of the DEPARTMENT OF STATE
For sale by the Superintendent of Documents,
Government Printing Office, Washington 25, D. C,
v,iio is the authorized distributor of Government
publications. To avoid delay, address requests
direct to the Superintendent of Documents, ex-
cept in the case of free publications, which may
be obtained from the Department of State.
*Tke Proclaimed List of Certain Blocked Na-
tionals, Cumulative Supplement No. 7, Octo-
ber 25, 1945, containing additions, amend-
ments, and deletions made since Revision IX
of February 28, 1945. Publication 2401. 118
pp. Free.
Promulgated under presidential proclamation of
July 17, 1941, as authorized under tlie Trading with
the Enemy Act, being a list of persons deemed to be
or to have been acting in collaboration with the
enemy, and also of persons to whom the export of
materials from the United States is deemed to be
detrimental to the interest of national defense.
A ctuniildtivc Ust of the publications of the Department
of State, from October 1, 1929 to July 1, 19.'i5 {ptiblleation
2373) may be seeured from the Department of State.
Y42 DEPARTMENT OF STATE BULLETIN
OntentS Continued
Treaty Information Page
The St. Lawrence Waterway and World Trade. By Edward
G. MUler, Jr 715
Ratification of the Charter of the United Nations: Greece,
India, Peru 723
Transmittal of U. S.-U. K. Petroleum Agreement to the
Senate. Message of the President 737
The Department
Oath of OfBce Taken by Spruille Braden 714
Alien Enemy Control Section 737
Establishment and Functions of the Alien Enemy Control
Section 738
Establishment of the Interim Research and Intelligence
Service 739
Establishment and Responsibilities of the Special Assistant
to the Secretary in Charge of Research and Intelligence . 739
Divisions of Communications and Records and Central Serv-
ices 740
Appointment of Officers 740
The Foreign Service
Consular Offices 741
Publications
Department of State 741
The Congress 741
U S, GOVERNMENT PRINTING OFFICE 1945
THE DEPARTMENT OF STATE
]R Tl
J
H
1 1^ I I S)
J
VOL. XIII, NO. 333
NOVEMBER 11, 1945
In this issue
THE STATE-WAR-NAVY COORDINATING COMMITTEE
By Harold W, Moseley, Colonel Charles W. McCarthy, and Commander Alvin F.
Richardson
DOCUMENTS RELATING TO ITALIAN ARMISTICE
CORRESPONDENCE CONCERNING ITALIAN PEACE TREATY
For complete contents
see inside cover
.^©NT o*.
THE DEPARTMENT OF STATE
BULLETIN
Vol. Xm. No. 333*
• roBLicATion 2424
3
November 11. 1945
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Research and
Publication, Office of Public Affairs,
provides the public and interested
agencies of the Government with
information on developments in the
field of foreign relations and on the
work of the Department of State and
the Foreign Service. The BULLETIN
includes press releases on foreign
policy issued by the White House and
the Department, and statements and
addresses made by the President and
by the Secretary of State and other
officers of the Department, as well as
special articles on various phases of
interruitional affairs and the functions
of the Department. Information con-
cerning treaties and international
agreements to which the United States
is or may become a party and treaties
of general international interest is
included.
Publications of the Department, cu-
mulative lists of which are published
at the end of each quarter, as well as
legislative material in the field of inter-
national relations, are listed curren tly.
The BULLETIN, published with the
approval of the Director of the Bureau
of the Budget, is for sale by the Super-
intendent of Documents, United States
Government Printing Office, Wash-
ington 25, D. C, to whom all pur-
chase orders, with accompanying
remittance, should be sent. The sub-
scription price is $3.50 a year; a single
copy is 10 cents.
c
ontents
American Republics page
Letters of Credence: Ambassador of Mexico 768
Europe
Withdrawal of United States Forces From Czechoslovakia . 766
Establishment of Diplomatic Relations With Albania. . . 767
Mark Ethridge To Visit Moscow. Statement by the Secre-
tary of State 767
National Anniversary of the U.S.S.R. 768
Far East
Reconvening of Far Eastern Advisory Commission .... 769
Economic Affairs
Deletion of Finnish Names From Proclaimed List 766
Maritime Preparatory Technical Conference 768
Second Meeting of the Rubber Study Group 769
General
The State- War-Navy Coordinating Committee. By Harold
W. Moseley, Colonel Charles W. McCarthy, and Com-
mander Alvin F. Richardson 745
Arrival of Prime Minister Attlee 766
Pearl Harbor Investigation: White House Directive . . . 773
Delay of Gripsholm for Repairs 773
The United Nations
Preparatory Commission of the United Nations: Resolution
on Location of Headquarters 769
Treaty Information
Documents Relating to Italian Armistice:
Itah'an Military Armistice 748
Additional Conditions ofArmistice With Italy 749
Letter From General Eisenhower to Marshal Badoglio on
Occasion of Signing Armistice Document 754
Memorandum of Agreement on Employment and Dis-
position of Italian Fleet and Mercantile Marine. . . 755
Amendment to Agreement Respecting Employment of
Italian Navy 756
Statement of Admiral De Courten ; 757
Aide-M6moire of February 24, 1945 to the Italian Govern-
ment From President, Allied Commission 757
Commentary on the Additional Conditions of the Armi.s-
tice With Italy 759
Exchange of Correspondence Concerning Italian Peace
Treaty 761
Concerning Revision of Montreux Convention 706
Water Treaty and Protocol With Mexico:
Entry Into Force 770
Exchange of Ratifications 771
The Foreign Service
Advisory Committee on Commercial Activities of the For-
eign Service 773
Consular Offices ■ 774
Publications
Department of State 774
The Congress 774
The State-War-Navy Coordinating Committee
By HAROLD W. MOSELEY, Department of State
Colonel CHARLES W. MCCARTHY, War Department
Commander ALVIN F. RICHARDSON, Navy Department
IACK OF COORDINATION between the State, War,
and Navy Departments has been a rather
1 common theme of critics of governmental
-^ administration. Only recently has there
been any reference to the existence of a State-War-
Navy Coordinating Committee in public state-
ments by top Government officials. Nevertheless,
it is a fact that there was created in December 1944
a very active Committee which has provided a
much-needed working link between the military
and those responsible for foi-eign policy. Until
the end of the war the existence of this Committee,
for security and other reasons, has been a classified
"confidential" subject, instructions having been
issued that there should be no discussion of it out-
side the three Departments.
Purpose and Authority of the Committee
The State-War-Navy Coordinating Committee
(SWNCC) was established as the result of an
exchange of letters between the Secretaries of
tlie State, War, and Navy Departments, for the
purpose of "improving existing methods of ob-
taining for the State Department advice on polit-
ico-military matters and of coordinating the
views of the three departments on matters in
which all have a common interest, particularly
those involving foreign policy and relations with
foreign nations." In actual practice, the Com-
mittee has gone further than its original pur-
pose of furnishing guidance only for the benefit
of the State Department. SWNCC is also used
by the War and Navy Departments, as well as
the Joint Chiefs of Staff, as the medium through
whicli the military are advised by the State De-
partment of the political aspects of a particular
problem.
The authority of the Committee has been re-
cently defined and formalized in a memorandum
signed by Mr. Byrnes, Mr. Patterson, and Mr.
Forrestal, which designates SWNCC "as the
agency to reconcile and coordinate the action to
be taken by the State, War, and Navy Depart-
ments on matters of common interest and, under
the guidance of the Secretaries of State, War, and
Navy, establish policies on politico-military ques-
tions referred to it." Action taken by SWNCC
is construed as action taken in the names of the
Secretaries of State, War, and the Navy, and
decisions of the Coimnittee establish the approved
policy of the three Departments. Decisions of
the Committee are referred to the President for
approval when af)propriate.
Composition of SWNCC
The departmental representatives on this Com-
mittee are Assistant Secretary of State James C.
Dunn, chairman ; Assistant Secretary of War John
J. McCloy; and Under Secretary of the Navy
Mr. Moseley is Special Assistant to the Director of
the Office of European Affairs and a member of the Sec-
retariat of SWNCC. Colonel McCarthy was formerly
an Army member on the secretariat of SWNCC and is
now an Executive Officer for the Assistant Secretary of
War. Commander Richardson is a Navy member on the
secretariat of SWNCC.
745
746
DEPARTMENT OF STATE BULLETIN
Artemus L. Gates. Mr. H. Freeman Matthews,
Director of the Office of European Affairs of the
Department of State, is acting chairman in Mr.
Dunn's absence, and Mr. Lovett, Assistant Secre-
tary of War for Air, has been substituting for Mr.
McCloy during the latter's tour abroad. The sec-
retariat consists of three officers from each of the
three Departments, with a supporting force of
WAVES, WAC, and civilian personnel.
Subcommittees have been created to consider
matters relating to a particular geographic area
or special subjects. These subcommittees act as
working parties and report to the parent Commit-
tee. At i^resent there are standing subcommittees
for European Affairs, for the Far East, for Latin
America, for the Near and Middle East, for Tech-
nical Information Security Control, and for Ee-
armament. Ad hoc committees have also been cre-
ated for such purposes as effecting collaboration
between the State, War, and Navy Departments on
the security functions of the United Nations Or-
ganization, considering articles for peace treaties,
and authorizing the release of security data.
Subjects Considered by SWNCC
The subjects considered by SWNCC, as indi-
cated by the names of its subcommittees, are
limited neither by their nature nor by their geo-
graphic location. Most of the documents prepared
by SWNCC are generally of a classified nature,
although they are occasionally made public. In
speaking of the work of SWNCC at the time of
the Japanese surrender. Secretary Byrnes told the
press on August 22 that the State Department,
Army, and Navy have a joint committee which
has been working on the details of the surrender
and its program of occupation ever since the day
of surrender; that the three departments have
been in daily contact as a result of that Committee ;
and that he was deeply impressed by what was
being done by our representatives under the direc-
tion of General MacArthur. The Secretary said
that he had gone over the drafts at great length
and that it was a tremendous task but that it was
being handled in a methodical, businesslike way
that really made him feel very good about the
progi'ess being made. One of these documents to
which the Secretary referred was the "U. S. Initial
Post-Surrender Policy for Japan," ^ which was
released by the White House on September 22 and
was widely approved by the press.
In addition to the jjreparation of policy for the
control of Japan, SWNCC has been active in the
drafting of directives for the control of Germany
and Austria. The Committee has also been of con-
siderable value as a medium in coordinating the
views of the three Departments for the purpose
of determining policy for presentation of United
States jDroposals at international conferences.
During the existence of the European Advisory
Commission in London, SWNCC was often used
as a means for obtaining the United States view-
point on subjects introduced into that Commission
which were of a politico-military nature. Simi-
larly, it is planned that the United States repre-
sentative on the Far Eastern Advisory Commis-
sion will make use of the Committee's services.
Functioning of SWNCC
All three Departments have cooperated full-
heart edly in placing at the disposal of the Com-
mittee and its secretariat the advice and assistance
of specialists and advisers. Through the Office of
the Chief of Staff and the Office of the Chief of
Naval Operations, staff studies can be undertaken
as the Committee may desire. Other Government
dejjartments and agencies are also consulted when
their advice seems desirable.
Close liaison with the Joint Chiefs of Staff is
effected through the secretariat of SWNCC and
the working groups of subcommittees. Most pa-
pers originating in SWNCC are referred to the
JCS for their consideration from the military point
of view before final approval is given. Quite often,
at the working level, members of a SWNCC sub-
committee will collaborate in a report with one
of the committees of the JCS. The Joint Chiefs of
Staff in their turn refer papers to SWNCC to
obtain the benefit of the Committee's views.
SWNCC papers are prepared in "military" form
similar to that used by the British War Cabinet
and the Joint Chiefs of Staff. Reports are broken
down into five headings : the Problem, Facts Bear-
ing on the Problem, Discussion, Conclusions, and
Recommendations.
Papers which do not require discussion and in
which all departments and agencies concerned are
' Bulletin of Sept. 23, 1W5, p. 423.
NOVEMBER 11, 1945
747
in substantial agreement are approved informally
by the members of the Committee. In other in-
stances where it is felt that discussion is desirable,
papers are placed on the agenda for formal meet-
ings of the Committee
which take place about
once a week. The usual
procedure is to refer a
problem to a subcom-
mittee or an ad hoc
committee, and have
that subcommittee sub-
mit its report for the
consideration of the
parent committee.
Supervision of Liaison
Activities
When the Committee
was organized it was
agreed that it should
exercise general guid-
ance and supervision
over liaison activities
between the three De-
partments. However, it
was decided that the
Committee should not
attempt to interfere
with existing liaison
contacts which were
working efficiently, nor
should the Committee \
attempt to have fun-
neled through it the ordinary day-to-day conduct
of business between the Departments. Studies
to improve liaison chamiels have, however, been
undertaken.
Future of SWNCC
Although SWNCC was established during a
war it does not follow that peace will bring an
early end to its existence. On the contrary, it
appears that peace has brought with it an increas-
ing number of problems of a politico-military
nature. Close and effective coordination between
the military and those responsible for our foreign
THE STATE-WAR-NAVY COORDINATING COMMITTEE
WASHINGTON, O. C
16 Oetobsr 1945
The State-War-Navy Coordinating Committee la
designated as the agency to reconcile and coordinate
the action to be taken by the State^ Var and Havy
Departmenta on matters of common interest and, under
the guidance of the Secretaries of State, Var and
the Navy, establish policies on politico-military
questions referred to It.
Action taken by the Coordinating Committee vlll
be construed as action taken In the naaee of the
Secretaries of State, War and the Navy. Subject to
approval of the President vhere appropriate, decl*
slona of the Committee vlll establish the approved
policy of tlie State, War and Navy Departmenta.
dissemination of the decisions of the Committee vlll
be accomplished by the three departmenta for the
Information and guidance of all concerned and, vhere
appropriate, vith neceeeary instructions for action.
J2
policy is a prerequisite to the successful solution
of these problems. The State-War-Navy Co-
ordinating Committee appears to offer a logical
medium for such coordination.
If it accomplishes
nothing else, SWNCC
does bring the uni-
formed men and the
civilians together at the
same table and elimi-
nates much of the old
formalistic exchange of
views by letters and
memoranda. We have
learned in this war that
coordination is neces-
sary not only at the top
but also at the staff
working level. Through
the facilities of
SWNCC and its sub-
committees this coordi-
nation is obtained at
both levels.
If it is true that our
foreign policy is our
first line of national de-
fense, then it follows
that there must be close
and continuous coordi-
nation between the
State Department and
the military agencies of
the Government. It is
significant that several of the plans which have
been proposed in connection with the question of
unification of the armed services provide for repre-
sentation by the Secretary of State. The "Eber-
stadt Report",^ for example, proposes a post-war
security organization which would include a Na-
tional Security Council which would take over the
functions at present performed by the State-War-
Navy Coordinating Committee. It would appear
quite possible that SWNCC may evolve into such
an agency.
'Report to the Honorable James Forrestal on Unifica-
tion of the War and Navy Departments and Post-War
Organization for National Security (Senate Committee
on Naval Affairs, 79tli Cong., 1st sess., Oct. 22, 1945), p. 7.
■^fc=-
Secretary of War
( I aecrbtOTT of tho NavT ^
(J iiecr&tary of tho Navy
74S
DEPARTMENT OF STATE BULLETIN
Documents Relating to Italian Armistice
Italian Military Armistice
[Released to the press November 6]
SiCILT,
September 3rd, 1943.
The following conditions of an Armistice are
presented by
General Dwight D. Eisenhower,
Commander-in-Chief of the Allied Forces, act-
ing by authority of the Governments of the United
States and Great Britain and in the interest of
the United Nations, and are accepted by
Marshal Pietro Badoglio
Head of the Italian Government.
1. Immediate cessation of all hostile activity by
the Italian armed forces.
2. Italy will use its best endeavors to deny, to
the Germans, facilities that might be used against
the United Nations.
3. All jjrisoners or internees of the United Na-
tions to be immediately turned over to the Allied
Commander-in-Chief, and none of these may now
or at any time be evacuated to Germany.
4. Immediate transfer of the Italian Fleet and
Italian aircraft to such points as may be desig-
nated by the Allied Commander-in-Chief, with
details of disarmament to be prescribed by him.
5. Italian merchant shipping may be requisi-
tioned by the Allied Commander-in-Chief to meet
the needs of his military-naval program.
6. Immediate surrender of Corsica and of all
Italian territory, both islands and mainland, to
the Allies, for such use as operational bases and
other purposes as the Allies may see fit.
7. Immediate guarantee of the free use by the
Allies of all airfields and naval ports in Italian
territory, regardless of the rate of evacuation of
the Italian territory by the German forces. These
ports and fields to be protected by Italian armed
forces until this function is taken over by the
Allies.
8. Immediate withdrawal to Italy of Italian
armed forces from all participation in the curi'ent
war from whatever areas in which they may now
be engaged.
9. Guarantee by the Italian Government that
if necessary it will employ all its available armed
forces to insure prompt and exact compliance with
all the provisions of this armistice.
10. The Commander-in-Chief of the Allied
Forces reserves to himself the right to take any
measure which in his opinion may be necessary
for the protection of the interests of the Allied
Forces for the prosecution of the war, and the
Italian Government binds itself to take such ad-
ministrative or other action as the Commander-
in-Chief may require, and in particular the Com-
mander-in-Chief will establish Allied Military
Government over such parts of Italian territory
as he may deem necessary in the military interests
of the Allied Nations.
11. The Commander-in-Chief of the Allied
Forces will have a full right to impose measures
of disarmament, demobilization and demilitariza-
tion.
12. Other conditions of a political, economic and
financial nature with which Italy will be bound
to comply will be transmitted at later date.
The conditions of the present Armistice will not
be made public without prior approval of the
Allied Commander-in-Chief,
considered the official text.
The English will be
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