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Given  By 
U.  S.  SUPT.  OF  DOCUMENTS 


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THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  35S 


APRIL  7.  1946 


The  Problem  of  German  Political  Revival 

Article  by  LEON  W.  FULLER page  547 

The  American  Trade  Proposals:    Proposals  Concerning 
Employment 

Article  hy  ELLSWORTH  H.  PLANK  and  MAURICE  J.  ERICKSON        .  page  561 

The  American  Press  Associations 

By  ASSISTANT  SECRETARY  BENTON page  574 

A  Report  on  the  International   Control  of  Atomic 

Energy page  553 


VVeNT    o^ 


For  complete  contents 
see  inside  cover 


"-*TES    O^ 


THE  DEPARTMENT  OF  STATE 


BULLETIN 


VoL.XIV-No  353* 


UBI.ICATION    2506 


April  7,  1946 


For  Bale  by  the  Superintentlent  of  Docurnente 

U.  S.  Government  Printing  Office 

Washington  25,  D.  C. 

SuBscniPTioN: 

52  isBuee,  §3.50;  single  copy,  10  cents 

Special  offer:  13  weeks  for  $1.00 
(renewable  only  on  yearly  basis) 


The  Department  of  State  BULLETIN, 
a  weekly  publication  compiled  and 
edited  in  the  Division  of  Research  anil 
Publication,  Office  of  Public  Affairs, 
provides  the  public  and  interested 
agencies  of  the  Goternnienl  icith 
information  on  developments  in  the 
field  of  foreign  relations  and  on  the 
work  of  the  Department  of  State  and 
the  Foieign  Service.  The  BULLETIN 
includes  press  releases  on  foreign 
policy  issued  by  the  W 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  well  as 
special  articles  on  various  phases  of 
in  ternational  affairs  and  thefunctions 
of  the  Department.  Information  con- 
cerning treaties  and  international 
agreements  to  which  the  United  States 
is  or  may  become  a  parly  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  thefieldofin  ter- 
national relations,  are  listed  currently. 


The  Problem  of  German  Political  Revival.  Page 

Article  by  Leon  W.  Fuller 547 

A  Report  on  the  International  Control  of  Atomic  Energy: 

Foreword  by  the  Secretary  of  State 553 

The  Committee's  Letter  of  Transmittal 553 

Excerpts  From  the  Text  of  the  Report ;  555 

Postponement  of  Atomic-Bomb  Tests 560 

Appointment  of  Civilian  Committee  on  Atomic-Bomb  Tests    .  560 
The  American  Trade   Proposals:   Proposals   Concerning   Em- 
ployment. 

Article  by  Ellsworth  H.  Plank  and  Maurice  J.  Erickson   .    .  561 

International  Organizations  and  Conferences 

Calendar  of  Meetings 565 

Activities   and    Developments 566 

The  United  Nations 

Meeting  of  the  Security  Council.      Messages  from  President 

Truman  and  the  Secretary  of  State .567 

Discussion  of  Soviet-Iranian  Matters: 

Remarks   by   Ambassador   Gromyko 568 

Remarks  by  the  Secretary  of  State 570 

Remarks  by  the  Secretary  of  State  During  Discussion  on 

Motions 571 

Confirmation  of  John  G.  Winant ;    .    .  573 

The  Record  of  the  Week 

The     American     Press     Associations:   An     Opportunity     and 

Responsibility.     By  Assistant  Secretary  Benton   ....  574 
Enforcement    Program    Against    Dealing    With    Persons   and 

Firms  on  Proclaimed  List 579 

*Amendments  to  U.S.-U.K.  Patent  Interchange  Agreement   .  579 
*U.S.-U.K.  Agreements  on  Lend-Leaso,  Reciprocal  Aid,  and 

Surplus  War  Property 580 

Can  Japan  Become  a  Democracy 581 

U.S.  Supports  Italy's  Entrance  Into  World  Fund  and  Bank    .  581 

♦Customs:   Brazil-Venezuela 581 

The  Greek  Elections 582 

*Air  Services  Agreement  Between  U.  K.  and  Greece   ....  582 

*Air  Transport  Agreements: 

Agreement  Between  U.S.  and  Greece 583 

Agreement  Between  L^S.  and  France 583 

*Final  Act  of  the  Civil  Aviation  Conference 584 

The  Congress .' 596 

•  Treaty  information. 


The  Problem  of  German  Political  Revival 


Article  by  LEON  W.  FULLER 


SINCE  tile  eml  of  tlie  war  witli  Germany  nearly 
a  year  aj^o,  the  concern  of  the  Allied  govern- 
ments over  the  political  status  of  the  defeated 
nation  has  steadily  increased.  Owing  to  the  ir- 
rational and  last-ditch  resistance  of  the  Nazi 
regime,  the  war  resulted  in  the  total  disintegration 
of  Germany's  political  structure  and  left  the  vic- 
tors in  full  possession  of  a  nation  without  a  gov- 
ernment or  any  vestige  of  organized  political 
life.  The  Allies  were  thus  confronted  with  the 
twofold  task  of  destroying  the  remnants  of  the 
Nazi-militarist  system  and  of  assuring  the  de- 
velopment of  a  regime  of  peaceful  and  democratic 
character  in  its  place. 

The  positive  political  objective  of  the  United 
States  and  its  major  associates  for  Germany  is 
(as  stated  in  JCS  1067  ^  and  the  Potsdam  agree- 
ment of  August  2,  19452)  ^Q  gi^g  j]-jg  German 
people  opportunity  for  the  reconstruction  of  their 
political  life  on  a  peaceful  and  democratic  basis. 
This  will  involve  the  complete  eradication  of  the 
Nazi  Party,  institutions,  creed,  and  influence  and 
the  gradual  reorganization  of  a  decentralized 
political  structure  grounded  on  local  autonomy 
and  responsibility.  Representative  and  elective 
principles  are  to  be  introduced  into  local,  regional, 
and  State  administration.  No  central  government 
is  planned  for  the  near  future  but  certain  central 
administrative  departments  governing  finance, 
economy,  and  transport  are  to  be  set  up  under 
the  direction  of  the  Control  Council.  Democratic 
political  parties  are  to  be  allowed  and  encouraged 
throughout  Germany. 

The  reactivation  and  reformation  of  the  politi- 
cal life  of  any  defeated  nation  by  the  victors  would 
be  a  task  of  immense  difficulty;  it  is  all  the  more 
formidable  in  dealing  with  a  people  of  advanced 
cultural  development  and  strong  nationalist  senti- 
ments.   The  complete  collapse  of  the  Nazi  totali- 


tarian state  has  left  a  heritage  of  political  bank- 
ruptcy, all  the  more  complete  because  of  the  sys- 
tematic liquidation  by  the  Nazis  during  their  12 
years  of  power  of  the  progressive  political  forces 
within  Germany.  Survivors  of  this  process  are 
mainly  in  the  advanced-age  groups;  many  of  them 
have  little  to  oiler  except  a  return  to  the  system 
which  proved  inadequate  to  stem  the  Nazi  tide. 
Youth  and  early-middle-age  groups  have  been 
subject  to  miseducation  which  has  either  perverted 
their  political  concepts  or,  with  the  Nazi  debacle, 
left  them  disillusioned  and  apathetic.  Adult  Ger- 
mans now  have  the  vivid  recollection  of  the  failure 
of  three  successive  regimes  of  different  character — 
imperial,  republican,  and  Nazi — and  there  is  a  gen- 
eral disinclination  to  undertake  further  political 
ventures. 

German  historic  development  has  not  been  such 
as  to  foster  constructive  political  habits.  There  is 
no  long  tradition  of  local  self-government  or  in- 
dividualistic self-reliance,  as  in  Britain  or  Amer- 
ica. Germany  has  not,  in  modern  times,  experi- 
enced a  genuine  political  revolution  which  might 
have  shaken  oil  the  hold  of  the  traditional  ruling 
class  upon  the  institutional  and  ethical  pattern  of 
the  state.  The  dynastic  heritage,  although  dis- 
credited in  1918,  was  merely  supplanted  by  the 
equally  sinister  inheritance  of  the  military  caste 
and  its  Junker  and  plutocratic  associates.  There 
has  not  even  been  a  genuine  democratic  interlude. 
The  Nazi  triumph  was  rather  a  reaction  than  a 
revolution  and  sundered  Germany  still  further 
from  the  enlightened  thought  of  the  West,  it  in- 
tensified certain  anachronisms  in  German  politi- 

Mr.  Fuller  is  a  Country  Siieclalist  in  the  Division  of 
Central  European  Affairs,  Oliice  of  European  Affairs,  De- 
partment of  State. 

'.Bulletin  of  Oct.   7,   1945,  p.  515.  and  Oct.  21,  1945, 
p.  596. 
^Bulletin  of  Aiig.  5,  1945,  p.  153. 


547 


548 


DEPARTMENT  OF  STATE  BlLLKTl\ 


cal  tliiiikiiij.; :  the  t'ciiiUili^tic  loyalty  of  the  Mii)- 
ject  to  liis  ruler,  the  sense  of  duty  and  iiiii|uestioii- 
iuK  obedience,  the  notion  of  tribal-national  supe- 
riority, and  veiu'ration  f:)r  the  state  as  a  supra- 
moral  instriMueul  of  power. 

In  the  political  void  of  present-day  Germany 
there  is  an  innninent  daneer  of  the  revival  of  anti- 
democratic and  nationalistic  attitudes,  partly  as 
a  natural  reaction  a<iainst  the  occupation,  but  in 
laiye  measure  due  to  the  alwence  of  any  stroiig  lib- 
eral tradition.  iMany  (iermans  instinctively  dis- 
claim res])()usibility  for  the  misdeeds  of  the  Nazi 
rejiime.  havinii  never  accepted  ur  even  yrasped  the 
truism  that  a  nation  generally  gets  the  kind  of 
goveinment  it  deserves.  Even  "democratic"  Ger- 
mans are  inclined  to  seek  salvation  in  new  leaders 
and  a  strong  government  rather  than  in  the  slower 
evolution  of  demot-ratic  proce.sses.  It  is  significant 
that  (iermans  condenni  the  war-crimes  defend- 
ants at  Niirnberg  less  for  their  offenses  against 
other  peoples  and  against  Innnanity  than  fiu'  their 
having  letl  the  (lerman  pe<iple  to  disaster.  The 
reopening  of  the  universities  has  been  the  occasion 
for  nnmei'ous  nationalistic  denu)nstrations.  led  by 
the  deeply  indoctrinated  ex-members  of  the  Hitler 
Youth  and  of  the  army.  Denazification  procedures 
give  rise  to  an  ever-increasing  gioup  of  'Me- 
classed"  persons  who  form  a  disaffected  bloc. 
Thei'e  are  many  persons — older  officials,  intellectu- 
als, business  and  professicmal  groups,  churchmen — 
for  whom  status  and  prestige  have  always  been 
associated  with  an  authoiitarian  regime.  They 
do  not  become  ready  converts  to  democracy.  Even 
the  new  parties  aiul  trade-union  organizations 
tenil  to  follow  authoritarian  patterns;  the  leaders 
and  the  hierarchy  of  officialdom  tend  to  outweigh 
the  autonomous  role  of  the  individual  member. 

The  democratization  of  Germany  is  further 
complicated  by  the  zonal  divisions,  in  each  of 
which  the  occu])ying  power  is  virtually  sovereign. 
In  spite  of  tripartite  agreement  at  Potsdam  on 
basic  principles  and  some  measure  of  four-power 
coordination  of  political  policies  for  Gernniny. 
there  are  marked  differences  in  the  policies  now- 
being  pursued  in  the  various  zones.  A  decision 
as  to  whether  a  unitary  Gennan  government  will 
be  permitted  to  emeige.  or  whether  a  drastic  de- 
centralization will  be  imposed,  waits  upon  an  ad- 
justment of  the  s|)ecial  interests  of  the  occupying 
powers  in  Germany  and  the  course  of  German  po- 
litical  i-evi\al  within  the  /.<(nes.     .Vs  after  World 


War  I.  separatist  movements  hii\t'  appeared  in 
some  strength,  notably  in  the  west  and  south,  lait 
these  seem  uidikely  to  conunand  any  considerable 
popular  following,  (xerniany,  at  the  j)resent  stage, 
seems  most  likely  to  develop  as  a  federal  union, 
shorn  of  substantial  border  ai'eas,  without  the 
hegemony  of  Pri\ssia.  which  has  been  dissolved  into 
its  components  by  the  coui'se  of  events,  and  with  a 
centi'al  regime  strong  enough  to  achieve  only  a 
miniuuun  coordination  of  the  states  along  eco- 
nomic lines. 

I'ndeiiying  the  problem  is  always  the  economic 
dilenuua.  (iei'many  is  of  necessity  on  restricted 
rations  because  of  her  general  economic  collapse 
and  the  prevalent  world  food  shortage.  Her 
economic  situation  is  further  complicated  by  Allied 
demilitarization  and  repai-ations  policies  which 
call  for  destruction  or  removal  of  s[)ecified  in- 
dustrial ('([uipment  and  limit  future  production  in 
various  fields.  In  atldition.  there  is  the  war- 
wiought  destruction  of  industrial  establishments 
and  of  ti-ansport  to  ctinsider.  Political  revival 
must  occur,  then,  amid  exceedingly  trying  eco- 
nomic circumstances  which  may  prove  unfavor- 
able to  the  inculcation  of  democratic  ideas  and 
may  incline  (jermans  again  to  seek  recoui-se  to 
anthoritai'ian  govermnent  as  a  ])anacea  for 
economic  ills. 

American  jiolicy  has  recognized  the  fact  that 
political  reconstruction  in  Germany  cannot  con- 
sist in  the  restoration  of  any  earlier  regime  or  of 
preexisting  forms  or  modes  of  ]5olitical  behavior. 
since  even  the  ])artial  denuR'racy  of  the  AVeinuir 
republic  never  struck  deep  roots  in  (ierman  con- 
.sciousness.  As  yet  few  constructive  political  ideas 
have  emerged  from  the  general  chaos.  Hence,  it  is 
the  aim  of  this  Government  to  facilitate  and  en- 
courage the  indigenous  revival  of  sound  political 
elements  within  the  population  in  such  nnmner  as 
to  establish  the  foundations  of  a  free  and  demo- 
cratic political  life,  while  eradicating  those  nox- 
ious forces  of  militarism  and  reaction  which  have 
so  often  in  the  ]iast  nnule  Germany  a  menace  to 
the  woild.  It  is  considered  that  this  can  best  be 
done  by  permitting  the  (irennans  to  gain  experi 
ence  in  the  conduct  of  local  affairs — local  govern- 
ment, trade  unions,  church  organizations,  schools, 
the  press — and  gradually  to  build  upon  the  ex- 
perience thus  gained  to  assiime  authority  and 
responsibility  at  higher  levels. 

This  ■'orass-roots"  approach  is  considered  sound 


.41' HI  I.   7,   1946 


549 


Ix'cniise  of  (ji'iiiKin  liick  oi  experience  in  self-gOA'- 
ernnu'iit  at  any  level  higher  than  the  local  com- 
nuniity  and  hecause  it  will  tend  to  accustom  the 
Geinians  to  the  exercise  of  authority  combined 
with  assuin])tion  of  responsibility  by  the  [)e<)ple 
<lirectly  at  local  functional  levels,  and  thus  coun- 
teract the  traditional  acceptance  of  authority  im- 
posed from  above  by  a  hierarchy  of  leaders  and 
officials.  It  is  also  in  accord  with  the  requirement 
that  Gei'inany  be  decentralized  sufficiently  to  avoid 
any  dangerous  concentration  of  jiolitical  or  eco- 
nomic power  in  the  future.  It  will  })ermit  a  natu- 
ral de\'elopnient  of  indigenous  political  life  under 
Allied  tutelage  but  without  superinijiosing  an  alien 
pattern  of  government  unsuited  to  the  (iermans. 
Nor  will  it  dictate  the  kind  of  economic  system 
wliich  nnist  emerge. 

In  the  United  States  zone,  reactivation  of  politi- 
cal life  has  progressed  by  stages.  During  the  early 
months  of  occupation,  security  reasons  dictated 
rigorous  restraints  upon  freedom  of  speech  and  of 
the  press,  assembly,  party,  and  trade-union  ac- 
tivity. These  restraints  were  relaxed  in  August 
1945,  and  thenceforth  party  organization  and 
activity  on  a  local  basis  was  authorized.  Trade 
unions  and  shop  councils  were  permitted  on  the 
basis  of  free  elections.  Local  German  adminis- 
trative agencies  {Kreis,  Geineinde),  purged  of 
active  Nazis  or  Nazi  sympathizers,  were  reconsti- 
tuted. As  conditions  of  the  occupation  became 
more  stable,  Gernum  administration  was  created 
at  the  district  (Rt'fileningshezirl')  and  state 
{Liiii(l)  levels.  All  German  officials  were  ap- 
pointed by  the  Allied  Military  (iovernnient  after 
screening  to  insure  their  political  reliability.  Ger- 
mans exercised,  as  yet.  no  popular  control,  but 
representative  individuals  were  often  consulted  in 
an  advisory  capacity. 

By  September  a  German  Land  administration 
hatl  been  appointed  for  Bavaria;  subse((uently. 
North  Wiirttemberg-Baden  was  given  a  Land  or- 
ganization, and  the  foi'uier  Lund  of  Hesse  and 
pro\ince  of  Hesse-Nassau  were  combined  in  a  new 
Linid  of  Greater  Hesse.  There  is  no  central  zonal 
administration.  Policy  aims  at  Keich  dec'entrali- 
zation  by  centering  German  control  in  substantial 
units,  identical  in  whole  or  in  part  with  former 
German  L.dndcv  or  formed  by  amalgamation  of 
smaller  states  or  provinces.  The  three  new  Ldiulcr 
have  developed  a  considerable  degree  of  autonomy 


but  in  strict  subordination  to  the  supeivision  and 
direction  of  military  govermnent. 

In  October  there  ^vas  created  a  Council  of  Min- 
isters president  of  the  three  LMnder,  meeting 
monthl}'  and  with  a  permanent  secretariat  located 
at  Stuttgart.  The  Council  lias  been  ett'ective  in 
coordinating  policies  especially  in  economic  mat- 
ters. It  operates  in  close  conjunction  with  re- 
gional military-government  othcials.  The  scope  of 
its  work  has  steadily  enlarged  and  it  has  been 
connnended  for  its  work  by  Generals  McNarney 
and  Clay.  It  has  lately  become  at  times  an  agency 
of  collaboration  between  Geruum  officials  of  both 
the  United  States  and  British  zones. 

Although  in  Nt)yember  parties  were  authorized 
on  a  state-wide  basis,  formal  party  organizations 
in  the  T''nited  States  zone  have  remained  local 
for  the  most  part.  Yet  here,  as  in  the  other  zones. 
a  fairly  definite  pattern  of  i)arty  activity  has 
!2radually  emerged.  Disregaiding  the  jnany 
"splinter"  groups,  langing  from  Monarcjiist- 
clerical  to  Leftist-radical  in  nature,  there  may 
be  noted  four  principal  parties  in  the  new  Ger- 
many.   They  are : 

/.  The  Communist  Party 

Conmumists,  while  not  niunerous,  are  aggres- 
sive and  closely  organized.  Particularly  in  Ber- 
lin and  the  Soviet  zone  they  exercise  influential 
leadership,  backed  not  always  covertly  by  the 
Soviet  authorities.  They  promote  a  Soviet- 
inspired  program  of  radical  socio-economic  re- 
form, involving  the  eradication  of  the  old  Junker, 
militarist,  and  industrial  ruling  elements,  land 
reform  in  the  interest  of  the  snuill  peasants,  and 
socialization  of  wide  sectors  of  the  economy. 
They  emerged  from  the  underground  resistance 
and  seek  to  keep  alive  the  "anti-Fascisf  tradition 
of  solidarity  of  all  democratic  and  worker  groups. 
In  the  east  they  tend  to  dominate  the  four-party 
bloc;  in  all  areas  they  now  urge  fusion  with  the 
Socialists  in  a  unitied  workers'  party.  Their  chief 
strength  resides  in  lu'ban  labor  and  they  have  won 
control  of  numy  trade  unions  and  shop  councils, 
the  latter  a  convenient  device  for  gaining  control 
over  industrial  establishments.  Their  leaders  are 
often  youthful  and  energetic.  They  seek  to  foster 
the  political  education  of  the  masses  and  view 
themselves  as  the  jiarty  of  the  future.  Their  ulti- 
mate goal  is  the  conquest  of  political  and  economic 
powei'  by  the  masses. 


550 


DEPARTMENT  OF  STATE  BULLETIN 


2.  The  Socialist  Party 

The  Socialists,  heirs  of  the  former  Social  Dem- 
ocratic Party,  adliere  to  tlie  orthodox  pre-Hitler 
pro^-am  of  gradualism  but  share  the  Marxist 
objectives  of  the  Communists.  They  represent 
the  more  conservative  wing  of  labor;  their  lead- 
ers are  largely  veteran  party  or  trade-union  offi- 
cials. They  favor  collaboration  with  the  Com- 
munists for  conunon  ends  but,  at  least  in  the  west- 
ern zones,  prefer  to  retain  their  separate  party 
identity ;  in  the  Soviet  zone  it  seems  probable  that 
fusion  with  the  Communists  in  a  United  Socialist 
Party  will  soon  be  effected.  Socialists  generally 
might  be  induced  to  accept  a  merger  if  effected 
on  a  nation-wide  basis,  hoping,  because  of  their 
luimerical  superiority,  to  control  a  national  union 
of  the  two  workers'  groups.  They  advance  a  pi-o- 
gram  of  agrarian  reform  and  socialization  liut 
are  insistent  that  reform  be  achieved  through 
democratic  processes.  They  are  less  intransigent 
than  the  Coiumunists  toward  bourgeois  gi'DUjiS. 
with  whom  they  cooperate  closely  in  western  and 
soutliern  Germany. 

3.  The  Christian  Democratic  (or  Social)  Union 

The  CDU  (CSU  in  Bavaria)  embraces  largely 
the  following  of  the  former  Catholic  Center  and 
Bavarian  People's  Parties  but  is  seeking  a 
broader,  non-sectarian  basis,  with  some  appeal  to 
worker  grouj)s.  Its  chief  support  is  from  middle- 
class,  clerical,  and  peasant  elements  and.  to  some 
degree,  from  moderate  labor  groups.  Leadership 
is  conservative  and  stresses  German  revival  on 
the  basis  of  Christian  individualism  and  morality. 
It  opposes  complete  socialization  but  would  ac- 
cept a  limited  program  of  state  ownership  and 
conti'ol  of  certain  sectors  of  economic  life  which 
are  clearly  in  the  public  interest.  Business  ele- 
ments lend  some  support,  although  fearful  of  so- 
cializing tendencies.  In  Bavaria  the  CSU  is  di- 
vided into  a  Eight  ^^•ing  (headed  by  Schaeffer, 
former  Minister  President  under  military  gov- 
ernment) and  a  Left  wing  under  Mueller.  In  the 
Soviet  zone  the  CDU  has  had  difficulty  with  the 
Soviet  authorities,  mainly  because  of  its  lack  of 
enthusiasm  for  land  reform  and  other  radical 
proposals. 

4.  The  Liberal  Democratic  Party 

This  is  the  most  conservative  group,  weak  nu- 
merically and  in  influence,  and  represents  mainly 


the  business  and  propertied  classes.  It  attracts 
the  following  of  the  former  Democratic  and  Ger- 
man People's  Parties.  It  seeks  to  defend  property 
and  private  enterprise  against  the  Leftist  groups. 
It  favors  restoration  of  a  strong  state  authority 
and  a  non-partisan  professional  bureaucracy. 
This  group  seems  to  have  become  to  some  degree 
a  refuge  for  surviving  bourgeois-nationalist 
forces. 

The  Potsdam  agreement  of  August  2.  1945  pre- 
scribed the  early  restoration  of  local  self-govern- 
ment "on  democratic  principles  and  in  particular 
through  elective  councils".  American  authorities 
took  the  initiative  in  this  matter  and  scheduled 
local  elections  in  their  zone  (in  communities  un- 
der 20,000  population)  for  January  20  and  27, 
1940.  Against  the  advice  of  most  German  politi- 
cal leaders  and  in  the  face  of  wide-spread  popular 
apathy,  elections  were  held  for  town  councilors 
in  the  smaller  Gcmeincloi  and  for  mayors  in  some 
communities.  Although  party  organization,  espe- 
ciallv  in  the  rural  areas,  was  very  incomplete  and 
only  on  a  local  basis  and  no  clear-cut  partisan  is- 
sues were  involved,  the  results  do  give  a  clue  to 
party  preference  in  the  areas  concerned.  The  per- 
centage of  qualified  voters  (active  Nazis  and  their 
sympathizers  were  excluded)  who  participated 
was  remarkably  large,  ranging  from  83  to  89  per- 
cent in  the  various  districts.  The  following  table 
indicates  the  percentage  distribution  of  votes 
among  the  parties  excluding  invalid  ballots:  ^ 


state 

Com- 
munist 

Socialist 

CDU 

(or 
CSU) 

Liberal 
Demo- 
crat 

Minor 
parties 
or  in- 
depend- 
ents 

Bavaria                  

2.5 
2.8 
6 
6.  1 

17.2 
15.7 
30 
44.  3 

.  412 
20 
56 
31.3 

1.  1 

7.5 
5.3 

2.  2 

35 

North  Wurtteinberg- 

North  Baden 

Greater  Hesse 

50 
2.6 
16 

The  most  striking  results  of  the  elections  were 
the  decisive  victory  of  the  CDU  in  North  Baden 
and  the  large  pluralities  of  the  CSU  in  Bavaria 
and  of  the  Socialists  in  Greater  Hesse.  The  results 
in  North  Wiirttemberg  fail  to  give  a  clear  picture 
of  i:)arty  affiliations  because  there  the  electoral  law 
permitted  "scratching"  of  lists  and  hence  encour- 

'  Althousb  North  Wiirttemberg  -  Baden  constitutes  a 
single  Law},  the  two  districts  voted  under  sliglitly  dilTer- 
ent  regulations  and  tlieir  votes  were  tabulated  separately. 


APRIL  7,  1946 


551 


aged  independent  voting.  Also,  in  many  commu- 
nities, especially  in  Bavaria,  there  were  no 
competing  lists,  the  election  going  by  default  to 
the  single  list  offered,  generally  CSU.  The  results, 
although  indicating  that  Socialists  and  Christian 
Democrats  (or  Christian  Socialists)  loom  as  the 
two  major  contenders  for  power,  cannot  be  judged 
as  representative  of  relative  political  strength 
throughout  the  United  States  zone,  as  only  the 
more  conservative  rural  areas  were  included  in 
this  first  poll.  Plans  for  future  elections  during 
1946  in  the  United  States  zone  are  as  follows : 

For   larger   towns   and   rural   counties    (Land- 

kreise),  April  28. 
For  cities  {Stadthreise) ,  May  26. 
For  Land  constitutional  conventions,  June  30. 
Popular  vote  on  state  constitutions  and  election 

of  Land  diets  and  officials,  by  November  3. 

It  is  planned  that  constitutional  conventions, 
chosen  by  popular  election,  shall  meet  in  the 
respective  Lander  to  frame  permanent  constitu- 
tions during  the  summer.  Draft  constitutions  are 
to  be  submitted  to  the  occupation  authorities  for 
approval  by  September  15.  Thus  by  the  end  of 
1946  it  is  anticipated  that  permanent  and  repre- 
sentative governments  will  have  been  established 
in  each  state  in  the  United  States  zone. 

No  elections  have  been  held  to  date  in  other 
zones,  but  it  seems  likely  that  at  least  local  elec- 
tions will  occur  in  the  British  and  Soviet  zones 
sometime  this  j'ear. 

American  policy  is  to  devolve  administrative 
responsibility  as  rapidly  as  possible  upon  German 
officials  and  governmental  organs,  which  progres- 
sively will  become  more  representative  of  the 
electorate.  Military  government  since  January  1, 
1946,  has  operated  independently  of  the  tactical 
command ;  since  April  1  it  has  centered  in  Berlin 
rather  tlian  at  FVankfurt,  its  earlier  zonal  head- 
quarters. There  is  no  intent  to  relax  the  super- 
visory role  of  the  occupation  authorities,  and 
German  administration  will  be  subject  to  control 
at  all  points. 

Present  policy  is  to  transfer  administration  to 
the  Germans  at  as  early  a  stage  as  is  feasible  with- 
out waiting  until  programs  of  denazification,  de- 
militarization, and  reeducation  ai-e  completely 
achieved.  This  policy  is  in  accord  with  the  ac- 
cepted principle  that  Germans  can  learn  the  art 
of  self-government  only  by  practicing  it,  and  that 


a  reconstructed  German  state  cannot  be  created  by 
the  occujjying  powers  but  must  develop  from  the 
activity  of  Germans  carefully  selected  for  their 
anti-Nazi  and  democratic  convictions  and  work- 
ing in  an  atmosphere  of  increasing  freedom  and 
direct  responsibility  to  the  German  people. 

It  is  an  inevitable  draw-back  of  zonal  adminis- 
tration that  the  application  even  of  agreed  prin- 
ciples and  policies  differs  somewhat  in  keeping 
with  the  divergent  interests  and  purposes  of  the 
occupying  powers.  Thus  the  policies  of  Britain, 
France,  and  the  Soviet  Union  have  not  been  iden- 
tical with  those  pursued  by  the  United  States. 

Soviet  plans  for  the  political  reconstruction  of 
Germany  have  from  the  first,  even  before  occupa- 
tion of  German  soil,  been  systematically  directed 
toward  the  encouragement  of  those  native  German 
elements  hostile  to  Nazi-militarism  and  social  re- 
action. A  Free  Germany  Committee  was  spon- 
sored at  Moscow  as  early  as  July  1943,  and  many 
of  its  members  now  occupy  leading  posts  in  the 
Soviet  zone.  Democratization,  to  the  Soviets, 
means  the  destruction  of  an ti -democratic  social 
groups — the  military  caste,  the  great  land  owners 
(Junkers),  the  reactionary  bureaucracy,  and  the 
proprietors  and  magnates  of  that  elaborate  finan- 
cial-industrial system  which  iwas  the  heart  of 
German  power.  Hence,  Soviet  authorities  have 
sponsored  sweeping  land  reforms,  which  have  now 
obliterated  the  great  estates  of  eastern  Germany 
and  have  assigned  small  holdings  to  the  peasants. 
Programs  to  socialize  important  sectors  of  indus- 
try are  under  way,  while  plants  vitally  related  to 
war  production  have  b'een  dismantled.  The  "big- 
business"  control  group  has  been  virtually  elim- 
inated. There  has  been  a  significant  effort  to  build 
up  labor  into  an  import-controlling  group  through 
strong  and  centrally  organized  trade  unions  and 
shop  councils,  destined  to  share  largely  in  plant 
management  and  industrial  policy.  There  is  an 
attempt  to  strengthen  the  peasant  group  through 
land  reforms  and  revival  of  cooperatives.  Light 
consumers'  industries  have  been  encouraged,  prob- 
ably to  a  considerably  greater  degree  than  in  other 
zones.  Thus  basic  socio-economic  reforms  are 
made  prerequisite  to  political  reconstruction  defin- 
itely oriented  to  the  Left.  The  Communist  Party 
is  utilized  as  a  major  instrument  in  effecting  these 
changes.  Although  free  and  democratic  parties 
were  authorized  first  in  the  Soviet  zone  (June  10, 
1945),  Soviet  policy  stresses  the  "bloc"  pattern 


552 


DEPARTMENT  OF  STATE  BULLETIN 


latlifi-  than  paity  independence  and  livaliy.  A 
four-party  committee  coordinates  party  policies 
and  directs  a  joint  reconstruction  i^rogram.  Lately 
the  Soviets  have  given  encouragement  to  the  move- 
ment for  merger  of  the  Communist  and  Socialist 
parties  into  a  united  workers"  partj'  to  combat  re- 
actionary influences  and  to  guide  reconstruction 
along  Marxist  lines.  Soviet  policy  has  from  the 
beginning  of  the  occupation  entrusted  administra- 
tion to  anti-Nazi  Gerniiins  and  allowed  them  a  wide 
latitude  of  action  in  internal  German  affairs.  It 
has  authorized  the  creation  of  a  number  of  central 
administrative  departments  mainly  for  the  co- 
ordination of  economic  mattei's  througliout  the 
zone. 

British  autliorities  liave  been  more  immediately 
concerned  with  the  restoration  of  economic  life 
and  the  physical  basis  of  an  orderly  political  state. 
They  have  been  slower  to  encourage  political  ac- 
tivity and  have  preferred  to  set  up,  so  far  as  pos- 
sible, a  non-jiartisan  administration.  Moderate 
l)olitical  elements  have  been  cultivated,  and  tliere 
has  been  a  disposition  to  revive  the  older  estab- 
lished parties,  particularly  the  Center  and  the  So- 
cial Democrat  (Centrist  groups  exist  alongside 
of  the  newer  CDU  organizations).  The  British 
are  less  rigid  in  their  policy  of  denazification  tlian 
either  the  American  or  Soviet  authoiities  and 
have  encountered  Soviet  criticism  on  this  score. 
British  leaders  are  inclined  to  .stress  the  all-im- 
portance of  a  sound  program  of  rehabilitation 
which  will  preclude  further  German  aggression  but 
at  the  same  time  avert  a  depressed  economic  status 
whicli  might  be  a  drag  on  European  recovery  and 
a  potential  source  of  future  political  intransigence. 

The  French  are  guided  almost  solely  by  theii- 
determimition  that  Germany  shall  never  regain 
the  jjower  to  menace  French  security.  They  op- 
j)ose  any  move  toward  the  reestablishment  of  a 
central  German  regime,  and  insist  that  the  Ruhr 
basin,  tlie  heart  of  German  war  industry,  and  the 
Rhinelaiid  be  permanently  detached  from  German 
sovereignty.  They  have  not  encouraged  autono- 
mous political  activity  until  very  recently  and 
have  sought  to  foster  separatist  movements  in 
their  zone.  They  have  given  preference  to  "safe" 
conservative  and  Catholic  elements  in  administra- 
tion.    The  French  aim  seems  to  be  a   weakened 


and  decentralized  Reicli.  with  those  western  dis- 
tricts which  France  considers  of  major  security 
importance  made  innocuous  through  some  scheme 
of  internationalization  or  by  absorption  (particu- 
larly of  the  Saar  and  tiie  Pfalz)  into  the  French 
economic  orbit.  The  French  have  consistently  re- 
fused to  discuss  the  establishment  of  central  Ger- 
man administrative  agencies  as  provided  in  the 
Potsdam  agreement  until  the  problem  of  the  Ruhr 
and  Rhineland  areas  has  been  settled. 

In  the  joint  task  of  reviving  German  political 
life  there  are  certain  dangers  to  be  avoided,  cer- 
tain thorny  problems  to  be  grappled  with,  and  a 
paramount  necessity  for  broadening  tlie  area  of 
agreed  policy. 

Germany  today  is  ruled  by  four  powers  once 
closely  associated  in  a  wartime  alliance,  but  now 
becoming  increasingly  conscious  of  the  diversity 
of  their  respective  national  viewpoints  and  inter- 
ests. These  are  reflected  in  the  zonal  administra- 
tion of  Germany.  Desjnte  agreement  at  the  in- 
tergovernmental level  and  within  the  Control 
Council  on  the  guiding  principles  of  German  pol- 
icy the  trend  has  been  toward  four  different  imi- 
lateral  apjjlications  of  these  principles.  The  pos- 
sibility here  is  apparent :  tiiat  Germany  may  split 
apart,  that  Germans  may  capitalize  Allied  differ- 
ences and  play  off  one  power  against  another,  that 
the  Allies  may  compete  for  German  favor.  In 
short,  Germany  may.  through  a  policy  of  Allied 
drift,  become  an  area  of  inter- Allied  friction  and 
tension  rathei-  than  a  laboratory  of  four-power 
cooperation. 

There  is  the  danger  of  the  ever-latent  Nazi  men- 
tality, the  almost  instinctive  expression  of  a  cen- 
tury or  more  of  ultra-nationalist  indoctrination. 
The  present  jiolitical  apathy  of  the  Germans,  their 
lukewarm  conversion  to  democratic  tenets,  and 
the  flaring  up  in  unexpected  places  of  the  most  re- 
actionary nationalistic  sentiments  point  to  the  ur- 
gency of  a  concerted,  long-range  approach  to  the 
problem  of  German  psychological  disarmament 
and  reorientation.  This  is  a  task  of  the  utmost 
delicacy.  One  danger  here  is  that  a  brusque  or 
short-sighted  policy  may  defeat  our  own  ends  and 
stinndate  a  violent  natiomilistic  revival  born  of 
humiliation  and  desperation.    Another  is  that  we 

(Continued  III!  iin(/r  57.i) 


APRIL  7.  1946 


553 


A  Report  on  the 

International  Control  of  Atomic  Energy 


FOREWORD  BY  THE  SECRETARY  OF  STATE 


This  "Report  on  the  International  Conti'ol  of 
Atomic  Energy'"  is  in  the  main  the  work  of  a 
Board  of  Consultants  to  the  Department  of  State. 
The  Board  carried  out  its  assignment  under  the 
general  direction  of  a  Committee  on  Atomic 
Energy  whicli  I  set  up  on  January  7,  194G  with 
Dean  Acheson,  Under  Secretary  of  State,  as  Chair- 
man. A  letter  of  transmittal  at  the  beginning  of 
the  Report  embodies  the  conunents  which  Mr. 
Acheson's  Committee  made  on  the  unanimous 
findings  and  recommendations  of  the  Board  of 
Consultants. 

In  thus  transmitting  to  me  the  detailed  report 
of  the  Board,  the  Committee  emphasizes  the 
Board's  observation   that  the,  Repoit   is   not   in- 


tended as  a  final  plan  but  "a  place  to  begin,  a  foun- 
dation on  which  to  build''.  The  Committee  also 
stiites  that  it  regards  the  consultants'  work  as  "the 
most  constructive  analysis  of  the  question  of  in- 
ternational control  we  have  seen  and  a  definitely 
hopeful  approach  to  a  solution  of  the  entire 
pi'oblem''. 

The  intensive  work  wiiich  this  document  reflects 
and  the  high  qualifications  of  the  men  who  were 
concerned  with  it  make  it  a  paper  of  unusual  im- 
portance and  a  suitable  starting  point  for  the  in- 
formed j)ublic  discussion  which  is  one  of  the  es- 
sential factors  in  developing  sound  policy.  The 
document  is  being  made  public  not  as  a  statement 
of  policy  but  solely  as  a  basis  for  such  discussion. 


THE  COMMITTEE'S  LETTER  OF  TRANSMITTAL 


OFFICE   OF 

THE  UNDER  SECRETARY  OF  STATE 

WASHINGTON 

March  J?',  l.'l-i'!. 

Dear  Mr.  Secretary  : 

Your  committee  was  appointed  on  January  7, 
1946,  with  the  following  terms  of  refei-ence: 

"Anticipating  favorable  action  by  the  United 
Nations  Organization  on  the  proposal  for  the 
establishment  of  a  connnission  to  consider  the 
problems  arising  as  to  the  control  of  atomic 
-energy  and  other  weapons  of  possible  mass  de- 
struction, the  Secretary  of  State  has  appointed  a 
Committee  of  five  members  to  study  the  subject 
of  controls  and  safeguards  necessary  to  protect 
this  Government  so  that  the  persons  hereafter 
selected  to  represent  the  United  States  on  the 
Commission  can  have  the  benefit  of  the  study." 

HSSH14 — 4fi 2 


At  our  first  meeting  on  January  14,  the  Commit- 
tee concluded  that  the  consideration  of  controls 
and  safeguards  would  be  inseparable  from  a  plan 
of  which  they  were  a  part  and  that  the  Commission 
would  look  to  the  American  representative  to  put 
forward  a  jDlan.  At  that  meeting  we  also  agreed 
that  it  was  first  essential  to  have  a  report  prepared 
analyzing  and  appraising  all  the  relevant  facts 
and  formulating  proposals.  In  order  that  the 
work  should  be  useful,  it  was  necessary  to  desig- 
nate men  of  recognized  attainments  and  varied 

Prepared  for  the  Secretary  of  State's  Committee  on 
Atomic  Energy  by  a  board  of  consuUants :  Chester  I.  Bar- 
nard, J.  R.  Oppenheimer,  Charle.s  A.  Thomas,  Harry  A. 
Winue,  and  David  E.  Lillenthal  (chairman),  Washington, 
D.C.,  March  16,  1946.  The  complete  text  of  this  report 
is  printed  as  Department  of  State  publication  2498,  for 
sale  by  the  Superintendent  of  Documents,  U.S.  Govern- 
ment Printing  Oflice.  Washington  2.5,  D.C. :  price  20  cents. 


554 


DEPARTMENT  OF  STATE  BULLETIN 


biickground,  wlio  would  be  prepared  to  devote  the 
major  part  of  their  time  to  the  matter. 

On  January  23,  1946,  we  appointed  as  a  Board 
of  Consultants  for  this  purpose: 

Mr.  David  E.  Lilienthal,  Chairman  of  the 
Tennessee  Valley  Authority,  who  acted  as  Chair- 
man of  the  consulting  Boai-d, 

Mr.  Chester  I.  Barnard,  President  of  the  New 
Jersey  Bell  Telephone  Company, 

Dr.  J.  Robert  Oppenheimer,  of  the  California 
Institute  of  Technology  and  the  University  of 
California, 

Dr.  Charles  Allen  Thomas,  Vice  President  and 
Technical  Director,  Monsanto  Chemical  Com- 
pany, and 

Mr.  Harry  A.  Winne,  Vice-President  in  Charge 
of  Engineering  Policy,  General  Electric  Company. 

The  Board  of  Consultants  has  spent  virtually 
its  entire  time,  since  the  date  of  appointment,  in 
an  intensive  study  of  the  problem,  and  has  now 
completed  its  report,  which  is  transmitted  here- 
with. 

A  preliminary  draft  of  this  report  was  first  pre- 
sented to  your  Committee  ten  days  ago.  Exten- 
sive discussion  between  the  Connnittee  and  the 
Board  led  to  the  development  of  further  consider- 
ations embodied  in  a  subsequent  draft.  Still  fur- 
ther discussion  re.sulted  in  the  report  now  trans- 
mitted. 

We  lay  the  report  before  you  as  the  Board  has 
submitted  it  to  us  "not  as  a  final  plan,  but  as  a  place 
to  begin,  a  foundation  on  which  to  build."  In  our 
opinion  it  furnishes  the  most  constructive  analysis 
of  the  question  of  international  control  we  have 
seen  and  a  definitely  hopeful  approach  to  a  solu- 
tion of  the  entire  problem.  We  recommend  it  for 
your  consideration  as  representing  the  framework 
within  which  the  best  prospects  for  both  security 
and  development  of  atomic  energy  for  peaceful 
purposes  may  be  found. 

In  particular,  we  are  impressed  by  the  great 
advantages  of  an  international  agency  with  affirm- 
ative powers  and  functions  coupled  with  powers  of 
inspection  and  supervision  in  contrast  to  any 
agency  with  merely  police-like  powers  attempting 
to  cope  with  national  agencies  otherwise  restrained 
only  by  a  commitment  to  "outlaw"  the  use  of 
atomic  energy  for  war.  In  our  judgment  the  lat- 
ter  type   of   organization   offers   little   hoi^e   of 


achieving  the  secui'ity  and  safeguards  we  are 
seeking. 

We  are  impressed  also  by  the  asnect  of  the  plan 
which  concentrates  in  the  hands  of  the  interna- 
tional agency  only  the  activities  which  it  is  essen- 
tial to  control  because  they  are  dangerous  to  inter- 
national security,  leaving  as  much  freedom  as 
possible  to  national  and  private  research  and  other 
activity. 

We  wish  to  stress  two  matters  brought  out  in 
ihe  Board's  report — matters  of  importance  in  con- 
;;idering  the  report's  jjroposals  as  they  affect  the 
security  of  the  United  States  both  during  thie  pe- 
riod of  any  international  discussion  of  them  and 
during  the  period  required  to  put  the  plan  into 
full  effect. 

The  first  matter  concerns  the  disclosure  of  in- 
formation not  now  generally  known.  The  re^Dort 
points  out  that  the  plan  necessitates  the  disclosure 
of  information  but  permits  of  the  disclosure  of 
such  information  by  progressive  stages.  In  our 
opinion  various  stages  may  upon  further  study  be 
suggested.  It  is  enough  to  point  out  now  that 
there  could  be  at  least  four  general  points  in  this 
progression.  Certain  information,  generally  de- 
scribed as  that  required  for  an  understanding  of 
the  workability  of  proposals,  would  have  to  be 
made  available  at  the  time  of  the  discussions  of 
tlie  proposals  in  the  United  Nations  Atomic  En- 
ergy Commission,  of  the  report  of  the  Commis- 
sion in  the  Security  Council  and  General  Assem- 
bly of  the  United  Nations,  and  in  the  national 
legislatures  which  would  be  called  upon  to  act 
upon  any  recommendations  of  the  United  Nations. 
AVe  have  carefully  considered  the  content  of  this 
information,  and  in  our  discussions  with  the 
Board  have  defined  it  within  satisfactory  limits. 
We  estimate  the  degree  of  its  importance  and  the 
effect  of  its  disclosure  to  be  as  follows :  If  made 
known  to  a  nation  otherwise  equipped  by  indus- 
trial develoiJment,  scientific  resources  and  pos- 
sessing the  necessary  raw  materials  to  develop 
atomic  armament  within  five  years,  such  disclo- 
sure might  shorten  that  period  by  as  much  as  a 
year.  Whether  any  nation — we  are  excluding 
Great  Britain  and  Canada — could  achieve  such  an 
intensive  jirogram  is  a  matter  of  serious  doubt.  If 
the  pi'ogram  were  spread  over  a  considerably 
longer  period,  the  disclosure  referred  to  would 
not  shorten  the  effort  appreciably. 


APRIL  7,  1946 


555 


The  next  stage  of  disclosure  might  occur  when 
the  proposed  international  organization  was  ac- 
tually established  by  the  action  of  the  various  gov- 
ernnients  upon  the  report  of  the  United  Nations. 
At  tliis  time  the  organization  would  require  most 
of  the  remaining  scientific  knowledge  but  would 
not  require  the  so-called  technical  know-how  or 
the  knowledge  of  the  construction  of  the  bomb. 

By  the  time  the  organization  was  I'eady  to  as- 
sume its  functions  in  the  field  of  industrial  pro- 
duction it  would,  of  course,  require  the  techno- 
logical information  and  know-how  necessary  to 
carry  out  its  task.  The  information  regarding 
the  construction  of  the  bomb  would  not  be  essen- 
tial to  the  plan  until  the  last  stage  when  the  or- 
ganization was  prepared  to  assume  responsibility 
for  research  in  the  field  of  explosives  as  an  ad- 
junct to  its  regulatory  and  operational  duties. 

The  second  matter  relates  to  the  assunqition  or 
transfer  of  authority  over  physical  things.  Here 
also  the  plan  permits  of  jDrogress  by  stages  begin- 
ning in  the  field  of  raw  material  production,  pro- 
gressing to  that  of  industrial  production,  and  go- 
ing on  to  the  control  of  explosives. 

The  development  of  detailed  proposals  for  such 
scheduling  will  require  further  study  and  much 
technical  competence  and  staff.  It  will  be  guided, 
of  course,  by  basic  decisions  of  high  policy.  One 
of  these  decisions  will  be  for  what  period  of  time 
the  United  States  will  continue  the  manufacture 
of  bombs.     The  plan  does  not  requii-e  that  the 


United  States  shall  discontinue  such  manufacture 
either  ujDon  the  proposal  of  the  plan  or  upon  the 
inauguration  of  the  international  agency.  At 
some  stage  in  the  development  of  the  plan  this 
is  recpiired.  But  neither  the  plan  nor  our  trans- 
mittal of  it  should  be  construed  as  meaning  that 
this  should  or  should  not  be  done  at  the  outset 
or  at  any  specific  time.  That  decision,  whenever 
made,  will  involve  considerations  of  the  highest 
policy  affecting  our  security,  and  must  be  made 
by  our  government  undei'  its  constitutional  proc- 
esses and  in  the  light  of  all  the  facts  of  the  world 
situation. 

Your  Committee,  Mr.  Secretary,  awaits  your 
further  instructions  as  to  whether  you  believe  it 
has  performed  the  task  j^ou  assigned  to  it  and  may 
now  be  discharged  or  whether  jou  wish  it  to  go 
further  in  this  field  under  your  guidance. 
Respectfully  submitted, 

Dean  Aciieson 

Chairman 
Vannevar  Bush 
James  B.  Conant 
Leslie  R.  Gro^'es, 

Major  General,  U.  S.  A. 
John  J.  McCloy 

The  Honorable 
James  F.  Byrnes, 
Secretary  of  State, 
Washington,  D.  0. 


EXCERPTS  FROM  THE  TEXT  OF  THE  REPORT 


Introduction 

The  board  of  consultants  met  for  the  first  time 
on  January  23d,  conferring  briefly  with  the  Sec- 
retary of  State's  Committee  on  Atomic  Energy 
respecting  the  board's  assignment  to  study  the 
problem  of  international  control  of  atomic  energy. 
For  more  than  seven  weeks  since  that  time  we 
devoted  virtually  our  entire  time  and  energies  to 
the  problem  we  were  directed  to  study  and  report 
upon.  We  visited  the  plants  and  installations  at 
Oak  Ridge,  Tennessee,  and  Los  Alamos,  New 
Mexico,  and  spent  days  consulting  with  numerous 
scientists,  industrial  experts,  and  geologists,  au- 
thorities in  the  technical  fields  concerned  with 
atomic  energy.     Since  February  '25th  this  board 


has  met  almost  continuously,  developing  and  writ- 
ing the  following  report.  Our  absorption  in  this 
task  does  not,  of  course,  assure  the  soundness  of 
the  recommendation  which  is  the  product  of  our 
deliberations.  But  it  is  relevant  as  a  measure  of 
how  important  and  urgent  we  feel  it  to  be  that 
the  Government  and  the  people  of  the  United 
States  develop  a  rational  and  workable  plan,  be- 
fore the  already  launched  international  atomic 
armament  race  attains  such  momentum  that  it 
cannot  be  stopped. 

We  have  concluded  our  deliberations  on  this 
most  difficult  problem,  not  in  a  spirit  of  hopeless- 
ness and  despair,  but  with  a  measure  of  confidence. 
It  is  our  conviction  that  a  satisfactory  plan  can  be 


556 


DEPARTMENT  OF  STATE  BULLETIN 


devel()i)i'(l,  and  that  wliat  \vi'  hcrf  lecnminciul  can 
form  tlie  fouiulatioii  of  such  a  plan.  It  is  worth 
coiitiastinji  the  sense  of  hope  and  contidenee  which 
all  of  us  share  today  with  the  feeling  which  we  had 
at  the  outset.  The  vast  difficulties  of  the  pi-ol)leni 
were  oppressive,  and  we  early  concluded  that  the 
most  we  could  do  would  be  to  suggest  various  alter- 
native proposals,  indicate  their  strengths  and  limi- 
tation, but  make  no  recommendations.  But  as  we 
steei^ed  ourselves  in  the  facts  and  caught  a  feeling 
of  the  nature  of  the  jtroblem,  we  became  more  hope- 
ful. That  hopefulness  grew  not  out  of  any  pre- 
conceived "solution'"  but  out  of  a  patient  and  time- 
consuming  analysis  and  miderstanding  of  the  facts 
that  throw  light  on  tlie  numerous  alternatives  that 
we  exi)lored.  Five  men  of  widely  differing  back- 
grounds and  experiences  who  were  far  apart  at 
the  outset  found  themselves,  at  the  end  of  a 
month's  absorption  in  this  problem  not  only  in 
complete  agreement  that  a  plan  coidd  be  devised 
but  also  in  agreement  on  the  essentials  of  a  plan. 
We  believe  others  may  have  a  similar  experience 
if  a  similar  ])roress  is  followed. 

AVe  liave  described  the  process  whereby  we  ar- 
rived at  our  recommendation,  to  make  it  clear  tliat 
we  did  not  begin  with  a  preconceived  plan.  There 
is  this  fuither  reason  for  describing  this  process. 
Others  would  have  a  similar  experience  if  they 
were  able  to  go  through  a  period  of  close  study 
of  the  alternatives  and  an  absorption  in  the  salient 
and  determining  facts.  Oidy  then,  i)erhaps,  may 
it  be  jMissible  to  weigh  the  wisdom  of  the  judgment 
we  have  ivached.  and  the  possibilities  of  building 
upon  it. 

The  plan  of  the  report  itself  may  be  brieily  de- 
scribed, as  an  aid  in  reading  it : 

In  Section  I.  we  examined  the  reasons  that  have 
led  to  a  commitment  for  the  international  control 
of  atomic  energy  and  the  early  proposal  for  realiz- 
ing this  objective  by  a  system  of  inspection. 

In  Section  II.  the  essential  characteristics  of  a 
workable  jdan  for  security  iire  stated,  and  the  con- 
siderations that  favor  the  development  of  a  plan 
are  set  out.  By  the  time  this  discussion  is  con- 
cluded, the  outlines  of  a  workable  plan  as  we  see 
it  ;ire  ap|)areHt. 

In  Section  111.  tiie  essentials  of  an  organization 
that  puts  .such  principles  into  eifect  ate  described. 

In  Section  I\'.  we  consider  the  problems  of  the 
transition  period  leading  from  the  present  to  the 
full  operation  of  the  plan. 


We  have  tried  to  develop  a  report  that  will  be 
Useful,  nof  as  a  ftial  plan,  hut  rt.s-  a  place  to  hegin, 
a  foundation  on  which  to  build.  Many  questions 
that  at  later  stages  should  and  must  be  asked  we 
have  not  touched  upon  at  all.  We  recognize  that 
securing  the  agreement  of  other  nations  to  such  a 
plan  will  laise  ([uestions  the  precise  contours  of 
which  can  hardly  he  drawn  in  advance  of  inter- 
national meetings  and  negotiation.  AVe  have  not, 
of  course,  undertaken  to  discuss,  much  less  to  try 
to  settle,  {jroblems  of  this  character.  The  newly 
created  Atomic  Energy  Conunission  of  the  United 
Nations,  when  its  deliberations  begin,  will  deal 
with  many  of  these  in  joint  discussion.  Indeed, 
this  process  of  joint  international  di.scussion  is  it- 
self an  integral  pait  of  any  program  for  safe- 
guards and  security. 

WAsinxciTox,  I).  C. 
.Van/i  j6.  1946 

Section  I:  Background  of  the  Problem 

This  report  is  a  preliminary  study  of  the  inter- 
national control  of  atomic  energy.  It  has  been 
prepared  to  contrilnite  to  the  clarification  of  the 
l)osition  of  the  U.S.  Representative  on  the  United 
Nations  Commission  on  atomic  energy  set  up  by 
resolution  of  the  United  Nations  General  Assem- 
bly to  in(iuire  into  all  phases  of  this  question. 

Heir  folloir  ilixCiis.'iidiix  mi  the  ciitiiiitil  dk  lit  fur  iiitir- 
nationul  control,  cnrlii  idcns:  nil  safcf/iiaids,  tlir  trchiiiciil 
prohlcm  iif  ititpcctiiiii.  mid  hiiiiiiin  fiictors  nf  iiixpcrtion. 

Section  II:  Principal  Considerations  in 
Developing  a  System  of  Safeguards 

I  N  T  R  ( »  D  r  t-  T  I  O  N 

At  the  outset  of  our  inquiry  we  were  })reoccupied 
with  some  way  of  making  an  inspection  system 
provide  security.  This  is  a  preoccupation  that 
is  apparently  common  to  most  people  who  have 
seriously  tried  to  find  some  answer  to  the  extraor- 
dinarily difficult  problem  ]iresented  by  the  atomic 
bomb.  But  as  day  aftei-  day  we  proceeded  with 
our  study  of  the  facts  concerning  atomic  energy, 
and  reflected  upon  their  significance,  we  were  in- 
escapably driven  to  two  conclusions:  (a)  the  facts 
preclude  any  reasonable  reliance  upon  inspection 
as  the  iH'imary  safeguard  against  violations  of 
conventions  prohibiting  atomic  weapons,  yet  leav- 
ing the  exploitation  of  att)mic  energy  in  national 


APRIL  :.   1946 


y57 


hiinds ;  ( b)  the  facts  suggest  quite  clearly  a  reason- 
able and  workable  system  that  may  provide  secu- 
rity, and  even  beyond  security,  foster  beneticial 
and  hnniiinitarian  nses  of  atomic  energy. 

]y/iat  Should  he  the  Charactcrit^fi's  of  tm  F.ff(  ct'nu 
Si/xff»i  of  Sf/ffffurrrds: 

It  may  be  lielpful  to  summarize  the  character- 
istics that  are  desirable  and  indeed  essential  to  an 
effective  system  of  safeguards;  in  other  words,  the 
criteria  for  ntiy  adequate  plan  for  security. 

a.  .Sucli  a  phin  must  reduce  to  manageable  pro- 
portions the  problem  of  enforcement  of  an  inter- 
national policy  against  atomic  warfare. 

h.  It  must  be  a  plan  that  provitles  unambiguous 
and  reliable  danger  signals  if  a  nation  takes  steps 
that  do  or  may  indicate  the  beginning  of  atomic 
warfare.  Those  danger  signals  nmst  flash  early 
enough  to  leave  time  adequate  to  permit  other 
nations — alone  or  in  concert — to  take  appi'opriate 
action. 

r.  The  plan  must  be  one  that  if  carried  out  will 
provide  security;  but  such  that  if  it  fails  or  the 
whole  international  situation  collajises.  any  nation 
such  as  tJie  T'nited  States  will  still  be  in  a  rela- 
tively secure  position,  compared  to  any  other 
nation. 

d.  To  be  genuinely  effective  for  security,  the 
plan  must  be  one  that  is  not  wholly  negative,  sup- 
pressive, and  police-like.  We  are  not  dealing 
simply  with  a  military  or  .scientific  problem  but 
with  a  j)roblem  in  statecraft  an<l  the  ways  of  the 
human  spirit.  Therefore  the  plan  nmst  be  one 
that  will  tend  to  develop  the  beneficial  jiossibijities 
of  atomic  energy  and  encourage  the  growth  of 
fundamental  knowledge,  stirring  the  consti'uctive 
and  imaginative  impulses  of  men  rather  than 
merely  concentrating  on  the  defensive  and  nega- 
tive. It  should,  in  short,  be  a  plan  that  looks  to 
the  jiromise  of  luan's  futiu'e  well-being  as  well  as 
to  his  security. 

e.  The  jilan  must  be  able  to  cope  witli  new  dan- 
gers that  may  appear  in  the  further  development 
of  this  relatively  new  field.  In  an  organizational 
sense  therefore  the  plan  must  have  flexibility  and 
be  readily  capable  of  extension  or  contraction. 

/.  The  plan  must  involve  international  action 
and  minimize  rivalry  between  nations  in  the  dan- 
gerous aspects  of  atomic  development. 

The  facts  we  have  come  to  think  essential,  and 
the  elements  of  our  thinking  as  we  moved  toward 


the  plan  we  herein  reconmiend,  are  set  out  in  this 
section,  in  the  form  of  the  considerations  that  are 
relevant  to  an  effective  program  for  security,  and 
that  have  led  us  to  devise  what  we  believe  is  an 
adequate  plan. 

i'luipter  1.  "The  I'luhliiu  Has  Drfiiiuhic  HouikIiii'kx". 
iliflii.es  atomic  emi-fiji  us  the  "energy  that  results  from 
rciirraimcmenls  in  the  structure  of  atomic  nuclei  of  ele- 
iiK-nts".  The  nature  of  tlie  forces  lehich  hold  such  nuclei 
toi/itliei'  mill  IK  count  for  their  stiiliilitii  is 

not  adequately  understood,  but  enough  is  known 
about  their  behavior,  not  only  to  make  it  certain 
tliat  the  energy  of  an  atomic  bomb  or  an  atomic 
power  plant  comes  from  the  work  done  by  these 
forces  when  the  structure  of  atomic  nuclei  is  rear- 
ranged, but  also  to  explaiii  one  major  fact  of  de- 
cisive importance :  Only  in  reactions  of  very  light 
nuclei,  and  in  reactions  of  the  very  heaviest,  has 
there  ever  been,  to  the  best  of  our  knowledge,  any 
large-scale  release  of  atomic  energy.  The  reasons 
for  this  can  be  given  in  somewhat  oversimplified 
form. 

'I'he  Coiiiiiiittee  coiicliiiiis  tliat: 

Because  tlie  constituent  raw  materials  of  atomic 
energy  can  be  limite^l  to  uranium  and  thorium,  the 
control  problem  is  further  narrowed  by  the  geolog- 
ical conditions  under  which  uranium  and  thorium 
are  found,  and  the  fact  that  at  present  those 
elements  have  only  a  restricted  commercial  signifi- 
cance. Although  they  are  distributed  with  relative 
abundance  throughout  the  world,  and  although 
it  is  clear  that  many  sources  beyond  the 
known  supplies  will  be  discovered,  it  is  apparently 
the  view  of  the  authorities  that  these  elements 
occur  in  high  concentrations  only  under  very  spe- 
cial geologic  conditions.  This  would  seem  to  mean 
that  the  areas  which  need  to  be  surveyed,  to  which 
access  must  be  had,  and  which  would  ultimately 
ha\'e  to  be  brought  under  control,  are  relatively 
limited. 

The  other  chapters  of  Section  II  discuss  the  adequacy 
iif  present  scientific  knoirledge,  constructire  applications 
of  atomic  energy,  the  elimination  of  international  riralry, 
and  "Safe"  and  "Dangerous"  actiritiis.  The  Committee 
in  a  sumniarii  states  that: 

1.  If  nations  or  their  citizens  carry  on  intrinsi- 
cally dangerous  activities  it  seems  to  us  that  the 
chances  for  safeguarding  the  future  are  hopeless. 

2.  If  an  international  agency  is  given  respon- 
sibility for  the  dangerous  activities,  leaving  the 
non-dangerous  open  to  nations  and  their  citizens 


558 


DEPARTMENT  OF  STATE  BULLETIN 


and  if  the  international  agency  is  given  and  carries 
forward  afilnnative  development  responsibiUty, 
furtliering  among  other  things  the  beneficial  nses 
of  atomic  energy  and  enabling  itself  to  compre- 
hend and  therefore  detect  the  misuse  of  atomic 
energy,  there  is  good  prospect  of  security. 

Section  III:  Security  Through  International 
Cooperative  Development 

INTRODUCTION 

In  the  preceding  sections  of  this  report  we  have 
outlined  the  course  of  our  thinking  in  an  endeavor 
to  find  a  solution  to  the  problems  thrust  upon  the 
nations  of  the  world  by  the  development  of  the 
atomic  bomb — the  problem  of  how  to  obtain  secur- 
ity against  atomic  warfare,  and  relief  from  the 
terri])le  fear  which  can  do  so  much  to  engender  the 
very  thing  feared. 

As  a  result  of  our  thinking  and  discussions  we 
have  concluded  that  it  would  be  unrealistic  to 
place  reliance  on  a  simple  agreement  among 
nations  to  outlaw  the  use  of  atomic  weapons  in 
war.  We  have  concluded  that  an  attempt  to  give 
body  to  such  a  system  of  agreements  through 
international  inspection  holds  no  promise  of  ade- 
quate security. 

And  so  we  have  turned  from  mere  policing  and 
inspection  by  an  international  authority  to  a  pro- 
gram of  affirmative  action,  of  aggressive  develop- 
ment by  such  a  body.  This  plan  we  believe  holds 
hope  for  the  solution  of  the  problem  of  the  atomic 
bomb.  We  are  even  sustained  by  the  hope  that  it 
may  contain  seeds  which  will  in  time  grow  into 
that  cooperation  between  nations  which  may  bring 
an  end  to  all  war. 

The  program  we  propose  will  undoubtedly 
arouse  skepticism  when  it  is  first  considered.  It 
did  among  us,  but  thought  and  discussion  have 
converted  us. 

It  may  seem  too  idealistic.  It  seems  time  we 
endeavor  to  bring  some  of  our  expressed  ideals 
into  being. 

It  may  seem  too  radical,  too  advanced,  too  much 
beyond  human  experience.  All  these  terms  apply 
with  i^eculiar  fitness  to  the  atomic  bomb. 

In  considering  the  plan,  as  inevitable  doubts 
arise'as  to  its  acceptability,  one  should  ask  oneself 
"What  are  the  alternatives?"  We  have,  and  we 
find  no  tolerable  answer. 


The  following  pages  contain  first  a  brief  sum- 
mary of  the  plan  we  recommend,  and  then  an 
exiDansion  going  into  some  detail. 

Sum^nary  of  Proposed  Plan — The  proposal 
contemplates  an  international  agency  conducting 
all  intrinsically  dangerous  operations  in  the 
nuclear  field,  with  individual  nations  and  their 
citizens  free  to  conduct,  under  license  and  a  mini- 
nnnn  of  inspection,  all  non-dangerous,  or  safe, 
operations. 

The  international  agency  might  take  any  one 
of  several  forms,  such  as  a  UNO  Commission,  or 
an  international  corporation  or  authoritj^  We 
shall  refer  to  it  as  Atomic  Development  Authority. 
It  must  have  authority  to  own  and  lease  property, 
and  to  carry  on  mining,  nuinufacturing,  research," 
licensing,  insjoecting,  selling,  or  any  other  neces- 
sary operations. 

This  chai^ter  is  not  an  attempt  to  write  a  cor- 
porate charter  for  such  an  international  agency. 
It  is  the  aim,  rather,  to  show  that  such  a  charter 
can  be  written  in  workable  terms,  and  that  the  na- 
ture of  the  organization  and  its  functions  will  have 
decisive  consequences  for  world  security.  AVe  are 
satisfied  that  the  differences  between  national  and 
international  operations  can  be  exploited  to  make 
tlie  problem  of  atomic  energy  manageable.  This 
idea,  we  think,  can  become  as  familiar  as  the  fact 
that  the  differences  between  individual  enterprise 
and  corporate  enterprise  have  important  conse- 
quences in  the  conduct  of  business. 

If  we  are  to  do  anything  constructive  in  lela- 
tion  to  atomic  energy  it  must  inevitably  be  novel 
and  immensely  difficult.  We  think  that  the  weeks 
we  have  spent  in  analysis  of  the  problem  have 
made  it  appear  somewhat  less  difficult  and  some- 
what less  novel.  A  succession  of  such  processes 
will  be  necessary,  each  building  on  the  preceding 
analysis,  before  even  the  major  ramifications  of 
the  problem  can  be  understood  and  the  major 
questions  partially  answered.  What  is  chiefly 
important  now  is  to  describe  the  right  course  of 
action  in  tei'ms  sufficiently  practical  and  valid  to 
show  that  the  further  exploration  is  worthwhile. 

The  proposal  contemplates  an  international 
agency  with  exclusive  jurisdiction  to  conduct  all 
intrinsically  dangei'ous  operations  in  the  field. 
This  means  all  activities  relating  to  raw  materials, 
the  construction  and  operation  of  production 
plants,  and  the  conduct  of  research  in  explosives. 


APRIL  7,  1946 


559 


The  large  field  of  non-dangerous  and  relatively 
non-dangerous  activities  would  be  left  in  national 
hands.  These  would  consist  of  all  activities  in  the 
field  of  research  (except  on  explosives)  and  the 
construction  and  operation  of  non-dangerous 
power-producing  piles.  National  activities  in 
these  fields  would  be  subject  to  moderate  controls 
by  the  international  agency,  exercised  through 
licensing,  rules  and  regulations,  collaboration 
on  design,  and  tlie  like.  The  international  agency 
would  also  maintain  inspection  facilities  to  assure 
that  illicit  operations  were  not  occurring,  pri- 
marily in  the  exploitation  of  raw  materials.  It 
would  be  a  further  function  of  the  Atomic  Devel- 
opment Authority  continually  to  reexamine  the 
boundary  between  dangerous  and  non-dangerous 
activities.  For  it  must  he  recogiiized  that  although 
the  field  is  subject  to  reasonable  division,  the  di- 
viding line  is  not  sharp  and  may  shift  from  time 
to  time  in  either  direction. 

The  development  agency  itself  would  be  truly 
international  in  character.  Its  staff  would  be  re- 
cruited on  an  international  basis.  Its  functions 
would  be  such  as  to  attract  a  caliber  of  person'nel 
comparable  to  our  own  activities  in  raw  materials 
during  the  war  and  our  own  primary  production 
and  experimental  work.  It  would  be  set  up  as  one 
of  the  subsidiai-y  agencies  of  the  United  Nations, 
but  it  would  have  to  be  created  by  a  convention  or 
charter  establishing  its  policies,  functions,  and 
authority  in  comprehensive  terms. 

Whatever  the  formal  organization,  its  integra- 
tion with  national  structure  would  of  course  be  one 
of  the  major  problems.  Measures  to  assure  the 
proper  degree  of  accountability  to  the  United  Na- 
tions and  to  individual  nations,  measures  to  assure 
that  individual  nations  would  have  ample  oppor- 
tunity to  be  informed  of  the  agency's  activities, 
measures  to  make  the  agency  responsive  to  the 
changing  needs  of  nations — all  these  would  have  to 
be  worked  out  with  extraordinary  care  and  in- 
genuity. But  ceitainly  our  experience  with  busi- 
ness and  government  institutions,  national  and 
international,  would  afford  a  wealth  of  guidance 
in  the  development  of  such  measures. 

In  the  actual  conduct  of  its  operations  the  de- 
velopment organization  would  at  all  times  be  gov- 
erned by  a  dual  purpose,  the  promotion  of  the 
beneficial  use  of  atomic  energy  and  the  mainte- 
nance of  security.    We  believe  that  much  can  be 


done  in  a  convention  or  charter  to  make  these  pur- 
poses concrete  and  explicit,  to  draw  the  line  be- 
tween the  dangerous  and  the  non-dangerous,  to 
establish  the  principles  determining  the  location  of 
stockpiles  and  plants  so  that  a  strategic  balance 
may  be  maintained  among  nations,  to  establish  fair 
and  equitable  financial  policies  so  that  the  contri- 
butions of  nations  to,  and  their  receipt  of  benefits 
from,  the  organization  will  be  justly  apportioned. 
The  most  careful  and  ingenious  definitions  will 
be  required  in  order  to  accomplish  these  purposes. 

In  what  follows  we  shall  attempt  to  develop  and 
expand  the  foregoing  statement  of  essentials. 

We  can  best  visualize  the  Atomic  Development 
Autliority  in  terms  of  the  answer  to  these  concrete 
questions : 

( 1 )  AVhat  will  be  the  functions  of  the  agency ; 
what  are  the  things  that  it  will  do? 

(2)  What  kind  of  organization  is  necessary  to 
carry  out  these  functions? 

(3)  How  will  the  organization  be  related  to  the 
United  Nations  and  the  individual  nations  that  it 
will   I'epresent  ? 

(■i)  What  policies  will  guide  the  agency  in  de- 
termining its  manifold  actions? 

Tlie  fwo  chapters  in  this  .section  are  devoted  to  the 
(1)  proprietary  and  regnhitory  functions  of  Atomic  De- 
velopment Authority  in  tlie  field  of  raw  materials,  pro- 
duction plant.s,  research  activities,  licensing  activities,  and 
inspection  activities,  and  (2)  organization  and  policies  of 
Atomic  Development  Authority,  in  which  the  Committee 
sets  forth  the  basic  considerations  for  an  Atomic  Develop- 
ment Authority : 

Tlie  fimdamentals  governing  the  Atomic  De- 
velopment i^uthority  must  of  course  be  those  which 
have  been  so  well  .'^tated  in  the  resolution  of  Janu- 
ary 18, 1946  setting  up  the  United  Nations  Atomic 
Energy  Commission,  that  is,  the  strengthening  of 
security  and  the  promotion  of  the  beneficial  use  of 
atomic  energy.  In  our  report  we  have  adopted 
as  the  first  principle  in  the  accomplishment  of 
the.se  fundamental  objectives  the  proposition  tliat 
intrinsically  dangerous  activities  in  the  field  must 
not  be  left  open  to  national  rivalry  but  must  be 
placed  in  truly  international  hands.  To  establish 
the  boundaries  between  international  and  national 
action,  we  have  grasped  the  fortunate  circiunstance 
that  a  dividing  line  can  be  drawn  between  danger- 
ous and  non-dangerous  activities.  We  have  em- 
phasized that  not  the  least  in  the  fortunate  cir- 
cumstances that  we  have  observed  is  the  fact  that 


560 


DEPARTMENT  OF  STATE  BULLETIN 


the  field  of  non-dangerous  activities  is  so  chal- 
lenging that  it  provides  an  opportunity  to  avoitl 
such  centi'alization  of  authority  as  might  make 
the  price  of  security  seem  too  high.  In  this  con- 
nection it  is  important  that  a  purposeful  effort 
should  be  made  to  keep  as  broad  and  diversified 
as  possible  the  field  of  activities  which  is  left  in 
national  and  private  hands.  Every  effort  must  be 
made  to  avoid  centralizing  exclusively  in  the 
Authority  any  more  activities  than  are  essential 
foi'  purposes  of  security. 

Section  IV:  The  Transition  for  International 
Control 

The  CoiiniiUtee  suiiiiiKiri^rn  tliix  scctimi   iix  faJlitirx: 

In  this  section  we  have  been  discussing  the 
problem  of  transition  to  international  control  as 
it  affects  the  security  of  the  United  States. 
During  this  transition  the  United  States"  present 
position  of  monopoly  may  be  lost  somewhat  more 
rapidly  than  would  be  the  case  without  interna- 
tional action.  But  without  such  action  the 
monopoly  would  in  time  disa])pear  in  any  event. 
Should  the  worst  happen  and.  during  the  transi- 
tion period,  the  entire  effort  collapse,  the  United 
States  will  at  all  times  be  in  a  favorable  position 
with  regard  to  atomic  weapons.  This  favorable 
position  will  depend  upon  material  things:  less 
and  less  will  it  rest  wymn  keeping  nations  and 
individuals  ignorant. 

When  fully  in  o]n'ratioH  the  ])lan  herein 
proposed  can  provide  a  great  measure  of  security 
against  surprise  attack.  It  can  do  much  more  than 
that.  It  can  create  deterrents  to  the  initiation 
of  schemes  of  aggression,  and  it  can  establish  pat- 
terns of  cooperation  among  nations,  the  extension 
of  which  may  even  contribute  to  the  solution  of  the 
problem  of  war  itself.  When  the  plan  is  in  full 
operation  there  will  no  longer  be  secrets  about 
atomic  energy.  We  believe  that  this  is  the  firmest 
basis  of  security;  for  in  the  long  term  there  can 
be  no  international  control  and  no  international 
cooperation  which  does  not  presuppose  an  inter- 
national community  of  knowledge. 

Chester  I.  Barnard 
J.  R.  Oppenheimer 
Charles  A.  Thomas 
Harry  A.  Winne 
David  E.  Lilienthal, 
Chairman 


Postponement  of  Atomic 
Bomb  Tests 

The  AA'hite  House  Press  Secretary,  Charles 
Ross,  announced  on  March  23  at  a  special  news 
conference  that  President  Truman  had  decided  to 
jjostpone  the  atomic-bomb  tests  scheduled  foi'  May 
15  and  Julv  1.  Mr.  Ross  issued  a  statement  wliich 
said: 

"The  President  announced  tonight  that  the 
atomic-bomb  tests  in  the  Pacific  will  be  delayed 
about  six  weeks.  The  tests  calling  for  the  detona- 
tion of  two  atomic  bombs  in  the  Bikini  atoll  had 
been  scheduled  for  May  15  for  the  first,  an  air  drop, 
and  July  1  for  a  surface  burst.  The  pronounce- 
ment is  prompted  by  the  fact  that  a  large  number 
of  Congressmen  have  expressed  a  desire  to  witness 
both  these  tests  but  owing  to  the  heavy  legislative 
schedule  would  be  prevented  from  doing  so  if 
the  tests  were  held  on  the  dates  originally  fixed." 


Appointment  of  Civilian 
Committee  on  Atomic- 
Bomb  Tests 

President  Truman  announced  on  March  25  the 
appointment  of  five  scientists  and  four  members 
of  Congress  as  members  of  the  civilian  conunittee 
to  evaluate  forthcoming  bomb  tests  in  the  Pacific. 
Members  of  the  group  include :  Senators  Carl 
Hatch  and  Leverett  Saltonstall;  Representatives 
Andrew  J.  May  and  Walter  G.  Andrews:  Karl  T. 
Compton,  President  of  Massachusetts  Institute  of 
Technology:  Bradley  Dewey,  Rubber  Director  of 
the  AVar  Production  Board:  J.  Robert  Ojipen- 
heimer.  Physics  Professor  of  the  University  of 
California  and  one  of  the  early  group  who  con- 
ceived the  practical  possibilities  of  the  atomic 
bomb;  William  S.  Newel,  president,  Bath  Iron 
AA^orks  Cor]).,  Bath,  Maine;  and  Fred  Searles,  Jr.. 
New  York  mining  engineer  and  Special  Assistant 
to  the  Secretary  of  State. 


APRIL  7,  1946 


561 


The  American  Trade  Proposals: 
Proposals  Concerning  Employment 

Article  by  ELLSWORTH   H.  PLANK  and  MAURICE  J.  ERICKSON 


FULL  EMPLOYMENT  and  higher  levels  of  living 
are  twin  goals  of  the  United  Nations  post-war 
economic  policy.  They  are  proclaimed  in  the 
Charter  o  fthe  United  Nations  and  they  were  incor- 
porated in  the  Atlantic  Charter,  the  mutual-aid 
agreements,  the  Economic  Charter  of  the  Ameri- 
cas, and  resolutions  of  the  1945  International  La- 
bor Organization  Conference.  The  pursuit  of 
these  objectives  will  have  important  implications, 
both  for  domestic  and  foreign  economic  policies. 

Domestic  Policy  Implications 

The  acceptance  of  full  employment  as  a  major 
goal  of  governmental  policy  clearly  involves  an 
assimiption  of  broad  responsibilities  for  economic 
and  social  advancement.  These  responsibilities 
in  the  different  economies  will  devolve  in  vai-ying 
degree  upon  the  public  authorities  and  private 
economic  groups. 

Full  employment  programs  must  deal  with  the 
problem  of  general  unemployment  caused  by  de- 
clines in  total  expenditure  on  goods  and  services, 
and  also  with  localized  imemployment  brought 
about  by  the  immobility  of  labor,  by  rigidities  in 
the  domestic  industrial  structure,  or  by  seasonal 
variations  in  economic  activities. 

In  order  to  solve  these  problems,  all  aspects  of 
domestic  policy  will  have  to  be  examined  in  the 
light  of  their  effect  upon  the  level  and  stability 
of  employment.  In  most  countries,  this  criterion 
is  not  new  but  may  be  expected  to  play  a  more 
prominent  role  in  policy  formulation  as  full  em- 
ployment plans  enter  the  action  stage. 

Higlier  levels  of  living  presuppose  a  fuller  and 
a  more  effective  utilization  of  available  labor  and 
natural  resources,  as  well  as  a  wide  distribution  of 
the  income  produced.  In  the  industrialized  econo- 
mies the  achievement  of  higher  levels  of  living  is 

6SS914— 46 3 


closely  linked  with  the  success  of  full  emj)loyment 
plans.  Although  problems  vary  greatly  between 
nations,  programs  for  economic  development,  di- 
versification, and  expansion  of  social  services  are 
likely  to  receive  special  emphasis. 

Foreign  Economic  Policy  Implications 

Many  countries  are  substantially  dependent  for 
the  attainment  of  employment  objectives  upon  ex- 
ternal trade  and  financial  relationships.  An  im- 
portant group  of  nations  are  so  deficient  in  certain 
tyi^es  of  resources  that  they  must  import  in  order 
to  exist  as  prosperous  industrial  states.  In  other 
countries  foreign  trade  constitutes  a  highly  stra- 
tegic, if  not  a  substantial,  proportion  of  total  eco- 
nomic activity.  The  international  exchange  of 
goods  and  services  permits  countries  to  employ 
tlieir  productive  resources  more  efficiently  and  to 
obtain  more  advantageously  goods  which  they  can- 
not produce  or  which  they  can  produce  only  with 
relative  ineffectiveness. 

Many  nations  also  lack  adequate  capital  to  fi- 
nance reconstruction  and  economic  development 
programs.  Continued  access  to  surplus  capital 
funds  of  other  countries  is  required  for  the  solu- 
tion of  their  basic  economic  problems,  including 
the  improvement  of  employment  opjiortunities  and 

Mr.  Plank  is  chief  of  and  Mr.  Ericlison  an  offieer  in  the 
Economics  Branch  of  tlie  Division  of  International  Labor, 
Social  and  Health  Affairs,  Office  of  International  Trade 
Policy,  Department  of  State.  This  article  is  the  fourth  in 
a  series  on  the  American  Trade  Proposals ;  for  the  other 
articles  already  printed  in  the  Bulletin,  see  "Trade  Bar- 
riers Iniposeil  by  Governments"  by  Margaret  Potter, 
BtTLi.ETiN  of  Mar.  17,  1946;  "Restrictive  Business  Prac- 
tiees"  by  Robert  P.  Terrill,  Bulletin  of  Mar.  24,  1946;  and 
"Intergovernmental  Commodity  Arrangements"  b.v  Wil- 
liam T.  Phillips,  BuLLBiiN  of  Mar.  31,  1946.  The  final 
article  on  the  -American  Trade  Proposals  will  appear  in 
the  next  issue. 


562 


DEPARTMENT  OF  STATE  BULLETIN 


the  achievement  of  liigher  standards  of  living  for 
their  people.  Increased  capital  exchanges  will  also 
contribute  to  a  high  level  of  economic  activity  in 
capital-exporting  nations  and,  in  the  long  run, 
to  a  general  expansion  of  trade  and  emjiloymeiit. 

International  trade,  while  essential  to  the  at- 
tainment of  employment  objectives,  is  a  source  of 
domestic  economic  instability.  Fluctuations  in 
foreign  trade  liave  been  an  important  cause  of 
economic  dislocation  in  many  countries  and  they 
may  well  prove  to  be  a  serious  obstacle  to  the  suc- 
cess of  employment  programs. 

Economic  depressions,  which  are  the  major  cause 
of  such  fluctuations,  move  easily  across  national 
boundaries.  If  the  depression  originates  in  a 
major  trading  nation  and  is  prolonged  and  severe, 
it  will  be  extremely  difficult,  if  not  impossible,  for 
the  countries  with  which  it  trades  to  maintain  em- 
ployment and  income.  An  attempt  to  do  so  would 
require  extensive  readjustment  of  domestic  activi- 
ties to  provide  jobs  for  workers  displaced  as  a 
result  of  declining  exports,  and  imports  would 
have  to  be  curtailed  to  avoid  continuing  deficits  in 
foreign  accounts.  Heavy  increases  in  govern- 
mental expenditures  to  finance  emergency  employ- 
ment projects  and  to  facilitate  the  necessaiy  in- 
ternal readjustments  would  be  inevitable.  Re- 
gardless of  the  measures  that  may  be  adopted  to 
covmteract  external  deflationary  influences,  the 
countries  concerned  are  likely  to  experience  a  loss 
in  real  income  and  at  least  a  temporary  decline  in 
levels  of  emi)loyment. 

An  expansion  of  international  trade  and  invest- 
ment in  many  countries  is  essential  to  the  attain- 
ment of  employment  objectives.  The  imjjortation 
of  goods  and  capital  is  the  only  means  by  which 
some  countries  are  able  to  maintain  production 
and  employment  or  to  improve  their  levels  of 
living.  In  other  nations  high  levels  of  trade  and 
enlarged  outlets  for  surplus  cajtital  will  provide 
a  substantial  stimulus  to  the  attainment  of  full 
employment  and  improved  standards  of  living. 
It  should  be  recognized,  however,  that  certain  na- 
tions may  be  inclined  to  forego  these  benefits  and 
limit  external  trade  to  their  minimum  require- 
ments unless  there  is  reasonable  assurance  that 
sharp  and  disruptive  variations  in  the  volume  of 
trade  and,  therefore,  of  employment  can  be 
avoided. 

Finally,  assurance  is  needed  that  foreign  eco- 
nomic policies  will  not  be  subject  to  abruj^t  and 


fundamental  changes  by  unilateral  action.  An 
increase  in  trade  restrictions  or  the  sudden  and 
unexi)ected  cessation  of  foreign  lei.ding  and  invest- 
ment by  an  important  country  is  certain  to  have 
disruptive  influences  uj)on  the  econonues  of  other 
nations.  Continuitj'  in  international  economic 
policies  will  greatly  facilitate  the  planning  of  em- 
jjloynient  programs  in  all  countries. 

Consequently,  tlie  success  of  employment  pro- 
grams in  the  various  nations  depends,  in  greater 
or  lesser  degree,  upon  attainment  of  the  following 
conditions  as  respects  their  external  economic  re- 
lations: (1)  stability  of  international  trade;  (2) 
high  levels  of  international  trade  and  investment; 
(3)  contiiuiity  of  economic  foreign  policies. 

Proposed  International  Trade  and  Financial 
Policies  in  Relation  to  the  Attainment  of 
Employment  Objectives 

It  is  evident  tliat  the  above  conditions  can  be 
attained  not  by  domestic  action  alone;  they  re- 
quire effective  international  collaboration.  The 
international  trade  and  financial  policies  sup- 
ported by  this  Government  constitute  a  broad  and 
constructive  program  for  economic  cooperation 
among  nations.  So  far  as  other  countries  accept 
these  ]H)licies,  they  will  affect  the  plans  of  indi- 
vidual nations  for  attaining  empk)yment  objec- 
tives. Altliough  intended  to  i)romote  the  same 
broad  oljjectives  as  domestic  employment  pro- 
grams, it  is  essential  that  the  relationship  of  these 
international  policies  to  the  achievement  of  em- 
ployment oljjectives  be  clearly  defined. 

Commercial  Policies 

The  trade  jiroposals  '  are  ilesigned  to  contribute 
to  an  expau.sion  of  trade  and  to  a  more  economic 
use  of  the  resources  of  all  countries  by  reducing  or 
removing  artificial  and  discriminatory  restrictions 
upon  world  commerce.  The  recommendations  re- 
lating to  international  commodity  arrangements 
provide  for  a  cooperative  attack  upon  problems 
of  serious  and  persistent  imbalance  in  the  supjily 
and  demand  of  particular  connnodities,  esjiecially 
j)rimary  products.  The  proposals  concerning  re- 
strictive practices  of  private  industrial  organiza- 
tions establish  procedures  for  combating  such 
j)ractices;  and,  by  permitting  a  freer  play  of  com- 
petitive forces,  ai'e  expected  to  contribute  to  an 
expansion  of  trade  and  employment. 

'liiLi.P^TiN  of  Dec.  !l,  l'.l4."i,  p.  WVl. 


APRIL  7,  1946 


563 


Certain  groups  are  fearful  that  domestic  full 
employment  proorams  and  the  proposed  interna- 
tional trade  i)olicies  may  prove  incompatible.  It 
has  been  argued  that  the  reduction  of  trade  bar- 
riers will  subject  individual  economies  to  the  pos- 
sibility of  greater  fluctuations  arising  from  exter- 
nal factors ;  thus  a  nation  which  has  full  employ- 
ment as  a  primary  objective  might,  it  is  said,  be 
ill-advised  to  cooperate  in  undtilateral  trading 
systems.  Similarly,  it  has  been  suggested  that  a 
nation  cooperating  in  the  proposed  trade  program 
might  insist  uiton  i)ermission  to  take  appr()i)riate 
protective  measures  if  a  serious  depression  de- 
A'eloped  in  other  countries. 

External  influences  may,  no  doubt,  jeopardize 
the  economic  stability  of  a  nation.  From  an  inter- 
national standpoint  the  central  problem  in  achiev- 
ing emploj'ment  objectives  is  to  prevent  or  arrest 
external  deflationai'y  influences  upon  domestic  in- 
come and  employment,  while  maintaining  the  high 
level  of  trade  reiiuired  for  full  and  etfective  utili- 
zation of  national  resources. 

The  success  of  domestic  employment  programs 
in  many  countries  will  depend  in  large  degree  upon 
finding  an  effective  solution  of  this  problem.  Con- 
sequently there  is  little  point  in  laboring  the  issue 
as  to  whether  a  reduction  of  trade  barriers — de- 
signed to  contribute  to  the  higher  levels  of  trade 
required — might  subject  particular  economies  to 
the  possibility  of  greater  external  fluctuations. 

The  problem  of  eliminating  or  controlling 
external  deflationary  influences  is  essentially  one 
of  preventing  depressions  in  the  major  trading 
nations  and,  if  preventive  measures  fail,  de- 
veloping approi^riate  corrective  techniques.  In 
the  absence  of  ett'ective  machinery  for  cooperative 
action,  the  various  countries  would  attempt  to  pro- 
tect themselves  tlu'ough  unilateral  action,  although 
witli  little  assurance  of  success.  The  obvious  alter- 
native is  an  international  agreement  which  pro- 
vides a  cooperative  approach  to  the  solution 
of  problems  of  world-wide  instability  and 
unemployment. 

The  projiosed  trade  policies  do  not  of  themselves 
constitute  an  anti-depression  i^rogram.  They  are 
not  specifically  designed  for  this  purpose,  al- 
though they  should  have  a  l)eneficial  preventive 
influence.  The  proposals  concerning  international 
commodity  arrangements,  while  intended  to 
achieve  greater  stal)ility  of  prices  and  markets 
for    certain    basic    commodities,    are    obviously, 


limited  in  scope.  The  proposals  for  i-eduction  of 
trade  barriers  contain  certain  exceptions  which 
the  International  Trade  Organization  might  inter- 
pret as  permitting  individual  nations  to  take  cor- 
rective meatures  in  case  a  serious  depression 
develops.  However,  if  such  action  were  permitted 
by  the  International  Trade  Organization,  the 
remedy  would  merely  be  a  reversion  to  unilateral 
action  by  the  various  countries  aflected  and  would 
involve  at  least  a  temporary  break-down  of  the 
cooperative  trade  program.  If  such  action  were 
not  authorized  the  result  might  be  the  same,  since 
domestic  pressures  are  not  likely  to  permit  any 
government  to  sit  idly  by  while  serious  external 
deflationary  influences  run  their  course. 

Financial  Policies 

In  terms  of  their  relation  to  the  attainment  of 
employment  objectives,  the  International  Mone- 
tary Fund  and  the  International  Bank  for  Eecon- 
struction  and  Development  are  significant  develop- 
ments. The  Fund  is  designed  to  insure  stability 
of  exchange  rates  and  to  facilitate  a  balance  of 
short-run  accounts  between  nation.s.  It  provides 
for  limited  reserves  of  exchange  to  which  all  sig- 
natory countries  will  have  access  in  case  of  need, 
for  a  reasonable  degree  of  flexibility  in  exchange 
rates  to  meet  contingencies.  Thus  the  Fund  is 
equipped  to  cope  with  one  important  aspect  of  the 
problem  of  stable  relationships  between  nations — 
the  stability  of  international  exchange. 

The  primary  function  of  the  Bank,  as  its  name 
implies,  is  to  help  finance  reconstruction  and  devel- 
opment projects  in  countries  requiring  such  assist- 
ance. It  provides  an  international  mechanism 
whereby  the  surplus  capital  funds  of  certain  coun- 
tries may  be  made  availalile  to  other  nations  when 
conditions  are  unsuited  to  private  lending.  The 
BanJv  will  lie  in  a  position  to  make  a  substantial 
contribution  to  tlie  recovery  of  war-devastated 
areas  and  to  a  fidler  and  more  effective  utilization 
of  the  labor  and  natural  resources  of  relatively 
undeveloped  countries.  The  loans  extended  by  the 
Bank,  however,  are  likely  to  be  expansionary  in 
effect.  Although  the  Bank  may  extend  or  guar- 
antee a  limited  amount  of  credits  for  meeting 
short-run  stabilization  problems,  the  stabilization 
function  is  not  its  chief  concern.  Furthermore,  its 
resources  are  obviously  inadequate  to  permit  ex- 
tensive anti-cyclical  operations. 


564 


DEPARTMENT  OF  STATE  BULLETIN 


Conclusions:  Role  of  International  Cooperation 
in  Attainment  of  Employment  Objectives 

Althcmtrh  the  policies  of  internatioiiiil  tnide  and 
financial  cooperation  supported  by  this  Govern- 
ment provide  a  sound  foundation  for  advancing 
the  twin  objectives  of  full  employment  and  higher 
standards  of  living,  a  further  element  of  coopera- 
tive effort  is  required.  The  conclusion  is  inescap- 
able that  the  fullest  measure  of  success  of  both  do- 
mestic employment  progi-ams  and  the  proposed 
trade  and  financial  policies  depends  upon  the  for- 
nndation  and  acceptance  of  a  cooperative  program 
for  the  prevention  and  alleviation  of  serious  and 
wide-spread  fluctuations  in  world  trade  and  in- 
vestment. 

The  elimination  of  depression  unemployment 
is,  as  previously  indicated,  the  key  to  the  success 
of  full  employment  programs  in  the  industrialized 
nations.  If  any  major  country  fails  to  avoid  wide- 
spread unemployment,  the  endeavors  of  other  na- 
tions to  achieve  their  employment  objectives  will 
be  seriously  jeopardized. 

An  agreement  to  act  collaboratively  in  combat- 
ing economic  depressions  and  their  consequences 
is  an  indispensible  link  in  the  chain  of  economic 
cooperation  among  nations.  AVithout  assurance 
of  a  concerted  effort  to  avoid  or  to  mitigate  the 
effects  of  general  economic  instability,  the  whole 
framework  of  international  trade  and  financial 
cooperation  will  be  endangered.  The  proposed 
trade  and  financial  jiolicies  may  be  accepted 
by  a  large  number  of  countries  on  their  merits; 
however,  there  might  well  be  important  reserva- 
tions designed  to  protect  the  interests  of  certain 
countries  which  are  particularly  vulnerable  to  ex- 
ternal deflationary  influences.  The  occasion  for 
the  application  of  such  reservations  and  the  real 
danger  to  the  program  of  trade  and  financial  co- 
operation will  arise  when  a  threat  of  general  de- 
pression ajipears. 

In  the  absence  of  a  concerted  effort  to  fornndate 
an  effective  anti-depression  program,  individual 
nations  will  undoubtedly  take  protective  measures. 
How  quickly  and  how  decisively  they  act  will  de- 
pend in  part  on  the  government's  employment 
policy.  If  a  nation  has  a  full  employment  pro- 
gram, action  may  be  taken  immediately  upon  the 


appearance  of  external  deflationary  influences. 
Lacking  such  a  program,  a  nation  may  delay  ac- 
tion until  unemployment  appears  and  public  pres- 
sures force  the  government  to  take  steps  to  counter- 
act these  influences.  In  either  case  the  measures 
adopted  would  probably  be  designed  to  prevent  a 
continuing  deficit  in  foreign  accounts,  a  deficit 
occasioned  by  a  decline  in  export  income.  A  re- 
turn to  unilateral  imposition  of  quantitative  con- 
trols under  these  conditions  would  almost 
inevitably  bring  with  it  a  general  revival  of  eco- 
nomic warfare.  If  the  depression  were  severe  and 
prolonged,  the  measures  taken  would  be  likely  to 
be  extreme  in  character  and  might  become  firndy 
indiedded  in  national  policy.  A  nationi  which 
sought  to  maintain  full  employment  despite  a  pro- 
longed world  depression  woidd  be  forced  to  make 
readjustments  in  its  economy.  Labor  and  capital 
would  have  to  be  diverted  from  export  industries 
to  new  industries  capable  of  supjilying  the  defi- 
ciences  created  by  reduced  imports  from  abroad. 
Such  readjustments  would  be  costly  and  would 
inevitably  involve  sacrifices  in  terms  of  efficiency. 
Once  they  were  undertaken,  they  would  interpose 
serious  difficulties  to  a  relinquishment  of  protective 
controls  when  a  semblance  of  world  prosperity 
was  restored. 

In  view  of  the  above  considerations  tiie  proposals 
suggest  that  the  various  nations  undertake  to  co- 
operate in  the  advancement  of  recognized  em- 
ployment objectives,  with  particular  emphasis 
upon  the  prevention  of  wide-spread  unemployment 
and  general  economic  instability  occasioned  by 
cyclical  depressions.  The  envisaged  areas  of  co- 
operation include  a  suggested  undertaking  that :  ^ 

"1.  Each  of  the  signatory  nations  will  take  action 
designed  to  achieve  and  maintain  full  employment 
witiiin  its  own  jurisdiction,  through  measures  ap- 
l>ropriateto  its  political  and  economic  institutions. 

"2.  No  nation  will  seek  to  maintain  employment 
through  measures  which  are  likely  to  create  unem- 
ployment in  other  countries  or  which  are  incom- 
patible with  international  undertakings  designed 
to  promote  an  expanding  volume  of  international 

'  See  Proposals  for  EJrpansion  of  World  Trade  and  Em- 
ploiDiieiit,  Dept.  of  State  publication  2411. 

(Continued  on  page  578) 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers:  Meeting  of  Deputies 

Far  Eastern  Commission 

PICAO: 

North  Atlantic  Route  Service  Conference 
European  Route  Service  Conference 

Fourth  Session  of  the  UNRRA  Council 

Preliminary  Meeting  of  Conference  on  Health  Organization 

Anglo-American  Committee  of  Inquiry 

I 

AUied-Swiss  Negotiations  for  German  External  Assets 

Third  Conference  of  American  States  Members  of  the  International 
Labor  Office 

Food  and  Agriculture,  Conference  of  Ministers  (under  the  auspices  of 
Emergency  Economic  Committee  for  Europe) 

Fifth  Pan  American  Railway  Congress 

The  United  Nations: 
Security  Council 

Military  Staff  Committee 

Negotiating  Committee  on  League  of  Nations  Assets 
Special  Committee  on  Refugees  and  Displaced  Persons 
Economic  and  Social  Council:  Second  Session 
General  Assembly 


London 

January    18    (continuing    in 

session) 

Washingtor 

February  26   (continuing  in 

session) 

Dublin 

March  4-27 

Paris 

April  24 

Atlantic  City 

March  15-29 

Paris 

March  15  (continuing  in  ses- 

sion) 

Switzerland 

Left  Jerusalem  about  March 

28 

Washington 

March  18  (continuing  in  ses- 

sion) 

Mexico,  D.F. 

April  1 

London 

April  3 

Montevideo 

April  5 

New  York 

March  25  (continuing  in  ses- 

sion) 

New  York 

March  25  (continuing  in  ses- 

sion) 

Geneva 

April  6 

London 

April  8 

New  York 

May  25 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  Mar.  31. 


565 


566 


DEPARTMENT  OF  STATE  BULLETIN 


Activities  and  Developments 


The  Far  Eastern  Commission  at  its  leaulai 
weekly'  meeting  on  Mairli  27  considered  reports 
by  several  of  its  committees  and  established  a  new 
Committee  on  the  Disarmament  of  Japan.  This 
Committee  will  l>e  concerned  with  the  disarma- 
ment and  dissolution  of  the  Japanese  armed  forces, 
the  disposition  of  armaments  and  military  equip- 
ment, and  the  long-range  control  of  armaments 
necessary'  for  internal  police  security  in  Jainm. 

At  a  special  meeting  on  March  30  called  l\v  the 
Chairman,  General  McCoy,  after  consultation  with 
the  Connnission's  Steering  Committee,  the  Far 
Eastern  Commission  considered  a  reply  by  General 
MacArthur,  the  Supreme  Commander  for  the 
Allied  Powers,  to  an  earlier  inquiry  by  the  Com- 
mission as  to  his  views  with  respect  to  the  date  of 
the  forthcoming  Japanese  general  election  sched- 
uled for  April  10,  1946. 

In  its  inipiiry  to  the  Supreme  Commander,  the 
Commission  had  indicated  that  it  considered  the 
election  an  imjiortant  matter,  that  it  had  made  a 
preliminary  and  tentative  study  of  the  subject  and 
that  it  wished  the  views  of  the  Supreme  Com- 
mander in  order  to  give  the  subject  further  con- 
sideration. 

The  Supreme  Connnander's  reply  gave  the  Com- 
mission tliQ  information  it  had  requested  and  it 
was  to  consider  this  infoi-mation  that  the  Commis- 
sion met  today. 

Upon  due  consideration  the  Commission  agreed 
that  any  action  on  its  part  in  connection  with  the 
date  of  the  forthcoming  election  on  April  10  was 
unnecesary. 

Third  Conference  of  American  States  Mem- 
bers of  the  International  Labor  Organization, 

Mexico  City,  April  1  to  Iti.  1!)4<;.'  The  American 
Delegation  has  been  designated  by  the  President 
ui)on  the  reconunendation  of  the  Secretary  of 
Labor  and  concurred  in  by  the  Secretary  of  State. 

'Released  to  the  in-ess  by  the  White  House  Mar.  27. 


Representing  the  Government  of  the  United 

St.\tes 
Driei/ales: 

Di^nni.s  Chavez,  United  States  Senate. 
Verne  A.  Zinnner,  Director.  Division  of  Labor   Stand- 
ards, Department  of  Lalior. 

AiJrintrs: 

William  K.  Ailshie,  Second  Secretary,  American  Em- 
liassy,  Mexico  ('ity. 

Beatrice  Mrt'onnell,  Director,  Industrial  Division,  Cliil- 
dren'.s  Bnreau.  Department  of  Labor. 

Marian  L.  Mel,  Specialist  in  Labor  Law  .\dministration, 
Division  of  Labor  Standards,  Department  of  Labor. 

Charles  Johnson  Post,  Comniissiouer  of  Conciliation, 
Conciliation  Service,  Department  of  Labor. 

Bernard  Wiesman.  Chief.  International  Labor  Organ- 
ization Branch,  Departnjent  of  State. 

Rei'resentino  the  E.mi'i.oyers  of  the  LTnited 

St.vtes 
Dc'ci/dte: 

James  David  Zellerbacb,  President,  Crown  Zellerbach 
Corporation,  San  Francisco,  Calif. 

.  1  (?(•/' -sTcs; 

<".  R.  Dooley,  Director,  Training  within  Industry  Foim- 
dation.  Inc..  Summit,  N.  .1. 

M.  M,  Olandcr,  Director  of  Industrial  Relations,  Owens- 
Illinois  Glass  Company,  Toledo,  Ohio. 

Charles  E.  Shaw,  Manager,  Industrial  Relations  Over- 
seas, Standard  Oil  Company  of  New  Jersey,  New 
York,  N.  Y. 

Representing  the  Workers  of  the  United  St.vtes 

Delefftitr: 

George  Mean.v,  Secretary-Treasurer,  American  Federa- 
tion of  Labor.  Washington,  D.C. 

Advisers: 

A.  F.  Cadena,  Organizer,  .\meri(an  Federation  of  Lalxir, 
Labor  Temple,  San  Antonio,  Texas. 

Jlichael  Ross.  Director,  International  Department,  Con- 
gress of  Industrial  Organizations,  Washington,  D.C. 

Willard  Townsend,  President,  Transport  Service  Em- 
liloyees.  Congress  of  Industrial  Organizations,  Chi- 
cago, 111. 

Secretary  to  the  Deleg.xtion 

John  S.  Gambs.  Adviser  on  International  Labor  Rela- 
tions, Department  of  Labor. 


The  United  Nations 


Meeting  of  the  Security  Council 

MESSAGES  FROM  PRESIDENT  TRUMAN   AND  THE  SECRETARY  OF  STATE 


Mr.  Chairman  :  This  is  a  moinent  of  great  im- 
portance ill  tlie  history  of  the  world.  Witli  tliis 
meetinii'  tlie  Security  Council  begins,  as  required 
by  the  Charter,  to  function  continuously.  For  this 
purpose  the  members  of  the  Council  are  obligated 
to  be  represented  at  all  times  at  the  seat  of  the  Or- 
ganization. This  is  essential  because  it  is  the  func- 
tion of  the  Council  to  guard  at  all  times  the  peace 
of  the  world. 

The  President  of  the  United  States  has  re- 
quested me  to  read  to  you  the  following  message : 

"On  behalf  of  the  people  of  the  United  States  I 
welcome  the  members  of  the  Security  Council  and 
the  Secretary-General  of  the  United  Nations  and 
their  staffs  to  our  countiy. 

"We  are  greatly  honored  that  the  United  Na- 
tions has  chosen  a  site  in  our  country  for  its  home. 
We  will  do  our  best  to  make  you  feel  at  home. 

"But  there  can  be  no  home  anywhere  for  the 
United  Nations  unless  the  United  Nations  remain 
united  and  continue  to  work  together,  as  they  have 
fought  together,  for  peace  and  for  freedom. 

"The  people  of  the  United  States  not  only  wish 
you  success,  but  they  pledge  to  you  their  whole- 
hearted cooperation  to  give  to  tlie  United  Nations 
the  strength  and  the  will  to  maintain  peace  and 
freedom  in  this  interdependent  world." 

I  am  sure  that  the  Governor  of  the  State  of  New 
York  and  the  mayor  f)f  tliis  city  will  join  M-ith 
President  Truman  and  me  in  welcoming  you  to 
our  country  and  to  your  temporary  headquarters 
in  the  city  of  New  York. 

It  is  less  than  160  years  ago  that  our  13  sovereign 
states  entered  into  a  union  for  their  common 
defense  and  to  promote  the  general  welfare  and 
to  secure  the  blessings  of  liberty  for  themselves  and 


their  posterity.  That  was  then  an  untried  experi- 
ment, and  many  doubted  whether  such  a  union 
of  free  states  could  long  endure.  It  is  fitting  to 
recall  that  tliat  union  also  ciiose  as  its  temporary 
abode  the  city  of  New  York. 

Although  it  was  later  to  go  through  dark  days 
of  trial,  tliat  union  did  survive.  It  grew  in 
strength  and  has  played  its  part  in  preserving 
tlie  blessings  of  liberty  for  all  mankind.  Let  us 
hope  that  the  new  and  broader  union  of  states, 
which  has  also  chosen  New  York  City  as  its  tem- 
porary abode,  will  likeM'ise  grow  in  strength  and 
survive  every  crisis. 

It  is,  I  am  sure,  the  firm  resolve  of  the  American 
peojale  to  uphold  tlie  Charter.  I  am  sure  this  is 
the  equally  firm  resolve  of  all  the  peoples  of  the 
United  Nations  who  have  joined  together  to  pi-e- 
serve  the  peace  under  law. 

The  Charter  does  not  sanctify  ancient  privilege. 
It  does  not  attempt  to  outlaw  change  in  an  ever- 
changing  world.  It  does,  however,  obligate  all 
the  states,  large  and  small  alike,  to  refrain  from 
the  use  of  force  or  threat  of  force,  except  in  the 
defense  of  laM\ 

Nations,  like  individuals,  should  do  their  best 
to  adjust  their  disputes  without  resort  to  litigation. 
But  no  nation  has  the  right  to  take  the  law  into 
its  own  hands.  If  disputes  cannot  be  settled  by 
friendly  negotiations,  they  must  be  brought  before 
the  Security  Council. 

That  is  why  the  Security  Council  must  at  all 
times  be  prepared  to  act  prompt!}'.  That  is  why 
the  Security  Council  must  be  prepared  to  function 
continuously.    If  the  United  Nations  is  to  endure. 

Made  at  the  opening  meeting  in  New  York  Cit,v  on  Mar. 
2.^  and  released  to  the  press  on  the  same  date. 


567 


568 


DEPARTMENT  OF  STATE  BULLETIN 


there  must  be  no  excuse  or  need  for  any  nation 
to  take  the  law  into  its  own  hands. 

Upon  the  Security  Council  rests  the  gravest 
responsibility  for  the  maintenance  of  peace  and 
security.  It  must  of  nece.ssity  deal  with  the  prob- 
lems about  which  nations  in  tlie  past  have  been 
{prepared  to  fight. 

Upon  all  the  members  of  the  United  Nations 
rests  the  duty  to  cooperate  with  the  Council  to 
enable  it  to  meet  its  responsibility.  They  must 
be  willing  freely  and  frankly  to  discuss  their 
grievances  before  the  Council. 


Questions  affecting  the  peace  of  the  world  must 
not  be  treated  as  questions  of  honor  which  cannot- 
be  discussed.  Questions  of  honor  between  indi- 
viduals are  no  longer  left  to  the  ordeal  of  the  duel. 
Questions  of  honor  between  nations  cannot  be 
left  to  the  ordeal  of  battle. 

We  must  live  by  the  Charter.  That  is  the  road 
to  peace.  And  the  road  to  peace  is  the  road  the 
peoples  of  the  world  want  to  travel. 

We  are  here  to  carry  out  their  mandate.  We 
must  not  let  them  down. 


Discussion  of  Soviet— Iranian  Matters 


REMARKS  BY  AMBASSADOR  GROMYKO 


Mr.  Chairman:  During  the  conference  of  San 
Francisco  and  also  during  the  first  session  of  the 
General  Assembly  of  the  United  Nations,  held  at 
the  beginning  of  this  year  in  London,  the  Soviet 
Delegation  stated  clearly  the  position  of  the  Soviet 
Government  witli  regard  to  the  United  Nations. 

In  the.se  declarations,  special  reference  was  made 
to  the  importance  of  the  role  of  the  Security  Coun- 
cil as  the  chief  organ  for  tlie  maintenance  of  world 
peace  and  security.  It  is  hardly  necessary  for  me 
to  say  that  the  position  of  my  Government  with 
regard  to  the  United  Nations  has  not  changed. 

Striking  evidence  of  the  fact  that  the  position  of 
our  Government  is  unchanged  in  this  respect  was 
given  in  the  interview,  given  by  the  President  of 
the  Council  of  Ministers  of  the  Soviet  Union,  Gen- 
eralissimo Stalin,  to  a  representative  of  the  Asso- 
ciated Press  on  the  15th  of  March  of  this  year. 

During  this  interview.  Generalissimo  Stalin 
stated  that  he  attributed  great  importance  to  the 
United  Nations  and  regarded  it  as  a  serious  instru- 
ment for  the  maintenance  of  peace  and  security. 

During  this  interview.  Generalissimo  Stalin  em- 
phasized that  the  strength  of  this  international 
organization  lay  in  the  determination  to  apply 

'  Made  at  the  26th  meeting  of  the  Security  Council  in 
New  YorlJ,  N.  Y.,  on  Mar.  26.  Mr.  Groniyko,  Soviet  Am- 
bassador to  the  United  States,  is  the  Soviet  representative 
on  the  Security  Council. 


the  ])rinciple  of  equality  of  i^eoples  as  against  the 
domination  of  some  peoples  by  nations — equality 
of  nations  as  opposed  to  the  domination  by  some 
nations  of  others.  Generalissimo  Stalin  ex- 
pressed the  hope  that  by  applying  this  principle 
of  equality  between  nations,  the  United  Nations 
could  play  a  great  and  positive  role  for  the  main- 
tenance of  peace  and  security. 

Tliis  statement  defines  clearly  the  position  of  the 
Soviet  Government  v/'s-o-ri-s  the  United  Nations 
and  constitutes  a  contribution  to  the  peace  and 
seciu'ity  of  nations. 

After  making  these  general  remarks  I  would 
turn  to  the  concrete  subject  placed  on  the  agenda 
of  the  Security  Council. 

I  would  suggest  that  this  subject,  brought  to 
the  attention  of  the  Security  Council  by  the 
Iranian  Ambassador,  Mr.  Hussein  Ala,  in  a  letter 
of  the  18th  of  ISIarch,  is  not  fitting  to  be  placed 
on  the  agenda.  I  will  not  repeat  the  text  of  this 
letter.  I  will  not  quote  from  it  for  its  contents 
are  known  to  the  members  of  the  Security  Coun- 
cil, but  I  would  propose  that  as  this  subject  is  not 
fit  to  be  placed  on  the  agenda  of  the  council  it 
should  not  be  so  included,  and  I  will  now  give 
my  reasons  for  this  position. 

I  would  begin  by  making  an  official  declaration 
on  behalf  of  the  Soviet  Government.  Negotiations 
between  the  Soviet  Government  and  the  Govern- 


AI'RIL  7,  1946 


569 


meut  of  Iran  luive  resulted  in  an  agreement  re- 
gardinp-  the  evacuation  of  Soviet  troops  still  in 
tJiat  country.  It  is  already  known  that  the  evac- 
uation of  these  troops  began  some  time  ago.  on  the 
2d  of  March.  As  regards  the  evacuation  of  the 
troops  still  remaining  in  certain  zones  of  Iran, 
I  would  state  that  in  accordance  with  an  agree- 
ment concluded  between  the  Soviet  and  the  Ira- 
nian Governments  the  evacuation  of  these  troops 
began  on  the  24th  of  March,  that  is,  two  days  ago, 
and  will  probably  end  within  five  or  six  weeks 
unless  unforeseen  circumstances  arise. 

In  recent  times  the  question  of  relations  between 
the  Soviet  and  Iran  have  been  used  by  certain 
elements  to  aggravate  the  political  atmosphere  of 
the  world.  The}'  have  helped  the  activity  of 
certain  political  groups  who  aim  at  engaging  in 
propaganda  destined  to  foment  a  new  war  by 
sowing  distrust  and  anxiety  among  the  peoples. 

There  can  be  no  doubt  that  the  decision  taken 
by  the  Soviet  Government  in  this  matter  is  clear 
evidence  of  the  pacific  policy  pursued  by  my  Gov- 
ernment. The  policy  of  my  Government  is  aimed 
at  peace.  The  decision  of  the  Soviet  Government 
also  constitutes  a  reply  to  those  who,  though  hid- 
ing their  aggressive  designs,  are  working  against 
international  peace  and  security.  These  elements 
also  misuse  the  freedom  of  discussion  and  the  free- 
dom of  the  press  for  their  purposes. 

I  shall  no  doubt  have  occasion  later  to  show  the 
ill-founded  nature  of  the  arguments  put  forward 
by  the  Ambassador  of  Iran  in  his  communications 
to  the  Council.  For  the  present  I  would  limit  my- 
self to  saying  that  as  a  result  of  the  understanding 
I  have  already  referred  to,  concluded  between  the 
Soviet  Government  and  the  Iranian  Government, 
the  so-called  question  brought  up  by  Iran  does  not 
need  to  come  before  the  Security  Council.  There 
is  no  ground  for  bringing  this  subject  before  the 
Security  Council. 

In  spite  of  the  statement  made  by  the  Iranian 
Ambassador  in  his  letter  of  the  18th  of  March,  a 
letter  which  makes  no  mention  of  the  negotiations 
in  jn-ogress  between  the  Soviet  and  Iranian  Gov- 
ernments, and  in  sjiite  of  the  declaration  made 
in  the  second  letter  of  the  Iranian  Ambassador 
in  which  no  reference  is  made  to  the  fact  that  re- 
sults were  achieved  by  these  negotiations,  we  have 
the  fact  that  negotiations  have  taken  place.  This 
fact  is  confirmed  by  the  Soviet  Government  and 

688914--46 :i 


I  have  already  maile  mention  of  the  decision  taken 
by  my  Government  and  of  the  understanding 
reached  between  my  Goverinnent  and  the  Govern- 
ment of  Iran. 

The  fact  of  negotiations  is  also  confirmed  by  the 
Iranian  Prime  Minister,  Premier  Ahmad  Ghavam- 
es-Saltaneh.  So,  we  have  two  undisputed  facts 
which,  I  submit,  must  be  considered  when  we  ask 
ourselves  whether  this  Iranian  question  should  be 
placed  on  the  agenda  of  the  Security  Council. 

The  first  fact  is  that  negotiations  have  taken 
place  between  the  Governments  of  the  Soviet 
Union  and  Iran,  although  that  fact  is  denied  by 
the  Iranian  Ambassador,  and  secondly,  in  fact  an 
agreement  has  been  reached  between  the  two  Gov- 
ernments, in  virtue  of  which  the  Soviet  Govern- 
ment has  taken  the  decision  to  which  I  have  al- 
ready referred.  These  two  facts  have  to  be  taken 
into  account  when  we  consider  whether  the  subject 
is  to  be  placed  on  the  agenda  of  the  Council. 

Is  it  itossible,  in  view  of  these  two  facts  which 
I  have  mentioned,  to  ask  for  the  inclusion  on  the 
agenda  of  the  Security  Council  of  the  so-called 
Iranian  question?  My  reply  is  tliat  there  is  no 
ground  for  such  a  demand;  that  such  a  demand 
contradicts  the  facts  of  the  situation  and  cannot 
be  justified. 

In  conformity  with  the  resolution  adopted  by 
the  Security  Council  on  30  January  in  its  session 
at  London,  the  ditferences  between  the  Govern- 
ments of  the  Soviet  Union  and  Iran  were  to  be 
handled  by  negotiations  between  the  two  parties, 
bi-lateial  negotiations. 

In  conformity  with  this  decision,  negotiations 
between  the  two  Governments  did  take  place. 
These  negotiations  brought  about  positive  re- 
sults— the  positive  results  which  I  have  already 
mentioned — results  agreed  to  and  agreements 
between  the  two  parties.  How,  therefore,  can  we 
justify  a  demand  to  include  the  so-called  question 
of  Iran  on  the  agenda  of  the  Security  Council 
now?  Such  a  demand  would  be  justified  only  if 
the  negotiations  provided  for  in  the  resolution  of 
London  had  either  led  to  no  result  or  had  led  to 
results  which  were  not  positive.  Only  if  that  had 
taken  place  would  it  be  justifiable  to  argue  that 
the  subject  should  now  be  placed  on  the  agenda. 
However,  the  resolution  of  the  30th  of  January 
has  been  carried  out.  The  negotiations  have  taken 
place  and  a  positive  understanding  has  been 
reached. 


570 

Therefore,  the  decision  to  place  this  subject  on 
the  agenda  of  the  Security  Council  contradicts  not 
only  the  facts  of  the  situation,  but  the  letter  and 
the  spirit  of  the  resolution  adopted  by  the  Security 
Council  on  the  30th  of  January. 

For  these  reasons  I  propose  that  the  question 
raised  by  the  Iranian  Ambassador  in  the  letter  of 


DEPARTMENT  OF  STATE  BULLETIN 

the  ISth  of  March  should  not  be  included  in  the 
agenda  of  the  Security  Council.  I  make  this  pro- 
posal in  the  hope  that  the  Security  Council  will 
examine  it  with  attention,  objectively,  in  the  light 
of  the  circumstances  and  the  events  of  the  present 
time  which  justify  my  demand  for  the  exclusion 
of  this  subject  from  the  agenda. 


REMARKS  BY  THE  SECRETARY  OF  STATE  ^ 


I  cannot  agree  with  the  representative  of  the 
Soviet  Government  nor  support  the  amendment  he 
offers  to  the  agenda. 

The  facts  before  the  Council  are  that  the  Iranian 
Government,  through  its  representative,  brought 
to  the  attention  of  the  Council  a  dispute  between 
Iran  and  the  Soviet  Government  which  it  declared 
was  likely  to  endanger  international  peace  and 
security.  The  Iranian  Government  further  stated 
that  contrary  to  the  provisions  of  the  Treaty  of 
January  29.  1942,  the  Soviet  Government  was 
maintaining  troops  on  Iranian  territory  after 
March  2.  And  in  its  letter  to  the  Council,  it  fur- 
ther declared  that  the  Soviet  Government  was 
continuing  to  interfere  in  the  internal  affairs  of 
Iran  through  the  medium  of  Soviet  agents,  offi- 
cials, and  armed  forces. 

The  Iranian  Government,  through  its  repre- 
sentative, referred  to  these  facts  as  constituting 
new  developments  arising  since  the  action  of  the 
Council  on  January  30. 

Today  the  representative  of  the  Soviet  Govern- 
ment states  that  there  has  been  an  agreement.  If 
that  information  is  correct,  then  the  Soviet  Gov- 
ernment should  have  presented  to  the  Council  for 
its  consideration  a  joint  statement  from  the  Ira- 
nian Government  and  the  Soviet  Government  stat- 
ing that  an  agreement  had  been  arrived  at  and 
asking  that  there  be  no  further  consideration  of 
the  question.  But  that  is  not  the  case.  The  Iranian 
Government  has  not  withdrawn  its  letter. 

Though  we  have  tried  to  ascertain  the  facts,  we 
have  not  ascertained  from  the  Iranian  Govern- 
ment that  there  has  been  an  agreement. 

Therefore,  when  a  member  of  the  United  Na- 
tions advises  the  Council  that  a  situation  exists 
which  is  likel}'  to  threaten  the  peace  and  security 
of  the  world,  we  cannot  deny  to  that  nation  the 

'  Made  at  the  26tli  meeting  of  the  Secui-it.v  Council  in 
New  York  City  on  March  20. 


opportunity  to  be  heard,  to  say  whether  or  not 
there  has  been  an  agreement,  to  say  whether  or  not 
they  wish  to  withdraw  their  complaint. 

If  that  is  not  correct,  then  all  that  a  government 
represented  on  the  Council  would  have  to  do  when 
a  complaint  was  made  against  it  would  be  to  ad- 
vise the  Council  that  there  has  been  an  agreement, 
and  on  the  strength  of  that  to  ask  that  the  com- 
plaining government  be  denied  the  opportunity 
to  have  a  hearing. 

All  that  is  contemplated  now  is  the  adoption  of 
an  agenda  which  would  give  to  the  Iranian  Gov- 
ernment an  opportunity  to  present  facts  which  in 
the  opinion  of  that  Government  constitute  a  threat 
to  international  peace.  Surely  the  Council  cannot 
deny  to  any  member  of  the  United  Nations  the 
opportunity  to  present  a  request  of  that  kind,  filed 
in  complete  accord  with  the  provisions  of  the 
Charter. 

If  there  has  been  an  agreement,  certainly  the 
Council  would  want  to  hear  that  fact  stated  by  the 
representative  of  the  Iranian  Government.  If 
there  has  been  an  agreement,  we  must  assume  that 
the  representative  of  the  Iranian  Government  will 
make  a  statement  as  to  the  agreement.  We  must 
put  this  matter  on  the  agenda ;  we  must  give  to  the 
Iranian  Government  an  opportunity  to  say 
whether  or  not  there  has  been  an  agreement. 

If  there  is  not  a  complete  understanding  between 
the  Iranian  Government  and  the  Soviet  Govern- 
ment, that  fact  will  be  disclosed  when  opportunity 
is  given  to  both  sides  of  the  dispute  to  make  a 
statement.  And  when  that  is  done,  the  Council 
can  take  the  matter  under  consideration  and  deter- 
mine whether  it  can  take  any  action  to  bring  about 
complete  agreement.  But  certainly  it  cannot  deny 
to  a  meml)er  of  the  United  Nations,  stating  that 
a  condition  exists  which  threatens  international 
peace  and  security,  even  the  opportunity  to  present 
its  case. 


APRIL  7,  1946 


571 


REMARKS  BY  THE  SECRETARY  OF  STATE  DURING  DISCUSSION  ON  MOTIONS  ^ 


Mr.  Byrnes:  Mr.  President,  there  can  be  no 
question  that  the  representative  of  the  Soviet  Gov- 
ernment has  pi'esented  to  us  information  he  has 
received.  The  difficuky  is  that  there  apparently  is 
a  misunderstanding  between  the  officials  of  the 
Soviet  Government  and  the  officials  of  the  Iranian 
Government.  The  information  of  the  United 
States  Government  has  is  not  from  the  press  but 
from  its  official  representative  in  Tehran,  as  to  the 
attitude  of  the  Iranian  Government,  and  it  is  that 
there  has  been  no  settlement  of  the  dispute  between 
the  two  Governments.  The  information  coming 
not  from  the  press  or  radio  but  from  the  highest 
official  of  the  Iranian  Government  to  the  repre- 
sentative of  the  United  States  Government  is  that 
proposals  have  been  made  but  have  not  been  agreed 
to,  and  that  being  so,  there  was  no  change  of  his 
instructions  to  his  representative. 

Therefore,  the  United  States  Government  is  in 
tlie  position  of  having  here  before  the  Security 
Council  a  representative  of  the  Government  of 
Iran  who  in  compliance  with  the  provisions  of  the 
Chartei'  has  formally  filed  in  proper  form  a  com- 
plaint which  he  says  in  behalf  of  his  government 
threatens  international  peace  and  security,  and 
that  there  is  a  continuance  of  interference  with 
his  Government  by  Soviet  agents  and  armed  forces 
of  the  Soviet  Government. 

First,  a  motion  is  made  to  delete  the  whole  sub- 
ject from  the  agenda;  when  that  was  not  agreed 
to,  then  a  motion  to  postpone  discussion  until  April 
10.  In  the  face  of  this  situation  a  motion  is  made 
by  the  Representative  from  Egypt  that  the  Rep- 
resentative of  the  Government  of  Iran  be  per- 
mitted to  make  a  statement  to  the  Council  as  to 
whether  or  not  this  question  shall  be  postponed 
until  April  10. 

I  say  again  what  I  said  yesterday.  The  United 
States  Government  deems  it  of  vital  importance 
to  the  future  of  the  United  Nations.  If  a  small 
government  not  a  member  files  properly  and  in 
compliance  with  the  Charter  a  declaration  that 
foreign  troops  are  on  its  soil  and  are  interfering 
with  that  government,  and  any  of  the  governments 
here  represented  can  say  "we  think  there  is  an 
agreement,  or  our  information  is  that  there  is  an 
agreement,"  and  because  of  this  a  non-member  gov- 


ernment is  denied  even  the  right  to  present  its  case, 
then  all  confidence  in  the  effectiveness  of  the  Se- 
curity Council  will  disappear. 

We  are  asked  to  act  upon  press  statements.  That 
cannot  be  done  because  even  then  we  would  want 
to  have  before  us  the  press  statements. 

My  friend  the  representative  of  the  Soviet  Gov- 
ernment refers  to  an  interview  in  the  newspapers 
given  by  Premier  Ghavam.  I  hurriedly  wrote 
down  before  leaving  my  hotel  the  language  of  that 
interview,  and  here  is  what  the  interview  was :  "It 
makes  no  difference  if  the  Council  meets  now  or  in 
fifteen  days.  If  by  the  time  it  does  convene  we  have 
not  solved  the  fundamental  problem  of  evacuation 
of  troops  by  other  means,  then  our  case  will  be  in- 
cluded in  the  organization  agenda  under  security 
regulations." 

That  is  a  statement  that  anyone  would  make — 
I  don't  care  wlien  it  meets,  if  by  the  time  it  meets 
we  have  not  solved  this  problem  of  the  removal  of 
troops  from  our  borders  we  are  going  to  submit 
our  case  to  the  Security  Council  and  ask  for  its 
consideration. 

Gentlemen  of  the  Council,  we  cannot  act  upon 
that.  If  we  are  going  to  say  that  when  an  official 
representative  of  the  Iranian  Government  is  here, 
he  cainiot  even  be  heard  upon  the  request  of  post- 
ponement, I  do  not  see  how  a  non-member  will  ever 
get  into  this  Council,  for  if  the  motion  of  the 
Soviet  representative  were  adopted  and  discussion 
postponed  without  even  giving  him  a  chance  to 
be  heard  until  April  10,  then  on  April  10  any  mem- 
ber of  this  Council  or  the  Soviet  Representative 
could  move  that  it  be  postponed  until  October  10, 
and  if  the  Iranian  Representative  occupied  then, 
as  he  occupies  now,  a  seat  in  the  front  row  of  this 
hall,  the  motion  could  be  made  that  he  be  denied 
the  opportunity  to  speak ;  and  on  Octolier  10  some- 
one else  can  make  the  motion.  The  United  Nations 
will  die  in  its  infancy  because  of  inefficiency  and 
ineffectiveness. 

The  nations  not  represented  here — there  are 
forty  nations  not  represented  here — look  to  us  to 
give  to  each  one  of  them  the  assurance  that  the 
doors  of  the  Security  Council  are  open  to  them  to 

'  Made  at  the  27th  Meeting  of  the  Security  Council  on 
March  27. 


572 


DEPARTMENT  OF  STATE  BULLETIN 


pieseut  a  giievance  wlien  they  say  that  grievance 
threatens  international  security. 

Now  as  to  priority  of  motion.  Would  it  be  logi- 
cal in  view  of  the  motions  here  to  vote  first  upon 
the  motion  of  the  Soviet  Eepresentative  to  post- 
pone until  April  10  in  jJreference  to  the  motions 
that  the  Iranian  Eepresentative  be  heard  on  tliat 
postponement^  Suppose  the  motion  of  the  Soviet 
Ke2Jresentative  should  be  carried  and  the  matter  is 
postponed.  Then  the  Council  will  have  acted  and 
postponed  the  matter  which  Iran  says  threatens 
national  security,  without  ever  giving  Iran  the 
right  to  say  a  word  in  behalf  of  its  plea.  Vote  to 
postpone  first  and  then  hear  them  afterwards? 
Tliat  answers  itself. 

Obviously,  when  the  motion  was  presented  un- 
der the  language  of  the  Charter  several  motions 
were  nuule  to  give  Iran  a  chance  to  present  its 
views.  As  between  those  motions  I  think  the  Chair 
acted  perfectly  correctly.  They  should  be  con- 
sidered in  the  order  in  which  they  were  presented. 

The  motion  of  the  Representative  of  Egypt 
sliould  be  presented  first,  and  if  it  should  be  car- 
ried and  Iran  be  given  a  chance  to  say  a  word  as 
to  whether  or  not  this  case  should  be  postponed, 
then  if  the  Council  sees  proper  they  could  vote 
upon  the  motion  of  the  representative  from  Aus- 
tralia, and  the  Iranian  Representative  be  asked 
to  file  a  written  statemoit  in  addition  to  his  oral 
statement.  But  certainly  we  must  vote  on  the 
question  of  whether  we  hear  Iran  before  we  vote 
on  the  question  of  whether  we  postpone  the  matter 
without  giving  him  a  hearing. 

President:  Mr.  Byrnes,  did  I  understand  that 
you  wish  to  have  the  Egyptian  motion  put  to  a 
vote  first? 

Mu.  Byrnes  :  That  is  my  request  Mr.  President. 
I  suggest  that  the  Representative  of  Egypt  clarify 
his  motion.  As  I  understand  it  as  he  made  it,  it 
was  that  the  Representative  of  Iran  be  permitted 
to  come,  using  his  language,  to  the  bar  of  the  Coun- 
cil and  make  a  statement. 

President:  The  President,  of  course,  is  not  in 
a  very  good  position  to  judge  the  importance  of 
each  motion,  but  the  order  of  the  various  motions 
in  which  they  are  made  seems  to  be  a  safe  rule. 
However,  I  am  quite  ready  to  waive  on  that  point 
even  as  I  expressed  myself  to  be  i-eady  to  waive 
on  the  question  of  precedence  of  the  Australian 


motion  over  tlie  Egyptian  moti(ni,  but  I  nuist  con- 
fess that  I  am  still  partial  to  the  order  that  I  have 
already  given — that  much  by  charity  could  be  per- 
mitted by  the  President. 

However.  I  sliall  take  the  advice  of  the  Council 
wlieu  we  come  to  vote  uiion  the  various  motions. 

Mk.  Byrnes  :  In  my  previous  statement  I  ex- 
pressed the  view  that  the  motion  of  the  Represent- 
ative from  Egypt  constituted  an  amendment  to 
tlie  (original  motion  offered  by  the  Representative 
of  the  Soviet  (iovernnient.  But  I  realize  the  Chair 
is  acting  without  having  formal  rules,  and  when 
the  Chaii-  decided  to  give  preference  to  the  motion 
made  by  the  Soviet  Representative  because  it  was 
first  made,  I  gladly  acquiesced  in  that.  And  I 
think  that  the  same  order  then  should  be  followed, 
tlie  order  in  which  the  motions  were  made. 

I  would  have  to  object  to  the  motion  of  my  good 
friend,  the  Representative  from  Poland,  which 
wi>uld  make  the  last  first.  I  do  not  think  the  last 
should  be  first.  If  that  really  be  the  case,  I  might 
make  another  motion  myself  so  that  mine  would  be 
last.  I  think  the  Chaii'  was  right  in  solving  this 
difficult  situation  by  taking  the  motions  in  the 
order  in  which  they  were  filed.  We  took  the  Soviet 
motion  first;  the  next  was  a  motion  of  the  Repre- 
.sentative  from  Egypt;  the  next  was  the  motion  of 
the  Representative  of  Australia,  and  as  long  as 
we  have  started  that  way  I  submit  respectfully  we 
might  follow  that  rule. 

Mr.  President,  when  the  President  stated  before 
the  vote  was  taken  that  debate  was  closed,  along 
with  the  representative  of  France  I  reserved  the 
right  to  nuike  a  statement  afterward.  I  was 
prompted  to  make  that  reservation  because  of  the 
statement  made  by  the  Soviet  Representative  that 
the  Representative  of  the  United  States  wished 
to  have  the  Iranian  Representative  speak  upon 
the  substance  of  the  dispute  and  not  upon  the 
question  of  postponing.  I  wanted  to  call  to  the 
attention  of  the  Council  the  fact  that  in  mj'  state- 
ment today  and  yesterday  I  stated  quite  the  con- 
trary and  that  my  good  friend  representing  the 
Soviet  Republic  was  mistaken  in  his  view. 

The  fact  is  that  as  a  result  of  my  statement  today 
that  the  Iranian  Reju'cseutative  be  given  the  op- 
portunity to  express  to  the  Coiuicil  his  views  con- 


APRIL  7,  1946 


573 


cerning  the  question  of  postponement,  the 
Kepi-esentiitive  of  Egypt  amended  liis  motion  to 
accord  with  the  suggestion  I  made.  That  accounts 
for  the  change  in  the  motion  providing  that  the 
Iranian  Representative  appear  at  the  Council  to 
present  his  point  of  view. 

My  friend,  the  Representative  of  Egypt,  was 
good  enougli  to  accept  that  amendment.  So  that 
the  statement  of  the  Representative  of  tlie  United 
States  was  that  the  Iranian  Representative  should 
he  heard  upon  that  motion  before  it  was  taken. 
Because  of  the  decision  of  the  chairman  the  vote 
was  taken  first  on  the  motion  of  the  Representative 
of  the  Soviet  Union. 

It  does  not  change  my  view.  I  think  that  the 
Representative  of  Iran  should,  when  he  appears 
before  the  Council,  be  asked  to  state  his  views 
with  reference  to  any  postponement,  whether  it 
be  April  10th  or  April  1st,  after  he  has  made  his 
statement. 

As  I  have  stated  several  times  within  the  last 
few  days,  it  is  tlien  proper  for  any  member  of  the 
Council  to  move  to  make  such  disposition  of  the 
dispute  as  may  appear  wise  to  the  Council  in  view 
of  the  statements  made.  So  that  the  Representa- 
tive of  Iran  should,  in  my  opinion,  be  asked,  in 
accordance  with  the  resolution  of  the  Representa- 
tive of  Egypt,  first  to  state  his  views  concerning  a 
question  of  postponement;  then,  if  the  Council 
desires  to  postpone  further  consideration  for  one 
day,  or  two  days,  or  any  other  time,  the  Coimcil 
can  do  it.  If  no  one  wishes  to  postpone  it,  then 
we  will  proceed  to  the  consideration  of  the  sub- 
stance of  the  dispute. 

That,  Mr.  President,  is  my  idea  of  the  procedure 
that  should  be  followed  and  is  the  explanation  I 
desired  to  make  before  the  last  vote  was  taken.^ 


Confirmation  of 
John  G.  Winant 

On  ]\Iarch  28.  1946  the  Senate  confirmed  the 
nomination  of  John  G.  Winant  to  be  the  repre- 
sentative of  the  United  States  on  the  Economic 
and  Social  Council  of  the  United  Nations. 

'  The  proiMsal  of  the  Egyptian  Delegation  was  adopted 
by  8  affinnative  votes. 


FULLER — Continued  from  page  553. 

sabotage  our  own  work  by  a  premature  withdrawal 
or  relaxation  of  controls  through  refusal  to  admit 
the  long-term  nature  of  our  commitments. 

Emergent  problems  are  many.  Can  Germany 
be  democratized  and  permanently  pacified  with- 
out a  thorough-going  reform  of  the  socio-economic 
structure?  To  what  extent  can  such  a  reform  be 
imposed  and  enforced  by  military  government'^ 
Can  the  Germans  themselves  be  trusted  to  effect 
and  maintain  minimum  required  reforms?  In 
this  resj^ect  there  is  marked  contrast  between 
Soviet  policy,  which  is  positive  and  aggressive, 
and  British  and  American  policies,  which  rely 
mainly  on  such  negative  methods  as  the  exclusion 
of  Nazis,  militarists,  and  anti-democratic  elements 
from  public  life  and  leave  the  formulation  of  posi- 
tive political  programs  to  the  Germaais  them- 
selves. How  can  denazification  be  made  a  just  and 
effective  screening  process  that  will  exclude  from 
influence  all,  but  only,  evil  and  dangerous  ele- 
ments? Can  war  criminals  be  punished  without 
creating  a  new  martyrology?  Can  millions  of 
German  refugees  from  the  east  be  assimilated  into 
a  nation  already  overcrowded  and  with  its  econ- 
omy seriously  disabled?  And  how  can  repara- 
tions be  exacted  and  German  war  potential  eradi- 
cated without  destroying  or  unduly  weakening  the 
foundations  of  a  wholesome  economic  life  pre- 
requisite to  democratic  reformation? 

Differences  have  arisen  on  these  and  other  issues, 
but  not  fatal  differences.  The  area  of  agreement 
is  being  slowly  but  continually  enlarged.  Some 
exceedinglj'  stubborn  obstacles  have  been  over- 
come. The  political  reconstruction  oi  Germany 
can  follow  no  rigid  bluepi'int,  nor  can  a  nation  be 
remade  over  night.  Tlie  rebui'ding  of  the  Ger- 
man state  can  proceed  no  nH)re  rapidly  than  the 
development  of  rational  political  concepts  among 
the  Germans  and  the  habituation  of  the  German 
citizenry  to  democratic  practices.  It  must  be  con- 
tingent upon  the  accomplishment  of  Allied  ob- 
jectives for  Germany  and  continued  four-power 
harmony  and  cooperation.  The  stakes  are  high. 
Failure  would  mean  a  serious  set-back,  success  a 
major  triumph,  in  the  consolidation  of  a  new  and 
peaceful  Europe. 


The  Record  of  the  Week 


The  American  Press  Associations:  An  Opportunity 

and  Responsibility 

BY  ASSISTANT  SECRETARY  BENTON 


[Released  to  the  press  April  1] 

I  am  going  to  talk  toniglit  about  the  Associated 
Press  and  its  role  in  the  post-war  world. 

I  am  going  to  make  some  direct  charges  about 
the  Board  of  the  Associated  Press  that  are  painful 
to  make  and  may  not  be  pleasant  to  hear.  These 
explain  why  the  AP  Board  have  not  lived  up  to 
their  responsibility  to  the  people  of  the  United 
States  by  their  decision  to  prohibit  the  use  of  their 
service  in  our  short-wave  voice  broadcasting — a 
decision  which  jarecipitated  the  same  action  by  the 
United  Press. 

This  is  not  a  private  or  personal  squabble  be- 
tween me  and  Robert  McLean,  President  of  the 
AP,  or  Kent  Cooper,  whom  I  do  not  know,  or  the 
AP  Board  of  Directors.  Nor  is  this  merely  a  con- 
troversy between  the  AP  Board  and  the  United 
States  Government.  Nor  is  it  a  case  of  ojjposition 
by  the  AP  to  the  State  Department's  proposed 
program  of  information  and  cultural  exchanges 
in  foreign  countries,  for  Mr.  INIcLean  has  publicly 
endorsed  our  entire  proposed  nine-point  program 
with  the  exception  of  one — short-wave  broadcast- 
ing— and  his  exception  deals  only  with  about  15 
to  20  percent  of  our  short-wave  broadcasting 
output. 

The  framework  is  the  emergence  of  a  great  new 
problem  and  responsibility  that  is  an  integral  part 
of  the  startling  new  world  in  which  we  live.  My 
criticisms  do  not  reflect  on  the  honor  or  integrity 
of  the  members  of  the  Board  of  Directors  of  the 
AP.  I  am  glad  that  Mr.  Sulzberger,  one  of  the 
moving  forces  of  the  AP,  is  here  tonight,  and  I 
have  been  invited  to  meet  with  the  whole  Board 

Address  delivered  before  the  New  York  Newspiiper- 
woiiien's  riiih  in  New  York,  N.  Y.,  on  Mar.  31,  1946. 


on  April  17.  Nor  do  my  criticisms  reflect  on  the 
Board's  judgment,  in  the  conventional  sense,  as 
businessmen  and  newspapermen  and  keen  builders 
of  a  great  news  service. 

Boiled  down,  my  criticisms  are  that  the  AP 
Directors  have  allowed  certain  considerations  to 
determine  their  decision — considerations  which 
may  have  been  valid  in  a  world  that  no  longer 
exists — in  a  world  which  disappeared  in  the  great 
plumes  of  atomic  flame  rising  over  the  New  Mexico 
desert  last  July — but  which  should  not  control 
such  a  decision  in  today's  world. 

Our  privately  owned  and  operated,  free,  com- 
petitive wire  services  are  the  finest  and  most  im- 
partial yet  developed  in  this  world.  Their  present 
program  of  expansion  in  service  to  other  countries 
is  an  important  national  asset.  The  large-scale  en- 
trance of  the  AP  into  this  field  is  heartening.  The 
State  Department  should  do  all  it  legitimately  can 
to  help  break  down  barriers  to  such  expansion  and 
to  encourage  the  free  flow  of  news  throughout  the 
world.  The  three  American  wire  services,  both 
at  home  and  in  their  activities  abroad,  are  going 
to  have  a  lai'ge  hand  in  deciding  whether  this  is 
to  be  a  post-war  world — or  a  pre-war  world. 

Now  for  some  general  observations  which  apply 
to  all  three  of  the  services : 

All  of  the  world's  communities  should  be  the 
goal  of  the  AP,  the  UP,  and  the  INS,  instead  of 
just  some  of  them.  This  goal  should  include  a 
great  increase  in  the  volume  of  news  available  to 
every  foreign  editor  directly  from  American 
sources — perhaps  as  much  as  the  50,000  words  a 
day  laid  down  by  the  wire  services  for  many  a 
small  American  paper. 


574 


APRIL  7,  1946 


575 


Our  Americun  services,  if  they  sire  to  be  truly 
great  in  fact,  must  even  more  energetically  explore 
the  latest  techniques  and  technological  develop- 
ments in  communications.  They  must  aggressively 
develop  multiple  scattered  broadcasts,  which  can 
simultaneously  blanket  the  whole  world  at  a 
startlingly  low  cost. 

In  their  forthcoming  book,  "Peoples  Speaking 
to  Peoples",  Llewellyn  AVhite  and  Robert  Leigh 
state,  "The  British  have  discovered  that  the  prep- 
aration and  distribution  of  upward  of  fifty  thou- 
sand words  daily  to  more  than  three  thousand 
newspa]:)er  customers  in  every  part  of  the  world 
is  actually  less  expensive  than  Renter's  pre-war 
point-to-point  service  to  some  three  hundred 
metropolitan  cities.  The  French  and  Russians 
already  have  inaugurated  similar  services,  and  it 
is  to  be  hoped  that  AP,  UP,  and  INS  will  not  per- 
mit their  pre-war  attachment  to  the  older,  more 
"exclusive"  higher-profit-per-unit  methods  to 
stand  in  the  way  of  doing  their  full  share  in  the 
task  of  improving  understanding  among  peoples." 

Further,  if  our  American  wire  services  are  to 
be  great  in  fact,,  they  must  more  energetically  ex- 
pand the  writing  of  news  specially  keyed  for 
foreign  readers.  Such  news  would  contain  ex- 
l)lanations  and  backgrounds  which  are  adapted 
to  the  comprehension  of  people  unfamiliar  with 
our  customs  and  laws. 

This  coverage  can  empliasize  the  day-by-day 
life  of  the  Amei'ican  people  as  well  as  the  bizarre, 
the  spectacular,  or  the  gory,  which  may  today  be 
the  more  readily  salable.  It  can  tell  about  the  99 
percent  of  our  workers  who  are  not  on  strike,  the 
thirty-odd  million  youngsters  in  our  schools  who 
are  not  budiling  gangsters,  the  60  million  married 
men  and  women  who  are  not  getting  divorces. 
There  are  millions  of  Americans  who  are  working 
to  promote  religious  and  racial  tolerance. 

The  OWI  and  the  OIAA  pioneered  in  this  type 
of  foreign  news  service  during  the  war.  They 
had  much  to  learn  :  and  they  learned  nuich.  Such 
news  tells  the  foreign  reader  the  American  facts 
which  underlie  American  news  and  which  make 
it  more  comjirehensible.  How  can  you  under- 
stand Congress,  if  you  are  a  Bulgarian,  if  you 
have  no  knowledge  of  the  Constitution  and  our 
democratic  processes  ? 

Will  the  wire  services  in  this  post-war  world 
more  energetically  pursue  the  development  of 
their  service  to  foreign  countries?    Will  tliey  rec- 


ognize the  great  need  for  its  improvement?  \Vill 
they  show  more  positively  that  they  are  aware  of 
todaj''s  startling  new  world,  its  implications  and 
its  needs?  I  am  going  to  quote  Mr.  Sulzberger's 
newspaper  on  those  implications  and  needs. 
These  words  appeared  on  that  unforgettable  day 
after  the  world  learned  of  the  existence  and  use 
of  the  atomic  bomlj.  Of  all  the  millions  of  words 
written,  I  think  none  are  more  powerfvd  than 
these,  taken  fi-om  a  New  York  Times  editorial: 

"But  in  the  bewilderment  that  suth  a  stu- 
pentlous  announcement  must  bring,  one  conse- 
quence stands  clear.  Civilization  and  humanity 
can  survive  only  if  there  is  a  revolution  in  man- 
kind's political  thinking  .  .  .  we  must  change  our 
accustomed  ways  of  thinking  far  more  rapidly 
than  we  have  ever  had  to  change  them  Ijefore  .  .  . 
Wherever  the  press  and  information  and  discus- 
sion are  free,  wherever  the  facts  are  known  and 
government  is  really  the  choice  of  a  liberated 
l)eople,  that  people  will  want  peace  and  can  force 
its  government  to  keep  the  peace." 

Those  are  fine  words  and  frank  words.  But 
their  power  is  only  released  when  they  are  trans- 
lated into  action.  I  commend  these  words  to  the 
Board  of  Directors  of  the  Associated  Press  and  to 
Mr.  Sulzberger  as  one  of  the  AP  Directors.  Can 
the  Board  of  the  AP  change  its  "accustomed  ways 
of  thinking"?  The  task  of  informing  the  world 
about  the  L^nited  States  is  not  only  a  matter  of 
expansion  of  an  existing  business.  It  is  an  en- 
tirely new  job,  needing  an  entirely  new  viewpoint 
which  involves  deep  and  sympathetic  understand- 
ing of  the  direct  relationship  of  such  work  to  the 
cause  of  peace.  Yes,  it  involves  changing  the 
ways  of  thiidving  of  the  AP  Board  '"far  more  rap- 
itUy  than  ever  before." 

Today  at  Niirnberg  and  elsewhere  war  crimi- 
nals are  being  tried.  They  are  the  former  rulers 
who  plunged  the  world  into  war.  But  they  might 
well  have  l)een  powerless  if  their  peoples  had 
known  the  truth  about  the  United  States.  The 
war  was  made  certain  by  their  lack  of  knowledge, 
just  as  a  new  war  is  possible  if  the  same  lack  of 
knowledge  continues — if  the  same  distortions 
about  us  are  not  combated  with  the  truth. 

The  peoples  of  the  world  did  not  know  we  were 
powerful — powerful  beyond  their  wildest  dreams 
of  their  own  power.  They  were  told  we  were  weak 
and  divided,  our  economy  out  of  kilter,  our  people 
starving — and  thev  believed  it. 


576 


DEPARTMENT  OF  STATE  BULLETIN 


They  were  told  we  were  soft  and  flabby,  wishy- 
washy  and  scared — and  they  believed  it. 

They  were  told,  above  all,  that  the  American 
system  is  no  good,  that  it  doesn't  work,  that  democ- 
racy is  hypocrisy  and  so-called  ''freedom"  a  joke. 
They  were  told  that  our  leaders — government,  in- 
dustrial, labor,  and  press — were  scoundrels,  that 
our  culture  was  semi-barbaric,  our  ideals  tainted, 
our  morals  base.    And  they  believed  all  this. 

Now,  I  have  not  come  here  tonight  to  tell  you 
that  the  Associated  Press  and  the  United  Press 
and  International  News  Service  have  the  respon- 
sibility to  provide  a  comprehensive  program  of 
information,  knowledge,  and  cultural  interchange 
for  the  rest  of  the  world  abroad.  The  American 
people  have  that  responsibility  themselves  through 
their  government.  To  the  extent  that  the  wire 
services  voluntarily  participate  in  this  program, 
they  share  that  responsibility  with  the  rest  of  the 
American  people. 

Their  responsibility  takes  two  forms.  The  first 
is  to  expand  their  volume  and  coverage  and  greatly 
improve  their  newsfiles.  This,  I  believe,  they  will 
find  is  good  business.  The  second  is  not  to  oppose 
or  hamper  the  conduct  of  the  balance  of  the  pro- 
gram because  of  outmoded  thinking  and  baseless 
fears.  The  AP  and  UP  are  now  hampering  the 
conduct  of  foreign  policy  of  the  United  States  in 
the  govermnent's  operation  of  the  vital  inter- 
national voice  broadcasting. 

The  AP  Board  charged,  "that  Government  can- 
not engage  in  newscasting  without  creating  the 
fear  of  propaganda  which  necessarily  would  re- 
flect upon  the  objectivity  of  the  news  services  from 
which  such  newscasts  are  prepared." 

You  will  note  that  the  Board  did  not  charge 
that  newscasting  was  propaganda.  They  merely 
raised  the  fear  of  propaganda.  Are  these  pro- 
grams in  fact  propaganda  ? 

Eoscoe  Drummond,  chief  of  the  Washington 
Bureau  of  the  Christian  Science  Monitor,  and  one 
of  the  capital's  most  respected  cori'espondents,  re- 
ported last  week  that  he  had  just  read  60,000  words 
from  the  scripts  of  our  short-wave  broadcasts,  over 
a  repiesentative  48'-hour  period  when  important 
news  was  breaking.  "The  State  Department,"  Mr. 
Drvunmond  concludes,  "is  performing  a  needed, 
intelligent,  and  notably  objective  job  in  its  news 
radiocasting  to  foreign  countries  ...  Its  pur- 
pose, as  evidenced  by  the  radiocasts  themselves, 
is  not  to  wage  an   aggressive  propaganda   war 


around  the  world.  Init  to  present  to  distant  peoples, 
who  often  have  little  access  to  world  news  and 
less  to  American  news,  a  faithful,  factual,  balanced 
day-to-day  report  about  what  they  can't  afford 
not  to  know  from  the  United  States." 

Thus,  if  it  isn't  propaganda  that  is  the  worry 
of  the  AP  Board,  what  is  it^  The  AP  Board 
charges  that  our  broadcasting  will  be  lahellcd 
propaganda  by  many  people  abroad,  even  if  it 
isn't,  because  of  the  Government's  sponsor-ship. 
They  charge  that  this  label  will  reflect  upon  the 
AP  reports  quoted  in  the  broadcasts. 

Before  the  war  many  a  foreign  government  cor- 
rupted its  national  wire  service  through  subsidies 
and  otherwise.  Such  corruption  often  made  these 
services  more  propaganda  services  than  news  serv- 
ices. The  AP  Board  argued  that  it  didn't  want  to 
risk  any  such  suspicion  cast  upon  itself. 

The  idea  that  the  United  States  Government 
would  in  fact  influence  or  corrupt  the  AP  service 
is  manifestly  absurd.  Any  government  official  who 
attempted  it  would  be  ridden  out  of  government 
by  the  press  and  by  the  Congress.  Thus  the  alleged 
problem  is  purely  one  of  fear  and  not  of  fact.  Is 
the  fear  justified?  And  is  the  allegation  the  real 
explanation?  Is  there  more  hei-e  than  appears  on 
the  surface  in  the  AP's  brief  .statement? 

I  do  not  believe  the  alleged  fear  is  justified. 
The  AP  can  find  other  and  better  ways  to  prove 
to  the  world  that  it  is  independent  of  government 
control.  Doesn't  its  daily  file  prove  it  ?  Surely  the 
"AP  can  develop  enough  skill  in  salesmanship  to 
meet  this  alleged  sales  resistance.  The  INS  is 
finding  other  ways.  Such  better  ways  can  help 
show  the  world  what  we  mean  by  a  free  press  here 
in  this  countrj'.  In  educating  the  AP  cu.stomers 
to  the  fact  it  can  treat  the  United  States  Govern- 
ment as  a  customer,  Avithout  corrupting  itself,  the 
AP  can  help  educate  the  world  on  the  Bill  of 
Rights.  Further,  this  is  in  the  best  long-run  inter- 
ests of  the  Associated  Press,  as  well  as  those  of  the 
people  of  the  United  States. 

If  you  in  this  audience  had  exposed  yourself  to 
this  problem,  as  I  have,  it  wouldn't  take  you  long 
to  find  out  that  there  were  other  and  powerful 
factors  which  motivated  the  action  of  the  Board 
of  the  Associated  Press,  in  addition  to  its  allega- 
tion. 

Let's  look  at  the  first  unacknowledged  reason. 
It  was  plain  dislike  of  government — an  attitude 
of  "if  it's  the  government,  I'm  against  it."    I  too 


APRIL  7,  J  946 


577 


dislike  bureaucracy  and  red  tape.  I  too  fear 
excesses  by  government  otlicials.  But  there  are  a 
good  many  people  who  go  much  farther  than  that. 
They  don't  like  anything  about  government  that 
concedes  its  responsibilities  or  its  authoritj'.  They 
welcome  any  opportunity  to  take  a  crack  at  it — 
lit  any  level  of  the  anatomy.  They  do  not  dis- 
tinguish between  legitimate  partisanship  on  broad 
domestic  issues  and  the  problems  abroad  which 
involve  our  national  security  and  which  all  of  us 
Americans  share  in  common. 

This  is  precisely  the  way  some  of  the  AP 
Directors  felt,  even  if  subconsciously.  "When  this 
matter  came  up,  the  Board  lunged  out  blindly, 
partly  because  it  was  the  U.  S.  Government  with 
wliich  they  were  dealing.  You  will  note  that  they 
have  not  yet  lunged  out  at  foreign-government - 
controlled  radio — such  as  the  Canadian  Broad- 
casting Corporation,  BBC,  Radio  Bogota,  or  the 
Russian  Tass — all  of  which  they  supply  with  their 
service.  Will  they  please  explain  to  all  of  us  their 
justification,  from  the  standpoint  of  the  issues 
under  discussion  this  evening,  for  providing  their 
service  to  the  Russian  Government  and  the  British 
Government,  but  not  to  their  own  ? 

The  listener  in  Bulgaria  today  who  cannot  get 
AP  service  in  his  newspaper  cannot  get  it  from 
the  Voice  of  America  broadcasts  either.  But  the 
British,  the  Italians,  and  the  Russians  can  tell  him 
that,  if  he  wants  AP  service,  he  can  get  it  by  lis- 
tening to  them.  The  AP  itself  has  put  the  unjus- 
tified taint  of  propaganda  on  the  "Voice  of  America 
broadcasts. 

Now  for  the  second  luiacknowledged  reason  for 
the  decision  of  the  AP  Board.  This  was  perhaps 
more  powerful.  It  was  the  fear  of  competition. 
Some  of  the  Board  members  who  made  the  decision 
persisted  in  fearing  that  the  Government  was 
going  to  operate  a  rival  wire  service.  They  didn't 
want  this  Government  competition.  I  didn't  want 
it  either.  I  was  in  process  of  killing  off  the  Morse 
Code  service,  which  was  developed  by  the  war 
agencies  and  which  was  in  fact  competitive.  A 
phone  call  to  me  from  the  AP  would  have  deter- 
mined this. 

A  second  kind  of  competition  which  they  feared 
is  that  old  bogey,  voice  broadcasting  of  news. 
That  fear  on  the  part  of  many  newspaper  pub- 
lishers goes  back  many,  many  years. 

I  don't  need  to  remind  you  of  the  devices  that 
newspapei-s  discussed  to  stop  the  advance  of  domes- 


tic radio.  Many  tried  to  get  together  to  stop 
listing  radio  programs  in  their  papers.  Many 
tried  to  keep  news  from  being  broadcast,  by 
refusing  news  service  to  radio  stations.  Many 
tried  to  keep  broadcasting  stations  from  announc- 
ing any  news  before  it  had  appeared  on  the  streets 
in  their  papers. 

Well,  what  happened  ?  Radio  went  on,  built  up 
its  invaluable  news  broadcasting — and  more  news- 
papers were  sold  than  ever.  Radio  did  not  cut  into 
newspaper  circulation.  It  actually  stimulated  in- 
terest in  reading  the  newspapers.  It  obtained  new 
readers  for  them,  just  as  it  developed  new  fans  for 
baseball  and  the  opera. 

Now  the  old  bogey  is  arising  again  in  the  field 
of  newscasts  outside  the  United  States.  Some  of 
the  same  men  are  riding  the  same  old  wooden 
sawbuck.  They  fear  that  voice  broadcasting  will 
be  pirated  and  will  interfere  with  their  signing 
up  foreign  newspapers  for  their  wire  service.  This 
fear  is  just  as  unwarranted  as  it  ever  was,  and  it 
will  end  in  the  same  way. 

My  own  judgment  is  that  the  BBC  broadcasts 
are  promotion  for  Reuters.  Surely  the  Russians 
believe  that  their  broadcasts  are  promotion  for 
Tass.  Can  the  Voice  of  America  broadcasts  pos- 
sibly be  competitive  to  the  AP,  the  UP,  and  the 
INS?  "Wlien  the  listener  in  Iran,  into  which  no 
American  wire  service  goes,  learns  to  listen  to  the 
Voice  of  America  he  will  want  to  read  American 
news  in  his  papers.  His  paiiei'S  are  more  likely 
to  buy  the  AP— //  the  UP  or  the  INS  don't  get 
there  first.  If  there  is  some  pirating,  it  will  make 
it  easier,  and  not  more  difficult,  for  the  salesman 
to  walk  in  and  land  the  contract.  Our  experience 
in  Latin  America  demonstrates  this. 

Now  we  come  to  the  third  unacknowledged  rea- 
son for  the  AP's  cancellation  of  its  service  to  the 
Government — the  rivalry  between  the  wire  serv- 
ices themselves.  I  think  this  may  have  had  more 
to  do  with  the  decision  than  anything  else. 

For  many  years  the  United  Press  had  main- 
tained an  extensive  .service  to  foreign  countries. 
In  selling  its  service  the  UP  has  had  to  compete 
with  Reuters,  Havas,  Domei,  DNB,  Stefani,  the 
AP,  and  other  services.  One  of  the  main  selling 
points  of  the  UP  has  been  its  complete  independ- 
ence of  government  and  of  cartel  deals. 

Because  of  its  virtue,  as  well  as  its  product  and 
its  skill  in  selling,  the  UP  prospered  in  market 
after  market.    It  showed  the  AP  its  foreign  heels. 


578 


DEPARTMENT  OF  STATE  BULLETIN 


Now,  the  Associated  Press  is  developing  in  many 
new  foreign  markets.  It  needs  sales  arguments 
and  will  have  them,  particularly  if  it  can  get  the 
jump  on  the  UP.  It  wants  to  show  that  the  AP  is 
virtuous  too.  The  State  Department  seemed  an 
easy  punching  bag  for  a  quick  sales  advantage. 

These  three  unacknowledged  reasons,  I  believe, 
largely  motivated  the  AP  executive  staff  and 
Board.  Many  members  of  the  Board  were  uncon- 
scious of  the  full  motivations  themselves.  They 
acted  on  inadequate  data  from  their  staff.  They 
allowed  unwarranted  or  outmoded  fears,  pride  and 
prejudice,  and  minor  innnediate  connnereial  con- 
siderations to  direct  a  decision  against  their  own 
best  long-run  interests. 

My  mail  shows  tliat  many  forward-looking, 
intelligent  editors  and  publishers  of  America  have 
learned  enougli  about  the  problem  I  liave  discussed 
this  evening  to  oppose  the  action  of  the  AP  Board. 
Many  are  increasingly  alert  to  the  necessity  of 
transmitting  information  about  our  country  over- 
seas. If  all  the  facts  were  known  and  imderstood 
by  the  AP  membership  and  if  a  fair  vote  could  be 
taken,  I  am  confident  that  this  vote  would  repudi- 
ate the  actions  of  the  AP  Board.  The  New  York 
State  Publishers'  Association,  not  long  ago,  voted 
unanimously  in  favor  of  the  State  Department  in- 
formation program.  So  did  the  Kentucky  Press 
Association.  These  are  the  only  two  that  have 
voted. 


I  have  hopes  that  the  Board  of  tlie  AP  will  take 
the  time  to  understand  the  issues.  If  it  does,  I  am 
sure  a  formula  can  be  developed  which  will  again 
make  the  AP  service  avaihible  to  the  American 
l)eople  through  their  Government  for  overseas 
broadcasting.  The  Government  must  go  to  any 
i-easonable  length  to  reassure  the  Board  on  the 
integrity  of  its  operation  and  the  protection  of  the 
AP  service  from  unwarranted  or  harmful  charges. 

Consider  the  AP"s  stated  reason  f<n'  withdraw- 
ing its  service  and  the  three  unstated  reasons  I 
liave  added.  Combine  them  into  a  total — the  Four 
Fears  of  the  Board  of  the  Associated  Press — fear 
of  a  propaganda  label,  fear  of  government,  fear  of 
competition,  and  fear  of  the  sales  ability  of  other 
services.  Lay  these  Four  Fears  along  side  the 
statement  of  the  New  York  Times:  "Civilization 
and  liumanity  can  survive  only  if  there  is  a  revo- 
hition  in  nuinkind's  political  thinking."  Then  ask 
yourselves  whether  the  action  of  the  directors  of 
tiie  Associated  Press  is  of  the  kind  that  will  help 
civilization  and  humanity  to  survive. 

Where  the  alternatives  are,  on  the  one  hand,  tlie 
greatest  threat  of  mass  obliteration  the  world  has 
ever  known,  and  on  the  other  the  necessity  for  the 
greatest  and  quickest  spread  of  understanding 
among  tlie  jDeoples  of  the  world  that  lias  ever  been 
attempted,  can  this  action  be  called  living  up  to 
the  responsibility  of  a  free  press  in  the  post-war 
workl  ? 


TRADE  PROPOSALS— Continued  from  page  564 

trade  and  investment  in  accordance  with  com- 
parative efficiencies  of  production. 

"3.  Signatory  nations  will  make  arrangements, 
both  individually  and  collaboratively  under  the 
general  sponsorship  of  the  Economic  and  Social 
Council  of  the  United  Nations  Organization,  for 
the  collection,  analysis,  and  exchange  of  informa- 
tion on  emijloyment  problems,  trends,  and  policies. 

"4.  Signatory  nations  will,  nnder  the  general 
sponsoi'ship  of  the  Economic  and  Social  Council, 
consult  regularly  on  employment  problems  and 
hold  special  conferences  in  case  of  threat  of  wide- 
spread unemployment." 

Such  an  undei'taking,  if  accepted  by  this  and 


by  other  nations,  will  sui)plement  and  reinforce 
the  pledge  made  by  the  members  of  the  United 
Nations  ".  .  .  to  take  joint  and  separate  ac- 
tion in  coojjeration  with  the  Organization  for  the 
achievement  of  .  .  .  higher  standards  of  living, 
full  employment,  and  conditions  of  economic 
and  social  progress  and  development".  It  will 
provide  the  basic  framework  under  which  this 
pledge  can  be  implemented.  It  recognizes  the 
essential  fact  that  the  problem  of  wide-spread  un- 
employment and  of  international  trade  and  finance 
are  inseparably  related,  and  that  solutions  for 
such  problems  must  be  sought  through  mutually 
consistent  and  collaborative  measures  which  give 
due  recognition  to  the  interests  of  all  nations. 


APRIL  7,  1946 


579 


Enforcement  Program  Against  Dealing  With  Persons  and 
Firms  on  Proclaimed  List 


[Released  to  the  press  March  29] 

Statement  hy  the  Department  of  State 

It  is  and  will  continue  to  be  the  avowed  policy 
of  this  Government  to  apply  a  vigorous  enforce- 
ment program  against  dealing  with  i)ersons  and 
firms  on  the  I'roclaimed  List  of  Certain  Blocked 
Nationals.  Failure  to  obtain  a  Treasury  license 
before  engaging  in  trade  or  communication  with 
such  persons  and  firms  constitutes  a  violation  of 
the  Trading  with  the  Enemy  Act  and  regulations 
issued  thereunder  and  subjects  the  offender  to 
severe  penalties.  Recent  revisions  of  the  Pro- 
claimed List  do  not  in  any  way  lessen  the  obliga- 
tions of  persons  and  firms  subject  to  the  jurisdic- 
tion of  the  United  States  to  observe  all  the  regu- 
lations relating  to  the  List. 

It  already  has  been  pointed  out  that  many  of  the 
recent  deletions  from  the  Proclaimed  List  were 
made  as  a  result  of  the  changed  security  situation 
and  that  such  deletions  did  not  by  any  means 
imply  that  all  deleted  firms  now  are  satisfactory 
representatives  for  American  business.  In  this 
connection,  American  businessmen  are  cautioned 
not  to  establish  or  resume  commercial  or  financial 


relations  abroad  with  ex  -  Proclaimed  List  na- 
tionals before  checking  with  the  Commercial  In- 
telligence Branch  of  the  Department  of  Commerce 
as  to  the  desirability  of  such  relations.  Ikisiness 
connections  with  former  Proclaimed  List  indi- 
viduals and  firms,  except  those  who  have  been 
deleted  from  the  Proclaimed  List  without  preju- 
dice, would  have  to  be  a  factor  considered  in  cases 
arising  for  the  protection  of  American  interests 
abroad.  While  our  Government  always  will  pro- 
tect the  legitimate  rights  and  interests  of  Ameri- 
can business  abroad,  it  would  not  wish  to  take  any 
action  which  would  assist  those  who  formerly  had 
worked  against  our  vital  national  interests  and 
who  might  do  so  again  if  opportunity  offered. 

The  Department  of  Commerce  is  prepared  to 
supply  information  about  the  local  standing  of 
persons  and  firms,  including  those  previously 
listed,  and  to  submit  detailed  information  about 
the  suitability  of  these  and  other  foreign  firms  and 
individuals  as  trade  connections  from  a  conuner- 
cial  and  mercantile  standpoint. 

Made  on  belialf  of  the  Government  agencies  concerned 
with  the  Proclaimed  List  of  Certain  Bloclced  Nationals. 


Amendments  to  U.  S.-U.  K.  Patent  Interchange  Agreement 


[Released  to  the  press  March  29] 

On  March  27,  1946,  the  Governments  of  the 
United  States  and  of  the  United  Kingdom 
reached  agreement  on  amendments  to  the  Patent 
Interchange  Agreement  of  August  24,  1942.  The 
amended  agreement  was  signed  by  Dean  Acheson, 
Acting  Secretary  of  State,  and  Lord  Halifax,  the 
British  Ambassador. 

Under  the  terms  of  the  Patent  Interchange 
Agreement,  the  United  States  agreed,  pursuant 
to  the  authoritj'  of  the  Lend-Lease  Act,  to  fur- 
nish (xreat  Britain  with  licenses  under  American- 
owned  British  i)atents  for  use  in  war  production. 


and,  similarly.  Great  Britain  agreed  to  furnish 
to  the  United  States  licenses  under  British-owned 
American  ^^atents. 

The  amendments  are  intended  to  avoid  post- 
war infringement  litigation  arising  out  of  each 
government's  use  in  war  production  of  patents 
owned  by  nationals  of  the  other  government. 
The  amendments  contain  provisions  describing, 
clarifying,  and  implementing  the  indemnities  of 
the  two  governments,  and  incorporate  into  the 
Patent  Interchange  Agreement  provisions  which 
meet  practical  jjroblems  which  presented  them- 
selves during  the  conduct  of  operations  under  this 
agreement  during  the  war. 


580 


DEPARTMENT  OF  STATE  BULLETIN 


U.S.-U.K.  Agreements  on  Lend-Lease,  Reciprocal 
Aid,  and  Snrplns  War  Proj^erty 


[Released  to  the  press  March  27] 

On  December  6,  1945  the  Governments  of  the 
United  States  and  of  the  United  Kingdom  reached 
agreement  on  settlement  of  lend-lease,  reciprocal 
aid,  surplus  war  property,  and  caims.^  The  texts 
of  the  agreements  were  mutually  accepted  on 
March  27,  1946  by  the  two  Governments  in  a 
memorandum  signed  by  Dean  Acheson.  Acting 
Secretary  of  State,  and  the  Earl  of  Halifax,  Brit- 
ish Ambassador  to  the  United  States. 

The  agreements  cover  the  following  subjects: 

1.  Agreement  I — Lend-Lease  and  Reciprocal 
Aid  Pipelines  and  Offsetting  Arrangements.  This 
agreement  covers  the  delivery  of  tlie  lend-lease  and 
reciprocal  aid  "isipe-line"  after  V-J  Day,  consist- 
ing generally  of  goods  in  process  of  procurement 
or  delivery  on  that  date.  The  "pipe-lines"  are  to 
be  paid  for  on  the  basis  of  actual  costs.  The  bills 
will  be  accumulated  and,  together  with  the  net 
amount  of  claims  indicated  in  agreement  II,  will 
be  ofl'set  against  each  other  to  determine  part  of 
the  amount  due  to  the  United  States  in  the 
settlement. 

2.  Agreement  II — Settlement  of  Intergovern- 
mental Claims.  This  agreement  lists  the  hereto- 
fore unsettled  claims  of  each  Government  accepted 
by  the  other,  arising  out  of  the  war,  and  provides 
for  waiver  of  all  other  unsettled  war  claims  be- 
tween the  two  Governments. 

3.  Agreement  III — Civilian.  Holdings.  This 
agreement  transfers  title  to  lend-lease  stocks  held 
by  the  United  Kingdom  civilian  authorities  and 
reciprocal-aid  stocks  held  by  the  United  States 
civilian  authorities  on  V-J  Day,  both  of  which  are 
to  be  paid  for  as  part  of  the  $650,(X)0,000  settle- 
ment provided  in  the  joint  statement  of  Decem- 
ber 6,  1945. 

4.  Agreement  IV — Military  Holdings.  This 
agreement  covers  the  lend-lease  stocks  held  by  the 

For  complete  texts  of  the  agreements,  see  Department 
of  State  press  release  195  of  Mar.  26,  1946. 
'  BuiXETiN  of  Dec.  9,  194.'5,  p.  910. 


United  Kingdom  armed  forces  (except  petroleum, 
ships,  and  non-combat  aircraft)  and  reciprocal- 
aid  stocks  held  by  the  United  States  armed  forces. 
The  United  States  retains  full  recapture  rights, 
but  has  indicated  that  it  does  not  intend  generally 
to  exercise  these  riglits.  The  United  Kingdom  is 
responsible  for  making  arrangements  for  returns 
requested  by  the  United  States.  United  States 
consent  must  be  obtained  for  any  transfers  of  such 
holdings  for  military  use  to  third  governments  and 
for  diversions  for  civilian  use  in  countries  outside 
the  United  Kingdom  and  its  colonial  dependencies. 
Comparable  provisions  as  to  recapture  rights  and 
military  retransfers  cover  reciprocal-aid  stocks 
held  by  the  United  States  military  forces. 

5.  Agreement  V — Lend-Lease  Aircraft  (Non- 
Comhat)  and  Spares.  This  agreement  transfers 
title  to  specified  lend-lease  transport -type  aircraft 
(and  spares)  retained  by  the  United  Kingdom  for 
military  and  civilian  use,  and  provides  for  leasing 
additional  transport  aircraft.  Payment  will  be 
made  as  part  of  the  $650,000,000  settlement  pro- 
vided in  the  joint  statement  of  December  6,  1945. 
Other  transport  aircraft  are  to  be  returned  to  the 
United  States.  Combat  aircraft  are  governed  by 
the  Military  Holdings  Agreement,  no.  IV. 

6.  Agreement  VI — PetrolC'iim.  Tliis  agreement 
defines  the  United  States  lend-lease  share  of  petro- 
leum stocks  held  by  the  United  Kingdom  and  the 
United  Kingdom  reciprocal-aid  share  oi  stocks 
held  by  the  United  States  authorities.  Each  gov- 
ernment may  withdraw  specified  amounts  of  petro- 
leum jjroducts  from  its  share  of  stocks  for  use  by 
its  military  forces  without  payment  to  the  other. 
Title  to  lend-lease  stocks  other  than  those  reserved 
for  withdrawal  by  United  States  authorities  is 
transferred  to  the  United  Kingdom.  Similarly 
United  Kingdom  reciprocal-aid  stocks  are  trans- 
ferred to  the  United  States  authorities.  Payment 
for  stocks  so  transferred  will  be  made  as  part  of 
the  $650,000,000  settlement  provided  in  the  joint 
statement  of  December  6,  1945. 


APRIL  :.  ;y46 


581 


7.  Agreement  VII — Lend-Leasc  and  ReciprocaJ 
Aid  Inxt(ill(if'ion!<.  Each  Governnieiif  ;u-qnires  the 
lend-lease  or  reeiproeal-aid  eDinpoiieiit  of  instal- 
lations located  within  its  terriloi'V.  Payment  for 
instal]ation>  s-o  aciiuired  will  be  made  as  part  of 
the  if;(;5().(l()().()00  settlement  provided  in  the  joint 
statement  of  December  6.  1945.  Each  agrees  that 
in  the  use  and  disposition  of  sui'h  installations,  it 
will  not  discriminate  against  the  nationals  of  the 
other  Government.  Lend-lease  installations  in 
third  countries  ai'e  to  be  disposed  of  bv  mutual 
agreement. 

8.  Agreement  VIII — United  States  Army  and 
Navy  Siirptiis  Projirrti/  an<I  Surplus  In.stalJatiotix 
in  the  United  Kingdom.  This  agreement  trans- 
fers to  the  United  Kingdom,  subject  to  certain 
restrictions,  all  United  States  Army  and  Xavy 
surpluses  in  the  United  Kingdom.  Payment  for 
such  surpluses  will  be  made  as  part  of  the  over-all 
financial  settlement  provided  in  the  joint  statement 
of  December  6.  1945. 

9.  Agreement  IX — Tort  Claims.  The  United 
King(h)m  has  agreed  to  jM-ocess  damage  claims 
arising  before  December  31. 1949  against  the  United 
States  resulting  from  the  presence  oi'  United 
States  forces  in  the  United  Kingdom,  thereby  re- 
lieving our  Army  and  Navy  of  the  necessity  of 
maintaining  large  claims  commissions  there.  The 
United  States  has  made  a  similar  undertaking 
as  to  claims  against  the  United  Kingdom  arising 
before  February  28,  1946.  The  amounts  paid  by 
each  Government  will  be  included  in  the  offset 
provided  by  agreement  no.  I. 


Can  Japan  Become  a 
Democracy? 

On  March  23  the  question  of  whether  Japan  can 
liecome  a  democracy  was  discussed  on  the  NBC 
University  of  the  Air  series  entitled  "Our  Foreign 
Policy."  Partici])ants  in  the  broadcast  were  Sen- 
ator AA'illiam  F.  Knowland,  member  of  the  Mead 
Committee;  George  Atcheson,  Jr.,  Political  Ad- 
viser to  the  Supreme  Commander  of  the  Allied 
Powers  in  Japan:  and  Brig.  Gen.  George  F.  Sluil- 
gen.  Deputy  Director  of  the  Civil  Affairs  Division 
of  the  Wai'  Department. 

For  text  of  the  broadcast  see  Department  of 
State  jDress  release  182  of  March  23. 


U.  S.  Supports  Italy's  Entrance 
Into  World  Fund  and  Bank 

Some  of  the  reasons  for  United  States  support 
of  Italy's  entrance  into  the  World  Fund  and  Bank, 
which  was  announced  on  March  14  from  the  Mone- 
tary Conference  in  session  near  Savannah,  Geor- 
gia, were  ex^jlained  on  Saturday,  March  16,  by  an 
official  of  the  State  Department.  Italian  member- 
ship, he  said,  is  entirely  in  the  interest  of  all 
Europe;  we  cannot  get  Europe  back  on  her  feet 
without  getting  Italy  back  too.  Any  recovery  on 
the  part  of  45,000,000  Italians  is  greatly  in  the 
world's  interest,  and  membership  in  the  Bank  and 
Fund  would  speed  that  recovery.  While  the 
United  States  has  publicly  announced  its  support 
of  Italy's  application  as  well  as  those  of  Syria  and 
Lebanon,  Greece  has  protested  proposed  Italian 
membership.  This  will;  according  to  rule,  be  in- 
vestigated by  executive  directors. 

Although  certain  European  countries  want  rep- 
aration payments  from  Italy,  the  United  States 
holds  to  principle  that,  while  the  country  is  liable 
to  reparations,  actual  payments  should  be  limited 
to  token  amounts.  It  is  pointed  out  that  Italy  has 
always  been  weak  and  became  weaker  during  the 
Fascist  regime  through  its  totalitarian  form  of 
government  and  its  military  ventures.  When  Italy 
surrendered  and  entered  the  war  on  the  side  of 
the  Allies,  a  large  burden  wag  placed  upon  her. 
She  contributed  to  the  war  effort  with  supplies 
and  suffered  a  considerable  drain  on  her  economy. 
Although  there  is  a  large  charge  against  Italy  for 
the  civilian  supply  program — feeding  of  civilians, 
et  cetera — the  country  rendered  considerable  serv- 
ice as  a  co-belligerent,  fighting  two  years  on  the 
Allied  side. 


Customs 


Brazil — Venezuela 

The  models  vivendi  for  most-favored-nation 
customs  treatment,  signed  between  Brazil  and 
Venezuela  on  June  11,  1940.  will  remain  in  effect 
until  September  27,  1946. 


582 


DEPARTMENT  OF  STATE  BULLETIN 


The  Greek  Elections 


[Ki'Ii-aseU  to  tbe  press  March  31] 

Statement  released  to  the  press  simidtaneoiisly  in 
Athens,  London,  Paris,  and  Washington  hy  the 
Chiefs  of  the  Allied  Mission  to  Ohserve  the  Elec- 
tions in  Greece,  Ambassador  Henry  F.  Grady  of 
the  United  States,  Gen.  Amauld  Laparra  of 
France,  and  Mr.  R.  T.  Windle  of  the  United 
Kingdom. 

For  the  past  month  American,  French  and 
British  observation  teams  have  travelled  through- 
out Greece  collecting  information  and  reporting 
to  the  Allied  Mission  on  the  conditions  relative  to 
the  holding  of  elections  by  the  Greek  Government 
on  March  31st.  These  elections  have  now  been 
held.  The  judgment  of  the  Mission  on  whether 
these  elections  were  fair  and  free  can  be  reached 
on!}'  after  reports  from  all  over  Greece,  prepared 
by  observer  teams  on  election  day   and   a  short 


period  thereafter,  have  been  collected  and  evalu- 
ated. Before  complete  information  is  at  hand,  any 
conjectures  by  the  Mission  would  be  premature. 
In  order  to  insure  the  availability  of  all  perti- 
nent material,  the  week  following  the  elections 
will  be  used  for  the  preparation  of  the  fully  docu- 
mented report  of  the  Allied  Mission  which  will  be 
made  ready  for  signature  by  the  three  Chiefs  of 
Mission  on  the  night  of  Wednesday,  April  10th. 
Upon  signature  the  Mission  will  cable  to  the  Amer- 
ican, French  and  British  Governments  and  will 
transmit  to  the  Greek  Government  a  summary 
covering  the  high  lights  of  this  report  for  release 
by  them  simultaneously  in  Washington,  Paris, 
London  and  Athens.  Original  copies  of  the  full 
signed  report  will  then  be  transmitted  to  the  Greek 
Government  and  to  the  Governments  of  the  United 
States,  United  Kingdom  and  France. 


Air  Services  Agreement  Between  UK  and  Greece 


The  American  Ambassador  at  London  has  trans- 
mitted to  the  Secretary  of  State  British  Command 
Paper  6722  containing  the  text  of  an  agreement 
between  the  United  Kingdom  and  Greece  relat- 
ing to  air  sei-vices  in  Europe.  This  agreement, 
which  was  signed  at  Athens  on  November  26, 19-15, 
allots  to  the  United  Kingdom  two  routes  between 
London  and  Athens,  one  by  way  of  Vienna  and 
Belgrade,  the  other  by  way  of  Lyon,  Marseilles, 
Genoa,  and  Naples.  Two  routes  between  Athens 
and  London  to  be  operated  by  Greek  airlines  are 
to  be  designated  later. 

The  body  of  the  agreement  follows  in  most  re- 
spects the  standard  form  for  such  lagreements 
recommended  by  the  International  Civil  Aviation 
Conference  at  Chicago.  An  annex  to  the  agree- 
ment embodies  a  British  formula  for  determining 
capacity,  frequencies,  and  rates.  An  important 
feature  of  the  annex  is  a  provision  for  a  restricted 
version  of  the  so-called  "fifth  freedom"  privileges. 


whicli  allow  complete  liberty  for  the  transporta- 
tion of  air  traffic  to  and  from  other  countries  on 
long  international  air  routes.  Under  the  terms  of 
the  annex  the  exercise  of  such  larivileges  requires 
prior  consultation  with  the  other  countries  along 
the  routes  in  question  with  regard  to  whatever  ad- 
justments in  the  passenger  capacity  of  the  airlines 
may  be  necessary.  The  grant  of  such  privileges 
and  any  resulting  changes  in  capacity  are  to  b& 
governed  by  the  needs  of  the  territories  involved, 
the  adequacy  of  other  air-transport  services  in 
them,  the  economy  of  through  airline  operations, 
and  the  capacities  already  allotted  under  the  terms 
of  the  agreement. 

In  a  supplementary  exchange  of  notes  of  the 
same  date  the  United  Kingdom  gave  formal  notice 
of  termination  of  the  convention  regarding  air 
transport  services  signed  at  Athens  May  30,  1939, 
which  the  new  agreement  supersedes. 


APRIL  7,  1946 


583 


ir 


rans 


po 


rt    Agreements 


AGREEMENT  BETWEEN  THE  UNITED  STATES  AND  GREECE 


The  Department  of  State  announced  on  March 
29  the  conchision  of  a  bilateral  air-transport 
agreement  between  the  United  States  and  Greece, 
which  was  signed  in  Athens  on  March  '27  by  the 
American  Charge  d'Atfaires.  Karl  L.  Rankin,  and 
the  Greek  Minister  of  Foreign  Affairs,  Constan- 
tine  Rendis. 

The  annex  to  the  agreement  provides  that  au- 
thorized United  States  air  services  shall  obtain 
rights  of  transit  and  non-traffic  stop  in  Greek  ter- 
ritory, as  well  as  the  right  of  commercial  entry 
for  international  traffic  at  Athens.  The  United 
States  air  route  to  serve  Greece  will  extend  from 


the  United  States  to  the  Middle  East  via  Ireland, 
France,  Switzerland,  Italy,  Greece,  Egypt,  Pales- 
tine, Iraq,  and  Saudi  Arabia  to  India.  Reciprocal 
rights  are  granted  to  Greek  air  services  to  operate 
to  the  United  States  on  a  route  to  be  determined 
at  a  later  date. 

The  new  agreement  with  Greece  is  based  on  the 
standard  form  drawn  up  at  the  Chicago  aviation 
conference,  and  pei-mits  the  carriage  of  so-called 
"fifth  freedom"  traffic  under  the  principles  set 
forth  in  tlie  air-transport  arrangement  concluded 
between  the  United  States  and  the  United  King- 
dom at  Bermuda  on  February  11. 


AGREEMENT  BETWEEN  THE  UNITED  STATES  AND  FRANCE 


[Released  to  the  press  March  27] 

The  Department  of  State  announced  the  con- 
clusion of  a  bilateral  air  transpoi't  agreement  be- 
tween the  United  States  and  France,  which  was 
signed  in  Paris  at  10:  30  a.  m.,  E.S.T.,  March  27, 
by  the  American  Ambassador,  Jeiferson  Caffery, 
and  the  French  Minister  of  Foreign  Affairs, 
Georges  Bidault.  The  new  agreement  is  substan- 
tially similar  to  the  bilateral  arrangement  con- 
cluded between  the  United  States  and  the  United 
Kingdom  at  Bermuda  on  February  11.  The  body 
of  the  agreement  includes  the  so-called  "standard 
provisions"  drawn  up  at  the  Chicago  aviation  con- 
ference and  contains  13  articles  which  define  the 
conditions  under  which  the  scheduled  airline  serv- 
ices of  each  country  shall  l)e  operated  between  the 
territories  of  the  United  States  and  France. 

The  annex  to  the  agreement  contains  provisions 
similar  to  the  Bermuda  agreement  with  respect 
to  the  carriage  of  Fifth  Freedom  traffic,  the  control 
of  rates,  and  other  factors  relating  to  the  opera- 
tions of  scheduled  air  services. 

Schedules  1  and  2  of  the  annex  describe  the  spe- 
cific routes  to  be  operated  by  the  airlines  of  each 
countr}'.  In  addition  to  the  reciprocal  exchange 
of  transit  rights  and  stops  for  non-traffic  pur- 
poses, airlines  of  the  United  States  are  accorded 


rights  of  connnercial  entry  at  the  following  points 
in  French  territoi-y :  Paris,  Marseille,  Algiers,  Tu- 
nis, Dakar,  Pointe-Noire,  Brazzaville,  Guade- 
loupe, Martinique,  French  Guiana,  New  Caledonia, 
Saigon,  and  Hanoi.  French  air  services  are  to 
have  the  right  of  commercial  entry  at  the  following 
points  in  the  United  States  territory:  New  York, 
Washington,  Chicago,  Boston,  the  United  Nations 
site,  and  Puerto  Rico. 

A  protocol  signed  between  representatives  of  the 
two  Governments  at  the  same  time  the  agreement 
was  concluded  provides  for  certain  collateral  ar- 
rangements and  principles  in  connection  with  the 
operation  of  the  agreed  routes  and  services. 

The  new  agreement  supersedes  a  previous  air- 
transport ari'angement  signed  between  the  two 
Governments  on  July  15,  1939,  as  well  as  the  pro- 
visional arrangement  for  air  services  entered  into 
l)y  notes  exchanged  on  December  28  and  29,  1945. 
The  new  agreement  comes  into  force  immediately 
and  is  subject  to  termination  on  one  year's  notice. 

Assisting  Ambassador  Caffery  in  the  negotia- 
tions at  Paris  were  George  P.  Baker,  Garrison 
Norton,  and  Stokeley  W.  Morgan  of  the  Depart- 
ment of  State ;  L.  Welch  Pogue,  Chairman  of  the 
Civil  Aeronautics  Board;  and  Mr.  Howard  B. 
Railey,  Civil  Air  Attache  at  Paris. 


584 


DEPARTMENT  OF  STATE  BULLETiy 


FINAL  ACT  OF  THE  CIVIL  AVIATION  CONFERENCE 


Held  at  Bermuda,  January   15  to  February   11.   1946 


THE  GOVERNMENTS  OF  THE  UNITED  STATES 
OF  AMERICA  AND  OF  THE  UNITED  KINGDOM  OF 
GREAT  KRITAIN  AND  NORTHERN  IRELAND, 

Having  decided  tii  hold  between  themselves  a  Confer- 
ence on  Civil  Aviation, 

Appointed  their  respective  delegates  who  are  listed 
below : — 

Viiiltd  .states  of  America 

George  P.  Baker  (Chairman  of  Delegation),  Direi-tor, 
Office  of  Transport  and  Coninninications  Polic.v.  De- 
partment of  State. 

Harli-ke  Branch,  Member,  Civil  Aeronautics  Board. 

John  I).  Hickekson,  Deputy  Director,  Office  of  European 
Affair.s,  Department  of  State. 

Josh  B.  Lee,  Member,  Civil  Aeronautics  Board. 

SroKEi.ET  W.  Morgan,  Chief.  Aviation  Division.  Depart- 
ment of  State. 

Geokok  C.  Neal,  General  Counsel,  Civil  .\crona\itics 
Board. 

Garrison  Norton,  Deput.v  Director,  Office  of  Transport 
and  Conununications  Policy,  Department  of  State. 

L.  Welch  I'ogue.  Chairman,  Civil  Aeronautics  Board. 

Oswald  Ryan,  Member,  Civil  Aeronautics  Board, 

John  Sherman,  Liaison  Consultant,  Civil  Aeronautics 
Board. 

United  Kingdom 

Sir  Henry  Sei.f,  K.C.M.G.,  K.B.E.,  C.B.  [Cliuirmaii  of 
Deleiintioii),  Director-General  designate  of  Civil  Avia- 
tion. Ministry  of  Civil  Aviation. 

Sir  Wii-ijAM  P.  Hildreu.  Kt.,  C.B.,  O.B.E.,  Director-Gen- 
eral of  Civil  Aviation.  Ministry  of  Civil  Aviation. 

W.  J.  Bigg,  Colonial  Office. 

N.  J.  A.  Cheetham,  Foreign  Office. 

L.  J.  DuNNKTT,  Ministry  of  Civil  Aviation. 

I'eter  G.  Masefield,  Civil  Air  Attache,  British  Embassy, 
Wa.shington. 

Who  met  in  Bermuda  on  January  15,  1940. 

At  the  first  plenary  session,  Sir  Henry  Self  was  elected 
Chairman  of  the  Conference  and  the  Conference  was 
divided  into  two  Committees.  The  luembers  of  the  Com- 
mittees and  of  the  Subcommittees,  appointed  by  the 
respective  Chairmen  of  the  Delegations,  are  listed  below  : — 

COMMITTEE  I 

Rates  and  Traffic 

Chairman:  Sir  Henky  Self   (United  Kingdom) 


Members  : 


United  Kingdom 
Delegates 

Sir  William  Hildred 
N.  J.  A.  Cheefham 
L.  J.  Dunnett 
P.  G.  Masefield 


Advisers 
M,  E.  Bathurst 
Major  J.  R.  McCrindle 
Vern<in  Crudge 


United  States 
Delegates 
George  P.  Baker 
Harllee  Branch 
Josh  B.  Lee 
Stokeley  W.  Morgan 
George  C.  Neal 
L.  Welch  Pogue 
Oswald  Ryan 

Advisers 

Colonel  S.  E.  Gates 

W.  John  Kenney 

Major  General  L.  S.  Kufer 

Livingston  Satterthwaite 

Consultants 
Harold  I'.ixby 
Terrell  Drinkwater 
Julius  C.  Holmes 
John  Leslie 
John  E.  Slater 
James  H.  Smith,  Jr. 


Sub-Committee  1 — Poliey 

Chairman:   Sir  Henry   Self    (United  Kingdom) 
Members  : 
Delegates  Delegate 

George  P.  Baker  Sir  William  P.  Hildred 

Stokeley  W.  Morgan 
L.  Welch  Pogue 

Sub-Conimitlee  2 — Drafting 

Chairman:  Stokeley  W.  Morgan  (Uiiite<l  States) 

Members  : 

Delegates 


Delegate 
George  C.  Neal 

Adviser 

Colonel  S.  E.  Gates 


L.  J.  Dunnett 

Peter  Masefield 

Adviser 

M.  E.  Bathurst 


Sub-Committee  3 — Routes 
Chairman:  L.  Wfxch  Pooue   (United  States) 


APRIL  7,  1946 


585 


Dtlegates 
Harllee  Biaiicli 
Josh  B.  Lee 
Stokeley  W.  Morgiiu 
(ieorge  C.  Neal 
Oswald  Ryan 
Jolin  Sherman 

Atlrisvrs 
William  Fleming 
Colonel  S.  E.  Gates 
Major  General  L.  S.  Kiifer 
Comniauder  S.  Jurika 
Livingston  Satterthwaite 

Consultants 
Harold  Bixby 
Terrell  Drinkwater 
Julius  C.  Holmes 
John  Leslie 
John  R.  Slater 
James  H.  Smith,  Jr. 


Membebs  : 

Deles/at  cs 
Big 


W.  J. 

N.  J.  A.  Cheethani 
L.  .T.  Dunnett 
P.  G.  Masefield 


Adi'iscrs 

M.  E.  Bathurst 

Major  J.  R.  McCrindle 

Vernon  Crudge 


COMMITTEE  II 


Ad  hoc 


Chairman:  L.  J.  Duiniett  (United  Kingdom) 


Delegate 

N.  J.  A.  Cheethani 


Delegates 

John  D.  Hickerson 

Stokeley  W.  Morgan 

The  Final  Plenary  Session  was  held  on  February  11, 
1946. 

As  a  result  of  the  deliberations  of  the  Conference,  there 
was  formulated  an  Agreement  between  the  Government 
of  the  United  Kingdtim  and  the  Government  of  the  United 
States  relating  to  air  services  between  their  respective 
Territories,  and  Aiuiex  thereto.  (Attached  hereto  as 
Appendix  I.) 

The  following  re.solution  was  adopted  :- 

Whfeeas  representatives  of  the  two  Governments  have 
met  together  in  Bernuida  to  discuss  Civil  Aviation  matters 
outstanding  between  them  and  have  reached  agreement 
thereon, 

Whereas  the  two  Governments  have  to-day  concluded 
an  Agreement  relating  to  air  services  between  their  re- 
spective territories  (hereinafter  called  "the  Agreement"), 

And  Whekeas  the  two  Governments  have  reached  agree- 
ment on  the  procedure  to  be  followed  in  the  settlement 
of  other  matters  in  the  field  of  Civil  Aviation, 

Now  Therefore  the  representatives  of  the  two  Govern- 
ments in  Conference  resolve  and  agree  as  follows  :- 

(1)  That  the  two  Governments  desire  to  foster  and  en- 
courage the  widest  pcssible  distribution  of  the  benefits  of 
air  travel  for  the  general  good  of  mankind  at  the  cheapest 
rates  consistent  with  sound  economic  principles ;  and  to 
stimulate  international  air  travel  as  a  means  of  jiromoting 
friendly  understanding  and  good  will  among  peoples  and 
ensuring  as  well  the  many  indirect  benefits  of  this  new 


form  of  transportation   to   the  comnidu   welfare  of  both 
countries. 

(2)  That  the  two  Governments  reaffirm  their  adherence 
to  the  principles  and  purposes  set  out  In  the  preamble  to 
the  Convention  on  International  Civil  Aviation  signed  at 
Chicago  on  December  7,  1944. 

(3)  That  the  air  transport  facilities  available  to  the 
travelling  public  should  bear  a  close  relationship  to  the 
requirements  of  the  public  for  such  transport. 

(4)  That  there  shall  be  a  fair  and  equal  opportunity  for 
the  carriers  of  the  two  nations  to  operate  on  any  route 
between  their  respective  territories  (as  defined  in  the 
Agreement)  covered  by  the  Agreement  and  its  Annex. 

(5)  That  in  the  operation  by  the  air  carriers  of  either 
Government  of  the  trunk  services  described  in  the  Annex 
to  the  Agreement,  the  interest  of  the  air  carriers  of  the 
other  Government  shall  be  taken  into  con.sideration  so  as 
not  to  affect  unduly  the  services  which  the  latter  provides 
on  all  or  part  of  the  same  routes. 

(6)  That  it  is  the  understanding  of  both  Governments 
that  services  provided  by  a  designated  air  carrier  under 
the  Agreement  and  its  Annex  shall  retain  as  their  pri- 
mary objective  the  provision  of  capacity  ailequate  to  the 
traflic  demands  between  the  country  of  which  such  air 
carrier  is  a  national  and  the  country  of  ultimate  destina- 
tion of  the  traffic.  The  right  to  embark  or  disembark  on 
such  services  international  traffic  destined  for  and  com- 
ing from  third  countries  at  a  point  or  points  on  the  routes 
specified  in  the  Annex  to  the  Agreement  shall  be  applied 
in  accordance  with  the  general  principles  of  orderly  devel- 
opment to  which  both  Governments  subscribe  and  shall  be 
subject  to  the  general  principle  that  capacity  should  be 
related  : 

(a)    to  traffic  requirements  between  the  country  of  origin 

and  the  countries  of  destination  : 
(6)    to  the  requirements  of  through  airline  operation,  and 
(c)    to  the  traffic  requirements  of  the  area  through  which 

the  .-lirline  passes  after  taking  account  of  local  and 

regional  services. 
(71  That  insofar  as  the  air  carrier  or  carriers  of  one 
Government  ma.v  be  temporarily  prevented  through  diffi- 
culties arising  from  the  War  from  taking  immediate  ad- 
vantage of  the  opportunity  referred  to  in  paragraph  (4) 
above,  the  situation  shall  be  reviewed  between  the  Gov- 
ernments with  the  object  of  facilitating  the  necessary  de- 
velopment, as  soon  as  the  air  carrier  or  carriers  of  the 
first  Government  is  or  are  in  a  position  increasingly  to 
make  their  proper  contribution  to  the  service. 

(8)  That  duly  authorised  United  States  civil  air  car- 
riers will  enjoy  non-discriminatory  "Two  Freedom"  privi- 
leges and  the  exercise  (in  accordance  with  the  Agree- 
ment or  any  continuing  or  subse(|uent  agreement)  of  com- 
merc-ial  traffic  rights  at  airports  located  in  territory  of 
the  United  Kingdom  which  have  been  constructed  in  whole 
or  in  part  vi'ith  United  States  funds  and  are  designated 
for  use  by  international  civil  air  carriers. 

(9)  That  it  is  the  intention  of  both  Governments  that 
there  should  be  regular  and  frequent  consultation  between 
their  respective  aeronautical  authorities  (as  defined  in  the 
Agreement)  and  that  there  should  thereby  be  close  collab- 
oration in  the  observance  of  the  principles  and  the  imple- 


586 


DEPARTMENT  OF  STATE  BULLETIN 


mentation  of  the  provisions  outlined  lierein  and  in  the 
Agreement  and  its  Annex. 

In  Witness  Whereof  the  following  Delegates  sign  the 
present  Final  Act. 

Done  at  Bermuda  the  eleventh  day  of  February,  1946. 

This  Final  Act  shall  be  deposited  in  the  Archives  of 
the  Government  of  the  United  Kingdom  and  a  certified 
copy  shall  be  transmitted  by  that  Government  to  the 
Government  of  the  United  States  of  America. 


United  States  of  America 

George  P.  Baker 
Harllee  Branch 
Stokeley  W.  Morgan 
George  C.  Neal 
Garrison  Norton 
L.  Welch  Pogue 
Oswald  Ryan 
John  Sherman 


United.  Kingdom 

A.  H.  Self 
W.  P.  Hildred 
W.  J.  Bigg 
L.  J.  Dunnett 
Peter  G.  Ma.seDeld 


BILATERAL  AIR  TRANSPORT  AGREEMENT  BETWEEN  THE  GOVERNMENT  OF  THE 
UNITED  KINGDOM  AND  THE  GOVERNMENT  OF  THE  UNITED  STATES  OF  AMERICA 
RELATING  TO  AIR  SERVICES  BETWEEN   THEIR  RESPECTIVE  TERRITORIES. 


THE  GOVERNMENT  OF  THE  UNITED  STATES  OF 
AMERICA  AND  THE  GOVERNMENT  OF  THE  UNITED 
KINGDOM  OF  GREAT  BRITAIN  AND  NORTHERN 
IRELAND, 

Desiring  to  conclude  an  Agreement  for  the  purpose  of 
promoting  direct  air  communications  as  soon  as  possible 
between  their  respective  territories. 

Have  accordingly  appointed  authorised  representatives 
for  this  purpose,  who  have  agreed  as  follows  :- 

Article  1 

Each  Contracting  Party  grants  to  the  other  Contracting 
Party  rights  to  the  extent  described  in  the  Annex  to  this 
Agreement  for  the  purpose  of  the  establishment  of  air 
services  described  therein  or  as  amended  in  accordance 
with  Section  IV  of  the  Annex  (hereinafter  referred  to  as 
"the  agreed  services"). 

Article  2 

(1)  The  agreed  services  may  be  inaugurated  immedi- 
ately or  at  a  later  date  at  the  option  of  the  Contracting 
Party  to  whom  the  rights  are  granted,  but  not  before 
(a)  the  Contracting  Party  to  whom  the  rights  have  been 
granted  has  designated  an  air  carrier  or  carriers  for  the 
sijecified  route  or  routes,  and  (b)  the  Contracting  Party 
granting  the  rights  has  given  the  appropriate  operating 
permission  to  the  air  carrier  or  carriers  concerned  (which, 
subject  to  the  provisions  of  paragraph  (2)  of  this  Article 
and  of  Article  6,  it  shall  do  without  undue  delay). 

(2)  The  designated  air  carrier  or  carriers  may  be 
required  to  satisfy  the  aeronautical  authorities  of  the 
Contracting  Party  granting  the  rights  that  it  or  they  Is  or 
are  qualified  to  fulfil  the  conditions  prescribed  by  or  under 
the  laws  and  regulations  normally  applied  by  those 
authorities  to  the  operations  of  commercial  air  carriers. 

(3)  In  ai'eas  of  military  occupation,  or  in  areas  affected 
thereby,  such  inauguration  will  continue  to  be  subject, 
where  necessary,  to  the  approval  of  the  competent  military 
authorities. 

Article  3 

(1)  The  charges  which  either  of  the  Contracting  Parties 
may  imixise,  or  permit  to  be  imposed,  on  the  designated  air 
carrier  or  carriers  of  the  other  Contracting  Party  for  the 


use  of  airports  and  other  facilities  shall  not  be  higher  than 
would  be  paid  for  the  use  of  such  airports  and  facilities  by 
its  national  aircraft  engaged  in  similar  international  air 
services. 

(2)  Fuel,  lubricating  oils  and  spare  parts  introduced 
into,  or  taken  on  board  aircraft  in,  the  territory  of  one 
Contracting  Party  by,  or  on  behalf  of,  a  designated  air 
carrier  of  the  other  Contracting  Party  and  intended 
solely  for  use  by  the  aircraft  of  such  carrier  shall  be 
accorded,  with  respect  to  customs  duties,  inspection  fees 
or  other  charges  imposed  by  the  former  Contracting  Party, 
treatment  not  less  favourable  than  that  granted  to  na- 
tional air  carriers  engaged  in  International  air  services 
or  such  carriers  of  the  most  favoured  nation. 

(3)  Supplies  of  fuel,  lubricating  oils,  spare  parts,  regu- 
lar equipment  and  aircraft  stores  retained  on  board  air- 
craft of  a  designated  air  carrier  of  one  Contracting  Party 
shall  be  exempt  in  the  territory  of  the  other  Contracting 
Party  from  customs  duties,  inspection  fees  or  similar 
duties  or  charges,  even  though  such  supplies  be  used  by 
such  aircraft  on  flights  within  that  Territory. 

Article  4 

Certificates  of  airworthiness,  certificates  of  competency 
and  licenses  issued  or  rendered  valid  by  one  Contracting 
Party  and  still  in  force  shall  be  recognised  as  valid  by  the 
other  Contracting  Party  for  the  purpose  of  operation  of 
the  agreed  services.  Each  Contracting  Party  reserves  the 
right,  however,  to  refuse  to  recognise  for  the  purpose  of 
flight  above  its  own  territory,  certificates  of  competency 
and  licenses  granted  to  its  own  nationals  by  another  state. 

Article  5 

(1)  The  laws  and  regulations  of  one  Contracting  Party 
relating  to  entry  into  or  departure  from  its  territory  of 
aircraft  engaged  in  international  air  navigation  or  to  the 
operation  and  navigation  of  such  aircraft  while  within  its 
territory  shall  apply  to  aircraft  of  the  designated  air  car- 
rier or  carriers  of  the  other  Contracting  Party. 

(2)  The  laws  and  regulations  of  one  Contracting  Party 
relating  to  the  entry  into  or  departure  from  its  territory 
of  passengers,  crew,  or  cargo  of  aircraft  (such  as  regu- 
lations relating  to  entry,  clearance,  immigration,  pass- 
ports, customs  and  quarantine)  shall  be  applicable  to  the 
passengers,  crew  or  cargo  of  the  aircraft  of  the  designated 


APRIL  7,  1946 


587 


air  ciin-ifi-   or  carriers  of  tlie  otlier   Contracting   Party 
wliili"  in  llic  territory  of  the  first  Contracting  Party. 

Article  6 

Each  Contracting  Party  reserves  the  right  to  withhold 
or  revolve  the  exercise  of  the  rights  specified  in  the  Annex 
to  this  Agreement  by  a  carrier  designated  by  the  otlier 
Contracting  Party  in  the  event  that  it  is  not  satisfied  that 
substantial  ownership  and  effective  control  of  such  car- 
rier are  vested  in  nationals  of  either  Contracting  Party, 
or  in  case  of  failure  by  that  carrier  to  comply  with  the 
laws  and  regulations  referred  to  in  Article  5  hereof,  or 
otherwise  to  fulfil  the  conditions  under  which  the  rights 
are  granted  in  accordance  with  this  Agreement  and  its 
Annex. 

Article  7 

This  Agreement  shall  be  registered  with  the  Provisional 
International  Civil  Aviation  Organisation  set  up  by  the 
Interim  Agreement  on  International  Civil  Aviation  signed 
at  Chicago  on  December  7,  1944. 

Article  8 

Except  as  otherwise  provided  in  this  Agreement  or  its 
Annex,  if  either  of  the  Contracting  Parties  considers  it 
desirable  to  modify  the  terms  of  the  Annex  to  this  Agree- 
ment, it  may  request  consultation  between  the  aeronauti- 
cal authorities  of  both  Contracting  Parties,  such  consulta- 
tion to  begin  within  a  period  of  sixty  days  from  the  date  of 
the  request.  When  these  authorities  agree  on  modifica- 
tions to  the  Annex,  these  modifications  will  come  into  effect 
when  they  have  been  confirmed  by  an  Exchange  of  Notes 
through  the  diplomatic  channel. 

Article  9 

Except  as  otherwise  provided  in  this  Agreement  ,or  in 
its  Annex,  any  dispute  between  the  Contracting  Parties 
relating  to  the  interpretation  or  application  of  this  Agree- 
ment or  its  Annex  which  cannot  be  settled  through  con- 
sultation shall  be  referred  for  an  advisory  report  to  the 
Interim  Council  of  the  Provisional  International  Civil 
Aviation  Organisation  (in  accordance  with  the  provisions 
of  Article  III  Section  6  (8)  of  the  Interim  Agreement  on 
International  Civil  Aviation  signed  at  Chicago  on  Decem- 
ber 7,  1044)  or  its  successor. 

Article  10 

The  terms  and  conditions  of  operating  riglits  which  may 
have  been  granted  previously  by  either  Contracting  Party 
to  the  other  Contracting  Party  or  to  an  air  carrier  of  such 
other  Contracting  Party  shall  not  be  abrogated  by  the 
present  Agreement.  Except  as  may  be  modified  by  the 
present  Agreement,  the  general  principles  of  the  air  navi- 
gation arrangement  between  the  two  Contracting  Parties, 
which  was  effected  by  an  Exchange  of  Notes  dated  March 
28  and  April  5,  1935,  shall  continue  in  force  in  so  far  as 
they  are  applicable  to  scheduled  international  air  services, 
until  otherwise  agreed  by  the  Contracting  Parties. 

Article  11 

If  a  general  multilateral  air  Convention  enters  into 
force  in  relation  to  both  Contracting  Parties,  the  present 
Agreement  shall  be  amended  so  as  to  conform  with  the 
provisions  of  such  Convention. 


Article   12 

For  the  purposes  of  this  Agreement  and  its  Annex,  unless 
the  context  otherwi.se  requires  : 

(a)  The  term  "aeronautical  authorities"  shall  mean,  in 
the  case  of  the  United  States,  the  Civil  Aeronautics  Board 
and  any  person  or  body  authorised  to  perform  the  func- 
tions presently  exercised  by  the  Board  or  similar  functions, 
and,  in  the  case  of  the  United  Kingdom,  the  Minister  of 
Civil  Aviation  for  the  time  being,  and  any  person  or  body 
authorised  to  perform  any  functions  presently  exercised 
by   the  said   Minister   or   similar   functions. 

(b)  The  term  "designated  air  carriers"  shall  mean  the 
air  transport  enterprises  which  the  aeronautical  authori- 
ties of  one  of  the  Contracting  Parties  have  notified  in 
writing  to  the  aeronautical  authorities  of  the  other  Con- 
tracting Party  as  the  air  carriers  designated  by  it  in 
accordance  with  Article  2  of  this  Agreement  for  the  routes 
specified  in  such  notification. 

(c)  The  term  "territory"  shall  have  the  meaning  as- 
signed to  it  by  Article  2  of  the  Convention  on  International 
CiVil  Aviation  signed  at  Chicago  on  December  7,  1944. 

(d)  The  definitions  contained  in  paragraphs  (a),  (b) 
and  (d)  of  Article  96  of  the  Convention  on  International 
Civil  Aviation  signed  at  Chicago  on  December  7, 1M4  shall 
apply. 

Article  13 

Either  Contracting  Party  may  at  any  time  request  con- 
sultation with  the  other  with  a  view  to  initiating  any 
amendments  of  this  Agreement  or  its  Annex  which  may 
be  desirable  in  the  light  of  experience.  Pending  the  out- 
come of  such  consultation,  it  shall  be  open  to  either  Party 
at  any  time  to  give  notice  to  the  other  of  its  desire  to  termi- 
nate this  Agreement.  Such  notice  shall  be  simultaneously 
communicated  to  the  Provisional  International  Civil  Avia- 
tion Organisation  or  its  successor.  If  such  notice  is  given, 
this  Agreement  shall  terminate  twelve  calendar  months 
after  the  date  of  receipt  of  the  notice  by  the  other  Con- 
tracting Party,  unless  the  notice  to  terminate  is  withdrawn 
by  agreement  before  the  expiry  of  this  period.  In  the 
absence  of  acknowledgment  of  receipt  by  the  other  Con- 
tracting Party  notice  shall  be  deemed  to  have  been  re- 
ceived fourteen  days  after  the  receipt  of  the  notice  by  the 
Provisional  International  Civil  Aviation  Organisation  or 
its  successor. 

Article  14 

This  Agreement,  including  the  provisions  of  the  Annex 
hereto,  will  come  into  force  on  the  day  it  is  signed. 

In  Witness  whereof  the  undersigned,  being  duly  author- 
ised thereto  by  their  respective  Governments,  have  signed 
the  present  Agreement. 

Done  in  duplicate  this  eleventh  day  of  February  Nine- 
teen-hundred-and-forty-six  at  Bermuda. 

For  the  Government  of  the  United  States  of  America 

George  P.   Baker 
Harllee  Branch 
Stokeley  W.  Morgan 
Garrison  Norton 
L.  Welch  Pogue 
Oswald  Ryan 


588 


DEPARTMENT  OF  STATE  BULLETIIS 


For  the  Goveiniiieut  of  the  United  Kingdom  of  Great 
Britain  and  Northern  Ireland 

A.    H.    Self 
W.  P.  Hildred 
W.  J.  Bigg 
L.  J.  Dunnett 
Peter  G.  Masefield 

ANNEX 


For  the  pni'poses  of  operating  air  services  on  the  routes 
specilied  below  In  Section  III  of  this  Annex  or  as  amended 
in  accordance  with  Section  IV  hereof,  the  desiianated  air 
carriers  of  one  of  the  Contracting  Parties  shall  be  accorded 
in  the  territory  of  the  other  Contracting  Party  the  use  on 
the  said  routes  at  each  of  the  places  specified  therein  of  all 
the  airports  (being  airports  designated  for  international 
air  services),  togetlier  with  ancillary  facilities  and  rights 
of  transit,  of  stops  for  non-traffic  purposes  and  of  commer- 
cial entry  and  departure  for  international  traffic  in  pas- 
sengers, cargo  and  mail  in  full  accord  and  compliance  with 
the  principles  recited  and  agreed  in  the  Final  Act  of  the 
Conference  on  Civil  Aviation  held  between  the  Govern- 
ments of  the  United  States  and  of  the  United  Kingdom 
at  Bermuda  from  Jaiuiary  15  to  February  11,  1946,  and 
subject  to  the  provisions  of  Sections  II  and  V  of  this 
Annex. 

II 

((()  Rates  to  be  charged  by  the  air  carriers  of  eitlier 
Contracting  Party  between  points  in  the  territory  of  the 
United  States  and  points  in  the  territor.v  of  the  United 
Kingdom  i-eferred  to  in  this  Annex  shall  be  sub.1ect  to  the 
approval  of  the  Contracting  Parties  within  their  respective 
constitutional  powers  and  obligations.  In  the  event  of 
disagreement  the  matter  in  dispute  shall  be  handled  as 
provided  below. 

(6)  The  Civil  Aeronautics  Board  of  the  United  States 
having  announced  its  intention  to  approve  the  rate  confer- 
ence machinery  of  the  International  Air  Transport  Asso- 
ciation (hereinafter  called  "lATA"),  as  submitted,  for  a 
period  of  one  year  beginning  in  February.  1946,  any  rate 
agreements  concluded  through  this  machinery  during  this 
lieriod  and  involving  United  States  air  carriers  will  be 
subject  to  approval  by  the  Board. 

(e)  Any  new  rate  proposed  by  the  air  carrier  or  carriers 
of  either  Contracting  Party  shall  be  filed  with  the  aero- 
nautical authorities  of  both  Contracting  Parties  at  least 
thirty  days  before  the  proixised  date  of  introduction  ;  pro- 
vided that  this  ))eriod  of  thirty  da.vs  may  be  reduced  in 
particular  cases  if  so  agreed  by  the  aeronautical  author- 
ities of  both  Contracting  Parties. 

((?)   The  Contracting  Parties  hereby  agree  that  where: 

(1)  during  the  period  of  the  Board's  approval  of  the 
lATA  rate  conference  inacliiner.v,  either  any  specific  rate 
agreement  is  not  approved  within  a  reasonable  time  by 
either  Contracting  Party  or  a  conference  of  lATA  is 
unable  to  agree  on  a  rate,  or 

(2)  at  any  time  no  lATA  machinery  is  applicable,  or 

(3)  either  Contracting  Party  at  any  time  withdraws 


or  fails  to  renew  its  approval  of  that  part  of  the  lATA 

rate  conference  machinery  relevant  to  this  provision, 
the  procedure  de.scribed  in  paragraphs   (c),   U)   <ind   ((/) 
hereof  shall  apply. 

(c)  In  the  event  that  power  is  conferred  b.v  law  upon 
the  aeronautical  authorities  of  the  United  States  to  fix 
fair  and  economic  i-ates  for  the  transport  of  persons  and 
proiierty  by  air  on  international  services  and  to  suspend 
proposed  rates  in  a  manner  comparable  to  that  in  which 
the  Civil  Aeronautics  Board  at  present  is  empowered  to 
act  with  respect  to  such  rates  for  the  transport  of  persons 
and  proiierty  by  air  within  the  United  States,  each  of  the 
Contracting  Parties  shall  therafter  exercise  its  authority 
in  such  maimer  as  to  [irevent  an.y  rate  or  rates  proposed 
by  one  of  its  carriers  for  services  from  the  territory  of  one 
Contracting  Party  to  a  point  or  points  in  the  territory  of 
the  other  Contracting  Party  from  becoming  effective,  if,  in 
the  judgment  of  the  aeronautical  authorities  of  the  Con- 
tracting Party  whose  air  carrier  or  carriers  is  or  are  pro- 
posing sncb  rate,  that  rate  is  unfair  or  uneconomic.  If 
one  of  the  Contracting  Parties  on  receipt  of  the  notification 
referred  to  in  paragraph  (c)  above  is  dissatisfied  with  the 
new  rate  proposed  by  the  air  carrier  or  carriers  of  the 
other  Contracting  Party,  it  shall  so  notify  the  other  Con- 
tracting Party  prior  to  the  expiry  of  the  first  fifteen  of  the 
thirty  days  referred  to,  and  the  Contracting  Parties  shall 
endeavour  to  reacli  agreement  on  the  appropriate  rate.  In 
the  event  that  such  agreement  is  reached  each  Contracting 
Part.v  will  exercise  its  statutory  powers  to  give  effect  to 
suth  agreement.  If  agreement  has  not  been  reached  at  the 
end  of  the  thirty  day  period  referred  to  in  paragraph  (c) 
above,  the  proiiosed  rate  may,  uidess  the  aeronautical 
authorities  of  the  country  of  the  air  carrier  concerned  see 
fit  to,  suspend  its  operation,  go  into  effect  provisionally 
pending  the  settlement  of  any  dispute  in  accordance  with 
the  procedure  outlined  in  paragraph  (.g)  below. 

(/)  Prior  to  the  time  when  such  power  may  be  conferred 
by  law  upon  the  aeronantical  authorities  of  the  United 
States,  if  one  of  the  Contracting  Parties  is  dissatisfied  with 
any  new  rate  proposed  by  the  air  carrier  or  carriers  of 
either  Contracting  Party  for  services  from  the  territory 
of  one  Contracting  Party  to  a  point  or  points  in  the  terri- 
tory of  the  other  Contracting  Party,  it  .shall  so  notify  the 
other  prior  to  the  expiry  of  the  first  fifteen  of  the  thirty 
day  period  referred  to  in  paragraph  (c)  al)ove,  and  the 
Contracting  Parties  shall  endeavour  to  rea<h  agreement  on 
the  appropriate  rate.  In  the  event  that  such  agreement  is 
reached  eacb  ('ontracting  Party  will  use  its  best  efforts 
to  cause  such  agreed  rate  to  be  put  into  effect  by  its  air 
carrier  or  carriers.  It  is  recognised  that  if  no  such  agree- 
ment can  be  reached  prior  to  the  exijiry  of  such  thirty 
days,  the  Contracting,  Party  raising  the  objection  to  the 
rate  may  take  such  steps  as  it  may  consider  necessary  to 
prevent  the  inauguration  or  continuation  of  the  service  in 
question  at  the  rate  complained  of. 

(g)  When  in  any  ca.se  under  paragraphs  (c)  and  if) 
above  the  aeronautical  authorities  of  the  two  Contracting 
Parties  caimot  agree  within  a  reasonable  time  upon  the 
appropriate  rate  after  consultation  initiated  by  the  com- 
plaint of  one  Contracting  Party  concerning  the  proposed 
rate  or  an  existing  rate  of  the  air  carrier  or  carriers  of  the 
other  Contrai'ting  I'art.v,  upon  the  request  of  either,  both 


APRIL  7,  1946 


589 


Contractins  Parties  shall  submit  the  question  to  the  Provi- 
sional International  Civil  Aviation  Organisation  or  to  its 
successor  for  an  advisory  report,  and  each  Party  will  use 
its  best  efforts  under  the  jwwers  available  to  it  to  put  into 
effect  the  opinion  expressed  in  such  report. 

(ft )  The  rates  to  be  agreed  in  accordance  with  the  above 
paragraphs  shall  be  fixed  at  reasonable  levels,  due  regard 
being  paid  to  all  relevant  factors,  such  as  cost  of  operation, 
reasonable  profit  and  the  rates  charged  by  any  other  air 
carriers. 


tyi  The  Executive  Branch  of  the  Government  of  the 
United  States  agrees  to  u.se  its  best  etl'orts  to  secure  legis- 
lation empowering  the  aeronautical  authorities  of  the 
United  States  to  fix  fair  and  economic  rates  for  the  trans- 
port of  persons  and  property  by  air  on  international  serv- 
ices and  to  suspend  proposed  rates  in  a  manner  comparable 
to  that  in  which  the  Civil  Aeronautics  Board  at  present  is 
empowered  to  act  with  respect  to  such  rates  for  the  trans- 
port of  persons  and  property  by  air  within  the  United 
States. 


Ill 

(a)   ROUTES  TO  BE  SERVED  BY   AIR   CARRIERS  OF  THE  UNITED  KINGDOM 
(In  both  directions;  stops  for  non-traffic  purposes  omitted) 


Point  of  Departure 

Intermediate  Points 

Destination  in  U.  S.  Territory 

Points  Beyond 

(Avif  one  or  innrf  of  the  following) 

(Any  one  or  more  of  the  following,  if 
desired) 

(.Any  one  or  more  of  tke  following, 
if  desired) 

(Any  one  or  more  of  Ihe  following,  if 
desired) 

1.  London 

New  York 

San  Francisco  and  the  points 
on  Route  7. 

2.   London 
Prestwick 

Shannon 

Iceland 

Azores 

Bermuda 

Gander 

Montreal 

New  York 

Chicago 

Detroit 

Philadelphia 

Washington 

Baltimore 

Boston 

3.*London 
Prestwick 

Shannon 

Iceland 

Azores 

Bermuda 

Gander 

Montreal 

New  York 

(a)  New  Orleans 
Mexico  City 

(b)  Cuba 
Jamaica 
Panama 

A  point  in  Colombia 
A  point  in  Ecuador 
Lima 
Santiago 

4.   Bermuda 

Baltimore 
Washington 
New  York 

Montreal 

5.*Trinidad 

British  Guiana 

Jamaica 

British  Honduras 

Tobago 
Barbados 
Grenada 
St.  Vincent 
St.  Lucia 
Antigua 
St.  Kitts 
St.  Thomas 
San  Juan 
Ciudad  Trujillo 
Port-au-Prince 
Jamaica 
Cuba 
Nassau 
-  Bermuda 

Miami 

See  footnote  at  end  of  table. 


590  DEPARTMENT  OF  STATE  BULLETIN 

(a)   ROUTES  TO  BE  SERVED  BY  AIR  CARRIERS  OF  THE  UNITED  KINGDOM— Continued 


Point  of  Departure 

Intermediate  Points 

Destination  in  U.  S.  Territory 

Points  Beyond 

(Any  one  or  more  of  the  following) 

(.Any  one  or  more  of  the  following,  if 
desired) 

{Any  one  or  more  of  the  following, 
if  desired) 

{Any  one  or  more  of  the  following,  if 
desired) 

6.  Nassau 
Cat  Cay 

Miami 
Palm  Beach 

7.  Singapore 
Hong  Kong 

Manila 

Guam 

Wake 

Midway 

Honolulu 

San  Francisco 

• 

(b)   ROUTES  TO  BE  SERVED  BY  AIR  CARRIERS  OF  THE  UNITED  STATES 
(In  both  directions;  stops  for  non-traffic  purposes  omitted) 


1.  *Chicago 

Gander 

London 

Amsterdam 

Detroit 

Greenland 

Prestwick 

Helsinki 

Washington 

Iceland 

Copenhagen 

Philadelphia 

Shannon 

Stavanger 

New  York 

Oslo 

Boston 

Stockholm 

Baltimore 

1 

Warsaw 

Berlin 

Frankfurt 

Moscow 

Leningrad 

Points  in  the  Baltic  countries 

2.   *New  York 

Gander 

London 

Brussels 

Chicago 

Greenland 

Prestwick 

Munich 

Philadelphia 

Iceland 

Prague 

Baltimore 

Shannon 

Vienna 

Washington 

Budapest 

Boston 

Belgrade 

Detroit 

Bucharest 

Istanbul 

Ankara 

A  point  in  Iran 

Beirut 

A  point  in  Syria 

A  point  in  Iraq 

A  point  in  Afghanistan 

Karachi 

Delhi 

Calcutta 

3.   *Chicago 

Gander 

Lydda 

A  point  in  Iraq 

Detroit 

Shannon 

Dhahran 

Washington 

Greenland 

Bombay 

New  York 

Iceland 

Calcutta 

Boston 

Paris 

A  point  in  Burma 

Baltimore 

A  point  in  Switzerland 

A  point  in  Siam 

Philadelphia 

Rome 

A    point    or    points    in    Indo- 

Athens 

China 

Cairo 

A  point  or  points  in  China 

See  footnote  at  end  of  table. 


APRIL  7,  1946 


591 


(b)   ROUTES  TO  BE  SERVED  BY  AIR  CARRIERS  OF  THE  UNITED  STATES— Continued 


Point  of  Departure 

Intermediate  Points 

Destination  in  U.  K.  Territory 

Points  Beyond 

(Any  one  or  more  of  the  foUoiving) 

(Any  one  or  more  of  the  following,  if 
desire^ 

(Any  one  or  more  of  the  following, 
if  desired) 

(Any  one  or  more  of  the  following,  if 
desired) 

4.  Chicago 
Detroit 
Washington 
New  York 
Boston 
Baltimore 
Philadelphia 

Gander 

Azores 

Lisbon 

(a)  Algiers 
Tunis 
Tripoli 
Benghazi 
Cairo 

(b)  Madrid 
Rome 
Athens 
Cairo 

Lydda 

From  Lydda  to  points  beyond 
as  described  in  Route  3. 

5.  New  York 
Chicago 
Detroit 
Washington 
Philadelphia 
Boston 
Baltimore 

Gander 

Bermuda 

Azores 

London 

(From  the  Azores) 
Lisbon 
Barcelona 
Marseilles 

6.  *San  Francisco 
Los  Angeles 

Honolulu 

Midway 

Wake 

Guam 

Manila 

Hong  Kong 

Macao 

A  point  or  points  in  China 

A  point  or  pomts  in  Indo-China 

A  point  or  points  in  Siam 

A  point  or  points  in  Burma 

Calcutta 

7.   *San  Francisco 
Los  Angeles 

Honolulu 
Midway 
Wake 
Guam 
Manila 

A  point  or  points  in  Indo- 
China 

Singapore 

Batavia 

8.  New  York 
Washington 
Baltimore 

Bermuda 

9.   Miami 

Palm  Beach 

Cat  Cay 
Nassau 

10.   Miami 

Points  in  Cuba 

Jamaica 

(a)  Baranquilla  via    South 
American  points  to  Balboa 

(b)  Baranquilla   via    South 
American  points  to  Trinidad 

11.   New  Orleans 
Houston 

Points  in  Cuba 

Jamaica 

Aruba 

South  American  points 

12.  New  York 
Miami 

Camagney 
Port  au  Prince 
Ciudad  Trujillo 
San  Juan 
Saint  Thomas 
Point  a  Pitre 
Fort  de  France 

Antigua 
St.  Lucia 
Trinidad 
British  Guiana 

Via  South  American  points  to 
Buenos  Aires 

See  footnote  at  end  of  table. 


592 


DEPARTMENT  OF  STATE  BULLETIN 
(6)   ROUTES  TO  BE  SERVED  BY   AIR  CARRIERS  OF  THE  UNITED  STATES— Coiitinuod 


Point  of  Departure 

Intermediate  Points 

Destination  in  U.  K.  Territory 

Points  Beyond 

(Any  one  or  more  oj  the  following) 

(Avy  one  or  more  ofthefoUou-iiifi,  if 
desired) 

(Ann  one  or  more  of  the  foUowing, 
if  desired) 

(Any  one  or  more  of  the  following,  if 
desired) 

13.   New  York 

(a)   Azores 

Accra  or  Lagos 

Leopoklville 

Dakar 

Johannesburg 

Monrovia 

(h)   San  Juan 

Trinidad 

British  Guiana 

Belem 

Natal 

Monrovia 

Ascension  Island 

*Notice  will  be  given  by  the  aeronautical  authorities  of  the  United  States  to  the  aeronautical  authorities  of  the  United  Kingdom  of  the  route  service  patterns 
according  to  which  services  will  be  inaugurated  on  these  routes. 


IV 

(a)  Aiuenilineiit.s  uiaile  b.v  either  Contracting  I'artj-  to 
the  routes  described  in  Section  III  of  this  Annex  vs'hich 
change  the  points  served  in  the  territory  of  tlie  other 
Contracting  I'art.v  will  he  made  only  after  consultation 
in  accordance  with  the  provisions  of  Article  8  of  tliis 
Agreement. 

(6)  Other  i-oute  changes  desired  by  either  Contracting 
Party  may  be  made  and  put  into  effect  at  any  time,  prompt 
notice  to  that  effect  being  given  by  the  aeronautical  au- 
thorities of  the  Contracting  Party  concerned  to  the  aero- 
nautical authorities  of  the  other  Contracting  Party.  If 
such  other  Contracting  Party  finds  that,  having  regard  to 
the  priiu'iples  set  forth  in  paragraph  (6)  of  the  Final  Act 
of  the  Conference  referred  to  in  Section  I  of  this  Annex, 
the  interests  of  its  air  carrier  or  carriers  are  prejudiced 
by  the  carriage  by  the  air  carrier  or  carriers  of  the  first 
Contracting  Party  of  traffic  between  the  territory  of  the 
second  Contracting  Party  and  the  new  point  in  the  terri- 
tory of  a  third  country  it  .shall  so  inform  the  first  Con- 
tracting Party.  If  agreement  cannot  be  reached  by  con- 
sultation between  the  Contracting  Parties,  it  shall  be  open 
to  the  Contracting  Party  who.se  air  carrier  or  carriers  is 
or  are  affected  to  invoke  the  provisions  of  Article  9  of  this 
Agreement. 

(c)  The  Contracting  Parties  will,  as  soon  as  iiossible 
after  the  execution  of  this  Agreement  and  from  time  to 
time  thereafter,  exchange  information  concerning  the 
authorisations  extended  to  their  respective  designated  air 
carriers  to  render  service  to,  tlirough  and  from  tlie  terri- 
tory of  the  other  Contracting  Party.  This  will  include 
copies  of  current  certificates  and  authorisations  for  service 
on  the  routes  which  are  the  subject  of  ttiis  Agreement,  and 
for  the  future  such  new  certificates  and  authorisations  as 
may  be  issued,  togetlier  with  amendments,  exemption 
orders  and  authorised  service  patterns. 


V 

I  (( I  Where  tlie  ninvard  carriage  of  traffic  l)y  an  aircraft 
of  different  size  from  that  employed  on  the  earlier  stage 
of  tlie  same  route  (hereinafter  referred  to  as  "change  of 
gauge")  is  justified  by  reason  of  economy  of  operation, 
such  change  of  gauge  at  a  point  in  the  territory  of  the 
United  Kingdom  or  the  territory  of  the  United  States,  .shall 
not  be  made  in  violation  of  the  principles  set  forth  in  the 
Pinal  Act  of  the  Conference  on  Civil  Aviation  held  at  Ber- 
muila  from  January  1,">  to  Febru;uy  11,  l!)4li  and,  in  par- 
ticular, shall  be  subject  to  tliere  being  an  adetpiate  volume 
of  through  traffic. 

(6)  Where  diauge  i>f  gauge  is  made  at  a  point  in  the 
territory  of  the  United  Kingdom  or  in  the  territory  of  the 
United  States,  the  smaller  aircraft  will  operate  only  in  con- 
nection with  the  larger  aircraft  arriving  at  the  point  of 
change,  so  as  to  provide  a  connecting  service  which  will 
thus  normally  wiiit  on  the  arrival  of  tlie  larger  aircraft, 
for  the  primary  purpose  of  carrying  onward  those  passen- 
gers who  have  travelled  to  United  Kingdom  or  United 
States  territory  in  the  hu'ger  aircraft  to  their  ultimate 
destination  in  the  smaller  aircraft.  Where  there  are 
vacancies  in  the  smaller  aircraft  such  vacancies  may  be 
filled  with  passengers  from  United  Kingdom  or  United 
States  territory  respectively.  It  is  understood  however 
that  the  capacity  of  tlie  smaller  aircraft  shall  be  deter- 
mined with  primary  reference  to  the  traffic  travelling  in 
the  larger  aircraft  normally  requiring  to  be  carried 
onward. 

(c)  It  is  agreed  that  the  arrangements  under  any  part 
of  tlie  preceding  paragraphs  ( a )  and  ( 6 )  shall  be  governed 
b.v  and  in  no  way  restrictive  of  the  standards  set  forth  in 
paragraph  ((>)  of  the  Final  Act. 

A  H  S.  G.  P.  B. 

W.  P.  H.  H.  B. 

L.  J.  D.  S  M. 

P.  G.  M.  G.  N. 

\y  J  B.  L  W  P 

OR 


AI'Kll. 


m<t 


593 


HEADS  OF  AN  AGREEMENT  FOR  USE  BY  CIVIL  AIRCRAFT  OF  NAVAL  AND  AIR  BASES 
IN  AREAS  LEASED  TO  THE  GOVERNMENT  OF  THE  UNITED  STATES  OF  AMERICA 
UNDER  AN  AGREEMENT  WITH  THE  GOVERNMENT  OF  THE  UNITED  KINGDOM, 
DATED  MARCH  27,  1941. 


Whkreas,  by  Agrefiiietit  of  JIaroh  27,  l!t41,  (liert'iiuiftcr 
refei-i-f(l  to  as  "the  Hases  Agrt'emeiit"  (  the  Ooveriiiiieiit  of 
the  United  Kingdom  of  Great  Britain  and  Nortliern  Ire- 
kind  agreed  to  lease  for  military  purposes  to  tlie  Gov- 
ernment of  the  United  States  exclusively  certain  areas 
in  the  Western  Hemisphere  in  which  naval  and  air  bases 
have  been  constructed  with  full  and  continuing  rights  of 
military  use  and' control  thereof  for  a  period  of  ;i!i  years 
as  specified  in  the  Agreement;  and 

Whereas.  Article  XI (5)  of  the  said  Agreement  piovides 
that  "commercial  aircraft  will  not  be  authorised  to  operate 
from  any  of  the  Bases  (save  in  ease  of  emergency  or  for 
strictly  military  purposes  under  supervision  of  the  War 
or  Navy  Itepartments)  except  by  agreement  between  the 
United  States  and  the  Government  of  the  United  Kingdom, 
provided  that  in  the  case  of  Newfoundland  such  agree- 
ment shall  be  between  the  United  States  and  the  Govern- 
ment of  Newfoundland" ;  and 

Whkrbas,  the  Governments  of  the  United  States  and  of 
the  United  Kingdom  desire,  in  order  to  facilitate  the  de- 
velopment of  air  transportation,  at  this  time  to  arrange  for 
the  ail-  Bases  to  be  available  for  use  by  civil  aircraft  on 
the  conditions  hereinafter  stated  without  interfering  with, 
restricting  or  limiting  the  present  military  rights  of,  or 
continued  military  use  by,  the  United  States  of  the  Bases 
in  accordance  with  the  said  agreement ; 

Now  Thehefore,  it  is  .agreed  as  follows  : 

Article  I 

The  air  bases  (hereinafter  referred  to  as  ''the  Bases") 
leased  to  the  United  States  pursuant  to  the  Bases  Agree- 
ment will  be  open  for  use  by  civil  aircraft  wherever  such 
use  will  contribute  to  the  overall  development  of  civil 
aviation  along  sound  economic  lines. 

((/)  In  accordance  with  the  above  principles  the  fol- 
lowing Bases  will  be  open  fcrr  regular  use  by  civil  aircraft : 

Kindley  (Bermuda) 
Coolidge  (Antigua) 
Beane   ( St.  Lucia ) 
Atkinson   (British  (}uian:i) 

ib)  The  following  lia.ses  which  are  situated  in  terri- 
tories where  adequate  civil  airports  now  exist,  will  be  open 
for  use  by  civil  aircraft  only  as  bad  weather  alternates 
until  such  time  as  agreement  is  reached  that  experience 
or  other  developments  indicate  the  need  for  their  regular 
use  Ii.v  civil  .-lireraft : 

Carlson     (Trinidad) 
Waller  (Trinidad) 
Vernam   ( Jamaica ) 

The  circumstances  in  which  the  said  Bases  will  be  used 
as  bad  weather  alternates  will  be  determined  in  the  light 


of  .-iriy  rules  established  by  the  Piomsiuiiiil  Iiih  i  iidl iiiiiiil 
Cifil  Aviation  On/diiixntinii.  or  its  succes.sor,  or  in  the 
absence  of  such  rules  by  further  discussion  between  the 
two  Governments. 

Artiele   II 

So  long  as  the  I'nited  States  and  the  United  Kingdom 
are  parties  to  the  International  Aii-  Services  Transit 
Agreement  signed  at  Chicago  on  December  7.  1944,  the 
civil  aircraft  of  all  countries  parties  to  that  Agreement 
ma.\-  use  the  Bases  for  non-traffic  puriioses  in  accordance 
with  the  provisions  of  Section  I  of  Artiele  I  of  that  Agree- 
ment. Ill  view  of  the  special  circumstances  in  the  ease 
of  these  Bases,  countries  which  are  not  parties  to  that 
Agreement  liut  which  are  parties  to  bilateral  agreements 
either  with  the  United  Kingdom  or  with  the  United  States 
providing  for  the  privileges  specified  in  the  said  Agreement 
may  utilize  the  Bases  only  with  the  concurrence  of  both 
the  United  Kingdom  and  the  United  States. 

Article  III 

(a)  Any  duly  authorised  United  States  civil  air  carrier 
utilising  the  Ba.ses  shall  be  entitled,  without  prejudice  to 
the  principles  of  cabotage,  and  in  view  of  the  special  cir- 
cumstances in  connection  with  the  Bases,  to  carry  Iwtween 
the  Bases  referred  to  in  Article  I  ( o  )  hereof : 

(i)  United  States  Government  sponsored  passengers 
(and  their  personal  effects)  travelling  at  the  expense  of 
the  Government  of  the  United  States  or  on  business 
directly  connected  with  the  Bases  or  with  United  States 
personnel  at  the  Bases ;  and 

(ii)  Cargo  carried  at  the  expen.se  of  the  Government  of 
the  United  States. 

(6)  The  exerci.se  of  the  privileges  granted  in  these 
Heads  of  Agreement  shall  be  without  prejudice  to  rights 
(together  with  any  extensions  thereof)  which  may  have 
been  granted  by  the  Government  of  the  United  Kingdom 
(or  any  of  the  Colonial  Governments  concerned)  to  any 
United  States  civil  air  carrier.  In  view  of  the  special  cir- 
cumstances in  the  case  of  the  Bases,  the  Governineut  of 
the  United  Kingdom  will  not  grant  civil  air  carriers  of 
third  countries  utilizing  these  Bases  traffic  rights  incident 
to  the  use  of  these  Ba.ses  be.vond  the  extent  that  such  third 
countries  have  granted  corresponding  rights  (though  not 
necessarily  on  the  same  routes  as  those  operated  by  the  air 
carriers  of  the  third  countries  concerned)  in  their  respec- 
tive countries  to  the  civil  air  carriers  of  the  United  States. 

(e)  No  other  civil  air  carrier,  including  civil  air  carriers 
of  the  United  Kingilom.  will  be  granted  any  greater  or 
different  traffic  rights  at  the  Bases  than  are  granted  to 
United  States  civil  air  carriers  at  such  Bases,  provided 
that  I'nited  States  .-Ivil  air  carriers  shall  not.  bv  reason  of 


594 


DEPARTMENT  OF  STATE  BULLETIN 


this  provision,  be  entitled  to  claim  the  right  to  carry  cabo- 
tage traffic  between  any  two  points  in  the  territory  (as 
defined  in  Article  2  of  the  Convention  on  International 
Civil  Aviation  signed  at  Chicago  on  December  7,  1944)  of 
the  United  Kingdom  (except  to  the  limited  extent  pro- 
vided in  paragraph  (a)  of  this  Article)  nor  shall  civil  air 
carriers  of  the  United  Kingdom  be  precluded  from  carrying 
cabotage  traffic  between  the  Bases  concerned  so  long  as 
United  States  civil  air  carriers  are  entitled  to  exercise 
tratfic  rights  at  those  Bases. 

(d)  For  the  purposes  of  this  Article,  the  term  "civil  air 
carriers  of  the  United  Kingdom"  shall  be  deemed  to  include 
those  of  territories  under  the  sovereignty,  suzerainty,  pro- 
tection or  mandate  of  the  United  Kingdom. 

(c)  Notwithstanding  the  termination  of  the  Agreement 
between  the  Government  of  the  United  Kingdom  and  the 
Government  of  the  United  States  of  America  relating  to 
air  services  between  their  respective  territories,  signed  at 
Bermuda  on  February  11,  1046,  its  provisions  and  those  of 
its  Annex  shall  continue  to  apply  to  any  traffic  rights 
which  United  States  air  carriers  may  thereafter  exercise 
at  any  of  the  Bases  referred  to  in  Article  I  of  these  Heads 
of  Agreement  until  such  time  as  the  Contracting  Parties 
may  otherwise  agree ;  provided  that  the  Government  of  the 
United  States  shall  have  the  right  at  any  time  after  fifteen 
years  from  the  date  on  which  tlie  Agreement  referred  to  in 
Article  XII  of  these  Heads  of  Agreement  becomes  effective 
to  give  notice  of  its  desire  that  the  provisions  of  the  first 
mentioned  Agreement  and  its  Annex  shall  cease  to  apply, 
on  the  date  specified  in  the  notice  but  which  shall  not  in 
any  case  be  less  than  two  years  after  receipt  of  such  notice, 
to  the  traffic  rights  exercised  by  its  air  carriers  at  any 
of  the  Bases  referred  to  above  pursuant  to  that  Agreement. 

Article  IV 

Subject  to  the  provisions  of  Article  V  hereof,  civil  air- 
craft of  the  United  Kingdom  ( including  those  of  territories 
under  the  sovereignty,, suzerainty,  protection  or  mandate 
of  the  United  Kingdom)  shall  be  entitled  to  use  the  Bases 
for  non-traffle  purposes  on  terms  no  less  favourable  than 
those  enjoyed  by  United  States  civil  aircraft. 

Article   V 

(u)  The  United  States  military  authorities  will  make 
every  reasonable  effort  to  avoid  interruption  of  civil  opera- 
tions at  the  Bases.  It  is  understood,  however,  that  the 
United  States  military  authorities  have  the  right  for  mili- 
tary reasons,  on  a  non-discriminatory  basis,  to  curtail  or 
suspend  civil  air  operations,  and,  from  time  to  time  as  may 
be  necessary,  to  impose  restrictions  of  a  temporary  or 
continuing  nature  on  the  use  of  the  Bases  by  civil  aircraft. 

(6)  Subject  to  requirements  dictated  by  military  rea- 
sons, no  limitation  on  the  use  of  the  Bases  by  civil  aircraft 
will  be  prescribed,  except  those  predicated  upon  safety, 
or  the  capacity  of  a  field  or  its  facilities ;  and  any  such 
limitations  will  be  imposed  on  a  proportionate  non- 
discriminatory basis. 

(e)  The  u.se  of  the  Bases  by  civil  aircraft  may  likewise 
on  a  proportionate  non-discriminatory  basis  be  limited, 
curtailed,  suspended,  or  subjected  to  such  regulation  as 
may   l)e   necessary   for  .security   reasons  by   the   Colonial 


Goverinnent  concerned.  In  such  event  that  Government 
will  give  timely  notice  to  the  United  States  military 
authorities. 

Article   VI 

Subject  to  the  provisions  of  Article  VIII  (6)  hereof, 
administrative  and  operational  control  of  the  Bases  will 
be  exercised  by  the  United  States  military  authorities  who 
may,  subject  to  the  provisions  of  Article  VII  hereof,  dele- 
gate the  performance  of  certain  services  to  civilian  agen- 
cies. Such  delegation  will  be  without  prejudice  to  the 
right  of  the  United  States  military  authorities  to  resume 
the  performance  of  such  services  at  any  time  and  without 
delay. 

Article    VII 

Airport  tower  control  and  approach  control  will  be  oper- 
ated by  or  under  (he  direction  of  the  United  States  mili- 
tary authorities.  The  responsibility  for  area  control  will 
be  reviewed  in  the  light  of  the  studies  and  recommenda- 
tions of  the  Route  Service  Organisation  Conference  of  the 
Provisional  International  Civil  Aviation  Organisation,  or 
its  successor. 

Article    VIII 

(a)  Discussions  shall  be  held  between  the  two  Govern- 
ments with  a  view  to  making  arrangements  for  the  pro- 
vision of  necessary  facilities,  supplies  and  services  to  civil 
air  carriers  using  the  Bases,  and  the  Agreement  to  be 
concluded  pursuant  to  these  Heads  of  Agreement  shall 
contain  provisions  defining  such  arrangements  and  shall 
not  enter  into  force  until  such  arrangements  have  been 
made. 

(6)  At  each  of  the  Bases  where  suitable  land  is  not 
conveniently  adjacent  thereto  for  the  provision  of  neces- 
sary civil  airport  facilities,  supplies  and  services  and  for 
the  erection  of  buildings  for  customs,  immigration,  quaran- 
tine and  other  similar  matters  of  Colonial  or  United  King- 
dom national  Interest,  the  United  States  military  authori- 
ties will,  if  this  is  possible  without  conflict  with  military 
requirements,  designate  an  appropriate  area  within  the 
boundaries  of  the  Base  for  such  imrposes.  Except  as 
otherwise  specifically  provided  in  these  Heads  of  Agree- 
ment, the  provision  of  the  above  facilities,  supplies  and 
services  and  the  conduct  of  the  matters  mentioned  above 
within  the  area  so  designated  will  be  under  the  control 
and  jurisdiction  of  the  Colonial  Government  in  the  same 
manner  and  to  the  same  extent  as  they  would  be  if  they 
were  provided  or  conducted  in  an  area  outside  of  the 
leased  area  but  shall  be  without  prejudice  to  the  right 
of  the  United  States  military  authorities  to  resume  com- 
plete and  unrestricted  control  and  use  of  the  designated 
area  and  its  facilities  should  this  prove  to  be  necessary 
for  military  reasons  of  overriding  necessity.  The  terms 
and  conditions  under  which  such  area  will  be  made  avail- 
able will  be  as  approved  by  the  Government  of  the  United 
States  after  consultation  between  the  two  Governments. 

(c)  In  connection  with  fire  protection,  sanitation  and 
other  matters  affecting  the  military  security  of  the  Bases, 
the  United  States  military  authorities  shall  have  the 
right,   ill  collaboration  with  or  after  prior  notice  to  the 


APRIL  7,  1946 


595 


local  Colonial  authorities  in  the  territory  concerned,  to 
enter  uijon  and  to  inspect  any  buildings  or  other  facilities 
and  services  erected  or  provided  in  any  area  designated 
under  paragraph  (6)  of  this  Article  for  the  purpose  of 
satisfying  themselves  that  adequate  precautionary  meas- 
ures are  taken  in  the  matters  referred  to  above.  If  the 
United  States  military  authorities  consider  that  the  pre- 
cautionary measures  taken  are  not  adequate  they  shall 
have  the  right,  in  consultation  with  the  Colonial  authori- 
ties concerned,  or,  in  cases  where  military  reasons  so 
require,  on  their  own  initiative,  to  supplement  these  meas- 
ures to  the  extent  considered  necessary.  With  respect 
to  terminal  and  other  faeilitie.s  contiguous  to  the  Base 
area,  the  location,  type,  size,  hazards  to  .safe  oijeration  of 
aircraft,  sanitation,  etc.,  will  be  subject  to  consultation 
between  the  appropriate  local  authorities  and,  as  required, 
between  the  two  Governments  for  the  purpose  of  safe- 
guarding the  military  use  of  the  Base. 

(d)  Civil  aircraft  using  one  of  the  Bases  referred  to  in 
Article  I  («)  hereof  .shall  load  and  unload  persons,  mail 
and  cargo  only  within  the  area  (which  shall  be  either  the 
area  referred  to  in  paragraph  (6)  of  this  Article  or  out- 
side the  leased  area),  designated  for  that  purpose  by  the 
Colonial  Government  concerned. 

Article  IX 

The  scale  of  fees  to  be  charged  for  the  ci\-il  use  of  the 
Bases  and  for  facilities,  supplies  and  services  to  civil  air- 
craft using  the  Bases,  will  be  subject  to  consultation  be- 
tween the  local  United  States  military  authorities  and  the 
local  Colonial  authorities  and,  as  required,  between  the  two 
Governments.  The  terms  and  conditions  of  any  sub-lease 
by  a  Colonial  Government  to  a  civil  air  carrier  for  terminal 
and  other  facilities  located  within  the  Base  area  and  the 
location,  type,  size  and  other  pertinent  details  of  the  termi- 
nal and  other  facilities  shall  be  subject  to  the  approval  of 
the  United  States  military  authorities. 

Article  X 

Should  the  Government  of  the  United  States  elect  for 
military  reasons  to  place  one  or  more  of  the  Bases  on  a 
caretaker  basis: 

(a)  The  Government  of  the  United  States  will  have  no 
further  responsibility  for  maintaining  that  Base  in  opera- 
tional condition  for  civil  use ;  provided  that  timely  notice 
of  intention  to  place  on  a  caretaker  basis  is  given  to  the 
Government  of  the  United  Kingdom. 

(6)  The  Government  of  the  United  Kingdom  or  the 
Colonial  Government  concerned  will  have  the  right  to 
maintain  the  Base  for  civil  use ;  provided  that  the  Govern- 
ment of  the  United  States  at  any  future  time  within  the 
term  of  the  Bases  Agreement  and  upon  appropriate  notice 
will  have  the  right  to  resume  the  maintenance  and  opera- 
tional control  of  the  said  Base. 

Article  XI 

(o)  Nothing  in  these  Heads  of  Agreement  will  be 
deemed  to  constitute  a  limitation  or  an  abrogation  of 
(1)  any  of  the  rights  or  privileges  accorded  to  the  Gov- 
ernment of  the  United  States  by  the  provisions  of  the 
Bases  Agreement,  or  (2)  the  sovereign  rights  of  the  Colo- 
nial Governments  concerned. 


(6)  The  two  Governments  will  consult  together  to  decide 
what  amendments,  if  any,  to  the  Bases  Agreement  will  be 
necessary  in  the  light  of  these  Heads  of  Agreement. 

Article  XII 

(a)  The  two  Governments  will  consult  together  and  pre- 
pare an  Agreement  giving  effect  to  the  terms  herein  con- 
tained. Such  Agreement  will  become  effective  on  signa- 
ture on  behalf  of  the  respective  Governments  and  shall 
continue  in  effect  indefinitely  but  either  of  the  Govern- 
ments may,  at  any  time  after  the  Agreement  has  been  in 
effect  for  fifteen  years,  give  to  the  other  notice  of  termina- 
tion and  in  such  event,  the  Agreement  shall  cease  to  be 
effective  twenty-four  calendar  months  after  the  date  of 
receipt  of  such  notice. 

(b)  The  two  Governments  hereby  agree  that  while  the 
Agreement  continues  in  effect,  they  will  consult  together 
not  less  than  once  in  every  five  calendar  years  with  a  view 
to  reviewing  the  operation  of  the  Agreement  and  agreeing 
upon  any  modifications  that  may  be  desired. 

((•)  The  initialling  of  this  document  shall  not  indicate 
that  a  contract  has  been  concluded.  This  document  is  the 
agreed  basis  of  and  subje<-t  to  the  preparation  of  a  formal 
contract.  In  the  preparation  of  tlie  formal  contract  any 
outstanding  points,  more  particularly  the  points  arising  on 
Articles  VIII  and  XI,  will  be  resolved. 


UNITED  STATES 
Ad  referendiiiii 
Subject  to  reserva- 
tion set  out  in  let- 
ter of  even  date 
from  Chairman  of 
United  States 
D  e  1  e  g  a  tion  to 
Chairman  of 
United  Kingdom 
Delegation 

February  11,  19^6 


O.P.B. 
LSK 

G.N. 


A.H.S 
W.J.B 
W.IVH 


UNITED  KINGDOM 
Ad  referendum 
Subject  to  reserva- 
tion set  out  in  let- 
ter of  even  date 
from  Chairman  of 
United  Kingdom 
D  e  1  e  g  a  tion  to 
Chairman  of 
United  States 
Delegation 


Delegation  of  the  United  States  of  America, 

Berimida.  February  11,  19^0. 

My  dear  Sib  Henry, 

In  initialling  to-day  the  Heads  of  Agreement  with  respect 
to  the  u.se  of  the  99-year  leased  bases  by  civil  aircraft,  I 
wish  to  confirm  by  this  letter  the  oral  reservation  which 
I  have  heretofore  made  on  behalf  of  the  United  States. 
Final  approval  and  signature  by  the  United  States  of  the 
Agreement  to  open  any  of  the  90-year  leased  bases  to  civil 
aircraft  is  contingent  on  reaching  satisfactory  agreement 
with  the  Governments  of  Newfoundland  and  Canada 
regarding  the  use  by  civil  aircraft  of  airfields  in  Newfound- 
land and  Labrador,  namely  Goose,  Gander,  Harmon  and 
Argentia. 

I  am,  my  dear  Sir  Henry, 
Very  sincerely  yours, 

Georgb  p.  Bakek 
Chairman,  United  States  Delegation. 

Sir  Henry  Self,  K.  C.  M.  G.,  K.  B.  E.,  C.  B., 
Chiiirman,  United  Kingdom  Delegation. 


596 


DEPARTMENT  OF  STATE  BVLLETllS 


BiiiiiiKld.  Fi'biuiiill  II.  m.'/H 

My  deak  Mb.  Bakeh, 

You  will  recall  that  on  l>briuu-.v  9  I  informed  you  that 
the  United  Kingdom  Government  wished  a  reservation  to 
be  made  at  the  time  of  the  initialling  of  the  Heads  of 
Agreement  Relating  to  the  civil  use  of  the  Base  airfields, 
and  that  they  wished  Articles  VIII  and  XI  to  be  specifi- 
cally referred  to  in  this  reservation  as  both  of  these 
Articles  provide  for  discussions  on  outstanding  iioints. 
We  have  since  heai-d  from  London  that  the  amendments 
which  we  have  agreed  upon  in  Article  III  of  the  Heads  of 
Agreement  do  not  entirely  resolve  the  doubts  felt  in  Lon- 
don in  regard  to  the  commitments  already  entered  into  by 
the  United  Kingdom  Government  granting  traffl^rights 
to  Canadian  air  services  operating  through  Bermuda.  I 
therefore  take  this  opportunity  of  letting  you  know  that 
the  United  Kingdom  Government  will  wish  to  discuss  this 
question  with  the  United  States  Government  at  a  later 
stage. 

Very  sincerely  yours, 

A.  H.  Seif 
Mr.  Gembge  p.  Baker, 

Chairman,  United  States  Delegation, 
Civil  Aviation  Conference, 
Bermuda. 


REPORT  ON  THE  BASES  DISCUSSIONS 

The  discussions  on  the  Bases  were  conducted  by  a  Com- 
mittee under  the  Chairmanship  of  Mr.  Garrison  Norton 
(United  States)  and  composed  as  follows: 

U.K. 


U.S. 
Delegates: 
.John  D.  Hickerson 
John  Sherman 


Delegates: 

W.  J.  Bigg 

N.  J.  A.  Cheetham 

P.  G.  Masefleld 

L.  J.  Dunnett 

P.  G.  Masefleld 


Adrisers:^  Advisers: 

Colonel  S.  K.  Gates  M.  E.  Bathurst 

W.  .John  Koiiney  F.  Kennedy 

Major  General  L.  S.  Kuter 
Vice-Admiral  F.  I'.  Sherman 

Consiiltaut : 
John  Leslie 

There  is  submitted  herewith  a  draft  of  Heads  of  Agree- 
ment which  hiis  been  agreed  on  with  a  view  to  the  prepara- 
tion and  conclusion  of  an  agreement  between  the  two 
Governments. 

It  is  recommended  that  the  Bases  Agreement  of  1041, 
and  particularly  Articles  IV,  VI,  IX,  XII,  XIII,  XIV,  XVI, 
and  XVII,  be  examined  with  a  view  to  determining  how  far 
they  should  apply,  if  at  all,  in  relation  to  the  u.se  of  the 
Bases  for  civil  purposes.  It  is  the  intention  that  United 
States  mail  originating  at  United  States  Post  Offices  estab- 
lished in  the  Bases  under  Article  XVI  of  the  Bases  Agree- 
ment should  he  included  in  the  arrangement  mentioned 
in  paragrai>h  (a  I  of  Article  III  of  these  Heads  of  Agree- 
ment. 

It  is  also  recommended  that  examiiuition  be  made  of 
the  applicability  of  Colonial  laws  and  regulations  to  the 
commercial  transactions  which  may  be  conducted  on  the 
Bases. 


The  .ihove  report  was  approved  at  the  Final  Plenary 
Se.ssion  of  the  Bermuda  Civil  Aviation  Conference  Feb- 
ruary 11,  1946. 

Ft>r   the   United   Kingdom   Delegation 

A.H.S. 
For  the  United  States  Delegation 
G.P.B. 


Organization  of  the  Congress;  Ilcpdrt  of  the  Joint  C<->m- 
mittee  on  the  Organization  of  Congress,  Congress  of  the 
I'nited  States,  pursuant  to  II.  Con.  Kes.  18,  March  4.  1946. 
S.  Kept.  1011,  79th  Cong,    v,  35  pp. 

Postwar  Economic  Policy  and  Pljimiing:  Ninth  Report 
of  the  Hou.se  Si)ecial  Committee  on  Postwar  Economic 
Policy  and  Planning,  pursuant  to  H.  Res.  00,  A  Resolution 
Authorizing  the  Continuation  of  the  Special  Committee 
en  Postwar  Economic  Policy  and   Planning:  The  Use  of 


Wartime  Controls  During  the  Transitional  Period.  H. 
Rept.  1677,  79th  Cong.  Part  1,  iv,  113  pp.  Part  2— Appen- 
dixes, iii,  65  pp. 

Foreign  Educ.-itional  Benefits  and  Surplus  Property:  Re- 
port of  the  Connuittee  on  Military  Affairs.  S.  Rept.  1039, 
79th  ('ong..  To  accompany  S.  1636.  ii,  11  pii.  |  Favorable 
i-eport.  ] 


Corrigendum 


In  the  BULi.KTiN  of  March  24.  1946,  page  472,  line  12— 
for  First  .session,  London,  April  8-  ,  1946  read  First 
meeting,  June  or  July,  1946. 

PUBLISHED  WITH   APPROVAL  OF   DIRECTOR  OF   BUREAU  OF   THE   BUDGET 
U.  S    COVERNHENT  PRINTING    OFFICE     tilt 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  354 


APRIL  14,  1946 


"...  we  can  attain  a  lasting  peace." 

Address  by  THE  PRESIDENT 

The  Eole  of  UNESCO  in  Our  Foreign  Policy 

statement  by  ASSISTANT  SECRETARY  BENTON 


page  622 


page  62d 


The  American  Trade  Proposals:  An  International  Trade 
Organization 


Article  by  LOUIS  K.  HYDE,  Jr. 


page  616 


In  the  Minds  of  Men  (Part  II) 

Article  by  DOROTHEA  SEELYE  FRANCK    . 


page  608 


Germany:  Zones  of  Occupation 

Article  bv  LAWRENCE  A.  HOFFMAN 


page  599 


^©NT    o^ 


For  complete  contents 
s'^e  inside  cover 


Correction 

The  date  appearing  on  right 

hand  pages  of  this  issue 

should  be — 

April  14,  1946 


'■*tes  o^ 


"•  ^-  SUPERINTENDENT  OF  OOCUMENtS 

MAY  1   i94g 


THE  DEPARTMENT  OF  STATE 


BULLETIN 


Vol.  XIV 'No.  354*      Tl/% 


Publication  2508 


^iTes  o« 


April  14,  1946 


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a  weekly  publication  compiler!  and 
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provides  the  public  and  interested 
agencies  of  the  Corernment  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 
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officers  of  the  Department,  as  well  as 
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agreements  to  which  the  United  States 
is  or  may  become  a  party  and  treaties 
of  general  international  interest  is 
included. 

Publications  of  the  Departntent,  cu- 
mulative lists  of  which  are  published 
at  the  end  of  each  quarter,  as  well  as 
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Contents 


(iCTinany:  Zoir's  of  Ofcuijation. 
Article  bv  L.  A.  Hoffman    .    . 


In  the  iMind-<  of  Men. 

Article  bv  Dorothea  Scehe  Franck 


The  American  Trade  Proposal.s:  An  International  Trade  Or- 
ganization. 

Article  bv  Louis  K.  Hvde,  Jr 


International  Organizations  and  Conferences 

Calendar  of  Meeting.s 

Activities  and  Development.s 

The  United  Nations 

Security  Council:  Discussion  of  Soviet-Iranian  ]\Iatters  .    .    , 

The  Record  of  the  Week 

Appointment  of  Fiorello  II.  La  Guardia  as  Director  General  of 
UNRRA     

".     .     .     we   can   attain   a   lasting  peace."     Address   by   the 
Pre.sident 

Proposed  Meeting  of  Council  of  Foreign  Ministers  in  Paris  .    . 

The  Role  of  UNESCO  in  Our  Foreign  Policy: 

Statement  by  Assistant  Secretary  Benton 

Statement  bv  Archibald  MacLeish 


The   American    Trade   Proposals:  Progress   in    Rebuilding   a 
Stable  World.     By  Clair  '\^'ilcox 

Position   in   Favor  of  Compulsory  Jurisdiction   of  the  Inter- 
national Court 

*Commercial  Air  Services  Agreement  Between  L'.S.  and  Bel- 
gium  

U.S.  Note  on  the  Capture  of  General  Mikhailovich 

Declarations  of  Property  Damage  for  Americans  in  Belgium  . 

Resumption  of  Mail  Service  With  Germany 

Immigration  Preference  for  Displaced  Persons  in  U.S.  Zone  in 
Germany 

Reparations  and  the" Level  of  Post- War  German  Economy: 
Plan  of  Allied  Control  Council 


Japanese  General  Elections 

Completion  of  Work  of  U.S.  Education  Mission  to  Japan 

National  City  Bank  to  Reopen  in  Tokyo 

Purchase  of  Natural  Rubber  From  i\Ialaya 

L'.S.  Policy  in  Korea 

U.S.  Withdrawal  From  Galapagos  Base 

Our  Rclrttions  With  Great  Britain 


Page 
599 


608 

616 

618 
61S 

620 

619 

622 
624 

625 
629 

630 

633 

633 
634 
631 
635 

635 

636 
639 

641 
642 
644 
644 
644 
644 


*  Treaty  infornmtion 


i 


Germany:  Zones  of  Occupation 


Article  by  L.  A.   HOFFMAN 


IN  ACCORDANCE  with  the  Potsdam  communique 
issued  August  2,  11)4."),  (jrenuany  within  its  1037 
iiounchiries  is  occujjied  by  the  armed  forces  of  the 
United  States  of  America,  the  United  Kingdom 
i)f  Great  Britain  and  Northern  Irehmd.  the  Union 
of  Soviet  Socialist  Republics,  and  the  I'rovisional 
Government  of  the  French  Republic.^ 

Each  one  of  the  four  occupying  powers  has  a 
zone  of  occupation,  which  it  administers  through 
a,  system  of  military  government.  The  city  of 
Berlin  is  administered  jointly  by  the  four  powers, 
although  each  has  a  sector  which  its  troops  occupy. 
That  part  of  eastern  Germany  between  the  Soviet 
zone  and  the  Soviet-administered  Konigsberg  area 
is  under  Polish  administration  and  for  that  pur- 
pose is  Hot  considered  as  part  of  the  Soviet  zone 
(Potsdam  communique,  Section  IX). 

Section  IV  of  the  Potsdam  conmiunique  refers 
to  exchanges  of  goods  and  a  movement  of  capital 
equipment  from  the  three  western  zones  to  the 
Soviet-Polish  areas.  Therefore,  in  this  study,  in- 
formation about  the  American,  British,  and 
Fi-encli  zones  is  combined  under  the  heading  loest- 
ern  Germany.  The  use  of  the  term  eastern  Ger- 
many refers  to  the  Soviet  zone  plus  the  Polish- 
administered  area  and  the  Konigsberg  ai'ea.  In 
1939,  western  Germany  had  about  three  fifths  of 
the  total  population,  while  eastern  Germany  ex- 
cluding Berlin  had  a  little  over  one  third  of  the 
total  population.  These  two  proportions  are  a 
fairly  good  index  of  the  relative  contribution  of 
these  areas  to  the  productivity  and  strength  of 
pre-war  Germany. 

The  pre-war  pattern  of  Gei'man  economic  life 
serves  as  the  best  background  against  which  to 
evaluate  the  fragmentary  war  and  post-war  data 
about  that  country.  Such  a  method  of  evaluation 
may   indicate    what   permanent   effects   the    tre- 


mendous wartime  and  reconstruction  changes  will 
have  on  the  economy  of  a  reconstructed  Germany. 
Since  no  German  census  was  taken  during  the 
war,  the  information  on  population,  resources, 
and  production  presented  in  this  article  is  the 
latest  reliable  information  for  all  of  Germany. 
Detailed  pre-war  data,  arranged  for  each  of  the 
present  zones  of  occupation  and  for  the  adminis- 
tered and  jointly  controlled  areas,  can  be  found  in 
the  accompanying  tables.  Some  war  and  post- 
war data  are  included  in  the  text,  but  it  should  be 
kept  in  mind  that  these  data  are  not  generally 
as  reliable  as  the  pre-war  census  information.  A 
few  of  the  highlights  revealed  by  the  data  are 
discussed,  but  no  attempt  is  made  to  give  details 
of  production.  An  analysis  of  each  occuijied  or 
administered  area  as  a  distinct  region  shows  its 
relative  pre-war  importance. 

Berlin 

Berlin  was  of  great  importance  not  only  as  a 
political  center  but  also  as  a  focal  point  in  the 
pre-war  economy  of  Germany.  One  eighth  of  the 
German  population  in  all  cities  of  10  thousand 
and  over  lived  within  the  metropolitan  limits  of 
Greater  Berlin.  Since  most  of  these  people  were 
engaged  in  industrial,  commercial,  and  profes- 
sional occupations,  Berlin  supplied  a  relatively 
large  proportion  (one  tenth)  of  the  Gei-man 
national  income.  About  7  percent  of  the  pre-war 
German  labor  force  of  34.6  million  lived  in  Berlin. 


'  Mr.  Hoffman  is  Population  Geographer  in  the  Division 
of  International  and  Functional  Intelligence,  Office  of  Re- 
search and  Intelligence,  Department  of  State.  For  article 
by  Leon  W.  Fuller  on  "The  Problem  of  German  Political 
Revival",  see  Bulletin  of  Apr.  7,  1946,  p.  547. 

^  Throughout  this  article  the  terms  American,  British, 
Soviet,  and  French  are  used  instead  of  these  more  lengthy 
names. 

599 


600 


DEPARTMENT  OF  STATE  BULLETIN 


It  also  included  uboiit  S  percent  of  the  14.6  niillion 
gainfully  occupied  industrial  workers.^  Berlin 
manufactured  large  quantities  of  clothing,  optical 
and  other  instruments,  electrical  goods,  and 
printed   matter    (about  45   percent  of   the  total 


industrial  production  was  concerned  with  metal 
fabrication) .  Perhaps  of  greatest  significance  was 
its  role  as  a  capital.  About  one  ninth  of  the  0.9 
million  German  governmental  officials — national, 
provincial,  and  local — were  stationed  in  Berlin. 


Berlin:  Sectors  of  Occupation 


Area  in 
square 
miles 

May  17,  1939  cen- 
sus population 

November  1,  1945 
estimated  popu- 
lation 

Percent 

change 

1939- 

1945 

In  thou- 
sands 

Percent 

In  thou- 
sands 

Percent 

Berlin                   -     _                - 

341 

151 

66 

84 

40 

4,  339 
1,588 

891 
1,  334 

526 

100 

37 
20 
31 

12 

3,021 
1,  134 

582 
872 
433 

100 
38 
19 
29 
14 

-30 

Soviet  sector 

—  39 

British  sector 

American  sector 

French  sector 

-35 
-35 

-18 

The  May  17,  1939  data  are  from  the  last  regular  pre-war  German  census;  the  data  for  Nov.  1,  1945  are  from  estimates 
based  on  the  ration-card  system.    A  regular  census  for  the  four  occupation  zones  is  projected  for  .lune  1,  1946. 


Eastern   Germany 

Although  eastern  Germany,  consisting  of  the 
Soviet  and  Polish  areas,  comprises  about  half  the 
area  of  1937  Germany,  it  had  a  smaller  propor- 
tion of  the  German  total  population,  resources, 
and  pi'oductivity  than  western  Germany.  The 
region  included  about  36  percent  of  the  1939  Ger- 
man total  population,  three  tenths  of  the  German 
city  population  (places  of  10  thousand  and  over) 
and  was  the  source  of  about  one  third  of  the  pre- 
war national  income. 

The  employment  patterns  of  eastern  Germany 
and  western  Germany  were  very  similar,  with  only 
a  slightly  greater  dependence  on  agriculture  in  the 
former.  About  two  fifths  of  the  German  popula- 
tion dependent  upon  agriculture  were  in  easteim 
Germany  (this  amounted  to  about  45  percent  of 
the  German  population  gainfully  occupied  in  agri- 
culture since  more  members  of  the  family  worked 

'  The  accompanying  tallies  show  only  6  percent  of  the 
Germans  in  Berlin  as  industrially  dependent  because  there 
were  fewer  dependents  per  worker  in  Berlin  than  in  other 
parts  of  Germany. 

'  Plowland  as  used  here  includes  all  cultivated  land 
except  gardens  and  orchards.  It  should  not  be  confused 
with  arable  land. 


on  the  farms  in  eastern  Germany  and  thus  there 
were  few^er  agricultural  dependents  per  worker 
than  in  western  Germany).  Eastern  Germany 
had  over  half  of  the  total  plowland  *  in  Germany, 
but  only  one  third  of  the  other  agriculturally  use- 
ful land,  and  less  than  half  of  the  German  forest 
land.  The  region  supplied  its  own  food  require- 
ments in  1936  and  had  the  following  surpluses  (in 
terms  of  its  total  regional  production)  :  rye,  33 
percent;  wheat,  18  percent;  barley,  26  percent; 
oats,  20  percent;  and  potatoes,  28  percent.  Even 
after  feeding  Berlin,  eastern  Germany  had  a  sur- 
plus equal  to  about  a  tenth  of  its  total  food  pro- 
duction. These  surpluses  moved  chiefly  to  west- 
ern Germany,  where  they  helped  to  meet  the  food 
deficits. 

Eastern  Germany  had  about  one  third  of  the 
pre-war  German  population  dependent  upon  in- 
dustry, and  produced  a  slightly  smaller  proportion 
of  the  German  industrial  output.  The  region  was 
especially  important  in  the  building  industries, 
the  gla.ss  and  jiottery  industries,  the  paper  and 
printing  industries,  the  textile  industries,  and  the 
metalware  industries.  Most  of  the  iron  and  steel 
industries  of  eastern  Germany  were  concerned 
with  processing  and  finishing,  and  only  about  a 


APRIL  21,  1946 


601 


teutli  of  tliL-  prL'-war  Geniuiii  .■^teel  production 
came  from  the  region.^ 

Eastern  Germany  had  alxnit  one  seventli  of  the 
German  hard  coal  reserves  and  about  one  tiftli  of 
the  pre-war  prochiction,  practically  all  of  it  being 
located  in  the  Upi)er  Silesian  (Oberschlesien) 
area  of  the  Polish-administered  area.  About  two 
thirds  of  the  brown  coal  (lignite)  reserves  and  its 
production  "  were  in  the  region,  most  of  it  in  the 
southwestern  portion  (Magdeburg,  Halle-Merse- 
burg,  Sachsen  areas)  of  the  Soviet  zone. 

Between  1933  and  1939  eastern  Germany  in- 
creased in  population  at  about  the  national  average 
rate,  most  of  the  increase  occurring  in  the  cities. 
With  respect  to  religion,  the  region  was  over- 
whelmingly Protestant.  The  Catholics  were  in 
the  n^ajority  only  in  a  few  districts  of  Upper  Sile- 
sia and  East  Prussia  (Ostpreussen). 

Western  Germany 

Western  Germany  (the  British,  American,  and 
French  zt)nes,  and  the  Bremen  enclave)  had  about 
58  percent  of  the  pre-war  German  total  popula- 
tion, and  the  same  percentage  of  the  city  popu- 
lation (places  of  10  thousand  and  over)  and  of 
the  rural  population  (connnunities  of  under  10 
thousand).  It  also  had  three  fifths  of  the  popu- 
lations dependent  upon  agriculture,  upon  industry, 
and  upon  commerce,  as  well  as  the  same  propor- 
tion of  the  total  income,  industrial  output,  and 
electric-power  production.  In  addition  about 
seven  tenths  of  the  pre-war  German  mineral  out- 
put, including  four  fifths  of  the  hard  coal,  was 
pj'oduced  in  this  area. 

On  a  little  over  half  of  the  area  of  Germany,  this 
region  had  almost  half  of  the  plowland,  about 
two  thirds  of  the  other  agricultural  land,  and  over 
half  of  the  national  forests.  Between  two  fifths 
and  one  half  of  the  five  major  German  food  crops 
were  raised  in  western  Germany.  Food  produc- 
tion was  not  adequate  to  fill  the  needs  in  this  re- 
gion, which  contained  three  fifths  of  the  total 
German  poi)ulation.  Deficits  amounted,  there- 
fore, to  the  following  proportions  of  the  total 
regional  production  of  each  ci'op :  rye,  35  percent; 
.  wheat,  IG  percent;  barley,  25  percent ;  oats,  17  per- 
'  cent :  and  potatoes.  32  percent.  Deficits  at  the 
present  time  are,  of  course,  much  larger.  In  order 
to  maintain  even  low  dietary  levels,  western  Ger- 
many will  require  importation  of  possibly  an  ad- 
ditional 4  million  tons  of  grain  annually,  or  its 


equivalent,  or  about  a  third  of  its  necessary  food- 
energy  intake.  With  the  influx  of  refugees  ex- 
pected by  next  August  possibly  only  half  of  the 
caloric  intake  of  the  region  will  be  met  by  local 
production. 

Those  pre-war  industries  which  were  particu- 
larly prominent  in  western  Germany  (i.e.  fur- 
nished a  larger  production  proporticmately  than 
the  61  percent  of  the  total  German  industrial  out- 
put contributed  by  the  region)  included  mining, 
metallurgy,  construction  of  vehicles,  leather  goods, 
chemicals,  and  tools.  The  region  supplied  nearly 
nine  tenths  of  the  pre-war  German  steel  produc- 
tion. 

Three  fifths  of  the  total  German  population  in- 
crease l)etween  1933  and  1939  occurred  in  western 
Germany  and  was  concentrated  chiefly  in  the  cities. 

Unlike  eastern  Germany,  which  was  overwhelm- 
ingly Protestant,  western  Germany  was  about  half 
Catholic  and  included  over  four  fifths  of  the  Ger- 
man Catholics. 

The  population  of  western  Germany  about  the 
end  of  1945  was  43.7  million — almost  a  tenth  larger 
than  in  1939.  The  industrial  areas  of  the  Ruhr 
and  middle  Ehineland  had  lost  population,  al- 
though most  of  the  remainder  of  the  region  had 
gained  population  during  the  war.  If  the  ex- 
pected transfer  of  nearly  4  million  Germans  from 
Poland,  Czechoslovakia,  Austria,  and  Hungary 
into  western  Germany  by  the  middle  of  194G  is 
completed,  the  poiJulation  will  then  be  nearly  a 
fifth  larger  than  it  was  in  1939. 

Individual  Zones' 

The  British  Zone 

Although  the  area  now  occupied  by  British 
forces  is  smaller  than  either  the  Soviet  or  Amer- 
ican zones  or  the  Polish-Administered  area,  it  was 
a  vital  area  in  Germany  before  the  war.  It  had 
about  three  tenths  of  the  population,  resources, 

"  For  an  article  on  the  iron  and  steel  industry  of  Ger- 
many see  BuLLEriN  of  Apr.  29,  1945,  pp.  814-825. 

"Gorman  brown-coal  production  during  tlie  war  in- 
creased nearly  three  tenths  over  the  pre-war  production. 
Since  most  of  the  increased  production  took  place  in  east- 
ern Germany,  its  share  of  the  average  annual  1938-1943 
production  was  about  seven  tenths  of  the  total. 

'Information  about, each  zone  does  not  include  data  on 
the  sector  of  Berlin  occupied  by  the  troops  of  that 
country. 


602 


DEPARTMENT  OF  STATE  BULLETIN 


and  production  of  Germany.  Some  36  percent 
of  the  German  city  population  (places  of  10  thou- 
sand and  over)  dwelt  there;  and  over  a  third  of 
the  German  industrial  output,  including  about 
three  fifths  of  the  mineral  production,  came  from 
there.  Among  its  most  valuable  physical  re- 
sources were  about  three  quarters  of  the  total 
German  hard-coal  reserves  and  production. 
Nearly  three  quarters  of  the  pre-war  German 
steel  jn'oduction  came  from  this  region.  About 
half  of  the  population  lived  in  the  lower  Rhine- 
land  node,  in  only  a  sixth  of  the  area  of  the  zone; 
and  a  good  portion  of  the  remainder  lived  along 
the  main  routes  between  the  lower  Rhineland  and 
the  Saxony  (Sachsen)  areas.  Although  the  Brit- 
ish zone  was  F'rotestant  by  an  appreciable  ma- 
jority, most  of  the  Catholics  of  the  area  lived  in 
the  lower  Ehineland  where  they  were  in  the  ma- 
jority in  many  districts. 

The  British  zone  had  a  tenth  more  people  at 
the  end  of  1945  than  it  had  in  1939.  Most  of  the 
increase  was  in  the  Hannover  and  Schleswig- 
Holstein  areas.  With  the  probable  transfer  of 
about  1.5  million  Germans  from  Poland  to  the 
British  zone  by  the  middle  of  1946,  the  popula- 
tion will  rise  to  about  23  million  or  17  percent 
greater  than  in  1939. 

The  /Soviet  Zone 

In  pre-war  Germany,  the  Soviet  zone  was  the 
second  most  important  jaroductive  area  in  the 
country,  primarily  because  of  the  industrial 
importance  of  the  Saxony  (Magdeburg, 
Halle-Merseburg,  Sachsen)  and  Thuringia 
(Thiiringen)  parts  of  the  region.  This  area  con- 
tains the  largest  amount  of  cultivated  land  of  any 
of  the  regions  considered  in  this  article.  Its  in- 
dustrial output  has  been  influenced  by  large  sup- 
plies of  bi'own  coal  and  electric  power  (three 
tenths  of  the  pre-war  German  electric  power). 
German  chemical  and  light-metal  industries  were 
concentrated  here,  and  most  of  the  iron-  and  steel- 
finishing  industries  of  eastern  Germany  were  in 
the  Soviet  zone.  This  area,  consequently,  was 
very  much  dependent  upon  the  iron  and  steel  jDro- 
duction  of  the  Ruhr  for  a  large  part  of  its  raw 
and  semi-finished  materials. 

*One  unconfirined  report  places  the  present  civilian  pop- 
ulation of  the  area  at  only  a  third  of  its  1.1  million  pre-war 
popnlation. 


The  Soviet  zone  had  nearly  a  fourth  larger  pop- 
ulation at  the  end  of  1945  than  it  had  in  1939.  All 
of  the  major  areas  increased  in  population,  Meck- 
lenburg and  Thuringia  almost  doubling  that  of 
the  i)re-war  period.  AVith  the  probable  transfer 
of  nearly  3  million  Germans  from  Poland  and 
Czechoslovakia  to  the  Soviet  zone  by  the  middle 
of  1946,  the  population  will  be  two  fifths  greater 
than  in  1939. 

T/ie  Konigsherg  Area 

The  city  of  Kimigsberg  and  the  adjacent  part 
of  East  Prussia  (Ostpreussen)  had  about  one  per- 
cent of  the  pre-war  German  land  and  human  * 
resources.  In  most  of  the  items  of  industrial  pro- 
duction this  area  Avas  insignificant;  its  greatest 
importance  lay  in  its  year-round  ice-free  port  and 
the  lowland  and  water  routes  to  tlie  east. 

According  to  the  Potsdam  communique  (Sec- 
tion VI)  the  K(inig.sberg  area  is  under  Soviet  ad- 
ministration, pending  ultimate  transfer  to  the 
Soviet  Union  at  the  peace  settlement.  The  bound- 
ary between  the  Soviet-  and  Polish-administereil 
portions  of  East  Prussia  is  tentative,  pending 
expert  examination  of  the  actual  frontier. 

The  Polish-Administered  Area 

Pending  the  final  determination  of  Poland's 
western  fi'ontier,  the  former  German  territories 
east  of  the  general  line  of  the  Oder  and  (western) 
Neisse  rivers,  excluding  the  Konigsberg  area,  are 
under  the  administration  of  the  Polish  State. 
This  Polish-administered  area  is  not  considered  a 
part  of  the  Soviet  zone  of  occupation  for  purposes 
of  administration  (Potsdam  communique,  Section 
IX). 

This  region  contributed  a  large  part  of  the  major 
agricultural  surpluses  of  eastern  Germany.  The 
fifth  of  the  pre-war  German  population  dependent 
upon  agriculture  who  lived  here  filled  about  one 
quarter  of  the  plowland  in  tlie  countiy.  Because 
the  area  had  only  13  percent  of  the  total  German 
population,  food  surpluses  were  available  for  the 
more  urbanized  areas  to  the  west.  The  region  also 
had  timber  and  other  wood-product  surpluses. 
The  proportion  of  the  pre-war  national  income 
from  the  area,  it  may  be  noted,  was  smaller  than 
the  proportion  of  the  total  population  there.  This 
fact  was  due  primarily  to  the  low  productivity  of 
the  East  Prussian  (Ostpreussen),  Pomeranian 
(Pommern),  and  Brandenburg  portions  of  the 
area,  although  the  Silesian   (Niederschlosien  and 


APRIL  21,  1946 


603 


Oberschlesien )  portion  was  more  productive  and 
prosperous.  The  Silesian  portion  also  had  most 
of  the  hard  coal  and  most  of  the  industry,  includ- 
ing about  2  percent  of  the  pre-war  German  steel 
production.  Most  of  the  Catholics  of  the  Polish 
area  were  in  this  same  section. 

No  reliable  information  on  the  present  popula- 
tion of  the  region  is  available.  Large  numbers 
of  Germans  (possibly  several  million)  fled  fi"om 
the  area  before  the  advance  of  the  Soviet  armies 
during  the  last  months  of  the  war.  Between  Jan- 
uary and  August  of  this  year  some  3.5  million  of 
the  remaining  Germans  are  being  transferred  to 
the  Soviet  and  British  zones.  Although  exact 
figures  are  not  available,  this  transfer  will  prob- 
ably leave  only  several  million  of  the  pre-war 
population,  which  is  about  the  estimated  number 
speaking  either  a  Slavic  language  or  speaking  botli 
a  Slavic  language  and  German.  Considerable 
numbers  of  Poles  (one  report  mentions  half  a  mil- 
lion settlers)  have  come  into  the  area  from  farther 
east. 

The  American  Zone 

About  a  fifth  of  tiie  people  and  of  the  produc- 
tivity of  pre-war  Germany  were  in  what  is  now  the 
American  zone.  The  area  was  sadly  lacking  in 
mineral  fuels  and  the  considerable  hydroelectric 
power  of  the  southern  highlands  only  partly  com- 
pensated for  this  lack.  Outside  of  the  Munich 
(Miinchen)  and  Niirnberg  areas,  most  of  the 
industrial  workers  and  production  were  concen- 
trated in  the  valleys  of  the  Neckar,  Main,  and  the 
middle  Rhine  rivers.  Very  little  of  the  industry 
was  of  the  heavy  type  (i.e.  only  about  2  percent 
of  the  pre-war  steel  production  was  in  the  area), 
thus  most  of  the  metal-fabricating  industries  were 
dependent  upon  the  Ruhr  for  their  primary  metal 
products.  The  most  significant  industries  were 
those  connected  with  the  manufacture  of  textiles, 
processed  foods,  machinery,  gas  and  electricity, 
and  vehicles. 

The  zone  was  not  quite  so  important  agricultur- 
ally as  the  proportion  of  its  population  dependent 
upon  agriculture  might  suggest.  The  useful  parts 
of  the  farms  were  small,  and  the  production  per 
farm  family  was  not  as  high  as  in  many  other 
parts  of  the  country.  Many  of  the  farms  of  the 
region  sufficed  for  little  more  than  the  support  of 
the  families  on  them.  In  pre-war  days  the  zone 
had  a  surplus  of  dairy  pi'oducts  and  a  deficit  of 
grain. 


Tlie  region  was  slightly  more  Catholic  than 
Protestant;  most  of  the  Protestants  were  concen- 
trated in  the  industrial  areas  of  the  northwestern 
part,  where  they  were  often  in  the  majority. 

The  American  zone  had  15.7  million  population 
or  a  seventh  more  people  at  the  end  of  1945  than 
it  had  in  1989.  All  of  the  areas  except  North 
Baden  registered  gains;  Bavaria  (Bayern)  ex- 
cluding Pfalz  had  a  fourth  more  people.  With 
the  projected  transfer  of  over  2  million  Germans 
from  Czechoslovakia  and  Hungary  to  the  Ameri- 
can zone  by  the  middle  of  1940,  the  population  will 
be  about  three-tenths  greater  than  in  1939. 

The  Bremen  Enclave 

The  Bremen  enclave  is  small  and  includes  only 
the  jjort  of  Bremen  with  its  outlying  port  of  Brem- 
erhaven  plus  strips  of  land  along  the  estuary  of  the 
Weser  River  from  Bremen  to  the  sea.  The  main 
value  of  this  area  lies  in  its  port  facilities  rather 
tlian  in  its  productive  capacity. 

Since  December  10,  1945,"  the  area  has  been 
under  a  combination  of  British  and  American  con- 
trol. At  that  time  British  military  government 
learns  replaced  American  ones  in  most  of  the  en- 
clave, although  American  military  government 
teams,  following  policy  instructions  of  the  British 
military  government  authorities,  remained  in  the 
cities  of  Bremen,  Bremerhaven,  and  Wesermiinde. 
American  military  forces  will  continue  to  be  re- 
sponsible for  security  and  still  maintain  opera- 
tional control. 

By  November  1945  the  enclave  had  declined  11 
percent  from  its  pre-war  population  of  713,000  to 
about  562,000.  Most  of  the  loss  took  place  in  the 
cities  of  the  enclave. 

The  French  Zone 

The  French  zone  of  occupation  had  less  than  a 
tenth  of  the  people,  resources,  and  productivity  of 
pre-war  Germany.  Seven  tenths  of  the  population 
lived  in  communities  having  a  population  of  less 
than  10  thousand.  A  full  quarter  of  the  popula- 
tion was  dependent  upon  agricultuie.  The  poor 
living  afforded  Ijy  many  of  the  small  farms  of  the 
region  can  be  visualized  from  the  fact  that  in  the 
area  some  12  percent  of  the  German  population 
dependent  upon  agriculture  were  tilling  only  about 
8  percent  of  the  cultivated  land  in  Germany.  Most 
of  these  poor  farms  were  in  the  upland  areas; 

°  Between  Nov.  1944,  and  Dec.  10,  1945,  tlie  enclave  was 
under  American  occupation  and  administration. 


604 


DEPARTMENT  OF  STATE  BULLETIN 


wliereas  the  prosperous  fanuino'  areas  were  in  the 
Moselle  Valley  and  Rhine  Rift  Valley.  In  the 
entire  zone  over  two  fiftlis  of  the  population  were 
dej^endent  upon  industries,  which  were  chiefly  in 
the  Saarland  and  along  the  portions  of  the  Rhine 
and  Neckar  rivers  within  the  zone.  Seven  percent 
of  the  German  hard  coal  production  was  rained  in 
the  Saar.  Since  this  was  more  than  the  area  con- 
sumed locally,  there  was  an  outward  movement  of 
coal  to  other  portions  of  the  Upper  Rhineland 
area.  The  Saar  also  supplied  about  an  eighth  of 
the  pre-war  German  steel  production. 

The  French  zone  was  the  oidy  zone  in  which 
the  Catholics  formed  a  large  majority.  The  popu- 
lation of  the  French  zone  was  slightly  smaller  at 
.  the  end  of  1945  than  it  had  been  in  1939.  With  the 
l^rojected  return  fi'om  the  American  zone  by  the 
middle  of  1946  of  the  quarter  million  I'efugees  who 
had  fled  from  the  zone  during  the  war  and  the  in- 
flux of  150  thousand  Germans  from  Austria,  the 
zone  will  have  a  population  slightly  larger  than 
before  the  war. 

Germany  West  of  Oder  and  Neisse  Rivers 

That  })art  of  1937  Germany  now  under  military 
government  by  the  four  occupying  powers  consists 
of  the  American,  British,  French,  and  Soviet  zones 
l^his  Berlin  and  the  Bremen  enclave.  Although 
smaller  than  Norway,  Sweden,  France,  or  Spain, 
this  region  west  of  the  Oder  and  Neisse  rivers  re- 
mains the  most  populous  and  potentially  the  most 
productive  region  in  Europe  (with  the  exception 
of  the  Soviet  Union). 

This  region  contained  86  percent  of  the  total 
pre-war  German  population  on  76  percent  of  the 
area.  The  524  cities  (places  of  over  10  thousand 
population)  had  nine  tenths  of  the  German  urban 
population;  the  rural  areas  contained  over  four 
fifths  of  the  German  rural  population. 

The  78  percent  of  the  pre-war  German  popula- 
tion dependent  ujjon  agriculture  which  dwelled 
in  the  region  tilled  over  seven  tenths  of  the  Ger- 
man |)lowland,  worked  over  fonr  fifths  of  the  other 
agricultural  land,  and  tended  nearly  four  fifths 
of  the  German  forest  land. 

Ninety-three  percent  of  the  pre-war  German  in- 
dustrial output  was  produced  by  90  percent  of  the 

'"RpiKirts  indicate  tliat  the  four  occnpying  luiwers  may 
lidlil  post-war  Gt'riiian  steel  production  to  al)ont  5  million 
tons  annually  or  little  more  than  a  fourth  of  the  pre-war 
steel  production  in  the  .same  area. 


industrial  population  in  the  areas  now  under  mili- 
tary government.  This  industrial  production  in- 
cluded about  97  percent  of  the  pre-war  German 
steel  production."' 

The  region  contains  the  greater  portion  of  the 
total  German  coal  reserves,  about  86  percent  of  the 
hard  coal  reserves,  and  77  percent  of  the  brown  coal 
(lignite)  reserves.  In  1937  the  region  produced 
84  percent  of  the  hard  coal  and  93  percent  of  the 
brown  coal  mined  in  all  Germany.  In  addition, 
over  nine  tenths  of  the  pre-war  electric  power  was 
generated  in  tlie  region. 

In  spite  of  large  military  and  civilian  fatal  casu- 
alties during  the  war  (possibly  5  million),  the 
population  of  the  region  has  steadily  increased. 
The  population,  nearly  60  million  in  1939.  was 
estimated  to  be  over  65  million  by  November  1945 
(about  one  million  of  which  was  non-German). 
If  projected  plans  are  carried  out  for  transferring 
between  6  and  7  million  German-speaking  peoples 
from  eastern  Europe  to  the  four  zones  by  August 
1946.  the  region  at  that  time  will  have  a  jiopulation 
of  possibly  70  to  72  million,  which  would  be  about 
one-fifth  larger  than  the  pre-war  population. 

Prospects 

The  pre-war  distribution  of  German  population, 
resources,  and  production  has  been  greatly  altered 
by  war  and  by  the  present  period  of  Allied  occu- 
pation. As  a  result  of  casualties  and  migrations 
due  to  bombings,  and  the  displacement  of  large 
groups  of  persons  for  other  reasons,  the  pattern 
of  population  distribution  has  undergone  a  great 
change.  A  similar  change  is  evident  in  produc- 
tion, as  many  productive  facilities  have  been  de- 
stroyed, moved  away,  or  disorganized. 

Up  to  the  time  of  the  present  war  the  funda- 
mental patterns  of  population  distribution  and 
productivity  in  western  Europe  had  not  been 
changed  drastically  since  the  culmination  of  the 
Industrial  Revolution.  Neither  the  destruction 
of  war  nor  the  migration  of  marginal  industries 
and  crops  to  places  of  more  efficient  pioduction 
has  materially  changed  the  significance  of  the 
major  population  concentrations.  Physical  de- 
.struction  and  disorganization  are  not  nearly  so 
retarding  in  western  Europe  as  the  same  propor- 
tion of  destruction  would  be  to  facilities  in  regions 
endowed  with  less  capital  equipment  and  with 
fewer  reserves  of  skilled  workers  and  organizers. 


APRIL  21,  1946 


605 


Tlie  iiioiuentum  of  an  established  industrial  area 
i?  enormous;  .sliifts  to  different  types  of  industrial 
activity  are  common,  but  shifts  to  less  productive 
activities  are  relatively  unimportant. 

The  contrasts  between  the  pi'e-war  picture  and 
the  present  one  of  disorganization  and  low  pro- 
ductivity are  probably  greater  than  the  contrasts 
between  the  pre-war  picture  and  the  post-war 
patterns  of  a  reconstructed  Germany  yet  to  evolve. 


Undoubtedly,  recon.structed  Germany  will  be 
somewhat  different  from  pre-war  Germany,  but 
the  favored  regions  of  pre-war  days  which  remain 
within  the  new  boundaries  will  probably  continue 
to  be  the  most  economically  important  parts  of  the 
country.  In  those  areas  are  concentrated  most  of 
the  resources,  facilities,  and  human  skills  and  abili- 
ties to  form  the  basis  for  peaceful  development 
as  well  as  for  a  wartime  economy. 


Germany:   1937  Land-Use  for  Zones  of  Occupation 


Germany  (1937  Boundaries) 

Berlin  (Joint  Administration)  _  . 

Eastern  Germany 

Soviet  Zone 

Konigsberg  Area  ' 

Polisli-Administrated  Area 

Western  Germany 

Britisli  Zone 

American  Zone 

Bremen  Enclave- 

Frencli  Zone 


Plowland  ' 


Amount  in 

thousands 

of  square 

miles 


74.  8 
0.  03 
40.  9 


19. 

2. 
18. 
33. 
13. 
14. 

0. 

6. 


Percent  of 

area  of 

zone 


41 
9 
48 
47 
49 
48 
35 
36 
34 
35 
37 


Percent  of 
German 
plowland 


100 

(*) 

55 

27 

3 

25 

45 
18 
19 

(*) 


other  Agricultural  Land  * 


Amount  in 

thousands 

of  square 

miles 


36.  0 


0. 
12. 

5. 

1. 

5. 
23. 
10. 


9.  2 
0.  4 
3.  8 


Percent  of 

area  of 

zone 


20 
29 
14 
13 
20 
15 
25 
27 
22 
33 
23 


Percent  of 

total  of 
such  land 


100 


(*) 


35 
16 

3 
16 
65 
28 
25 

1 
11 


Forest  Land 


.\mount 

in 

thousands 

of  square 

miles 

49. 

8 

(*) 

22. 

6 

10. 

9 

1. 

0 

10. 

7 

27. 

2 

7. 

3 

14. 

5 

(*) 

5. 

4 

Percent  of 

area  of 

zone 


(*) 


(*) 


27 

) 

26 
26 
20 
27 
28 
20 
35 

■) 
33 


Percent  of 

(lerman 

forest  land 


(*) 


(*) 


100 

45 

22 

2 

21 
55 
15 
29 

11 


Germany:  1937  Income  and  Electric-Power  Production  for  Zones  of  Occupation 


Total  Income  s 

Value  of  Industrial  Pro- 
duction & 

Value  of  Mineral  Produc- 
tion 

Electric-Power  Produc- 
tion 

Billions  of 
V.  S.  dollars 

Percent  of 
total 

Billions  of 
U.  S.  dollars 

Percent  of 
total 

Millions  of 
U.  S.  dollars 

Percent  of 
total 

Billions  of 

kilowatt 

hours 

Percent  of 
total 

Germany  (1937  Boundaries) 

Berlin  (Joint  .-Vdministration) 

Eastern  Germany 

Soviet  Zone 

Konigsberg  Area  '    _ 

28.  5 
2.9 
9.4 
6.5 
0.4 
2.5 

16.2 
8.8 
4.  8 
0.3 
2.3 

100 
10 
33 
23 

1 

9 

57 

31 

17 

1 

8 

13.  8 

1.  2 
4.3 
3.3 

(*) 
1.0 
8.3 
4.  7 

2.  5 
(*) 

1.  1 

100 

9 

31 

24 

(*) 

7 

60 

34 

18 

{*) 

8 

1,  122 

(*) 
337 
202 

(*) 

135 

785 

662 

45 

(*) 
78 

100 
(*) 
30 
18 
(*) 
12 
70 
59 
4 
(*) 
7 

49.  0 
1.  6 

la  6 

14.8 

0.  2 

3.  6 

28  8 

16.  2 

7.  5 

0.2 

4.9 

100 

3 

38 

30 

1 

Polish- Administrated  Area 

West  er  11  Germany 

Britisli  Zone.         _    _    .. 

7 
59 
33 

American  Zone 

15 

Bremen  Encla\^e  ^ 

1 

French  Zone 

10 

689903—46- 


606 


DEPARTMENT  OF  STATE  BULLETIN 
Germany:   1937  Coal  Reserves  and  Production  for  Zones  of  Occupation 


Hard  Coal  Reserves  ^ 

1937  Hard  Coal  Produc- 
tion 

Brown  Coal  CLi^ite) 
Reserves  ' 

1937  Brown  Coal  Produc- 
,    tion 

Billions  of 
tons 

Percent  of 
total    . 

Millions  of 
tons 

Percent  of 
total 

Billions  of 
tons 

Percent  of 
total 

Millions  of 
tons 

Percent  of 
total 

Germany  (1937  Boundaries) 

Berlin  (Joint  Administration) 

Eastern  Germany 

176 

0 

24 

(*) 

0 

24 

152 

136 

(*) 

0 

16 

100 
0 

14 

(*) 

0 

14 

86 

77 

(*) 

0 

9 

185 

0 

36 

6 

0 

30 

149 

136 

(*) 

0 

13 

100 

0 

19 

3 

0 

16 

81 

74 

(*) 

0 

7 

57 

0 

37 

24 

0 

13 

20 

19 

1 

0 

(*) 

100 

0 

65 

42 

0 

23 

35 

33 

2 

0 

(*) 

185 

0 

121 

109 

0 

12 

64 

58 

5 

0 

1 

100 

0 

65 

Soviet  Zone 

58 

Ivoniftsberg  Area  * 

0 

Polish-Administrated  Area 

Western  Germany   .-.    

7 
35 

British  Zone 

31 

American  Zone   _  _ 

3 

Bremen  Enclave  ^ 

0 

French  Zone 

1 

Germany:  General  Population  Data  for  Zones  of  Occupation 


Total  area 

1939  Population  data 

Density  per  square  mile 

1933-1939  Population  increase 

Thousands 

of  square 

miles 

Percent  of 

German 

area 

Total  in 
millions 

Percent  of 
German 
popula- 
tion 

Of  total 
popula- 
tion 

Of  popula- 
tion in 
places 
under 
10,000 

Increase  in 
millions 

Percent 
increase 
in  zone 

Precent  of 
German 
increase 

Germany  (1937  Boundaries) 

Berlin  (Joint  Administration) 

Eastern  Germany 

181.  7 

0.34 
85.5 
41.5 
4.9 
39.  1 
95.  8 
36.8 
41.3 
1.  2 
16.  5 

100 

(*) 

47 

23 

2 

22 

53 

20 

23 

1 

9 

69.3 

4.3 

24,  8 

15.  1 

1.  1 

8.  6 

40.  2 

19.  6 

13.  7 

0.7 

6.2 

100 

6 

36 

22 

1 
13 
58 
28 
20 
1 
9 

381 
12,  647 
290 
364 
224 
220 
420 
533 
332 
583 
376 

195 
0 
173 
206 
125 
145 
215 
207 
201 
182 
274 

3.3 

0.  1 

1.2 

0.9 

0.  1 

0.2 

2.0 

1.0 

0.7 

0.07 

0.2 

5.0 
2.4 
5.  1 
6.3 
10.0 

2.  4 
5.  2 
5.  4 
5.  4 

11.  1 

3.  3 

100 

3 

36 

Soviet  Zone 

27 

Konigsberg  Area' 

PolLsh- Administrated  Area 

Western  Germany 

British  Zone   .          

3 

6 
61 
31 

American  Zone 

21 

Bremen  Enclave  ' 

Frencli  Zone.. 

3 
6 

Germany:  1939  Urban-Rural  Break-down  for  Zones  of  Occupation 


Urban  population  (cities  10,000  and  over) 

Rural  population  (places  under  10,000  in  size) 

Number 

of 

cities 

Area  in 

thousands 

of  square 

miles 

Popula- 
tion of 
cities  in 
millons 

Percent  of 
popula- 
tion in 
zone 

Percent  of 
German 
city  popu- 
lation 

Area  in 

thousands 

of  square 

miles 

Rural 
popula- 
tion in 
millions 

Percent  of 
popula- 
tion in 
zone 

Percent  of 
German 
rural  popu- 
lation 

Germany  (1937  Boundaries) 

Berlin  (Joint  Administration) 

Eastern  Germany 

617 

1 

267 

174 

7 

86 

349 

193 

91 

7 

58 

9.6 
0.34 
3.4 
2.2 

0.  14 

1.  1 
5.8 
3.4 
1.5 
0.  1 
0.8 

35.  7 

4.  3 
10.  6 

7.0 

0.  5 
3.  1 

20.  8 
12.7 

5.  7 
0.5 

1.  9 

52 
100 
43 
46 
45 
36 
52 
65 
42 
71 
31 

100 

12 

30 

20 

1 

9 

58 

36 

16 

1 

5 

172.  1 

0.  0 
82.  1 
39.3 

4.  8 
38.0 
90.0 
33.  4 
39.  8 

1.  1 
15.  7 

33.  6 
0.0 

14.  2 
8.  1 
0.  6 

5.  5 
19.  4 

6.  9 
8.  0 
0.2 
4.  3 

48 
0 
57 
54 
55 
64 
48 
35 
58 
29 
69 

100 
0 

42 

Soviet  Zone 

24 

Konig.sberg  Area  ' 

2 

Polish- Administrated  Area 

Western  Germany. 

16 
58 

Britisli  Zone 

21 

American  Zone 

21 

Bremen  Enclave  ^ 

Frencli  Zone _ .    .    . 

(*) 
13 

APRIL  21,  1946  607 

Germany:  1939  Resident  Population  Dependent  Upon  Major  Employment  Groupings  in  Zones  of  Occupation 


Agriculture  and  Forestry 

Industry  and  Handicrafts 

Trade  and  Commerce 

Number 

dependent 

in 

millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 

German 

agricultural 

dependent 

Number 

dependent 

in 

millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 

German 

industrial 

dependent. 

Niunber 

dependent 

in 

millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 

German 

commercial 

dependent 

Gorniany  (1937  Boundaries) 

BoiHii  (Joint  Administration)  _  — 
Eastern  Germany             _      _      

12.  3 

(*) 
5.0 
2.3 
0.  3 
2.  4 
7.  3 
2.  5 
3.2 
0.  1 
1.5 

18 
(*) 
21 
16 
27 
29 
18 
13 
24 
14 
25 

100 

(*) 

41 
19 

2 
20 
59 
20 
26 

1 
12 

28.  0 

1.  8 
9.5 
6.  6 
0.  2 

2.  7 
16.  7 

8.7 
5.2 
0.  3 
2.5 

41 
42 
39 
45 
18 
32 
42 
45 
39 
43 
41 

100 

6 

34 

23 

1 

10 

60 

31 

19 

1 

9 

10.  8 
1.0 
3.  5 
2.2 
0.2 
1.  1 
6.3 
3.  3 
2.0 
0.2 
0.8 

16 
23 
14 
15 
18 
13 
16 
17 
15 
29 
13 

100 

9 

32 

f        Soviet  Zone 

20 

Konigsbcrg  Area  ' 

Poli.sh-Administrated  Area.__ 
Western  German \' 

2 
10 

59 

British  Zone 

American  Zone 

Bremen  Enclave- 

French  Zone  

31 

18 

2 

8 

Germany:   1939  Resident  Population — Continued 

Germany:    1939  Distribution  of  Major  Religions  for 
Zones  of  Occupation 

Government  and  other  professions 

Protestants 

Catholics 

Number 

dependent 

in 

millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 
German 
profes- 
sional 
dependent 

Number 

in 
millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 
German 
Protest- 
ants 

Number 

in 
millions 

Percent  of 
resident 

population 
in  zone 

Percent  of 
German 
Catholics 

Germany  (1937  Bonndaries) 

Berlin  (Joint  Admini.stration) 

Eastern  Germany 

Soviet  Zone 

6.9 
0.  7 
2.4 
1.4 
0.  2 
0.  8 
3.  8 
1.9 
1.3 
0.  1 
0.  5 

10 
16 
10 

9 
18 
10 
10 
10 
10 
14 

8 

100 

10 

35 

20 

3 

12 

55 

28 

19 

1 

7 

41.3 

3.0 

19.  1 

12.  8 

1.0 

5.  3 
19.2 
10.4 

6.  1 
0.  6 
2.  1 

61 
70 
79 
86 
91 
63 
48 
54 
45 
86 
34 

100 

7 

46 

31 

2 

13 

47 

25 

15 

2 

5 

22.  6 
0.  5 
3.7 
0.9 
0.04 
2.8 

18.  4 
7.  6 
6.9 
0.  1 
3.  8 

33 
12 
15 
6 
4 
33 
46 
39 
51 
14 
62 

100 

2 

16 

Konigsberg  Area  ' 

Polish- Administrated  Area^__ 
Western  Germany . 

(*) 
12 
82 

British  Zone 

34 

.American  Zone 

31 

Bremen  Enclave ' 

French  Zone     

(*) 
17 

•Very  small  amount  or  percent. 

'  The  Konigsberg  area  is  under  Soviet  administration  pending  ultimate  transfer  to  the  Soviet  Union  at  the  peace  settlement  (Potsdam  Communique,  Sec- 
lion  VI). 

-  The  Bremen  enclave  is  under  a  combination  of  American  and  British  control  since  Dec.  10,  1945. 

3  Plowland  as  used  here  includes  all  cultivated  land  except  gardens  and  orchards.    It  should  not  be  confused  with  arable  land. 

*  Other  agricultural  land  includes  gardens,  meadows,  pastures,  orchards,  vineyards,  and  willow  groves. 

'  These  net  income  figures  were  converted  into  American  currency  without  taking  into  consideration  differences  between  the  1937  price  levels  of  Germany  and 
the  U.  S.    The  28.5  billion  dollars  total  net  income  was  probably  the  equivalent  in  1937  of  some  20.8  billion  dollars  income  in  the  V.  S. 

« Value  added  by  industrial  processing  in  1936  (includes  mineral  production). 

'  Proved  and  probable  reserves  down  to  about  6,500  ft.  depth;  estimated  where  zonal  boundaries  cross  deposits. 


608 


DEPARTMENT  OF  STATE  BULLETIN 


In  the  Minds  of  Men 


Article  by  DOROTHEA   SEELYE   FRANCIv 


The  Department  of  State's  Program,  1943-45 

Only  in  the  last  few  years  has  the  Anieriean 
Government  played  any  part  in  the  linking  of 
American  life  and  culture  with  that  of  the  Near 
East.  To  the  eastern  Mediterranean  theater  of 
war  it  sent  its  soldiers  by  the  thousands,  their  self- 
confident  informality  reflecting  one  aspect  of  the 
American  spirit  and  their  equipment  and  machines 
l^roviding  tangible  evidence  of  material  American 
achievements. 

In  the  capitals  of  the  Near  East  the  Office  of  War 
Information  established  outposts  well  equipped  to 
tell  the  story  of  the  United  Nations  battle  and  the 
United  States  part  in  it  through  the  spoken  and 
written  word  and  through  motion  pictures,  slides 
and  film-strips. 

Since  the  spring  of  1943  the  Department  of  State, 
on  a  wartime  emergency  basis,  has  been  carrying 
on  a  program  planned  to  facilitate  the  work  of 
private  American  institutions  in  the  Near  East 
and  to  supplement  their  activities  with  otliers  de- 
signed to  share  American  experience  in  cultural 
and  scientific  fields. 

This  cultural-cooperation  program  has  had  four 
major  aspects:  (1)  appointing  and  servicing  cul- 
tural-relations attaches;  (2)  assisting  institutions 
and  projects;  (3)  facilitating  the  interchange  of 
selected  people;  and  (4)  supi^lying  cultural 
nuiterials. 

1.   Appointment  of  Cultural-Relations  Attaches 

Focal  point  of  the  cultural-cooperation  program 
in  the  field  is  the  cultural-relations  attache  assigned 
to  the  American  diplomatic  or  consular  mission  or 
a  Foreign  Service  officer  to  whom  cultural-cooper- 
ation duties  are  assigned.  For  example,  Donald  E. 
Webster,  author  of  7' he  Turkey  of  Atafurk  and 
former  professor  of  sociology  at  Beloit  College,  has 
been  cultural-relations  attache  at  Ankara,  Turkev. 


since  1943.  Other  full-time  attaches  are  following 
him  to  serve  in  the  Arab  countries. 

The  cultural-relations  attache  is  one  of  the  links 
between  the  people  of  the  United  States  and  the 
people  of  the  country  to  which  he  is  assigned. 
Mr.  Webster  describes  the  liaison  job  of  his  office  as 
being  like  that  of  a  pumping  station  on  a  pipeline 
to  iJromote  the  flow — but  in  both  directions — of 
personnel,  publications,  and  other  means  of  infor- 
mation for  the  sake  of  increased  knowledge  and 
mutual  understanding  between  the  people  of  the 
two  countries. 

The  pattern  of  the  attaches'  activities  might  be 
sketched  this  w-ay : 

A.  Liaison  and  regular  contact  with 

1.  Local  government  officials  in  education,  sci- 
ence, health,  arts,  and  other  appropriate  fields 

2.  Representatives  of  local  organizations  such 
as  schools,  colleges,  industrial,  scientific,  and 
agricultural  groups,  community  centers,  and 
cultural  associations 

3.  Intellectual  leaders,  national  and  foreign, 
such  as  educators,  writers,  artists,  scientists, 
scholars 

B.  Participation  in  cultural-relations  activities 

1.  Selection  of  committees  for  study  and  train- 
ing in  the  United  States 

2.  Education,  science,  and  art  projects  spon- 
sored bj'  the  United  States  Government 

3.  American  educational  and  scientific  institu- 
tions in  the  country 

4.  Cultural  and  professional  groups  sponsored 
by  representatives  of  the  country 

Mrs.  Fraiiok  is  a  Divisional  Assistant  in  tlie  Division  of 
International  Exchange  of  Persons,  OflSce  of  International 
Information  and  Cultural  Affairs,  Department  of  State. 
This  is  the  second  part  of  an  article  on  our  cultural  rela- 
tions in  the  Near  East.  For  part  I  see  Bitlletin  of  Mar. 
31,  104fi,  p.  503. 


APRIL  21,  1946 


609 


5.  Facilitation  of  contacts  between  nationals 
and  Americans,  either  resident  or  visiting 

6.  Provision  of  requested  information,  con- 
ducting informal  discussions,  and  delivering 
jiublic  addresses  dealing  especially  M'ith  social 
and  intellectual  developments  in  the  United 
.States 

7.  Assemblage  of  material  aliout  tlie  country  for 
use  in  the  United  States — recordings,  films, 
articles,  scientific  studies. 

Here  is  one  example  of  the  assistance  the  attache 
can  give  to  a  cultural-relations  program  not  re- 
sulting directly  from  the  United  States  Cirovern- 
ment's  own  program.  In  the  summer  of  19i5  the 
Turkish  sugar  refineries  presented  a  tentative 
plan  for  training  15  or  20  promising  young  Turks 
in  the  United  States  in  modern  methods  of  proc- 
essing beet  and  cane  sugar.  The  plan  envisioned 
a  j-ear  of  English  study  in  the  United  States  fol- 
lowed by  four  or  five  years  of  college  study  and 
practical  training.  The  attache  not  only  passed 
on  the  names  of  American  colleges  suggested  bv  the 
Department  of  .Vgrieulture  as  offering  the  appro- 
priate courses  but  also  recommended  that  the  stu- 
dents lie  taught  English  in  Turkey  by  an  Ameri- 
can instructor.  The  refineries  welcomed  the  idea, 
and  as  a  result  Charles  E.  Howe,  former  teacher 
of  English  in  a  Michigan  high  school,  sailed  in 
October  to  teach  English  at  sugar  refineries  in  two 
towns  in  the  interior  of  Turkey. 

The  attache  at  Ankara  described  another  aspect 
of  his  job : 

"My  contacts  and  operations  .  .  .  alreadj'  have 
given  me  several  occasions  for  referring  not  insig- 
nificant amounts  of  business  to  the  connnercial 
attache.  Through  literature  distribution  and  ref- 
erence-information services,  an  attache  inevitably 
creates  awareness  of  and  desires  for  instruments 
of  which  his  informees  previously  were  unaware." 

2.  Institutions  and  Projects 

The  backbone  of  cultural  cooperation  in  the 
Near  East  has  been  asistance  for  particular  pro- 
grams of  the  American  colleges  and  other  insti- 
tutions. At  the  outset  the  Department  recognized 
two  facts :  that  these  colleges  established  and  main- 
tained by  private  American  and  Near  Eastern 
funds  were  one  of  the  greatest  cultural  assets  of 
the  United  States  anywhere  in  the  world ;  and  that 
in  the  stress  of  war  inflation  the  colleges'  private 
funds    were    insufficient    to    maintain    American 


standards  at  a  time  wlien  increasing  demands  were 
being  made  upon  them  by  the  people  and  govern- 
ments of  the  Near  East.  In  the  granting  of  aid 
to  the  colleges  it  was  clearly  understood  that  gov- 
ernment assistance  entailed  no  sort  of  government 
control.  Eelated  to  the  colleges'  special  programs 
have  been  other  Near  Eastern  projects  directly 
sponsored  by  the  Department.  These  college  pro- 
grams and  Department  projects  have  been  carried 
on  in  the  fields  of  education,  medicine,  agriculture, 
engineering,  and  language  and  history  publica- 
tions. 

Educutioii.  Funds  have  been  allocated  to  the 
colleges  for  scholarships  so  that  promising  stu- 
dents with  little  money  could  benefit  from  an 
American  eilucation.  In  this  way  the  two  col- 
leges in  Turkey,  Eobert  College  and  Istanbul 
Women's  College,  were  enabled  to  maintain  a  fair 
geograi)hic  distribution  between  students  from  the 
seacoast  and  those  from  the  less  wealthy  Anatol- 
ian plateau  and  to  continue  their  policy  of  having 
one  third  of  their  students  from  families  with  an- 
nual incomes  of  less  than  $1,500.  The  American 
University  was  able  to  offer  scholarships  to  Syr- 
ians, Iranians,  Iraqis,  Saudi  Arabians  and  Ethio- 
pians for  both  secondary  school  work  and  training 
in  agricidture,  public  health,  and  nursing.  In  an 
area  wliere  so  few  can  afford  the  cost  of  high- 
school  ayd  college  training  there  are  seemingly, 
no  limits  on  what  may  be  done  fruitfidly  in  pro- 
viding students  with  scholarship  help  for  Ameri- 
can education. 

A  .survey  of  education  in  the  Arabic-speaking 
countries  of  the  Near  East  is  being  conducted 
under  the  joint  auspices  of  the  American  Council 
on  Education  and  the  Department  of  State  in 
cooperation  with  local  government  officials.  Rod- 
eric  D.  Matthews  of  the  University  of  Pennsyl- 
vania's school  of  education,  as  director  of  the  sur- 
vey, is  being  assisted  by  Mata  Akrawi,  dean  of  the 
Baghdad  Higher  Teachers'  College,  Emam  Abdul 
Meguid,  who  is  on  loan  from  the  Egyptian  Minis- 
try of  Education  via  the  Secretariat  of  the  Arab 
League,  and  Amir  Boktor,  head  of  the  department 
of  education  of  the  American  University  at  Cairo. 
For  the  benefit  of  both  the  United  States  and  the 
Near  Eastern  countries,  this  group  is  studying 
new  developments  in  the  educational  systems  of 
the  various  countries  and  the  problems  facing 
them.  Their  final  report  will  be  made  available 
in  both  English  and  Arabic. 


610 


DEPARTMENT  OF  STATE  BULLETIN 


Medicine.  In  tlie  field  of  medicine  the  American 
University's  medical  school  has  been  given  help 
in  maintaining  public-health  education,  in  sup- 
porting charity  hospital  beds,  for  teaching,  re- 
s'earch,  and  aid  to  the  community,  and  in  extending 
the  work  of  the  Health  Center  and  the  Maternity 
Clinic.  The  Admiral  Bristol  Hospital  in  Istanbul 
has  received  supplementary  aid  for  its  Nurses' 
Training  School  which  demonstrates  American 
health  and  nursing  methods  in  the  training  of 
nurses  to  take  part  in  the  Turkish  Government's 
expanding  nursing  program.  The  significance  of 
the  American  Hospital's  contribution  is  underlined 
by  the  Turkish  Government's  recent  decision  to 
engage  an  American  surgeon  to  organize  a  chest- 
surgery  service  in  one  of  its  own  hospitals  in  Istan- 
bul and  also  to  serve  on  the  staff  of  the  Admiral 
Bristol  Hospital. 

The  first  American  medical  center  in  western 
Arabia  has  been  established  by  the  American  Uni- 
versity of  Beirut  with  funds  supplied  by  the  De- 
partment. Located  at  Jidda,  Saudi  Arabia,  it 
will  serve  Moslem  residents,  the  thousands  of  pil- 
grims journeying  annually  to  the  holy  cities, 
Europeans,  Americans,  and  others  requesting. 
American  medical  assistance.  It  will  also  become 
the  center  for  American  research  in  tropical  dis- 
eases in  that  area  and  will  provide  pi'actical  medi- 
cal experience  for  students  and  graduates  of  the 
American  University's  medical  school.  Dr.  Henry 
J.  Shoettner  has  been  detailed  by  the  United 
States  Public  Health  Service  to  act  as  director  of 
the  clinic,  and  he  is  being  assisted  by  Miss  Ruby 
Bohlman,  R.  N. 

AgritCuUurc.  In  agricultui'e  the  first  project 
helped  by  State  Department  funds  was  the  estab- 
lishment of  an  agricultural  extension  training  pro- 
gram for  Lebanon  and  the  surrounding  countries 
by  the  Near  East  Foundation  in  cooperation  with 
the  American  University  of  Beirut.  This  program 
extends  and  expands  the  University's  own  Village 
Welfare  Service  in  which  students  and  teachere 
worked  during  vacations  to  raise  living  standards 
in  rural  villages.  For  the  first  two  years  the  proj- 
ect concentrated  on  classes  at  the  University  to 
train  workers  in  public  health,  agriculture,  home 
economics,  and  social  work.  Plans  may  be  made 
to  extend  the  training  to  villages  by  setting  up 
additional  demonstration  centers,  possibly  in  con- 
nection with  the  new  schools  at  Damascus  and 
Baghdad.    As  a  result  of  many  requests  from  the 


Near  East  for  advice  and  assistance  in  the  field  of 
agriculture,  particularly  research  and  education, 
a  mission  sponsored  by  the  Depai'tments  of  State 
and  Agriculture  has  been  sent  to  certain  Near 
Eastern  countries  primarily  interested  in  agri- 
cultural development :  Lebanon,  Syria,  Iraq, 
Egypt,  and  Saudi  Arabia.  Members  of  the  mission 
are  Franklin  S.  Harris,  president  of  Utah  State 
Agricultural  College,  Logan,  Utah,  agronomist 
and  expert  on  irrigation  and  agricultural  educa- 
tion ;  Robert  E.  Buchanan,  director  of  Iowa  State 
agricultural  experiment  station  and  dean  of  agri- 
culture, Iowa  State  College;  and  Afif  Tannous, 
rural  sociologist,  member  of  the  Department  of 
Agriculture's  Oflice  of  Foreign  Agricultural  Rela- 
tions. The  mission  has  a  dual  purpose :  first,  to 
survey  the  agricultural  situation  in  conjunction 
with  local  authorities  in  order  to  recommend  long- 
term  developmental  or  educational  projects  which 
might  be  undertaken  by  Near  Eastern  govern- 
ments, either  independently  or  in  cooperation  with 
the  United  States  Government  or  private  agencies ; 
and,  second,  to  share  with  the  various  governments 
and  private  organizations  some  of  the  agricultural 
experience  of  the  United  States. 

Engineering.  Robert  College's  engineering 
school  has  used  Department  funds  to  develop 
metallurgical  and  comnmnications  laboratories 
and  instruction  in  sanitary  engineering.  The 
importance  of  the  engineering  school  to  the 
American  as  well  as  to  the  Turkish  Govei'nment 
is  shown  by  the  fact  that  during  the  war  the 
American  Army  detailed  four  officers  to  the  school 
to  teach  Turkish  students,  many  of  them  in  the 
Turkish  Army.  Robert  College  has  also  used  a 
part  of  its  grant  to  enable  one  of  its  professors  to 
do  original  research  on  the  waters  and  currents 
of  the  Bosporus. 

P-uMicationfs.  These  have  been  related  to  the 
study  of  Turkish  by  Americans  and  of  English 
by  Turks  and  to  an  Arabic  history  of  the  United 
States.  A  grant  was  made  to  the  American  Board 
of  Commissioners  of  Foreign  Missions  to  assist 
it  in  preparing,  publishing,  and  distributing  a 
I'evised  modern  edition  of  the  Redhouse  Turkish- 
English  Dictionary.  Since  there  is  no  adequate 
modern  Turkish-English  dictionary  this  new  one 
will  facilitate  the  interchange  of  knowledge  and 
skills  and  become  indispensable  to  the  teaching  and 
use  of  English  in  Turkey.  Amei'ican  funds  also 
made  possible  the  issuing  of  up-to-date  editions  of 


! 


APRIL  21,  1946 


611 


iiii  eleinentiuy  textbook  entitled  First  Lessons  in 
Modern  Turkish^  an  English-Turkish  conversa- 
tional dictionary,  and  science  textbooks  specially 
adapted  for  Turkish  students,  all  by  members  of 
the  Robert  College  staff. 

The  first  comprehensive  history  of  the  United 
States  in  Arabic  is  to  be  printed  by  the  American 
Mission  Press  in  Beirut,  which  has  been  publish- 
ing since  1834.  Entitled  History  of  the  People  of 
the  United  States,  it  was  prepared  under  the  super- 
vision of  Philip  K.  Hitti,  head  of  Princeton  Uni- 
versity's school  of  oriental  studies. 

3.  Interchange  of  Persons 

The  interchange  of  persons  between  nations  is 
widely  recognized  as  one  of  the  most  effective 
means  of  increasing  international  understanding, 
aside  from  the  political  and  economic  benefits  to 
be  derived  from  it. 

Tiie  American  University  at  Cairo  has  been 
host  to  three  "cultural  ambassadors"  sponsored 
by  the  Department.  Edwin  H.  Calverley,  a  dis- 
tinguished Arabist,  and  his  wife,  Eleanor  T.  Cal- 
verley, a  doctor  with  long  experience  in  Arabia, 
spent  last  year  at  the  University's  school  of  ori- 
ental studies  wliere  Mr.  Calverley  taught  Arabic 
and  lectured  on  Islamics.  As  women's  health  di- 
rector at  the  University,  Mrs.  Calverley  had  an 
opportunity  to  study  village  health  problems  and 
complete  her  book  on  tropical  diseases  and  tropical 
hygiene.  Her  husband  had  these  comments  on  his 
year's  experience : 

"Soon  after  our  arrival  we  found  that  there 
was  already  in  existence  among  the  friends  of  the 
University  a  strong  desire  to  promote  scholarly 
pursuits  in  Arabic  and  Islamic  studies.  Those 
teachers  and  friends  of  the  University  soon  estab- 
lished an  Oriental  Society  .  .  .  The  membership 
was  to  be  Egyptian,  British,  American,  and 
others  .  .  .  The  papers  read  in  English  by  the 
Egyptian  speakers  were  especially  appreciated. 
Egypt  has  long  been  recognized  as  the  literai'y 
center  of  the  Arab  world  and  has  had  a  flourishing 
output  of  literature.  So  I  became  acquainted  with 
the  librarians  and  some  of  the  professors  at  Fuad, 
the  First  University  and  the  National  Egyptian 
Library.  All  .  .  .  expressed  great  eagerness  to 
develop  Egyptian- American  cultural  cooperation. 
The  conviction  was  given  to  me  that  there  is  not 
stagnation  in  Egj'pt  but  rather  that  there  are 
strong  currents  of  thought  and  action  there  .  .  , 


and  that  good  cooperative  leadership  specially 
from  America  can  win  a  welcome." 

Calverley  outlined  a  number  of  cultural  projects 
suggested  by  Egyptians  as  cooperative  enterprises : 
interchange  of  students  and  teachers ;  development 
of  cooperative  clinic  and  hospital  services  in  Egypt 
along  the  American  pattern ;  securing  microfilms 
of  Arabic  manuscripts  now  located  in  areas  for- 
bidden to  non-Moslems;  publication  of  a  continu- 
ing history  of  Arabic  literature  and  a  series  in 
English  translation  of  masterpieces  of  Arabic 
literature. 

This  school  year  M.  Lyle  Spencer,  dean  of 
Syracuse  University's  school  of  journalism,  is 
teaching  at  the  American  University  of  Cairo  in 
connection  with  the  cultural-cooperation  program. 
As  a  result  of  a  survey  of  Egyptian  journalism 
made  by  Dean  Spencer  in  1937,  the  University 
inaugurated  the  first  journalism  courses  in  the 
Near  East.  Among  the  large  number  of  men  and 
women  who  have  since  graduated  from  the  Uni- 
versty  in  journalism  is  Fuad  Sarruf,  who  became 
the  first  editor  of  the  Reader''s  Digest  Arabic  edi- 
tion. In  addition  to  teaching  at  the  Univei-sity, 
Dean  Spencer  is  working  with  editors,  publishers, 
and  journalists  in  various  Near  Eastern  centers 
sharing  his  personal  experience,  and  he  will  even- 
tually recommend  steps  for  expanding  and  im- 
proving journalism  training  in  the  Near  East. 

Turkey  and  the  United  States  are  exchanging 
pi-ofessors  this  year  in  the  field  of  social  psy- 
chology. Early  in  1945  Muzaffer  Serif  Bas  lu, 
professor  of  psychology  at  Ankara  University,  be- 
gan a  two-year  period  of  research  and  writing  at 
Princeton.  In  the  United  States  he  is  known  as 
the  author  of  The  Psychology  of  Social  Norms,  a 
book  published  in  193G  which  has  given  rise  to 
considerable  experimental  work  in  the  field  of 
social  psychology.  His  chief  Turkish  work  is 
one  which  attacks  misconceptions  of  race 
psychology. 

To  take  Basoglu's  place  for  the  194.5^6  school 
year,  the  Turkish  Government  has  appointed  a 
former  teacher  of  his,  Carroll  C.  Pratt,  head  of 
Rutgers  University's  department  of  psychology. 
Mrs.  Pratt,  also  a  psychologist  and  musicologist, 
is  assisting  her  husband  and  the  cultural-relations 
attaclie  in  music  study  and  appreciation. 

Philip  K.  Hitti,  head  of  Princeton  University's 
school  of  oriental  studies,  will  be  leaving  soon  to 
spend  the  summer  months  in  tlie  Near  East  for 
lecturing   and  research  in   the  field   of  oriental 


612 


DEPARTMENT  OF  STATE  BULLETIN 


studies  with  particular  reference  to  American  con- 
tributions. As  a  representative  of  the  American 
School  of  Oriental  Studies  he  will  investigate 
further  possibilities  for  archaeological  research  in 
the  area,  and  as  an  American  of  Lebanese  back- 
ground he  will  be  able  to  discuss  the  contributions 
to  American  life  of  Americans  of  Arabic  origin, 
thus  strengthening  the  bonds  of  friendship  between 
the  two  cultures. 

Near  Eastern  men  and  women  enabled  to  study 
or  lecture  in  the  United  States  under  the  cultural- 
cooperation  program  are  listed  in  the  accompany- 
ing chart.  Most  of  them  have  been  selected  by  the 
Institute  of  International  Education  or  other  pri- 
vate American  organizations  through  the  Ameri- 
can diplomatic  missions  in  consultation  with  local 
officials. 

One  of  the  recipients  of  these  fellowships.  Miss 
Adnan  Ballvis,  principal  of  a  junior  high  school  in 
Ankara,  Turkey,  now  studying  education  at  North- 
western University,  recently  described  her  enthu- 
siasm at  the  warmth  of  her  reception  in  the 
Evanston  community  and  the  value  of  all  she  had 
seen  and  learned  in  the  first  three  months  of  her 
visit.     She  wrote : 

"I  spent  my  Christmas  vacation  in  a  friend's 
home  in  Oakville,  Iowa.  I  cannot  tell  how  much  I 
enjoyed  the  little  town,  with  its  church,  school- 
house,  the  newspaper  office  and  the  friendly  in- 
habitants. I  drove  a  tractor  in  the  fields,  milked 
a  cow  and  did  the  chores.  They  made  me  feel  as 
a  member  of  the  family  the  Christmas  night,  when 
we  sang  songs  and  exchanged  gifts.  I  met  simple 
farmers.  We  discussed  politics  and  international 
relations  with  democrats  and  republicans  of  Oak- 
ville. 

As  a  part  of  my  school  work  I  visited  some  of 
the  schools  in  Evanston.  I  am  very  nuich  im- 
pressed with  the  pupils'  interest  toward  learning 
about  the  ways  and  living  of  other  peoples  in  the 
world.  Teachers  certainly  are  doing  great  work 
in  inspiring  children  with  international  friend- 
ship. In  every  class  I  have  visited  I  was  flooded 
with  questions  about  my  country.  Everywhere  I 
go  I  meet  with  people  who  are  anxious  to  learn 
about  Turkey  and  who  express  delight  in  finding 
out  how  alike  we  are. 

I  had  a  very  interesting  experience  in  a  Sunday 
School.  It  was  in  a  small  church  in  Chicago,  where 
one  of  my  friends  was  teaching  Sunday  School. 
That  day  one  of  the  teachers  was  ill  and  couldn't 


come.  I  offered  to  take  the  group.  We  read  about 
David,  the  Shepherd  Boy ;  thej'  were  very  much  in- 
terested when  I  told  them  about  the  country  where 
David  lived,  as  I  happen  to  have  sjient  a  part  of 
my  childhood  in  Syria,  Lebanon  and  Palestine. 
And,  the  parents  were  in  no  wise  shocked  when 
they  heard  that  their  children  had  a  teacher  of 
Moslem  creed  for  their  Sunday  School. 

A  week  before  Christmas,  I  was  in\ated  to  a 
meeting  of  Delta  Kappa  Gamma,  an  honorary 
teachers'  organization,  where  I  met  many  teach- 
ers. I  was  thrilled  to  notice  how  our  hopes  and 
ideals  coincided.  That  is  one  of  my  happiest  ex- 
periences. I  felt  so  happy  that  I  even  managed 
to  deliver  a  speech." 

Near  East  Eecipients  of  Graduate  Fellowships 
AND  LectijReships  Awarded  IN  Near  East 
1943-1945 


Country 

Name  of  recipient 

Institution  in  U.  S. 

Field  of  study 

Egypt.   .  . 

Badrawy,    Bad- 

New  York  School 

Social  work. 

rawy  M. 

of  Social  Work. 

EI-Abd,  Salah  .  .  . 

Univ.  of  N.  Caro- 

Agriculture and  ru- 

lina. 

ral  sociology. 

Cindy    (Miss), 

Bryn  Mawr 

Sociology  and  group 

Aida. 

work. 

Kabanny  Bey  .  .  . 

Ohio     State    and 

Visiting  lecturer  in 

others. 

education. 

Mosharrafa     Bey, 

Princeton 

Visiting  professor  in 

Ali. 

higher  mathemat- 

Iraq. .   .   . 

Dogramaji     (Dr.), 

St.     Louis     Chil- 

ics. 
Children's  diseases. 

Ibsan. 

dren's  Hospital. 

Abdullah.  Abdul   . 

M.I.T 

Meteorology. 

Kadiiim,  Abdul  .   . 

Columbia 

Education. 

A!-Yasin,  Moham- 

Columbia  

Education. 

med. 

Lebanon   . 

Al-Khalil,    (Dr.) 
Sadallah. 

Mayo  Clinic.  .  .   . 

Medicine. 

Jabbour,  Jibrail  .   . 

Princeton 

Oriental  studies. 

Macksoud.  Salim  . 

Univ.  of  Calif  .   .   . 

Farm  management 
and  irrigation. 

Tueni,  Chassan  .  . 

Harvard 

Journalism. 

Saudi 

Tariky,  Abdullah  . 

Univ.  of  Texas.  .   . 

Petroleum    geology 

Arabia. 

and    engineering. 

SjTia  .  .  , 

Madany,  George.  . 

Iowa  State 

Industrial  chem- 
istry. 

Dabbas,  Edward.  , 

Lehigh 

Mechanical  en- 
gineering. 

Al-Hakim,  Muham- 

Univ. of  Minnesota 

Engineering. 

mad. 

Alluni,  Abdul  Aziz. 

Cornell 

Agriculture  and 
sociology. 

Mujahid,      (Miss) 

Syracuse 

Home  economics. 

Zahra. 

Sawwaf,  Shawkat  . 

Purdue 

Electrical  engi- 
neering. 

Turliey  .  . 

Akbasli,  (Dr.) 

Chicago   Lying-in 

Obstetrics   and 

Zeliha. 

Hospital. 

gynecology. 

Balki§,      (Miss) 

Northwestern  .    .  . 

Education. 

Adnan. 

Ba§o2lu,  Muzaften 

Princeton 

Psychology. 

§eril. 

APRIL  21.  194b 


613 


Recipients  of  U.  S.  Public  Health  Service  In- 
ternships 


Name  of  recipient 

Institution  in  U.S. 

Field  otbtudy 

Paiiuili.  Dr.  Ozhan. 

U.S.  Public  Healtl! 
Service  Uospital. 
New  Yorlc 

Surpery. 

Renda,  Dr.  Fevzi  . 

U.S.  Public  Health 
Service  Hospital, 
Baltimore 

Infernal  medicine. 

Oflicials  in  the  Near  East  a.s  well  as  of  American 
college.s  have  asked  that  steps  be  taken  toward 
establishing  a  central  sj'stem  of  selecting  appli- 
cants for  study  and  training  in  the  United  States 
to  ensure  that  the  best-qualified  candidates  are 
given  help  in  coming  to  the  appropriate  institu- 
tions in  the  United  States.  For  that  reason,  there 
are  being  established  in  various  Near  Eastern 
countries  committees  for  study  and  training  in  the 
United  States — committees  of  which  both  repre- 
sentatiA'e  Americans  and  nationals  will  be  mem- 
bers. As  presently  planned  the  committees  may 
be  concerned  with  three  types  of  i^eople :  (1)  recip- 
ients of  United  States  fellowships  and  training 
grants;  (2)  students  and  trainees  with  adequate 
financial  means  requesting  the  committee's  advice 
or  help  in  placement;  and  (3)  recipients  of  local 
government  grants.  Through  the  committees' 
assistance  to  non-scholarship  students,  placement 
groups  in  the  United  States  will  be  able  to 
distribute  Near  Eastern  students  more  evenly 
throughout  the  United  States  for  the  mutual 
benefit  of  the  students  and  various  American  com- 
munities. The  functions  of  the  committees  will 
be  made  as  widely  known  as  possible,  but  there  is 
no  regulation  preventing  direct  application  to 
American  institutions,  which  may  or  may  not  refer 
the  foreign  applicants  to  the  committees. 

Facilitating  the  interchange  of  .selected  persons 
financed  by  foreign  governments  or  private 
agencies  has  also  been  a  part  of  the  cultural- 
cooperation  program.  To  cite  two  examples,  the 
United  States  Public  Health  Service  and  the 
Department  are  helping  to  plan  the  period  of 
training  in  the  United  States  of  13  Syrian  doctors 
in  the  service  of  the  Syrian  Government.  After 
completing  several  weeks  of  English  study  in 
Washington,  these  doctors  are  starting  as  observers 
in  certain  American  medical  institutions  special- 
izing in  their  various  fields.     In  response  to  a 


request  from  the  Turkish  Ministry  of  Educatii>n, 
the  Department  and  the  United  States  Office  of 
Education  are  looking  for  qualified  Americans 
interested  in  teaching  international  law,  American 
literature,  or  j^harmaceiitical  chemistry  at  the 
University  of  Istanbul  or  economics  at  the  Uni- 
versity of  Ankara. 

J.  Cultural  Materials 

For  the  interchange  of  knowledge  and  skills 
the  importance  of  cultural  materials  is  second  only 
to  the  importance  of  persons.  Under  the  Depart- 
ment of  State's  program,  materials  supplied  to 
selected  institutions  and  individuals  in  the  Near 
East  have  included  publications,  scientific  and  edu- 
cational equipment,  films  and  film-strips,  musical 
recordings  and  art  rejiroductions,  all  purchased  by 
the  Department  of  State  or  by  the  institutions 
tlsemselves  with  funds  furnished  to  them. 

Reference  sets  and  basic  collections  of  Ameri- 
can books  on  various  subjects  have  been  sent  to 
American  and  national  institutions  including  the 
Y.  M.  C.  A.'s  and  the  Y.  W.  C.  A.'s,  the  American 
Junior  College  at  Beirut,  Aleppo  College,  Hebrew 
University,  the  American  School  for  Girls  in 
Cairo,  the  University  of  Istanbul,  and  Ministries 
of  Education.  Books  on  American  thought  and 
activity  presented  to  the  Robert  College  library 
(the  only  large  library  in  Turkey  which  permits 
the  drawing  out  of  books)  were  among  those  bor- 
rowed by  alumni  and  teachers  in  national  univer- 
sities as  well  as  by  the  college's  own  students. 
Special  collections  of  books  such  as  children's 
books  and  books  on  education  and  medicine  were 
sent  to  interested  groups.  A  number  of  subscrij)- 
tions  to  scientific  and  professional  journals  were 
taken  out  for  individuals  and  organizations  in 
response  to  special  requests.  The  memorandum 
below  written  to  the  cultural-relations  attache  at 
Ankara  by  an  American  official  after  a  tour  of 
Turkey  is  one  example  of  what  those  magazines 
have  meant  to  people  otherwise  cut  off  from  Amer- 
ican sources : 

"During  my  recent  visit  to  Samsum,  Captain 
Zeki  Tolgay  of  the  Turkish  Army,  who  speaks 
good  English  and  states  that  he  has  translated 
a  number  of  American  magazines  which  you  have 
sent  him  into  Turkish,  gave  me  the  enclosed  card 
and  appreciates  very  much  the  things  you  have 
sent.     A  civilian  there  who  speaks  good  Englisli 


GS990.3— 40- 


614 


DEPARTMENT  OF  STATE  BILLETIN 


also  asked  to  be  remembered  to  you  and  asked  me 
to  tliank  you  for  tbe  maaazines  you  have  sent.  I 
believe  him  to  be  Emin  Hekimgil  of  the  Halkevi 
(folkhouse)." 

Sets  of  publications  have  been  sent  in  response 
to  particular  requests — from  the  Turkish  Ministry 
of  National  Defense  for  information  on  the  United 
States'  mobilization  of  its  industrial  resources, 
from  tlie  Near  East  IMusie  Teachers'  Association 
for  song  books  and  music  teaching  aids,  from  Leb- 
anese and  Egyptian  doctors  for  books  and  pam- 
phlets about  hospital  construction  and  cooperative 
medicine  in  the  United  States,  from  Syria  and 
Iraq  for  model  rural  schoolhouse  plans. 

On  a  snuiUer  but  growing  scale  the  interchange 
of  Arabic  and  Turkish  material  with  American 
material  is  being  facilitated.  For  instance,  a  col- 
lection of  70  publications  of  Istanbul  University's 
Institute  of  Experimental  Pathohtgy  and  Cancer 
Kesearch  presented  to  the  Army  Medical  Library 
in  Washington  was  welcomed  by  the  library's 
director  in  these  words : 

''This  is  the  first  collection  of  important  medical 
contributions  which  we  have  received  from  Tuikey 
in  many  years  and  I  am  very  much  pleased  to  .  .  . 
have  Turkey  so  well  represented.  I  hope  we  will 
be  able  to  receive  other  contributions  in  the  medical 
field  from  Turkey,  for  I  can  assure  this  is  of  great 
importance  internationally." 

Articles  by  Turks  in  sucli  fields  as  anthropology, 
geology,  and  medicine  ha\e  been  placed  in  Ameri- 
can journals,  and  exchanges  of  certain  scientific 
and  professional  journals  are  being  arranged. 

A  considerable  amount  of  scientific  equipment 
has  been  ]5urchased  for  the  engineering  and  medi- 
cal laboratories  at  Robert  College  and  the  Ameri- 
can University  of  Beirut.  Radio-phonographs 
with  public-address  sj'stems  were  presented  to  a 
number  of  American  and  local  universities  for 
educational  uses.  Musical  and  educational  record- 
ings and  art  reproductions,  separately  and  in  book 
collections,  are  being  sent  to  schools  and  museums. 
Supplementing  the  Office  of  AVar  Information's 
extensive  film  and  film-strip  program,  the  Depart- 
ment of  State  has  provided  a  few  motion-picture 
projectors,  several  film-strip  projectors,  educa- 
tional films,  and  film-strips  for  loan  by  diplomatic 
missions  to  etlucational  groups. 


The  Office  of  International  Information  and 
Cultural  Affairs,  1946 

To  face  the  challenge  of  another  chance  for 
peace  the  Office  of  International  Information  and 
Cultural  Affairs  has  been  organized  within  the 
Department  of  State.  Congress  willing,  the  new 
office,  taking  over  some  of  the  activities  of  the  Of- 
fice of  War  Information,  will  supplement  where 
necessary  the  private  media  of  commiuiications 
between  countries  and  will  expand  the  original 
program  of  cultural  and  scientific  interchange  of 
ideas  and  persons  between  the  United  States  and 
other  countries.  Ankara,  Istanbul,  Damascus, 
Beirut,  Baghdad,  and  Cairo  are  among  the  world 
centers  where  American  diplomatic  missions  are 
establishing  public-affairs  offices  in  which  infor- 
mation officers,  cultural  attaches,  and  librarians  in 
charge  of  information  centers  will  work  closelv 
together. 

Various  government  officials  have  testified  as  to 
the  practical  benefits  accruing  to  the  United  States 
from  such  a  world-wide  program. 

Referring  particularly  to  the  Near  East.  Loy 
W.  Henderson,  Director  of  the  Department  of 
State's  Office  of  Near  Eastern  and  African  Affairs, 
remarked : 

"A  prominent  British  official,  who  has  spent 
many  years  in  the  Middle  East  made  the  remark 
to  me  .  .  .  that  in  his  opinion  the  American 
University  of  Beirut,  more  than  any  other  single 
influence  in  the  Near  East,  was  responsible  for  the 
loyalty  of  the  Moslem  peoples  to  the  democratic 
powers  during  .  .  .  the  war.  He  pointed 
out  quite  correctly  that  there  were  hundreds  of 
officials  and  intellectual  leaders  in  the  countries  of 
the  Near  East  who,  as  a  result  of  their  education 
in  that  university,  had  become  acquainted  with 
the  democratic  concepts  and  M'ith  the  ideals  of  the 
United  States,  and  who  were  able,  with  their 
knowledge,  to  offset  the  insidious  projiaganda  of 
the  enemy  totalitarian  countries." 

Congressman  Victor  Wickersham  of  Oklahoma, 
after  a  trija  to  the  Near  East,  commented : 

"Our  observations  made  us  appreciate  America 
more.  We  found  that  American  ways  are  the 
ideals  of  most  countries.  The  faith  placed  in 
America  and  in  our  leadership  by  the  countries 


AI'IUL  21.  l<)4i> 


615 


which  we  studieil,  makes  us  extremely  conscious 
of  the  treuiendous  resjjonsibility  ]il:iced  upon  us 
for  our  share  of  leadersiiip  and  uiuterial  aid  nec- 
essary to  restore  order  in  a  war-torn  worhl.  The 
enhirjiement  and  expansion  of  facilities  like  the 
American  University  at  Beirut,  Lebanon;  the 
American  Mission  at  Tehran;  Robert  College.  Is- 
tanbul; the  University  in  Egypt;  and  American 
hospitals  in  various  places,  will  prove  of  great  and 
lasting  value  to  the  United  States.  The  mission- 
aries in  these  countries  have  done  more  to  cement 
friendly  relations  than  nearly  any  other  group, 
We  found  that  the  greater  number  of  outstanding 
leaders  of  the  various  countries  obtained  their 
training  in  one  of  the  above-mentioned  institutions. 
We  had  many  requests  from  various  countries  for 
further  exchanges  of  scholarships  of  outstanding- 
students.  It  is  felt  that  this  will  prove  of  great 
value  to  countries  who  send  their  outstanding  stu- 
<lents  here  for  training  for  i-eturn  to  their  own 
c(;untries  to  aid  in  educating  otheis."" 

Under  the  Department's  program  cultural  mate- 
rials have  been  })reseuted  to  American  and  nal  ional 
institutions  in  the  Near  East  as  gifts  from  the 
people  of  the  United  States  for  the  use  of  the 
peojjle  of  the  count ly.  American  cultural  insti- 
tutes i^arallel  to  those  in  the  American  republics 
liave  not  been  started,  although  the  Americati 
information  libraries  started  by  the  Office  of 
War  Information  in  Istanbul,  Beirut,  Damascus. 
Baghdad,  and  Cairo  have  aroused  great  interest 
ill  American  knowletlge  and  skills  and  served 
growing  numbers  of  people. 

Conclusion 

Cultural  cooperation  with  the  Near  East,  as 
with  any  other  area,  is  a  two-way  proposition.  So 
far  the  flow  has  been  primarily  outward— letting 
Near  Easterners  know  about  Americans,  but  more 
and  more  the  flow  can  and  should  go  both  ways. 
Americans  need  to  know  almost  as  much  about  the 
Near  East  and  its  civilization  as  the  Near  East 
needs  to  know  about  the  United  States  and  Amer- 
ican civilization.  There  should  be  more  centers 
in  the  United  States  and  in  the  Near  East  where 
scholars  of  e\ei'v  nationalitv  niav  aather  for  studv 


and  research  in  Near  Eastern  cultures  and  where 
government  officials,  businessmen,  and  teachers 
and  writers  may  receive  specialized  training. 

It  is  not  only  about  the  ancient  civilizations 
of  the  Near  East  that  Ameiicans  can  learn,  but 
they  could  also  benefit,  and  practically  so,  from 
more  knowledge  of  modern  social  developments 
ill  Turkey  such  as  the  establishment  of  the  Halke- 
vis,  or  folk-houses,  serving  as  centers  of  community 
education  and  recreation.  American  social  scien- 
tists have  had  reason  to  regret  that  they  could  not 
apply  modern  techniques  of  observation  and 
measurement  retroactively  to  certain  social  proc- 
esses now  virtually  completed  in  the  United 
States.  They  should  realize  that  at  this  nKjinent 
nomads  in  the  Arabian  Desert  are  jumping  across 
the  centuries  into  modern  industrial  life,  as  they 
are  trained  almost  overnight  to  work  in  the  oil 
refineries.  (Highly  individualistic  for  centuries, 
one  group  of  them  was  striking  for  higlier  wages 
when  Congressmen  Frances  Bolton  of  Chio  and 
Karl  Muiidt  of  South  Dakota  were  visiting  Saudi 
Arabia  recently.)  A  study  of  this  process  of 
adjustment  would  be  of  inestimable  value  to  the 
social  sciences. 

Not  only  can  the  body  of  knowledge  in  the 
United  States  about  the  Near  East  be  enriched, 
but  also  the  already  existing  body  of  knowledge 
about  the  Near  East  can  be  more  widely  spread — 
in  schools,  in  community  groups  like  the  League 
of  Women  Voters,  the  Foreign  Policy  Association 
and  the  East -West  Association,  through  films, 
recordings,  and  publications,  as  well  as  through 
the  presence  of  individual  representatives  of  the 
Near  p]ast. 

The  opportunity  for  cultural  cooperation  with 
the  Near  East,  as  with  the  rest  of  the  world,  chal- 
lenges not  only  private  American  institutions 
abroad  and  the  American  Government,  but  all 
sorts  of  individuals  and  organizations  in  the 
United  States  as  well.  The  former  have  been 
meeting  the  challenge  for  a  century;  the  Govern- 
ment, for  a  few  years.  But  neither  of  these  groups 
jirefers  to  work  alone.  Both  of  them  are  only 
pumping  stations  facilitating  the  two-way  flow  of 
knowledge  and  skills  between  the  people  of  the 
Near  East  and  the  people  of  the  United  States. 


616 


DEPARTMENT  OF  STATE  BULLETIN 


The  American  Trade  Proposals: 

An  International  Trade  Organization 


Article  by  LOUIS  K.  HYDE,  Jr. 


PROBABLY  THE  MOST  COMPLEX  of  the  Specialized 
agencies  pi"oposed  for  creation  in  relation  to 
the  United  Nations  is  the  Intei-national  Trade 
Organization.  The  story  of  ITO — why  it  has  to 
be  so  extensive  and  so  complex — is  written  upon 
the  three  pillars  of  its  foundation : 

(1)  reduction  of  trade  barriers  (which  are  ;/or- 
ervmental  measures)  ; 

(2)  action  against  practices  of  combines  and 
cartels  (which  are  private  business  arrangements)  : 

{'?>)  orderly  connnodity  adjustments  (including 
carefully  defined  principles  for  dealing  with  the 
problem  of  surpluses) . 

These  three  fields,  although  closely  connected,  in- 
A'olve  radically  ditt'erent  types  of  activity.  Indeed, 
at  one  stage  serious  consideration  was  given  to  the 
question  whether  the  Trade  Organization  should 
be  one  agency  or  tlu'ee  sejaarate  agencies  dealing 
respectively  with  these  three  topics. 

It  appeared  best  finally  to  propose  a  single  or- 
ganization with  enough  internal  specialization  to 
Ijerform  its  various  tasks ;  for  it  was  realized  that 
international  trade  is  a  single  entity,  that  it  is  af- 
fected by  the  three  sorts  of  forces  mentioned,  and 
that  it  is  essential  that  action  taken  in  one  field 
shall  not  be  such  as  to  nullify  what  is  being  at- 
tempted in  another.  The  Proposals  therefore  rec- 
ommend a  single  International  Trade  Organiza- 
tion, with  a  single  conference  and  a  single  executive 
board  to  deal  with  all  three  problems. 

This  article  is  the  fifth  of  a  series  on  the  American 
Trade  proposals.  For  the  first  four  articles,  see 
Bulletins  of  Mar.  17,  1946.  p.  403,  Mar.  24,  1946,  p.  455, 
Mar.  31,  1946,  p.  509,  and  Apr.  7,  1946,  p.  561.  For  text 
of  the  Proposals,  see  Bulletin  of  Dec.  9,  1945,  p.  913, 
and   Department  of  State  publication  2411. 

'  Mr.  Hyde  is  Adviser  on  permanent  U.  S.  Delegation  on 
the  United  Naticms. 


The  three-way  nature  of  tl»e  functions  of  the 
organization  is  nevertheless  apparent  in  the 
structure  proposed.  This  includes,  under  the  con- 
ference and  the  executive  board,  three  constituent 
commissions:  (1)  a  commission  on  commercial 
policy;  (2)  a  commission  on  business  practices; 
and  (3)   a  commodity  commission. 

It  is  proposed  that  the  three  commissions  .should 
be  a  permanent  feature  of  the  Organization's  struc- 
ture, rather  than  exist  as  mere  temporary  or  ad  hoc 
bodies.  Each  of  the  three  deputy  directors  gen- 
eral of  the  Organization  would  sit  with  one  of  the 
commissions  as  an  ex  officio  member. 

It  is  contemplated  that  the  Organization  will 
l^ecome  one  of  the  specialized  agencies  officially 
brought  into  relationship  with  the  United  Nations 
and  that  it  will  establish  relationships  with  other 
specialized  agencies.  For  the  ITO  will  be  founded 
in  the  determination  to  carry  out  the  pledge  in  the 
United  Nations  Char-ter  by  which  members  agree 
to  "take  joint  and  separate  action"  to  achieve  the 
economic  and  social  objectives  of  the  United 
Nations. 

Putting  it  another  way,  the  function  of  the  ITO 
will  be  to  help  make  real  in  the  field  of  interna- 
tional  trade  the  purjDOse  so  often  announced  dur- 
ing the  war:  Continued  collaboration  of  the 
United  Nations  in  practical  affairs  for  mutual 
advantage. 

Interrelation  of  economic  problems  is  well  il- 
lustrated by  the  structure  of  the  ITO.  The  com- 
modity commission,  for  example,  will  have 
responsibility  for  dealing  in  an  orderly  way  with 
the  problems  of  commodities  which  may  be  in 
world  surplus.  But  each  such  commodity  pre- 
sents problems  of  a  different  character — cotton, 
wool,  rubber.  Accordingly,  provision  is  made  in 
the  Proposals  for  a  studj'  group  for  any  problem 


APRIL  21,  1946 


61', 


commodity,  and  in  raseb  wliere  an  inlergoveru- 
mental  commodity  agreement  is  actually  entered 
into,  provision  is  made  for  a  commodity  council  to 
administer  it.  However,  since  there  is  a  risk  that 
peojjle  dealing  with  any  one  commodity  may  ovei- 
look  the  general  interest,  all  study  groups  and  all 
commodity  councils  are  subject  to  the  commodity 
commission. 

Most  commodities  in  world  surplus  have  been 
agricultural  products.  So  provision  is  made  in 
the  Proposals  for  close  relations  with  the  Food 
and  Agriculture  Organization  of  the  United 
Nations. 

What  is  done  about  particular  commodities 
may  have  important  effects  upon  the  entire  state 
of  world  trade  and  especially  upon  the  effort  to 
relieve  trade  from  burdensome  restrictions,  both 
private  and  governmental.  Conversely,  what  is 
done  about  world  trade — especially  about  cartels 
and  trade  barriers — may  affect  the  demand  for 
particular  conunodities.  Hence  it  is  proposed  to 
set  up  the  commodity  commission  not  by  itself 
but  as  part  of  a  single  ITO — which,  as  we  have 
seen,  includes  also  a  commercial  policy  commis- 
sion and  a  commission  on  business  practices — all 
three  being  subject  to  the  same  executive  board  and 
the  same  conference. 


Furthermore,  the  complexity  of  economic  forces 
is  even  greater.  Demand  for  particular  commod- 
ities is  sure  to  be  influenced  by  the  flow  of  inter- 
national investment,  by  exchange  rates  between 
currencies,  by  the  levels  of  wages  in  various  coun- 
tries, and  by  the  condition  of  employment  and 
production.  Accordingly,  the  Proposals  make 
provision  for  relations  between  the  ITO  and  the 
International  Bank  for  Keconstruction  and  De- 
velopment, the  International  Monetary  Fund,  and 
the  International  Labor  Organization,  as  well  as 
the  Economic  and  Social  Coun<'il  of  the  United 
Nations. 

In  the  proposed  ITO  we  have  a  complex  but 
closely  integrated  structure,  well  designed  to  en- 
able countries  to  impi'ove  the  basis  of  trade  be- 
tween them  for  their  mutual  advantage.  The 
success  of  the  Organization  will  depend  in  part 
upon  the  wisdom  of  the  people  who  ai'e  named  to 
fill  its  various  offices,  but  even  more  upon  the  wis- 
dom and  self-restraint  of  the  national  govern- 
ments who  make  the  ultimate  decisions.  Prosper- 
ity, like  peace,  is  indivisible.  World-wide  appre- 
ciation of  that  reality  and  practical  measures  to 
give  expression  to  it  can  exert  a  powerful  and 
constructive  influence  on  the  shape  of  things  to 
come. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 

Ciiuiicil  (if  Fdi-eigii  Ministers:   Meeting  of  Deinities Ldnilim 

Far  Eastern  Cmiim.isslon Wasliing'tdii 

Preliminary  Jleeting  of  Conference  on  Health  Organization Paris 

Allied-Swiss  Negotiations  for  German  External  Assets AVashington 

Anglo-American  Committee  of  Inquiry B?rn 

Thiril    Conference   of  American    States   Members   of   the    Interniiti<jnal    Labor  Mexico,  U.F. 
Organization 

Food    and   Agriculture.   Conference   of   Ministers    (under   the   auspices   of   the  London 
Emergency  Economic  Committee  for  Europe) 

Fifth  I'an  American  Railway  Congress Montevideo 

PICAC  > :  European  Route  Service  Conference Paris 

The  United  Nations : 

Security  Council New  York 

Military  Staff  Committee New  York 

Negotiating  Committee  on  League  of  Nations  Assets Geneva 

Special  Com.mittee  on  Refugees  and  Displaced  Persons London 

Economic  and  S<icial  Council :  Second  Session • New  Y'ork 

General  Assembly New  York 

The  dates  in  the  calendar  are  as  of  Apr.  7. 


January  18 

Feliruary  26 

March  15 

Alarch  18 

Arrived  about  April  1 

April  1 

Afiril  o 

April  ."i 
April  24 

March  2.j 
March  2.5 
April  G 
April  8 
May  25 
September  3 


Activities  and  Developments 


The  Far  Eastern  Commission  at  its  regular 
weekly  meetinji'  on  Ajjril  '.'>  unanimously  aijproveu 
a  i)olicy  for  the  apprehension,  trial,  and  pnnish- 
nient  of  war  criminals  in  the  Far  East.  The  text 
will  he  made  availalile  at  a  later  date. 

The  Food  and  Agriculture  Organization  of  the 
United  Nations  has  called  a  meeting  on  urgent 
food  problems  witli  a  view  to  coordinating  eiforts 
to  meet  workl  food  needs  in  the  winter  of  l'.)4(i— IT 
and  tliroughout  the  following  year.  This  meeting 
is  to  hv  held  in  Wasliington  during  the  week  begin- 
ning May  2(1,  Sir  John  ISoyd  Orr,  Director  Gen- 
•■ral  of  FAO,  lias  announced. 
618 


Those  invited  to  tlie  meeting  include  representa- 
tives of  UXRRA,  tlie  Combined  Fot)d  Board,  and 
other  international  organizations  concerned  with 
food,  together  with  re.sponsil)le  ministers  espe- 
cially from  coiuitries  tliat  Inive  a  major  contribu- 
tion to  make. 

Tlie  conference  is  the  outcome  of  discussions  in 
the  United  Nations  Oeneral  Assembly  in  London, 
wliere  a  resolution  was  unanimously  passed  re- 
questing international  organizations  concerned 
with  food  and  agriculture  to  intensify  efforts  to 
obtain  as  full  information  as  possil)le  on  the  world 
food  position  and  future  outlook  in  order  to  assist 


APRIL  21.  J  946 


619 


governments  in  detennining  tlieir  sliort-  and  long- 
terni  policy.  "The  initiatiAe  in  this  task",  ]\Ir. 
Stettinius  stated,  "we  feel  shonld  fall  to  the  Food 
and  Agi'icnlturc  Organization  of  the  Xaiited 
Nations." 

In  telegrams  to  tlie  President  of  the  General 
AiBsenibly  and  th-e  Secretary-General  of  the  United 
Nations.  Sir  John  Orr  otFered  the  services  of  FAO, 
as  the  only  organization  concerned  with  all  aspects 
of  food  and  agricnltiire  on  a  world  scale,  to  head 
the  work.  It  was  agreed  that  FAO  was  not  in  a 
position  to  do  anything  effective  about  the  immedi- 
ate situation  this  spring,  which  in  any  case  is  being 
handled  by  I^NRRA.  the  Combined*  Food  Board, 
and  other  organizations;  l)ut  that  it  could  step  in 
in  time  to  be  of  use  a  little  later.  Informed  opin- 
ion agrees  that,  whatever  the  outcome  of  this  year's 
harvests,  the  food  situation  will  still  be  acute  next 
winter  and  possibly  the  winter  following. 

Other  international  agencies  dealing  with  food 
are  temporarj^  and  limited  in  functions  or  geo- 
graphical coverage  or  botli.  It  was  agreed  that 
FAO  is  the  logical  agency  to  bring  them  together 
and  to  obtain  general  agreement  among  the  gov- 
ernments of  the  principal  countries  concerned. 

The  puipose  of  the  ilay  meeting  will  be : 

1.  To  assess  the  present  food  position  and  the 
[)rospects  for  1946-47.  It  is  hoped  to  obtain  gen- 
eral agreement  on  this  and  thus  eliminate  some  of 
the  confusing  information  that  has  appeared  in 
the  past. 

2.  To  decide  on  practicable  measures  for  assur- 
ing the  most  effective  distribution  and  use  of  avail- 
able supplies.  Tliis  might  involve  decisions  re- 
garding, for  examiile.  the  line  to  be  drawn  between 
the  use  of  grain  for  direct  human  consumption  and 
for  livestock  feeding. 

3.  To  determine  practicable  measures  for  in- 
creasing sui)iilies  for  next  winter  and  also  for  the 
winter  of  194T-4S.  This  would  involve  considera- 
tion of  jM'oduction  goals  during  the  next  year. 

4.  To  work  out  means  whereby  FAO  can  keep 
the  world  food  position  under  contiiuu)us  review 
and  report  thereon  to  governments.  This  will 
involve  continuing  close  cooperation  with  exist- 
ing bodies  and  coordination  of  the  facts  and 
figures  they  assemble. 

5.  To  consider  means  for  better  coordination  of 
the  activities  of  all  of  the  existing  organizations. 


Tiie  Director  General  made  it  clear  tliat  FAO 
will  not  take  on  the  dii'ect  distribution  of  relief 
or  other  executive  functi<ins.  Under  its  consti- 
tution, it  is  essentially  an  investigative,  advisory, 
and  cooi-dinating  body;  and  it  will  act  in  this 
ca[!acity  for  the  temporary  international  agencies 
concerned  with  food  and  agriculture,  as  well  as 
for  governments. 

The  Director  General  explained  that  in  calling 
the  May  meeting  FAO  is  getting  into  the  inter- 
national food  situation  somewhat  sooner  than  had 
origimilly  been  anticipated.  At  the  time  the  or- 
ganization was  set  up,  it  was  generally  thought 
that  the  critical  food  shortage  would  not  be  so 
acute  as  it  turned  out  to  be,  partly  as  a  result  of 
wide-spread  drought  in  large  areas  and  the  failure 
of  the  monsoon  in  India  and  of  rains  in  Africa. 
When  it  was  evident  that  conditions  were  worse 
and  that  the  critical  period  would  last  longer  than 
had  been  anticipated,  it  became  necessai'y  for 
some  international  organization  to  act  in  an  over- 
all advisory  capacity  as  soon  as  po.ssible. 

FAO  will  therefore  aim  to  dovetail  long-term 
plans  with  the  urgent  production  and  distribu- 
tion needs  of  the  next  year  or  two.  This  will  be 
advantageous  from  the  stand])oint  of  world  agri- 
culture as  it  will  allow  time  for  the  maturing  of 
plans  to  avoid  an  agricultural  depression  caused 
by  a  sudden  post-war  drop  in  the  demand  for 
major  farm  products.  One  of  the  chief  objects 
of  governments  in  setting  up  FAO  was  to  work 
out  methods  for  making  high  production  possible 
as  a  continuing  international  policy  in  peacetime. 


Appointment  of  Fiorello  H. 
La  Gnardia  as  Director  General 
of  UNRRA 

The  resignation  of  Herbeit  H.  Lehman  as  Di- 
rector General  of  UNERA  was  accepted  on  March 
28,  1946  by  the  UNRRA  Council  at  its  Fourth 
Session  in  Atlantic  City.  The  appointment  of 
Fiorello  H.  La  Gnardia  to  succeed  Mr.  Lelnnan 
was  unanimously  api)roved  by  the  Council  on 
Mai'ch  29. 


The  United  Nations 


Security  Council:  Discussion  of  Soviet-Iranian  Matters 


Remarks  made  hy  the  Secretary  of  State  at  the 
28th  meeting  of  the  Security  Council  on  March 
29,191,6 

I  should  like  to  make  a  statement.  Assurances 
liave  been  given  to  the  Council  by  the  Soviet  repre- 
sentative that  the  Soviet  Union  has  already  com- 
menced to  withdraw  its  troops  from  Iran ;  that  It 
is  the  intention  of  the  Soviet  Government  to  pro- 
ceed with  the  withdrawal  of  its  troops  as  rapidly 
as  possible;  and  that  barring- "unforeseen  circum- 
stances" the  withdrawal  of  all  Soviet  troops  from 
the  whole  of  Iran  will  be  completed  within  five  or 
six  weeks. 

The  Iranian  representative  has  stated  that  the 
dispute  with  the  So\'iet  Union  arises  from  the 
continued  presence  of  Soviet  trooi^s  in  Iran  be- 
yond the  date  stipulated  for  their  withdrawal  in 
the  Tripartite  Treaty  of  January  29,  1942,  and 
has  requested  the  Council  to  recommend  their 
promjit  and  unconditional  withdrawal. 

The  Soviet  representative  has  stated  that  the 
withdrawal  of  troops  was  being  nuide  in  accord- 
ance with  an  understanding  with  the  Iranian  Gov- 
ernment, but  the  existence  of  such  understanding 
has  not  been  confirmed  by  the  Iranian  Government. 

The  assurances  given  to  the  Council  by  the 
Soviet  representative  have  not  been  completely 
unqualified,  but  are  subject  to  change  in  event  of 
"unforeseen  circumstances".  Apparently  negoti- 
ations on  certain  matters  are  still  proceeding  be- 
tween the  Soviet  Government  and  the  Iranian 
Government,  and  the  Council  is  not  informed  as  to 
the  exact  status  of  these  negotiations. 

Even  if  the  Council  should  now  proceed  to  con- 
sider the  substantive  issues  involved  in  the  dispute 
between  the  Soviet  Union  and  Iran  and  to  recom- 
meiul  the  withdrawal  of  Soviet  troops  as  requested 
620 


by  Ii'an.  Soviet  troops  could  not  be  with<lrawn 
from  Iran  in  a  substantially  shorter  period  of  time 
than  that  within  which  the  Soviet  Government  has 
declared  it  to  be  its  intention  to  withdraw  them. 

But  the  members  of  the  Council  must  be  solicit- 
ous to  avoid  any  possibility  of  the  presence  of 
Soviet  troops  in  Iran  being  used  to  influence  or 
coerce  the  Government  of  Iran  in  negotiations 
with  the  Soviet  Government. 

If  the  Council  could  obtain  more  adequate  and 
exact  information  regarding  the  status  of  the  nego- 
tiations between  the  Soviet  Government  and  the 
Iranian  Government,  the  Council  might  be  able  to 
satisfy  itself  that  the  assurances  of  the  Soviet  Gov- 
ernment as  to  the  prompt  withdrawal  of  troops 
from  Iran  are  in  fact  for  all  jiraetical  purposes 
unconditional. 

In  that  event,  there  miglit  be  no  need  for  the 
Council  to  go  into  the  substantive  issues,  provided 
it  reserved  the  right  to  both  parties  to  have  the 
case  immediately  taken  up  by  the  Council  should 
there  be  any  developments  which  threatened  to  re- 
tard the  withdrawal  of  troops. 

I  would  suggest  that  the  President  of  the  Coun- 
cil request  the  Sscretai-y  General  to  ascertain  at 
once  from  the  Soviet  Government  and  the  Iranian 
Government  through  their  representatives  and  re- 
port to  the  Council  at  its  meeting  on  Tuesday, 
April  2,  the  existing  status  of  negotiations  between 
the  two  Governments,  and  jJarticularly  to  ascer- 
tain fi'om  the  representatives  of  the  two  Govern- 
ments and  report  whether  or  not  the  reported  with- 
drawal of  troops  is  conditional  upon  the  con- 
clusion of  agreements  between  the  two  Govern- 
ments on  other  subjects. 

With  this  information  the  Coiuicil  will  then  be 
in  a  much  better  position  to  decide  what  sluudd  be 
the  next  step. 


APRIL  21,  19-16 


621 


Re/narks  made  l>y  the  Secretary  of  State  at  the 
30th  meeting  of  the  Security  Council  on  April  4, 
191,6 

I  desire  to  offer  the  following  I'esoliition  for  the 
consideration  of  tlie  Council: 

'■Tai\ing'  note  of  the  statements  of  the  Iranian 
Representative  that  the  Iranian  appeal  to  the 
Council  arises  from  the  presence  of  Soviet  troops 
in  Iran  and  their  continued  presence  there  beyond 
the  date  stipulated  for  their  withdrawal  in  the 
Tripartite  Treaty  of  January  29, 1942 : 

"T:dvin<i-  note  of  the  replies  dated  April  3rd  of 
tlie  Soviet  Government  and  the  Iranian  Govern- 
ment pursuant  to  the  request  of  the  Secretary- 
General  for  information  as  to  the  status  of  the 
negotiations  between  the  two  Governments  and  as 
to  whether  the  withdrawal  of  Soviet  troops  from 
Iran  is  conditional  upon  agreement  on  other  sub- 
jects; and  in  particular  taking  note  of  and  relying 
upon  the  assurances  of  the  Soviet  Government  that 
the  withdrawal  of  Soviet  troops  from  Iran  has  al- 
ready commenced;  that  it  is  the  intention  of  the 
Soviet  Government  to  proceed  with  the  withdrawal 
of  its  troojjs  as  rapidly  as  possible ;  that  the  Soviet 
Governmeait  expects  the  withdrawal  of  all  Soviet 
troops  from  the  whole  of  Iran  to  be  completed 
•witliin  five  or  six  weeks;  and  that  the  proposals 
under  negotiation  between  the  Iranian  Govern- 
ment and  the  Soviet  Government  'are  not  con- 
nected with  the  withdrawal  of  Soviet  troops': 

"Being  solicitous  to  avoid  anj'  possibility  of  the 
presence  of  Soviet  troops  in  Iran  being  used  to  in- 
fluence the  course  of  the  negotiations  between  the 
Governments  of  Iran  and  the  Soviet  Union ;  and 
recognizing  that  the  withdrawal  of  all  Soviet 
troops  from  the  whole  of  Iran  cannot  be  com- 
pleted in  a  substantially  shorter  period  of  time 
than  that  within  which  the  Soviet  Government 
has  declared  it  to  be  its  intention  to  complete  such 
withdrawal : 

^•Rewlveil  that  tlie  Council  defer  further  pro- 
ceedings on  the  Iranian  appeal  until  May  6,  at 
which  time  the  Soviet  Government  and  the 
Iranian  Government  are  requested  to  report  to 
the  Council  whether  the  withdrawal  of  all  Soviet 


troops  from  the  whole  of  Iran  has  been  completed 
and  at  which  time  the  Council  shall  consider  what, 
if  any,  further  proceedings  on  the  Iranian  appeal 
are  required; 

'■■Prodded,  however,  that  if  in  the  meantime 
either  the  Soviet  Government  or  the  Iranian  Gov- 
ernment or  any  member  of  the  Security  Council 
reports  to  the  Secretary-General  any  develop- 
ments which  may  retard  or  threaten  to  retard  the 
prompt  withdrawal  of  Soviet  troops  from  Iran, 
in  accordance  with  the  assurances  of  the  Soviet 
Union  to  the  Council,  the  Secretary-Genei-al  shall 
immediately  call  to  the  attention  of  the  Council 
such  reports  which  shall  be  considered  as  the  first 
item  on  the  agenda."  ^ 

Mr.  President,  I  do  not  desire  to  add  any  lengthy 
explanation  of  the  resolution.  It  speaks  for  itself. 
It  will  be  noted  that  it  rests  upon  the  statement  I 
made  to  the  Council  last  week,  when  I  presented 
the  suggestion  that  the  Soviet  Govermnent  and 
the  Iranian  Government  should  be  conniiunicated 
with  through  their  representatives.  At  that  time 
I  concluded  my  statement  with  these  words:  '"if 
the  Council  could  obtain  more  adequate  and  exact 
information  regarding  the  status  of  the  negotia- 
tions between  the  Soviet  Government  and  the 
Iranian  Government,  the  Council  might  be  able 
to  satisfy  itself  that  the  assurances  of  the  Soviet 
Government  as  to  the  prompt  withdrawal  of 
troops  from  Iran  are  in  fact,  for  all  practical 
purposes,  unconditional.  In  that  event  there 
might  be  no  need  to  go  into  the  substantive  issues 
provided  the  Council  reserved  the  right  to  both 
parties  to  have  the  case  immediately  taken  up  by 
the  Council  should  there  be  anj'  development 
which  threatened  to  I'etard  the  withdrawal  of 
troops." 

The  resolution  I  have  now  offered  has  been 
drafted  pursuant  to  the  statement  I  then  made  that 
the  information  presented  by  the  representatives  of 
the  Governments  might  make  it  possible  for  the 
Council  to  take  such  action  as  is  now  suggested 
and  which  I  hope  will  meet  with  the  approval  of 
the  Council. 

'  This  resolution  was  adopted  at  tlie  30th  meeting  of 
the  Security  Council  by  nine  affirmative  votes. 


The  Record  of  the  Week 


we  can  attain  a  lasting  peace." 

ADDRESS   BY  THE  PRESIDENT' 


THE  United  States  today  is  a  strong  nation : 
tliere  is  none  stronger.  This  is  not  a  boast.  It 
is  a  fact  which  calls  for  solemn  thought  and  due 
humility.  It  means  that  with  such  strength,  we 
have  to  assume  leadership  and  accept  responsibil- 
ity. It  would  be  a  tragic  breach  of  national  duty 
and  international  faith  if,  consciously  or  care- 
lessly, we  permitted  ourselves  ever  to  be  unpre- 
pared to  fulHl  that  responsibility. 

We  still  have  much  to  do.  We  are  determined 
to  remain  strong. 

AVe  still  liave  all  the  duties  of  the  armies  of  oc- 
cupation. We  still  have  to  do  our  share  in  super- 
vising former  enemy  governments,  enforcing  the 
peact  terms,  disarming  and  repatriating  enemy 
troops,  taking  care  of  hundreds  of  thousands  of 
displaced  pei'sons.  We  still  have  to  service  and 
supply  all  our  troops  overseas.  We  still  have  to 
protect  and  preserve  American  property  all  over 
the  world.  We  still  have  to  destroy  the  war  mate- 
riel and  the  war-making  industries  of  our  enemies. 

But  far  and  above  all  those  things,  we  must  re- 
main strong  because  only  so  long  as  we  remain 
strong  can  we  insure  the  peace  of  the  world.  Peace 
has  to  be  built  on  power  for  good.  Justice  and 
good-will  and  good  deeds  are  not  enough.  We 
cannot  on  one  day  proclaim  our  intention  to  pre- 
vent unjust  aggression  and  oppression  in  the  world, 
and  on  tiie  next  day  call  for  immediate  scrapping 
of  our  military  might. 

AVe  must  remain  strong,  not  because  we  plan  or 
want  to  impose  our  views  upon  the  world  by  force, 
or  do  battle  with  any  nation.  We  must  remain 
strong  in  order  to  retain  our  leadership,  and,  with 
all  our  resources,  exercise  that  leadership  on  be- 
half of  a  world  of  peace  and  harmony  among  all 
022 


nations  and  all  peoples.  That  is  not  only  our  moral 
duty;  it  is  a  firm  obligation  which  we  have  under- 
taken as  a  member  of  the  United  Nations. 

For  the  desire  for  peace  and  freedom  is  the  very 
root  of  our  foreign  policy.  I  stated  the  funda- 
mental foreign  policy  of  the  United  States  in  New 
York  City  on  Navy  Day  last  October  and  in  my 
message  to  the  Congress  January  21,  1946.  That 
policy  remains  the  same  todav'.  It  is  based  squarely 
upon  the  pursuit  of  peace  and  justice;  and  it 
definitely  rejects  any  selfish  advantage  for  our- 
selves. 

The  immediate  objective  of  our  foreign  policy  is 
to  support  the  United  Nations  to  the  utmost. 

It  is  my  conviction  that  the  Security  Council  of 
the  United  Nations,  now  meeting  in  New  York 
City,  is  fully  capable  of  reaching  agreements  be- 
tween the  peoples  of  the  world — however  different 
their  traditions  and  philosophies,  and  however  di- 
vergent their  interests.  The  essential  requirements 
to  that  end  are  that  its  member  nations  follow  the 
dictates  of  justice,  that  they  consider  and  respect 
the  legitimate  aspirations  and  needs  of  their  fellow 
members. 

All  citizens  of  the  United  States  worthy  of  the 
honor  of  that  citizenship  are  determined  to  pre- 
serve our  democratic  form  of  government.  They 
will  not,  on  tlie  other  hand,  interfere  in  any  way 
witli  the  governments  of  other  peace-loving  petiple. 

Peace  is  not  a  reward  that  comes  automatically 
to  those  who  cherish  it.  It  nnist  be  pursued,  un- 
ceasingly and  unwaveringly,  by  every  means  at 
oui'  connnand. 

^  Made  in  Cliicagd  mi  Apr.  0,  1040  in  coniu'ction  with  the 
Dli.servaiice  of  Army  Day  and  released  to  the  iiress  by  the 
Wliite  Honse  on  the  snnie  date. 


APRIL  21.  1946 


623 


111  the  pursuit  of  pt-nco.  tliere  is  no  single  path. 
^Ve  nnist  Inive  a  policy  to  guide  our  relations  with 
every  country  in  every  part  of  the  world.  No 
country  is  so  remote  from  us  that  it  may  not  some 
day  lie  inxolved  in  a  matter  which  threatens  the 
peace.  Rememlier  that  the  P'irst  AVorld  War  be- 
gan in  Serbia ;  that  the  peace  of  Versailles  was 
first  broken  in  Maiicliuria ;  and  that  the  Second 
World  AA'ar  began  in  I'oland.  Our  foreign  policy 
must  be  universal. 

In  the  Far  East  our  i)rogram  for  peace  is  de- 
.signed  to  combat  and  remedy  the  conditions  that 
made  it  possible  for  Japan  to  turn  upon  her  neigh- 
bors. We  have  disarmed  Japan,  and  are  promot- 
ing reforms  which  we  hope  will  bring  into  being 
a  democratic  and  peaceful  nation.  But  the  con- 
trol and  reform  of  Japan  is  only  a  beginning.  In 
the  Far  East,  as  elsewhere,  we  shall  encourage  the 
growth  and  spread  of  democracy  and  civil  liberties. 

In  Korea  M'e  are  even  now  working  with  our 
Soviet  Allies  and  with  Korean  leaders  to  create 
a  provisional  democratic  government.  Our  aim 
is  to  speed  the  day  when  Korea  will  again  take  her 
place  as  an  independent  and  democratic  nation. 

In  China  we  are  supporting  a  free  and  demo- 
cratic goverimient.  Through  the  wise  counsel  of 
General  Marshall  the  Chinese  leaders  are  on  the 
road  to  achieve  political  unity  by  peaceful  demo- 
cratic processes. 

The  Philippine  Commonwealth,  on  July  fourth 
next,  will  become  a  fully  sovereign  and  independ- 
ent nation.  We  hope  for  the  i:)eaceful  settlement 
of  the  ditferences  which  have  arisen  between 
colonial  peoples  and  colonial  sovereigns  in  all 
areas. 

The  roots  of  democracy,  however,  will  not  draw 
much  nourishment  in  any  nation  from  a  soil  of 
poverty  and  economic  distress.  It  is  a  part  of  our 
strategy  of  peace,  therefore,  to  assist  in  the  re- 
halnlitation  and  development  of  the  Far  Eastern 
countries.  We  seek  to  encourage  a  ([uick  revival 
of  economic  activity  and  international  trade  in 
the  Far  East.  To  do  that  we  stand  ready  to  extend 
credits  and  technical  assistance  to  help  build  the 
peace. 

W\'  recognize  that  the  Soviet  Union,  the  British 
Commonw  ealth.  and  other  nations  have  important 
interests  in  the  Far  East.  In  return  we  expect  I'ec- 
ognition  by  them  that  we  also  have  an  interest  in 
maintaining  peace  and  security  in  that  area.  We 
expect  understanding  on  their  part  that  our  ob- 


jectives are  dedicated  to  the  pursuit  of  peace; 
and  we  shall  expect  them  to  pursue  the  same 
olijectives. 

Turning  to  the  Near  East  and  Middle  East,  we 
find  iin  area  which  presents  grave  problems.  This 
area  contains  vast  natural  resources.  It  lies  across 
the  most  convenient  routes  of  land,  air,  and  water 
communications.  It  is  consecjuently  an  area  of 
great  economic  and  strategic  importance,  the  na- 
tions of  which  are  not  strong  enough  individually 
or  collectively  to  withstand  powerful  aggression. 

It  is  easy  to  see.  therefore,  how  the  Near  and 
Middle  East  might  become  an  arena  of  intense 
rivalry  between  outside  powers,  and  how  such 
rivalry  might  suddenly  erupt  into  conflict. 

No  country,  great  or  small,  has  legitimate  in- 
terests in  the  Near  and  Middle  East  which  cannot 
be  reconciled  with  the  interests  of  other  nations 
through  the  United  Nations.  The  United  Nations 
have  a  right  to  insist  that  the  sovereignty  and  in- 
tegrity of  the  countries  of  the  Near  and  Middle 
East  must  not  be  threatened  by  coercion  or 
penetration. 

If  peace  is  to  be  preserved  and  strengthened  in 
this  important  section  of  the  world,  however,  we 
can  not  be  content  merely  to  assure  self-govern- 
ment and  independence.  The  people  of  the  Near 
and  Middle  East  want  to  develop  their  resources, 
widen  their  edncational  opportunities,  and  raise 
their  standards  of  living.  The  United  States  will 
do  its  part  in  helping  to  bring  this  about. 

Turning  to  Europe,  we  find  her  suffering  the  ter- 
rible pangs  of  hunger  and  privation.  Economic 
reconstruction  is  first  of  all  a  task  for  the  people 
and  the  governments  of  Eurojoe.  Help  from  out- 
side, hoAvever,  will  quicken  the  pace  of  reconstruc- 
tion and  reduce  the  cost  in  human  misery.  The 
United  States  is  in  a  position  to  help;  we  are  help- 
ing now;  and  we  shall  continue  to  help. 

We  shall  help  because  we  know  that  we  ourselves 
cannot  enjoy  prosperity  in  a  world  of  economic 
stagnation.  We  shall  help  because  economic  dis- 
tress, anywhere  in  the  world,  is  a  fertile  breeding 
ground  for  violent  political  upheaval.  And  we 
shall  help  because  we  feel  it  is  simple  humani- 
tarianism  to  lend  a  hand  to  our  friends  and  allies 
who  are  convalescing  from  wounds  inflicted  by  our 
common  enemy. 

Food  is  Europe's  most  critical  need.  It  is  not 
enough  to  share  our  surijluses,  for  to  share  sur- 
pluses is  not  really  to  share  at  all.     No  worthy 


624 


DEPARTMENT  OF  STATE  BULLETIN 


American  will  hesitate  to  reduce  his  own  consump- 
tion of  food  when  the  food  so  released  will  avert 
starvation  abroad. 

Next  to  food,  Europe's  greatest  need  is  for 
machinery  and  raw  materials  to  rehabilitate  her 
transportation  systems,  her  mines,  and  her  fac- 
tories. We  have  been  supplying  these  products  to 
Europe  on  long-term  credit  and  we  shall  continue 
to  do  so.  Billions  of  dollars  for  reconstruction 
have  been  made  available  by  the  Congress  through 
the  Export -Import  Bank  and  through  the  Inter- 
national Bank. 

We  seek  to  lay  the  groundwork  of  a  world 
trading  system  which  will  strengthen  and  safe- 
guard the  iDeace.  We  want  no  return  to  the  kind 
of  narrow  economic  nationalism  which  poisoned 
international  relations  and  undermined  living 
standards  between  the  two  world  wars. 

The  Congress  is  now  considering,  and  I  hope  will 
soon  approve,  the  financial  agreements  with  Great 
Britain.  These  arrangements  have  not  been  made 
merely  to  support  a  faithful  ally.  They  are  of 
vital  importance  to  our  own  country  as  a  means  of 
opening  the  channels  of  world  trade  to  American 
enterprise. 

We  shall  work  to  achieve  equal  opportunity  in 
world  trade,  because  closed  economic  blocs  in 
Europe  or  any  place  in  the  world  can  only  lead  to 
impoverishment  and  isolation  of  the  people  who 
inhabit  it. 

We  shall  press  for  the  elimination  of  artificial 
barriers  to  international  navigation,  in  order  that 
no  nation,  by  accident  of  geograiDhic  location,  shall 
be  denied  unrestricted  access  to  seaports  and  inter- 
national waterways. 

The  American  Republics  propose  to  settle 
diiferences  between  the  nations  of  the  Western 
Hemisphere  as  good  neighbors  by  consxdtation  in 
the  connnon  cause  of  peace  and  national  well- 
being — consultation  in  which  all  of  them  will 
have  equal  representation.  The  United  States 
intends  to  join  with  other  sovereign  Republics  of 
America  in  a  regional  pact  to  provide  a  common 
defense  against  attack. 

Perhaps  the  greatest  challenge  which  the  war 
has  bequeathed  to  us  is  the  control  of  atomic 
energy'  so  that  this  vast  new  force  may  not  destroy, 
but  instead  may  serve,  mankind.  Our  country 
has  joined  with  all  the  United  Nations  in  a  deter- 
mined effort  to  devise  international  action  which 
will  achieve  these  ends.  We  are  pressing  on  stead- 
fastly in  this  ta.sk.    We  realize  that  we  must  bring 


to  it  political  imagination  as  great  as  the  scien- 
tific genius  which  unleashed  this  new  force.  The 
same  unswerving  determination  and  effort  which 
produced  the  release  of  atomic  energy  can  and  will 
enable  mankind  to  live  without  terror  and  reap 
untold  benefits  from  this  new  product  of  man's 
genius. 

I  am  not  pessimistic  about  the  future.  I  have 
confidence  that  there  is  no  international  problem 
which  cannot  be  solved  if  there  are  the  will  and 
the  strength  to  solve  it  through  the  United  Na- 
tions which  we  have  all  created. 

We  attained  overwhelming  victory  in  close 
union  with  the  free  and  peaceful  nations  of  the 
world.  In  the  same  kind  of  union  with  them,  and 
with  the  help  of  the  same  heroic  men  and  women 
who  fought  the  war  and  whom  we  honor  today, 
we  can  attain  a  lasting  peace. 


Proposed  Meeting  of  Council 
of  Foreign  Ministers  in  Paris 

[Released  to  the  press  April  o] 

The  Secretary  of  State  on  the  night  of  April  i 
transmitted  the  following  message  through  the 
American  Embassies  at  London,  Moscow,  and 
Paris  to  Foreign  Minister  Bevin,  Foreign  Min- 
ister Molotov,  and  Foreign  Mini.ster  Bidault : 

"I  should  like  to  suggest  a  meeting  at  Paris  be- 
ginning Ai^ril  25  of  the  Council  of  Foreign  Min- 
isters made  up  of  the  Foreign  Ministers  of  the 
states  which  are  concerned  with  the  preparation  of 
the  peace  treaties  which  it  was  agreed  at  the  Mos- 
cow Conference  should  be  submitted  to  a  jieace 
conference  to  be  convened  at  Pai-is  not  later  than 
JNIaj'  1.  I  hope  you  will  agree  with  me  that  such  a 
meeting  is  essential  to  enable  us  to  carry  out  the 
decision  of  the  Moscow  Conference  with  respect  to 
the  peace  conference. 

"I  have  been  much  distressed  at  the  slow  prog- 
ress made  by  our  deputies.  I  hope  that  each  of  us 
maj^  instruct  our  deputies  to  press  forward  their 
work  on  the  drafts  with  utmost  speed  reserving 
major  matters  on  which  they  cannot  agree  for  reso- 
lution by  the  Foreign  Ministers  at  the  Paris  meet- 
ing beginning  April  25." 


APRIL  21,  1946 


625 


The  Role  of  UNESCO  in  Our  Foreign  Policy 


STATEMENT  BY  ASSISTANT  SECRETARY  BENTON 


I'cd-f  of  letter  from  Secretary  Byrnes  read  to  the 
Committee  hy  Mr.  Benton  before  making  his 
statement 

April  2, 1946 
Dear  Mr.  Bl(i(im: 

I  understand  the  Foreign  Affairs  Committee  will 
begin  hearings  shortly  on  United  States  member- 
ship in  the  United  Nations  Educational,  Scien- 
tific and  Cultural  Organization  (UNESCO).  I 
want  to  express  to  you  my  full  and  hearty  support 
of  the  Organization. 

In  President  Truman's  address  last  June,  at  San 
Francisco,  he  said  "we  must  set  up  an  effective 
agency  for  consistent  and  thorough  interchange 
of  thought  and  ideas,  for  there  lies  the  road  to  a 
better  and  more  tolerant  understanding  among 
nations  and  among  peoples".  UNESCO  is  de- 
signed to  fulfill  the  purposes  outlined  by  the 
President. 

I  can  conceive  of  no  more  important  endeavour 
than  to  make  the  mind  of  man  a  constructive  force 
for  peace.  That  effort  is  fundamental  to  the  suc- 
cess of  the  United  Nations'  Organization.  We 
realize  that  world  peace  can  be  maintained  only  by 
the  united  efforts  of  all  peoples.  But  men  work 
together  most  effectively  when  they  have  learned 
to  think  together  and  to  feel  together.  Without 
common  knowledge,  common  agreement  is  difficult 
or  impossible. 

The  discovery  of  atomic  energy  has  made  the 
task  of  the  United  Nations  Educational,  Scientific 
and  Cultural  Organization  an  even  more  impera- 
tive one.  In  a  world  where  nations  may  arm 
themselves  with  weapons  against  which  there  is  no 
physical  defense,  basic  security  lies  in  the  creation 
of  mutual  trust  and  confidence  among  the  peoples 
of  the  world.     If  UNESCO  can  bring  that  goal 

Hade  on  Apr.  3,  19-10  before  the  Committee  on  Foreign 
Affairs  of  the  House  of  Representatives  on  the  United 
Nations  Educational,  Scientific  and  Cultural  Organization. 


nearer  by  one  step,  it  deserves  our  prompt  and 
wholehearted  participation. 
Sincerely  yours, 

James  F.  Btrnes 
The  Honorable 
Sol  Bloom, 
House  of  Representatives. 

Confiiitiation  of  statement  by  Mr.  Benton 

The  statement  of  the  Secretary  of  State  which 
I  have  just  read  helps  to  clarify  the  potential  role 
of  UNESCO  in  our  over-all  foreign  policy,  and 
thus  UNESCO's  relation  to  the  achievement  of 
peace  and  security  through  international  coopera- 
tion in  the  broad  and  vital  fields  with  which  it 
deals. 

One  trouble  in  thinking  and  talking  about  this 
proposed  organization  is  its  long  and  unwieldy 
name — United  Nations  Educational.  Scientific  and 
C^ultural  Organization.  The  second  trouble  is  tliat 
the  inevitable  contraction  to  its  initials,  UNESCO, 
makes  it  sound  like  something  wrapped  in  cello- 
phane. Actually,  in  the  long-range  pi'ogram  of 
international  cooperation  which  has  been  the 
dream  of  mankind  since  time  immemorial  and  is 
now  the  single  most  practical  metliod  to  assure 
peace,  no  part  of  the  general  scheme  is  more  down- 
to-earth,  more  intimately  related  with  the  day-by- 
day  life  of  the  people  of  the  world,  and  more 
necessary  if  UNO  itself  is  to  succeed  as  a  world 
force. 

When  I  was  asked  to  enter  the  State  Depart- 
ment last  August  31st,  the  immediate  task  was  the 
merging  of  the  various  Govei'nment  agencies  and 
units  which  during  the  war  had  participated  in 
our  information  and  cultural-relations  programs 
in  other  countries,  and,  by  vigorous  cutting  of  ac- 
tivities no  longer  essential,  to  lay  the  groimdwork 
for  the  present  proposed  international  informa- 
tion program  whicli  has  been  submitted  to  Con- 


626 


DEPARTMENT  OF  STATE  BLLLETIIS 


gress.  But  this  alone — a  one-way  TTnited  States 
])rogram  addressed  to  the  people  of  other  coun- 
tries— is  obviously  only  a  part  of  that  great  plan 
of  world-wide  teamwork  which  the  United  States 
Government  and  the  American  people  have 
pledged  themselves  to  support  and  defend — the 
United  Nations  Organization.  I'NESCO.  which 
represents  the  fields  of  education,  of  science,  and 
of  all  that  we  label  "culture,"  in  that  plan  of 
world-wide  teamwork  is  clearly  indisj)ensable. 
Thus,  my  own  activities  have  necessarily  embraced 
participation  in  the  steps  which  have  been  taken 
to  bring  UNESCO  to  its  present  point. 

When  I  came  into  tlie  State  Department  I  found 
that  plans  were  already  far  along  for  the  forma- 
tion of  such  an  organization,  both  here  and  abroad. 
The  London  conference  last  November,  from 
which  came  the  UNESCO  constitution  now  before 
us,  was  preceded  by  work  going  back  to  19-42, 
notably  in  the  1943  London  conference  when  a 
working  draft  for  a  constitution  was  first  made. 
The  constitution  builds  also  on  the  earlier  experi- 
ence of  the  Listitute  of  Intellectual  Cooperation 
in  Paris,  the  International  Bureau  of  Education 
at  Geneva,  the  International  Council  of  Scientific 
LTnions,  and  other  bodies. 

I  found  that  this  work  was  a  direct  response  to 
a  wide-spread  feeling  in  the  United  States  that 
there  must  be  a  United  Nations  organization 
which  would  marshal  the  forces  for  understand- 
ing among  the  peoples  of  the  world.  In  a  national 
opinion  poll  last  year,  85  percent  of  all  persons 
interviewed  favored  establishment  of  such  an  or- 
ganization. Leaders  and  groups  in  all  fields  re- 
lating to  this  work  were  staunch  campaigners  for 
favorable  action.  This  movement  of  public  opin- 
ion culminated  in  the  hearings  on  the  iNIundt  Res- 
olution before  tliis  committee  last  JMa}',  which  re- 
sulted in  its  unanimous  ai)proval  by  the  House, 
and  later  of  the  companion  Fulbright-Taft 
Kesolution  in  the  Senate. 

The  San  Francisco  conference  was  an  equally 
strong  demonstration  of  the  support  of  the  Ameri- 
can people,  when  unanimous  a])proval  by  the  42 
consultants  representing  influential  American  or- 
ganizations was  given  to  all  provisions  of  the  UNO 
charter  pi'oviding  for  educational  and  cultural  co- 
oj)eration.     These     organizations     included     the 

'Mr.  MacLei.sli's  stnteiiieiit  follows  ut  the  end  of  Mr. 
Benton's  statement. 


A.F.  of  L.,  tlie  C.I.O.,  the  Nationaf  Association  of 
Manufacturers,  the  U.  S.  Chamber  of  Conunerce, 
and  the  four  farm  organizations.  Both  Mr. 
Bloom  and  Mr.  Eaton,  I  am  told,  witnessed  the  en- 
dorsement of  these  organizations. 

Armed  with  this  national  support,  the  United 
States  delegation  in  London  last  Novemljer,  in- 
cluding Representative  Merrow,  did  its  full  share 
in  helping  the  representatives  of  44  nations  to 
reach  unanimous  agreement  on  the  UNESCO  con- 
stitution within  16  days.  Mr.  Archibald  Mac- 
Leish,  chairman  of  the  delegation,  has  prepared  a 
statment  which,  with  your  permission,  Mr.  Chair- 
man, I  should  like  to  introduce  into  the  record.^ 

Tb.ere  are  two  brief  quotations  which  I  want  to 
read  aloud,  if  I  may.  The  fii'st  is:  ".  .  .  the 
agreement  of  the  nations  themselves  to  work  to- 
gether through  all  the  channels  of  communication 
and  with  all  the  universal  languages  of  science,  art 
and  learning  to  increase  their  understanding  of 
each  otlier  and  to  root  out  the  prejudice  and 
ignorance  which  have  separated  them  in  the  jiast, 
is  a  new  thing  in  the  history  of  international 
undertakings." 

The  second  is  that  world-wide  understanding  '"is 
essential  to  the  hope  for  peace^tb.at  in  a  world 
armed  with  weapons  of  such  terrible  destructive- 
ne.ss  as  those  which  men  contrived  during  the  last 
war,  the  only  hope  for  peace  lies  in  the  mutual  un- 
derstanding not  of  Foreign  Offices  alone  l)ut  of 
the  peoples  themselves." 

UNESCO  makes  international  understand- 
ing its  fundamental  purjiose  and  its  immediate 
objective. 

The  preamble  of  the  constitution  points  out  that 
wars  stem  from  conditions  of  suspicion  and  mis- 
trust between  the  peoples  of  the  world.  These  are 
partly  the  result  of  ignorance  of  each  other's  ways 
and  lives.  UNESCO  has  been  established  to  help 
to  overcome  this  ignorance. 

But  it  is  wise  to  temper  the  expression  of  these 
high  jjurposes  with  a  realistic  recognition  of  the 
dilliculties  to  their  attainment.  We  must  not  lull 
ourselves  into  believing  that  we  have  done  any- 
thing more  than  make  a  small  start.  UNESCO  is 
still  on  paper.  Its  sole  capital  is  that  of  plans 
and  hopes  and  dreams.  Those  dreams  can  only  be 
translated  into  a  going  concern  of  j)ower  and  use- 
fulness by  the  sweat  of  hard  work,  the  support  of 
hard  vay-h.  and  the  wisdom  of  hard  thinking. 


APRIL  21,  1946 


627 


How  the  Organization  Would  Work 

Let  me  emphasize  that  the  organization  is 
strictly  a  service  and  advisory  institution.  It  has 
no  powers  of  control  over  or  authority  to  command 
the  member  governments.  The  constitution  states 
that  "with  a  view  to  preserving  the  independence, 
integrity  and  fruitful  diversity  of  tlie  cultures  and 
educational  systems  of  the  States  Members  of  this 
Organization,  the  Organization  is  prohibited  from 
intervening  in  matters  which  are  essentially  within 
their  domestic  jurisdiction".  The  organization 
will  refer  recommendations  and  conventions  to  the 
member  states;  but  only  those  activities  which  are 
authorized  by  the  member  states  can  be  carried  on 
^vithin  their  own  borders. 

Structure  of  the  Organization 

Let  me  call  to  your  attention  two  charts,  one  on 
the  structure  of  UNESCO,  and  the  other  on 
UNESCO's  relations  with  other  I'uited  Nations 
agencies.  You  will  note  that  the  structure  of  the 
organization  is  clear  and  simple.  It  is  made  ujj 
of  a  representative  genei-al  conference,  an  execu- 
tive board,  a  Director  Cieneial,  and  a  permanent 
staff.  Each  state,  whether  it  be  large  or  small,  has 
one  vote.  Members  of  the  United  Nations  Organ 
ization  are  automatically  entitled  to  membershijj 
in  UNESCO.  Other  countries  may  be  admitted 
by  a  two-thirds  majority  vote  of  the  general  con- 
ference. 

The  general  conference,,  which  is  the  representa- 
tive organ  of  UNESCO,  is  to  meet  annually,  with 
each  member  nation  repi'csented  by  not  more  than 
five  delegates  who  are  to  be  selected  after  consulta- 
tion with  educational,  scientific,  and  cultural 
groups. 

A  small  executive  board  of  IS  members  is  to  be 
responsible,  under  the  authority  of  the  general 
conference,  for  the  execution  of  the  program 
adopted  by  the  conference. 

The  daily  continuing  work  of  the  organization 
will  be  conducted  by  a  pernumcnt  staff,  interna- 
tional in  character,  under  the  supervision  of  a 
Director  General. 

Relationship  With  Other  Organizations 

UNESCO  will  not  stand  alone,  but  will  f\mction 
in  close  relationship  not  only  with  the  member 
governments  but  with  the  whole  United  Nations 
system.  It  has  been  set  up  as  one  of  the  special- 
ized agencies  provided  for  in  the  United  Nations 


Charter,  and  will  be  brought  into  relati<uisliip  with 
the  Economic  and  Social  Council  by  an  agreement 
worked  out  between  the  two  agencies.  The  con- 
stitution of  UNESCO,  in  Article  X,  provides  "for 
effective  cooperation  between  the  two  organiza- 
tions in  the  pursuit  of  their  common  [)urposes" 
and  at  the  same  time  recognizes  that  I'NESCO  is 
autonomous  within  the  fields  of  its  competence  as 
defined  in  the  constitution. 

Specifically  it  is  intended  that  the  general  con- 
ference of  UNESCO  will  advise  the  United  Na- 
tions and  its  various  organs  on  educational,  scien- 
tific, and  cultural  matters  of  concern  to  the  United 
Nations  according  to  the  agreements  to  be  worked 
out. 

UNESCO  will  also  cooperate  with  other  special- 
ized intergovernmental  organizations  and  agencies 
whose  interests  and  activities  are  related  to  its 
purposes  such  as,  for  example,  the  I.L.O.,  the  Food 
and  Agriculture  Organization,  and  the  proposed 
International  Health  Organization.  It  is  expected 
that  the  resources  and  activities  <leveloped  by  the 
Interuiitional  Institute  of  Intellectual  Cooperation 
in  Paris  will  be  transferred  to  UNESCO.  Fur- 
ther, the  constitution  provides  that  UNESCO  will 
work  out  arrangements  for  consultation  and  co- 
operation with  non-governmental  international 
organizations  in  its  field  such  as  the  International 
Council  of  Scientific  Unions,  and  the  numerous  in- 
ternational associations  of  teachers  and  scholars, 
and  may  invite  them  to  undertake  specific  tasks. 
Thus  the  organization  will  have  the  benefit  of  the 
advice  and  continuing  coojjeration  of  these  bodies, 
which  reach  large  numbers  of  men  and  women  and 
young  people  throughout  the  world. 

Obligations  of  Members 

It  may  be  well  to  outline  the  obligations  resting 
upon  the  member  nations  of  UNESCO.  They  are 
limited  in  number  and  clear  in  character. 

1.  Reports:  The  obligation  to  make  periodic  re- 
])orts  on  activities  and  developments  in  the  educa- 
tional, scientific,  and  cultural  fields,  of  a  type  sim- 
ilar to  those  provided  to  any  international  organi- 
zation of  which  the  United  States  is  a  member. 
These  reports  would  include  laws,  regulations,  and 
statistics  dealing  with  the  fields  mentioned  and  in- 
formation on  action  which  may  have  been  taken 
ujion  reconnnendations  and  conventions  submitted 
by  UNESCO. 


628 


DEPARTMENT  OF  STATE  BULLETIN 


•2.  Co-yt:  The  obligation,  to  be  met  in  accoidance 
with  our  constitutional  procedure,  to  contribute  a 
proportionate  shai'e  of  the  budget  of  the  organiza- 
tion. While  a  definite  amount  of  the  budget  will 
not  be  determined  until  the  general  conference  of 
UNESCO  has  met  in  its  first  session,  it  has  been 
our  thinking  here  that  a  total  budget  for  the  first 
year  might  not  exceed  $6,000,000,  of  which  the 
share  of  the  United  States,  as  with  other  United 
Nations  organizations,  might  be  25  percent,  or 
$1,500,000.  It  is  expected  that  with  the  develop- 
ment of  the  program  of  the  organization  the 
amount  of  the  budget  may  be  perhaps  far  larger. 
Tliat  can  oidy  be  determined  by  the  leadership 
and  tlie  hope  for  the  program  in  tlie  light  of  pre- 
vailing conditions. 

3.  Stati/.s  of  Staff:  The  obligation  to  accord  the 
organization  and  its  stail  those  privileges  and  im- 
munities which  may  be  granted  to  UNO;  to  re- 
spect the  international  character  of  the  staff  of 
the  organization  :  and  not  to  seek  to  exert  influence 
upon  the  United  States  citizens  who  may  be  chosen 
for  that  staff. 

Specific  Functions  of  UNESCO 

The  organization  will  seek  to  attain  its  basic 
purpose  along  three  lines.  First,  it  will  stimulate 
tlie  use  of  the  media  of  mass  communication— 
ladio,  motion  pictures,  press,  and  publications — 
to  advance  mutual  knowledge  and  wide  and  true 
understanding  among  the  peoples  of  the  world.  I 
cannot  emphasize  too  strongly  this  function  of 
UNESCO.  It  will  not  only  seek  to  develop  closer 
relations  among  scholars  on  the  higher  intellectual 
level,  as  did  the  Paris  Institute,  but  through  the 
use  of  mass  communications  it  is  designed  to  get 
to  the  ''grass  roots",  down  to  the  peoples  them- 
selves. 

Second,  UNESCO  will  encourage  the  schools 
and  all  other  educational  institutions  to  help  to 
build  the  "defenses  of  peace"  in  the  minds  of  chil- 
dren as  well  as  adults. 

Third.  UNESCO  will  coopei'ate  in  the  growth 
and  sharing  of  useful  knowledge,  through  the  work 
of  scholars,  scientists,  and  others,  so  that  the 
peoples  of  the  world  may  strive  to  progress  to- 
gether toward  a  better  life. 

It  will  be  observed  that  UNESCO  itself  will 
not  be  tlie  only  agent  for  carrying  its  reconnnenda- 


tions  into  effect.  Although  it  may  eventually  find 
it  wise  to  undertake  certain  direct  activities,  its 
task  largely  is  to  promote  collaboration,  to  en- 
courage and  stimulate,  to  serve  as  a  clearinghouse. 
It  must  depend  on  the  willing  cooperation  of  indi- 
vidual countries  through  their  public  and  private 
programs  and  instrumentalities  of  educational, 
scientific,  and  cultural  cooperation,  to  carry  out 
specific  activities  for  reaching  the  goals  which  are 
agreed  on. 

Among  the  detailed  functions  of  the  organiza- 
tion may  be  listed  the  following: 

1.  The  assembly,  analysis,  and  dissemination 
of  information  concerning  the  education,  the 
scientific  advances,  and  the  cidtural  activities  of 
the  member  nations. 

•2.  The  formulation  of  desirable  recommenda- 
tions for  national  and  international  action  with 
regard  to  the  freer  flow  of  ideas  and  information 
through  the  mass  media ;  the  improvement  of  edu- 
cational opportunities;  cooperation  among  the 
nations  for  the  reciprocal  exchange  of  students, 
scholars,  and  scientists,  as  well  as  of  usefid  publi- 
cations; and  cooperative  measures  to  assure  the 
conservation  of  the  world's  heritage  oi'  books, 
works  of  art,  and  monuments  of  history  and 
science. 

3.  The  calling  of  international  conferences  on 
specific  i^roblems  within  its  field  and  the  formula- 
tion of  international  conventions  for  submission 
to  the  member  states,  designed  to  forward  the  pur- 
poses of  the  organization. 

The  organization  will  draw  nuich  material  for 
its  pi'ogram  from  the  reports  and  other  informa- 
tion which  will  be  provided  periodically  by  mem- 
ber governments.  The  data  thus  assembled  will 
serve  a  double  purpose.  It  will  eciuip  the  organ- 
ization to  serve  as  a  useful  clearinghouse  of  infor- 
mation which  individual  nations  can  use  in  better- 
ing their  educational,  scientific,  and  cultural  ac- 
tivities and  institutions.  Second,  it  will  build  up  a 
common  body  of  knowledge,  whose  end  and  pur- 
pose is  the  welfare  of  all  mankind.  The  flow  of 
information  between  member  states  and  the 
oi-ganization  will  be  two-May.  It  will  serve  both 
to  make  each  nation  a  more  constructive  and  cre- 
ative member  of  the  world  community  and  to  make 
the  organization  itself  a  center  of  positive  helpful- 
ness to  all  the  Ignited  Nations. 


APRIL  21,  J  946 


629 


STATEMENT  BY  ARCHIBALD  MacLEISH 


I  have  submitted  to  the  Secretary  of  State  a 
report  on  the  London  conference,  together  with  a 
siunnrary  description  of  the  constitution  of  the 
proposed  L^nited  Nations  Educational,  Scientific 
and  Cuhural  Organization.  Tliis  report  is,  of 
course,  avaihible  to  tlie  committee,  and  I  will 
therefore  not  consume  the  committee's  time  with  a 
recapitulation  of  the  points  made.  There  are, 
however,  one  or  two  matters  in  connection  with 
the  London  conference  and  the  plans  for  the  new 
organization  to  which  I  should  like  to  call  the 
committee's  attention. 

First,  I  should  like  to  recall  to  the  committee's 
mind  tlie  position  of  UNESCO  with  reference  to 
earlier  eti'orts  in  this  same  direction.  Scientific 
and  scholarly  and  cultural  and  educational  bodies 
of  one  kind  or  another  in  the  various  counti'ies  of 
the  world  have  established  international  relation- 
ships with  each  other  over  a  considerable  period  of 
time.  It  was  not,  h.owever,  until  the  establishment 
of  the  League  of  Nations  that  an  effort  was  made 
to  give  the  international  support  of  governments 
to  these  efforts  at  communication  between  private 
associations  and  other  bodies.  But  even  the  at- 
tempt in  this  direction  under  the  League  fell  far 
short  of  what  is  undertaken  in  the  constitution  of 
UNESCO.  The  activities  of  the  League  in  this 
direction  were  based  upon  the  assumption  that  if 
men  of  learning,  scientists,  teachers,  were  put  in 
touch  with  each  other  on  an  international  basis, 
one  of  the  by-products  of  their  association  would 
be  an  increased  understanding  of  each  other  by 
the  peoples  of  the  nations  involved.  UNESCO 
pushes  this  idea  one  step  further.  UNESCO 
makes  international  understanding  its  prime  and 
immediate  objective  and  proposes  to  use  as  means 
for  the  realization  of  that  objective  not  only  the 
associations  of  learned  men  and  learned  societies 
and  organizations,  but  popular  education  and  the 
modern  instruments  of  mass  communication — 
newspaper,  radio,  motion  picture.  The  difference 
between  UNESCO  and  its  predecessors  is,  in  part, 

Mr.  JIaeLeish  was  chaii-inan  of  the  United  States  Dele- 
gation to  the  London  conference  to  establish  a  United 
Nations  Edncational,  Cultural  and  Scientific  Organiza- 
tion, which  was  held  from  Nov.  1-16,  1!.)45. 


a  material  evokitionary  difference.  Men  who  re- 
garded international  activity  in  the  field  of  educa- 
tion as  impossible  in  1919  now  regard  it  as  not 
only  possible  but  essential.  The  real  reason,  how- 
ever, for  the  greater  directness  of  UNESCO's  ap- 
proach to  tlie  problem  lies,  in  my  opinion,  in  the 
new  realization,  now  abroad  in  the  world,  that  the 
mutual  understanding  of  the  peoples  of  the  world 
is  es.sential  to  the  hope  for  peace — that  in  a  world 
armed  with  weapons  of  such  terrible  destructive- 
ness  as  those  which  men  contrived  during  the'last 
war,  the  only  hope  for  peace  lies  in  the  mutual  un- 
derstanding not  of  Foreign  Offices  alone  but  of  the 
peoples  themselves.  Certainly  it  is  for  this  reason 
that  the  aim  of  UNESCO  is  set  not  at  tl;e  elevated 
level  of  advanced  scholarship  or  science  but  at  the 
level  of  the  popular  education  of  the  peoples  of  the 
world  and  of  their  conununication  with  each  other 
through  the  mass  media  now  at  their  disposition. 
A  second  point  I  should  like  to  make  is  one 
which  derives  from  my  experience  at  London  and 
subsequently  in  this  country.  It  would  be  impos- 
sible for  anyone  who  did  not  attend  the  London 
conference  to  form  anidea,  in  any  degree  adequate, 
of  the  deptli  and  fervor  of  the  human  hope  and 
expectation  which  produced  the  constitution  of 
UNESCO.  A  very  large  number  of  the  delegates 
at  the  London  conference  were  men  and  women 
who  had  played  a  leading  part  in  the  resistance 
movements  of  their  countries  under  the  Nazi  oc- 
cupation. They  knew  of  their  own  personal  ex- 
perience what  issues  were  at  stake.  They  were 
determined  that  an  attack  should  be  made  upon  the 
problem  of  war  and  peace  at  the  one  level  where 
success  is  possible — the  level  of  human  beings 
themselves  who  will,  in  the  last  analysis,  determine 
which  of  the  two  alternatives  will  be  chosen.  But 
this  fervor  and  hope  is  not  linnted  to  the  men  and 
women  of  Europe  who  suffered  the  full  impact  of 
the  war.  It  is  shared,  as  I  can  assure  the  com- 
mittee, by  enormous  numbers  of  men  and  women  in 
the  LTnited  States  who  believe,  and  believe  with 
conviction,  that  the  hope  of  the  world  lies  where 
tlie  hope  of  America  has  always  lain — in  the  things 
(Continued  on  iiar/c  GJ/S) 


630 


DEPARTMENT  OF  STATE  BULLETIN 


The  American  Trade  Proposals: 
Progress  in  Rebuilding  a  Stable  World 


By  CLAIR  WILCOX 


WORLD  OKGANizATiON  for  seciiiity  is  essential; 
but  if  it  is  to  succeed,  it  must  rest  upon  con- 
tinuous international  cooperation  in  economic  af- 
fairs. The  provision  of  relief,  the  stabilization  of 
currencies,  and  the  extension  of  credits  are  neces- 
sary and  desirable;  but  if  the  peoples  who  now  de- 
pend upon  relief  are  eventually  to  become  self- 
supporting,  if  those  who  now  must  borrow  are 
eventually  to  repay,  the  world  must  be  freed,  in 
large  measure,  of  the  barriers  that  now  obstruct 
the  flow  of  goods  and  services.  If  political  and 
economic  order  are  to  be  rebuilt,  we  must  provide, 
in  our  trade  program,  the  solid  foundation  upon 
which  the  superstructure  of  international  coopera- 
tion is  to  stand. 

The  barriers  which  obstruct  the  flow  of  trade 
were  raised  higher  and  higher  in  the  years  between 
the  two  world  wars.  Governments  interfered 
increasingly  with  the  movement  of  goods  and 
services  across  their  borders.  They  sought  to  curb 
imports  by  increasing  customs  formalities,  by  rais- 
ing tariffs,  by  imposing  quotas  and  embargoes, 
and  by  controlling  the  supplies  of  foreign  ex- 
change. They  sought  to  force  exports  by  depre- 
ciating their  currencies,  by  paying  subsidies,  and 
by  bartering  goods  for  goods.  They  sought  to 
gain  at  the  expense  of  their  rivals  by  entering 
into  exclusive  deals  and  by  setting  up  preferential 
systems  which  discriminate  among  their  suppliers 
and  their  customers.  At  the  same  time,  they  per- 
mitted their  private  traders  to  seek  higher  profits 
through  cartel  arrangements  that  curtailed  out- 
put, raised  prices,  and  divided  up  the  markets  of 

An  address  delivered  before  the  American  Academy  of 
Political  and  Social  Science  at  Pliiladelphia,  Pa.,  on  Apr. 
6,  1946.  Mr.  Wilcox  is  the  Director  of  the  Office  of  In- 
ternational Trade  Policy,  Department  of  State.  For  com- 
plete text  of  Mr.  Wileox'.s  address,  see  Department  of  State 
pre.ss  release  221  of  Apr.  6,  194G. 


the  world.  Upon  occafciion,  nations  themselves 
entered  into  arrangements  that  were  designed  to 
benefit  their  producers  by  cutting  output  and 
boosting  prices  to  the  detriment  of  those  outsiders 
who  consume  their  goods. 

The  war  spawned  a  multitude  of  new  controls. 
Exchange  restrictions  have  become  world-wide. 
Persons  selling  abroad  have  been  required  to  turn 
their  foreign  monies  over  to  their  governments. 
Persons  buying  abroad  have  been  forbidden  to 
make  j^ayments  without  the  express  permission  of 
their  governments.  Import  quotas  and  export 
quotas  have  governed  the  movement  of  goods 
across  national  frontiers.  Persons  desiring  to 
import  or  to  export  have  been  compelled  to  ob- 
tain licenses  from  the  control  authorities.  In 
many  cases,  instead  of  licensing  private  traders, 
governments  have  set  up  public  agencies  to  handle 
a  large  part  of  their  foreign  trade.  Agreements 
to  barter  goods  for  goods  have  taken  the  place  of 
free  markets.  The  regimentation  of  the  world's 
commerce  has  become  virtually  complete. 

Where  do  we  go  from  here?  The  immediate 
prospect  is  not  a  pleasant  one.  The  sad  fact  is 
that  the  world  is  geared,  right  now,  to  continue 
economic  warfare,  using  the  full  arsenal  of 
weapons  developed  in  the  thirties  and  sharpened 
during  the  war.  Neither  we  nor  our  neighbors 
have  to  learn  the  game;  we  know  how  to  play  it; 
we  are  organized  to  play  it.  The  larger  countries, 
especially  the  United  States,  Great  Britain,  and 
the  Soviet  Union,  have  merely  to  tighten  their 
hold  on  the  regions  to  which  they  have  easy  ac- 
cess and,  perhaps,  to  capture  other  areas  through 
exclusive  contracts,  discriminatory  arrangements, 
and  barter  deals.  If  this  were  to  happen — as  it 
easily  might — the  world,  instead  of  being  drawn 
together  through  economic  intercourse,  would  he 
split  asunder  into  competing  economic  blocs.  This 
is  not  the  way  to  prosperity.  It  is  not  the  way  to 
]:ieace. 


APRIL  21,  1946 


631 


Stability  und  security  are  manifestly  more  at- 
tainable in  a  world  united  in  j^lenty  than-  in  a 
world  divided  in  want.  What  is  needed,  and 
needed  now,  is  the  reduction  of  tariffs,  the  removal 
of  quotas  and  exchange  controls,  the  elimination 
of  discriminatory  devices,  and  the  uprooting  of  re- 
strictive arrangements,  private  as  well  as  public, 
so  that  people  everywhere  can  begin,  to  reap  the 
harvest  of  increased  world  trade. 

This  is  the  piu'pose  of  the  American  Proposals 
for  Expansion  of  World  Trade  and  EmpJoymcnt 
which  our  Government  published  on  December  6, 
1945 '  and  submitted  for  consideration  to  the 
American  people  and  to  other  governments  of 
the  world.  These  jaroposals  are  based  upon  the 
conviction  that  human  energies  can  best  be 
directed  toward  the  improvement  of  standards  of 
living  if  the  world,  instead  of  regimenting  its 
trade,  will  seek  to  restore  ^\^  greatest  possible 
measure  of  economic  freedom.  They  are  designed 
to  reverse  the  pre-war  trend  toward  economic  iso- 
lationism and  to  resist  the  present  tendency  to 
fasten  the  pattern  of  wartime  controls  upon  a 
world  at  peace.  Their  provisions  may  be  outlined 
in  a  few  words. 

We  have  proposed,  first,  that  the  devices  by 
which  governments  have  distorted  the  natural  flow 
of  private  trade,  whether  through  the  restriction  of 
imports  or  the  artificial  stimulation  of  exports,  be 
modified  or  abandoned.  To  this  end  we  have  pro- 
posed that  customs  formalities  be  simplified;  tliat 
discriminatory  taxes,  transit  charges,  and  other 
regulations  be  removed;  that  trade  boycotts  be 
outlawed;  that  common  principles  be  adopted  to 
govern  tariff  valuation  and  the  application  of 
anti-dumping  and  countervailing  duties;  that  full 
publicity  be  given  to  laws  and  regulations  affecting 
trade;  that  tariffs  be  substantially  reduced  and 
that  tariff  preferences  be  eliminated;  that  duties 
on  exports  be  imposed  without  discrimination ; 
that  exchange  controls  be  governed  by  the  prin- 
ciples established  by  the  International  Monetai'y 
Fund;  that  import  quotas  be  limited  to  a  few 
really  necessary  cases ;  that  exchange  controls  and 
import  quotas  be  administered  without  discrim- 
ination; that  subsidies,  in  general,  should  be  the 
subject  of  international  consultation ;  and  that  sub- 
sidies on  exports  should  be  confined  to  exceptional 
cases,  under  general  rules. 

All  of  the  foregoing  proposals  relate  to  cases  of 
public  interference  with  private  trade.    In  many 


cases,  however,  governments  themselves  have  es- 
tablished enterprises  to  buy  and  sell  abroad.  And 
in  a  few  cases,  governments  have  assumed  a  com- 
2)lete  monopoly  of  their  foreign  trade.  Here  we 
have  proposed  that  governments  conducting  such 
enterprises  should  agree  to  give  equal  treatment 
to  the  commerce  of  all  friendly  states;  that  they 
should  make  their  purchases  and  sales  on  purely 
economic  grounds ;  and  that  governments  whose 
enterprises  are  completely  socialized  should  com- 
mit themselves  as  to  the  quantities  of  goods  which 
they  propose  to  import.  It  is  the  purpose  of  these 
proposals  to  apply  common  principles  of  fair  deal- 
ing to  the  trade  of  capitalist  and  socialist  econo- 
mies, so  that  the  two  systems  may  meet  in  the  mar- 
ket place  without  conflict,  thus  to  contribute  each 
to  the  other's  prosperity  and  welfare. 

International  trade  has  been  restrained  by  gov- 
ernments. It  has  also  been  restrained  by  the  re- 
strictive practices  of  private  business :  price  fixing, 
market  sharing,  curtailment  of  output  or  exports, 
suppression  of  technology,  and  discrimination 
against  competitors.  We  have  therefore  proposed 
that  nations  commit  themselves  to  act,  individually 
and  cooperatively,  to  curb  such  practices  when  they 
interfere  with  the  objectives  of  equal  access  to  ma- 
terials and  markets,  increased  jjroduction  and 
trade,  and  high  levels  of  employment  and  real  in- 
come. As  one  means  of  carrying  out  this  commit- 
ment, it  is  proposed  that  a  special  agency  be 
established,  within  an  International  Trade  Organ- 
ization, to  receive  complaints  concerning  restric- 
tive practices  of  international  combines  and  cartels, 
to  obtain  and  examine  the  facts  which  are  relevant 
to  such  cases,  and  to  recommend  the  remedies  that 
may  be  required.  Enforcement  against  private 
violators  necessarily  rests  with  sovereign  states. 

If  trade  is  thus  to  be  freed  from  the  fetters  that 
have  bound  it,  we  must  give  assurance  to  the  many 
small  producers  of  the  great  primary  commodities 
that  necessary  adjustments  to  .shifting  demands 
will  be  gradual  I'ather  than  sudden  and  that  these 
producers  will  be  protected,  during  the  period  re- 
quired for  such  adjustments,  against  the  impact 
of  violent  change.  But  we  must  be  sure  that  the 
measures  adojated  to  this  end  are  temporary  rather 
than  permanent  and  that  they  are  not  administered 
at  the  expense  of  the  constxmers  involved.  It  is 
therefore  jjroposed  that  action  with  respect  to  the 

'  For  complete  text  of  the  Proposals  see  Department  of 
State  publication  2411. 


632 


DEPARTMENT  OF  STATE  BULLETIN 


sjiet'ial  problem  of  .surplus  commodities  in  world 
trade  be  international  rather  than  national;  that 
the  solution  of  this  problem  be  sought  by  measures 
that  would  remove  the  basic  causes  of  the  difficult}', 
not  by  measures  that  would  perpetuate  it ;  that  the 
solution  be  sought,  in  particular,  by  methods  that 
woidd  expand  consumption ;  that  measures  restrict- 
ing exports  for  fixing  prices,  where  they  are  neces- 
sary, be  limited  in  duration ;  that  they  be  so  admin- 
istered as  to  provide  increasing  opportunities  to 
satisfy  requirements  from  the  most  economic 
sources;  that  they  be  attended  at  every  stage  by  full 
pul)licity;  and  that  consuming  countries  be  given 
an  equal  voice  with  j)roducing  countries  in  their 
formulation  and  administration. 

"We  have  projiosed,  further,  that  all  of  these  com- 
mitments be  embodied  in  a  World  Trade  Charter 
and  that  they  be  carried  out  through  an  Interna- 
tional Trade  Organization,  established  under  the 
charter,  in  appropriate  relaticmship  to  the  Eco- 
nomic and  Social  Council,  as  an  integral  part  of 
the  structure  of  the  United  Nations.  Final  au- 
tliority  in  this  Organization  would  be  vested  in  a 
conference  of  member  states ;  continuing  oversight 
would  be  delegated  to  an  executive  board ;  daily 
operations  would  be  conducted  by  three  commis- 
sions of  experts  dealing,  respectively,  with  com- 
mercial policy,  business  jjractices,  and  commodity 
problems;  and  all  of  these  organs  would  be  served 
by  a  central  secretariat.  It  would  be  the  function 
of  the  Organization  to  collect,  analyze,  and  publish 
data  on  the  operation  of  the  charter;  to  develop 
common  technical  standards  and  provide  technical 
assistance  to  governments ;  to  review  and  advise  on 
treaties,  agreements,  practices  and  policies  affect- 
ing international  trade ;  to  interpret  the  provisions 
of  international  agreements  and  to  grant  excep- 
tions to  such  agreements  in  accordance  with  estab- 
lished rules;  to  hear  complaints  and  make  recom- 
mendations to  member  .states;  and  to  provide  a 
medium  for  consultation  and  for  the  settlement  of 
disputes. 

At  the  suggestion  of  our  Govermnent,  the  Eco- 
nomic and  Social  Council  of  the  United  Nations 
has  called  a  world  conference  on  trade  and  em- 
ployment to  meet  sometime  around  the  end  of  11)-1:6. 
To  prepare  for  this  conference,  the  Council,  at  its 
recent  meeting  in  London,  set  up  a  committee  of 
18  nations — the  United  States.  Great  Britain.  Rus- 


sia, France,  and  China ;  the  British  Dominions  and 
India ;  Belgium,  Holland.  Norway,  Czechoslo- 
vakia, and  Lebanon;  Brazil,  Chile,  and  Cuba. 
This  committee  will  probably  meet  in  England  in 
the  late  summer  or  early  fall.  Its  agenda,  adopted 
by  the  unanimous  vote  of  the  Council,  is  identical 
with  the  headings  in  the  American  Proposals.  At 
the  time  of  this  preparatory  meeting  our  Govern- 
ment intends  to  go  forward  with  actual  negotia- 
tions for  the  reduction  of  barriers  to  trade,  under 
the  provisions  of  the  Trade  Agreements  Act. 
Fourteen  nations,  all  of  them  members  of  the 
Preparatory  Committee,  have  accepted  our  in- 
vitation to  negotiate  to  this  end. 

What  are  the  prospects  for  the  success  of  this 
program?  It  is  certain  that  many  countries  will 
be  reluctant  to  relinquish  the  controls  that  they 
now  impose  on  their  foreign  trade.  Some  of  the 
governments  that  have  established  public  trading, 
enterprises  during  the  war  may  never  return  them 
to  private  hands.  Countries  that  have  introduced 
new  industries  will  doubtless  insist  that  these  in- 
fants must  be  given  continued  protection.  Some 
countries  are  frankly  skeptical  that  we,  ourselves, 
will  conform,  in  particular  cases,  or  that  we  will 
adhere  for  many  years  to  the  principles  that  we 
have  espoused.  Others,  distrusting  the  determi- 
nation and  the  capacity  of  the  United  States  to 
I)i-event  violent  fluctuations  in  the  volume  of  in- 
dustrial activity  and  foreign  trade,  argue  that  they 
cannot  achieve  security  unless  they  insulate  them- 
selves against  us.  It  is  clear,  however,  that  our 
proposals  have  made  a  profound  impression  on 
the  other  nations  of  the  world.  They  have  been 
translated  into  many  languages  and  are  now  un- 
dergoing intensive  study  in  every  capital  on  earth. 
From  a  number  of  countries  we  already  have  in- 
formal assurances  of  interest  and  support.  From 
Great  Britain  we  have  even  more.  The  British 
GoA'ernment,  in  connection  with  the  Financial 
Agreement  which  is  now  before  Congress,  has  for- 
mally expressed  its  full  agreement  with  the  Amer- 
ican Proposals,  has  pledged  itself  to  enter  into 
negotiations  for  the  reduction  of  barriers  to  trade 
and  has  undertaken  to  support  the  American  pro- 
gram at  the  world  confei-ence.  This  agreement  is 
highly  significant.  The  United  States  and  Great 
Britain  are  the  mainstays  of  the  world's  economy. 
If  Great  Britain  is  enabled  to  join  hands  with  us 
in  this  enterprise,  the  prospects  will  be  very  good 
indeed. 


I 


APRIL  21,  1946 


633 


Position  ill  Favor  of  Compul- 
sory Jurisdiction  of  the 
International  Court 

[Released  to  the  press  April  5] 

In  response  to  viuioiis  inquiries  which  it  has 
received  ckiring  recent  months,  the  Department  of 
State  has  stated  that  it  favors  the  proposal  that 
the  United  States  shoukl  accept  the  compulsory 
jurisdiction  of  tlie  International  Court  of  Justice 
under  Article  3G  of  the  Statute  of  the  Court.^  It  is 
the  understanding  of  the  Department  that  the 
President  likewise  favors  such  action. 

There  are  now  pending  before  the  Congress  Sen- 
ate Resolution  196,  under  which  the  Senate  would 
advise  and  consent  to  the  acceptance  by  the  Presi- 
dent of  the  compulsory  jurisdiction  of  the  Court, 
and  House  Joint  Resolution  295,  providing  for 
authorization  by  the  Congress  to  the  President  to 
take  similar  action.  Hearings  have  not  been  held 
on  either  of  these  bills.  The  Department  is  of  the 
opinion  that  both  of  these  resolutions  are  properly 
drafted  so  far  as  concerns  the  legal  requirements 
under  the  Statute  of  the  Court.  However,  the 
question  of  whether  the  filing  of  the  declaration 
should  be  authorized  by  the  Congress  or  consented 
to  by  the  Senate  under  the  treaty  power  is  a  matter 
on  which  the  Department  does  not  express  an 
opinion.  This'  question  was  debated  when  the 
Charter  was  before  the  Senate  last  July. 

The  Department  naturally  welcomes  the  sup- 
port of  organizations  such  as  the  Association  of 
the  Bar  of  the  City  of  New  York. 

Text  of  a  letter  from  iSeovfaty  Byrnes  to  Mr. 
Raymond  Swing 

February  23,  1946 
Dear  Mr.  Swing  : 

Replying  to  your  letter,  the  State  Department 
has  recently  stated,  in  response  to  an  inquiry  simi- 
lar to  yours,  that  we  favor  the  proposal  that  the 
United  States  should  accept  the  jurisdiction  of  the 
International  Court  of  Justice  under  Article  36  of 
the  Statute  of  the  Court. 

I  have  i-ead  the  copy  of  your  letter  to  the  Presi- 
dent. He  favors  acceptance  of  the  compulsory 
jurisdiction  of  the  Court.     I  think  it  would  be 

'  For  article  oa  the  International  Court  of  Justice  and 
the  I'l-oblem  of  Compulsory  .Jurisdiftion,  see  Bulletin  of 
Sept.  30.  104.",  p.  471. 


lielpful  if  he  ndvised  Congress  of  his  views  and 
asked  for  action,  but  I  think  he  should  carefully 
consider  whether  he  will  urge  the  procedure  to  be 
followed  by  Congress. 

Members  of  the  Senate  have  strong  convictions 
as  to  whether  a  proposal  must  be  ratified  by  a  two- 
thirds  vote  of  the  Senate  or  can  be  a]Dproved  by 
action  of  the  two  Houses.  My  recollection  is  this 
very  question  was  debated  when  the  Charter  was 
before  the  Senate.  More  than  a  dozen  Senators 
sponsor  the  Morse  proposal. 

I  believe  the  President  should  inquire  in  oi-der 
to  make  certain  that  the  proposal  is  decided  upon 
its  merits  and  not  permit  its  merits  to  be  overlooked 
in  a  procedural  controversy.  By  consultation  with 
the  Foreign  Relations  Committee  he  should  be  able 
to  ascertain  the  best  course  to  pursue. 

With  best  wishes,  I  am, 
Sincerely  yours, 

James  F.  Barnes 


Commercial  Air  Services 
Asreement  Between  U.  S. 
and  Belgium 

[Released  to  the  press  April  5] 

The  Dej^artment  of  State  announced  that  an 
agreement  between  the  Governments  of  the  United 
States  and  Belgium  relative  to  commercial  air 
services  between  their  respective  territories  was 
signed  in  Brussels  on  April  5  by  the  American 
Ambassador,  Alan  G.  Kirk,  and  the  Belgian  For- 
eign Minister,  Paul-Henri  Spaak.  The  agreement, 
which  supersedes  the  interim  air  transport  ar- 
rangement concluded  with  the  Belgian  Govern- 
ment on  February  1,  is  substantially  similar  to  the 
bilateral  agreement  concluded  between  the  United 
States  and  France  on  March  27. 

Under  the  new  agreement  American  air  services 
receive  commercial  entry  at  Brussels  on  a  route 
from  the  United  States  via  the  United  Kingdom 
and  Belgium  to  India  by  intermediate  points,  and 
also  commercial  entry  at  Leopoldville,  Belgian 
Congo,  on  a  route  from  the  United  States  to  South 
Africa.  Belgian  air  services  are  accorded  the 
right  to  operate  on  a  route  from  Belgium  to  New 
York. 


634 


DEPARTMENT  OF  STATE  BULLETIN 


U.S.  Note  on  the  Capture  of  General  Mikhailovich 


[Released  to  the  press  April  2] 

7'ext  of  a  note  sent  hy  the  American  Chargie 
d'Af aires  at  Belgrade  to  the  Yugoslav  Foreign 
Office  on  March  30, 1946 

Note  has  been  taken  by  the  Government  of  the 
United  States  of  the  March  2-1  official  announce- 
ment broadcast  by  Radio  Belgrade  regarding  a 
statement  to  the  Yugoslav  Assembly  by  Minister 
of  Interior  Rankovic  reporting  the  capture  of 
General  Draja  Mikhailovich  on  March  13. 

"When,  in  19-11,  the  Germans  overran  Yugo- 
slavia, it  will  be  recalled  that  General  (then  Colo- 
nel) Mikhailovich  organized  and  led  important 
resistance  forces  against  the  occupiers.  Follow- 
ing his  promotion,  in  1941,  to  the  rank  of  General, 
Draja  Mikhailovich  was  appointed  Minister  of 
War  in  the  Royal  Yugoslav  Government-in-exile 
but  remained  in  liis  native  land  and  without  ade- 
quate supplies  and  fighting  under  the  greatest 
hardships  contributed  with  his  forces  materially 
to  the  allied  cause  so  heroically  participated  in  by 
Yugoslavia.  General  Mikhailovich  continued  as 
Commander  of  the  Yugoslav  Army  and  as  Minis- 
ter of  War  until  May  19-t-t.  Since  that  time  he  has 
been  on  the  political  plane  a  controversial  figure. 

As  the  Yugoslav  authorities  are  no  doubt  aware, 
TTnited  States  Army  personnel  in  an  allied  liaison 


cajjacity  were  attached  to  General  Mikhailovich's 
headquarters  during  most  of  the  period  of  his  mili- 
tary activity.  They  must  also  be  aware  of  the  fact 
that  many  United  States  airmen  were  rescued  and 
returned  to  allied  lines  througli  the  undaunted  ef- 
forts of  General  Mikhailovich's  forces.  A  number 
of  these  individuals  and  others  in  the  United 
States  who  were  closely  associated  with  General 
Mikhailovich  j^ossess  first  hand  evidence  which 
cannot  but  have  a  bearing  upon  the  charges  of 
enemy  collaboration  which  the  Yugoslav  authori- 
ties have  indicated  they  will  bring  against  General 
Mikhailovich. 

The  United  States  Government,  in  the  circum- 
stances, is  confident  that  in  the  interests  of  justice 
the  Yugoslav  Government  will  wish  to  make  suit- 
able arrangements  whereby  the  evidence  of  any 
such  persons  who  may  so  desire  may  be  presented 
in  connection  with  the  trial,  said  to  be  contem- 
plated, of  General  Mikhailovich.  An  urgent  ex- 
pression of  the  views  of  the  Yugoslav  authorities 
in  this  connection  will  be  appreciated  bj'  the 
United  States  Government  together  with  an  indi- 
cation of  the  place  and  time  of  trial  and  the  steps 
the  Yugoslav  Government  is  prepared  to  take  to 
facilitate  the  presentation  of  evidence  of  this 
nature. 


Declarations  of  Property  Damage  for  Americans  in  Belgium 


[Releiisert  to  the  jtress  March  27] 

The  Department  of  State  has  been  informed  by 
the  American  Embas.sy  at  Brussels  that  American 
nationals  whose  property  in  Belgium  was  damaged 
or  destroyed  during  the  war  now  have  until  July 
15,  1946  to  file  declarations  of  damage  with  the 
Minister  of  War  Damages  in  Brussels.  At  present 
there  is  no  provision  in  the  Belgian  law  for  the 
payment  of  compensation  to  American  nationals. 
However,  Belgian  authorities  suggest  that  as  at 
some  future  time  there  may  possibly  be  an  agree- 


ment with  the  United  States  which  would  provide 
for  the  inclusion  of  Americans  in  the  benefits  of 
the  Belgian  law,  interested  Americans  should  pre- 
sent the  essential  facts  for  the  census  of  war  dam- 
ages provided  for  by  decrees  of  September  19  and 
December  26,  1945  and  of  January  11,  1946.  Spe- 
cial forms  for  the  declaration  of  damages,  pre- 
pared by  the  Minister  of  War  Damages,  may  be 
obtained  in  this  country  through  the  Belgian  Con- 
sulates at  New  York,  Chicago,  San  Francisco,  and 
New  Orleans. 


APRIL  21.  1946 


635 


Resumption  of|Mail  Service  With  Germany 


[Released  to  the  press  April  1] 

Effective  at  once,  a  restricted  mail  service  will 
be  resumed  between  the  United  States  and  all  of 
Germany.  This  service  is  limited  to  non- 
illustrated  postcards  and  letters  not  exceeding  one 
ounce  in  weiglit.  The  only  types  of  communica- 
tions j^ermitted  are  those  relating  to  personal  or 
family  matters.  The  Treasury  Department  has 
advised  that  such  limited  communications  are  au- 
thorized under  the  Trading  with  the  Enemy  Act. 
Communications  of  a  business,  coiRmercial,  or 
financial  character  continue  to  be  prohibited,  and 
any  enclosures  of  checks,  drafts,  securities,  or  cur- 
rency are  prohibited. 

Parcel-post  service  is  not  available  at  this  time, 
due  to  the  fact  that  the  military  authorities  in 
Germany  desire  to  see  how  well  the  German  postal 
and  transportation  systems  are  able  to  handle  the 
restricted  service  before  permitting  parcel-post 
service  to  begin.  Such  service  will  be  inaugurated 
as  soon  as  ^practicable. 

Communications  to  Germany  should  bear: 

The  name  of  the  addressee. 
Town, 


Street  and  house  number, 

Province, 

Postal  addressing  district  numbei'. 

Zone  of  occupation, 

Germany. 

If  the  postal-district  number  or  zone  of  occupa- 
tion is  not  known  to  the  sender,  mail  will  be  ac- 
cepted. However,  both  items  when  known  should 
be  used  to  avoid  delay.  Correspondence  may  not 
be  addressed  to  General  Delivery.  Box  numbers 
may  be  used  provided  the  name  of  the  box  holder 
is  included.  The  province  and  zone  of  occupation 
need  not  be  shown  on  mail  addressed  to  the  city 
of  Berlin. 

Correspondence  may  be  in  any  language.  En- 
velops must  not  have  inner  linings  or  cari'y  any 
indication  other  than  the  address  of  the  sender  and 
addressee  and  necessary  postal  directions. 

Air  mail,  special  delivery,  registration,  and 
money-order  services  are  not  available  until  fur- 
ther notice. 

The  postage  rates  applicable  are :  letters,  five 
cents  each;  postcards,  three  cents  each. 


Immigration  Preference  for  Displaced  Persons 
in  U.  S.  Zone  in  Germany 


[Released  to  the  press  by  UNRRA  March  30] 

Displaced  persons  in  the  United  Stat*>s  zone  of 
occupation  in  Germany  are  being  given  first  pref- 
erence in  the  immigration  quota  of  the  United 
States,  according  to  infoi-mation  just  received 
from  Frankfurt  at  the  United  Nations  Relief  and 
Rehabilitation  Administration  headquarters  in 
Washington. 

Quotas  are  determined  according  to  birthplace, 
and  that  for  central  Europe  and  the  Baltic  States 
totals  approximately  39,000  persons  annually. 
Consulates  being  opened  by  the  Department  of 


State  can  issue  visas  at  the  monthly  rate  of  10 
percent  of  the  yearly  cjuota.  Applications  must 
be  accompanied  by  affidavits  of  sponsorship  by 
relatives  or  friends,  or  in  the  case  of  larger  groups 
the  required  affidavits  will  be  sponsored  by  volun- 
tary societies  working  through  UNRRA. 

The  announcement  from  Frankfurt  states  that 
the  State  Department  is  opening  consulates  in 
Stuttgart,  Berlin,  Bremen,  and  Frankfurt,  in 
addition  to  Munich.^ 

'  BiTLLETiN  of  Mar.  10,  1946,  p.  390. 


636 


DEPARTMENT  OF  STATE  BVLLETIIV 


Reparations  and  the  Level  of  Post- War  German  Economy 


PLAN  OF  ALLIED  CONTROL  COUNCIL 


Allied  Control  Authority 

The  plan  for  reparations  and  the  level  of  post- 
war German  economy  in  accordance  with  the 
Berlin  protocol : 

1.  In  accordance  with  the  Berlin  protocol  the 
Allied  Control  Council  is  to  determine  the  amount 
and  character  of  the  industrial  capital  equipment 
unnecessary  for  the  German  peace  economy  and 
therefore  available  for  reparations.  The  guiding 
principles  regarding  the  plan  for  re]Darations  and 
the  level  of  the  post-war  German  economy,  in  ac- 
cordance witli  the  Berlin  protocol,  are: 

(a)  Elimination  of  the  German  war  potential 
and  the  industrial  disarmament  of  Germany. 

(b)  Payment  of  reparations  to  the  countries 
which  liad  suffered  from  German  aggression. 

(c)  Development  of  agriculture  and  peaceful 
industries. 

(d)  Maintenance  in  Germany  of  average  living 
standards  not  exceeding  the  average  standard  of 
living  of  European  countries  (excluding  the 
United  Kingdom  and  the  Union  of  Soviet  Social- 
ist Republics) . 

(e)  Retention  in  Germany,  after  payment  of 
reparations,  of  suflicient  resources  to  enable  her  to 
maintain  herself  without  exteriuil  assistance. 

2.  In  accordance  with  these  principles,  the  basic 
elements  of  the  plan  have  been  accepted.  The 
assumptions  of  the  plan  are: 

(a)  That  the  population  of  post-war  Geiniany 
will  be  6(5.6  millions. 

(h)  That  Germany  will  be  treated  as  a  single 
ecoiujmic  unit. 

(e)  That  exports  from  Germany  will  be  ac- 
ceptable in  the  international  markets. 


Released  to  the  jiress  originall.v  in  Berlin  on  Mar,  28  ;  released 
to  the  press  by  the  War  Department  Apr.  1. 


Prohibited  Industries 

1.  In  order  to  eliminate  Germany's  war  poten- 
tial, the  production  of  arms,  ammunition,  and  im- 
plements of  war  as  well  as  all  types  of  aircraft 
and  sea-going  ships  is  prohibited  and  will  be 
ju'evented. 

2.  All  industrial  capital  equipment  for  the  pro- 
duction of  the  following  items  is  to  be  eliminated: 

(a)   Synthetic  gasoline  and  oil. 
(h)   Synthetic  rubber. 

(c)  Synthetic  ammonia. 

(d)  Ball  and  taper-roller  bearings. 

(e)  Heavy  machine  tools  of  certain  types. 
(/)    Heavy  tractors. 

iff)   Primary  aluminum. 

(h)  Magnesium. 

(/)    Beryllium. 

(y)   Vanadium  produced  from  Thomas  Slags. 

(k)  Radioactive  materials. 

(7)   Hydrogen     peroxide     above     50     percent 

sti'ength. 
(»})   Specific  war  chemicals  and  gases. 
( )} )   Radio  transmitting  equipment. 

Facilities  for  the  production  of  synthetic  gasoline 
and  oil,  synth.etic  ammonia  and  synthetic  rubber, 
and  ball  and  taper-roller  bearings  will  be  tempo- 
rarily retained  to  meet  domestic  requirements  un- 
til the  necessary  imports  are  available  and  can  be 
paid  for. 

Restricted  Industries,  Metallurgical  Industries 

1.  Steel. 

(a)  The  production  capacity  of  the  steel  indus- 
try to  be  left  in  Gei-many  should  be  7,500,000  ingot 
tons.  This  figure  to  be  subject  to  review  for  fur- 
ther reduction  should  this  appear  necessary. 

(b)  The  allowable  production  of  steel  in  Ger- 
many .should  not  exceed  5,800,000  ingot  tons  in  any 
future  year  without  the  specific  approval  of  the 
Allied  Control  Council,  but  this  figure  will  be  sub- 
ject to  annual  review  by  the  Control  Council. 


AFRIL  21,  1946 

{c)  The  steel  plants  to  be  left  in  Germany  un- 
der the  above  program  should,  as  far  as  practica- 
ble, be  the  oliler  ones. 

2.  Non-ferrous  metals.  The  annual  consump- 
tion of  non-ferrous  metals  (including  exports  of 
products  containing  these  metals)  is  fixed  at  the 
following  quantities: 

Copper     140,  000  tons 

Zinc 135,  000  tons 

Lead 120,  000  tons 

Tin 8,  000  tons 

Nickel 1,750  tons 

Chemical  Industries 

1.  Basic  cliemicals.  In  the  basic-chemical  ni- 
dustries  there  will  be  retained  -tO  percent  of  the 
19?>f)  production  capacity  (measured  by  sales  in 
1U30  values).  This  group  includes  the  following 
basic  chemicals :  nitrogen,  phosphate,  calcium  car- 
liide.  sulphuric  acid,  alkalies,  and  chlorine.  In 
addition,  to  obtain  the  required  quantities  of  fer- 
tilizer for  agriculture,  existing  capacity  for  the 
production  of  nitrogen  through  the  synthetic- 
ammonia  process  will  be  retained  until  the  neces- 
sary imports  of  nitrogen  are  available  and  can  be 
paid  for. 

2.  Other  chemicals.  Capacity  will  be  retained 
for  the  group  of  other  chemical  production  in  the 
amount  of  70  percent  of  the  1936  production  capac- 
ity (measured  by  sales  in  1936  values).  This 
group  includes  chemicals  for  building  supplies, 
consumer-goods  items,  plastics,  industrial  supplies, 
and  other  miscellaneous  chemical  protlucts. 

3.  Dyestuffs,  pharmaceuticals,  and  synthetic 
fibers.  In  the  pharmaceutical  industry  there  will 
be  retained  capacity  for  the  annual  production  of 
80  percent  of  the  1936  production  (measured  by 
sales  in  1936  values) .  Capacity  will  be  retained  to 
produce  annually  36,000  tons  of  dyestuffs  and 
185.000  tons  of  synthetic  fibers. 

Machine  Manufacturing  and  Engineering 

1.  Machine  tools.  For  the  machine-tool  indus- 
try there  will  be  retained  ll.-l  percent  of  1938  ca- 
pacity, with  additional  restrictions  on  the  type  and 
size  of  machine  tools  which  may  be  produced. 

2.  Heavy  engineering.  In  the  heavy-engineer- 
ing industries  there  will  be  retained  31  percent  of 
1938  capacity.  These  industries  produce  metal- 
lurgical equipment,  heavy  mining  machinery,  ma- 


637 


terial-handling  jilants,  heavy  power  equipment 
(boilers  and  turbines,  prime  movers,  heavy  com- 
pressors, and  turboblowers  and  turbopumps). 

3.  Other  mechanical  engineering.  In  other 
mechanical-engineering  industries  there  will  be 
retained  50  percent  of  1938  capacity.  This  group 
produces  constructional  equipment,  textile  machin- 
ery, consumer-goods  equipment,  engineering  small 
tools,  food-processing  equipment,  woodworking 
machines,  and  other  machines  and  apparatus. 

4.  Electroengineering.  In  the  electroengineer- 
ing  industries  there  will  be  retained  50  percent  of 
1938  production  capacity  (based  on  sales  in  1936 
values).  Capacity  to  produce  heavy  electrical 
equipment  is  to  be  reduced  to  30  percent  of  1938 
production  or  40,000,000  reichsmarks  (1936 
value).  Heavy  electrical  equipment  is  defined  as 
generators  and  converters,  6,000  kw.  and  over; 
high-tension  switch  gear;  and  large  transformers, 
1,500  kva  and  over.  Electroengineering,  other 
than  heavy 'electrical  equipment,  includes  electric 
lamps  and  light  fittings,  installation  materials, 
electric  heating  and  domestic  appliances,  cables 
and  wires,  telephone  and  telegraph  apparatus,  do- 
mestic radios,  and  other  electrical  equiiiment.  Ex- 
port of  specified  types  of  radio  receiving  sets  is 
foi-bidden. 

Transport  Engineering 

1.  Transportation  industry. 

(n)  In  the  automotive  industry  capacity  will  be 
retained  to  jjroduce  annually  80,000  automobiles, 
including  40,000  passenger  cars,  40,000  trucks,  and 
4,000  light  road  tractors. 

(b)  Capacity  will  be  retained  to  produce  an- 
nually 10,000  motorcycles  with  cylinder  sizes  be- 
tween 60  and  250  cc.  Production  of  motorcycles 
with  cylinder  sizes  of  more  than  250  cc.  is  pro- 
hibited. 

(r)  In  the  locomotive  industry  available  capac- 
ity will  be  used  exclusively  for  the  repair  of  the 
existing  stock  of  locomotives  in  order  to  build  up 
a  pool  of  15,000  locomotives  in  1949.  A  decision 
will  be  made  later  as  to  the  production  of  new 
locomotives  after  1949. 

(d)  Sufficient  capacity  will  be  retained  to  pro- 
duce annually  30,001)  freight  cars,  1,350  passenger 
coaches,  and  400  luggage  vans. 

2.  Agricultural  machinery.  To  permit  niaxi- 
mizatioji  of  agriculture,  capacity  will  be  retained 


638 


DEPARTMENT  OF  STATE  BULLETIN 


for  an  amuial  production  of  10,000  light  agricul- 
tural tractors.  Existing  capacity  for  the  produc- 
tion of  other  agricultural  equipment,  estimated  at 
80  percent  of  1938  levels,  is  to  be  retained,  subject 
to  restrictions  on  the  ty^ie  and  power  of  the  equip- 
ment which  may  be  produced. 

3.  Spare  jiarts.  In  estimating  capacities  there 
will  be  taken  into  account  the  production  of  nor- 
mal quantities  of  spare  parts  for  transport  and 
agricultural  machinery. 

4.  Optics  and  precision  instruments.  Capacity 
will  be  retained  to  produce  precision  instruments 
in  the  value  of  340,000,000  reichsmarks  (1930 
value),  of  which  220,000,000  reichsmarks  is  esti- 
mated as  required  for  domestic  use  and  120,000,000 
reichsmarks  for  export.  A  further  limitation  for 
this  industry  is  possible,  subject  to  the  I'ecommen- 
dation  of  the  Committee  for  the  Liquidation  of 
German  War  Potential. 

Mining  Industries 

1.  Coal.  Until  the  Control  Council  otherwise 
decides,  coal  production  will  be  maximized  as  far 
as  mining  supplies  and  transport  will  allow.  The 
minimum  production  is  estimated  at  155,000,000 
tons  (hard  coal  equivalent),  including  at  least  45,- 
000,000  tons  for  export.  The  necessary  supplies 
and  services  to  this  end  will  be  arranged  to  give 
the  maximum  production  of  coal. 

2.  Potash.  The  production  of  potash  is  esti- 
mated at  over  100  percent  of  the  1938  level. 

Electric  Power 

There  will  be  retained  an  installed  capacity  of 
9,000,000  kw. 

Cement 

Capacity  will  be  retained  to  produce  8,000,000 
tons  of  cement  annually. 

Other  Industries 

1.  The  estimated  levels  of  the  following  in- 
dustries have  been  calculated  as  shown  as  neces- 
sary for  the  German  economy  in  1949 : 

(a)  Kubber.  50,000  tons,  including  20,000  tons 
from  I'eclainied  ruliher  and  30,000  tons  from 
imports. 

(b)  Pulp,  paper,  and  printing.  2,129,000  tons, 
based  on  26  kg.  per  head  per  annum  in  1949  plus 
400,000  tons  for  export. 

(c)  Textiles  and  clothing  industries.     665,000 


tons  of  fiber,  based  on  10  kg.  per  head  for  1949 
and  including  2  kg.  for  export. 

(>I)  Boots  and  shoes.  113,000,000  pairs,  based 
on  1.7  pairs  per  head  in  1949  (figure  excludes 
needs  of  occupying  forces). 

Production  may  exceed  the  above  estimates  in 
this  paragraph  (other  industries)  unless  other- 
wise determined  by  the  Control  Council. 

2.  Building.  No  level  will  be  determined  for 
1949.  The  industry  will  be  free  to  develop  within 
the  limits  of  available  resources  and  the  licensing 
system. 

3.  Building-materials  industries  (including 
cement) .  Existing  capacity  will  be  retained.  Pro- 
duction will  be  in  accordance  with  building  licens- 
ing and  export  requirements. 

4.  Other  unrestricted  industries.  For  the  fol- 
lowing industries  no  levels  have  been  determined 
for  1949.  These  industries  are  free  to  develop 
within  the  limitations  of  available  resources. 
These  industries  are  as  follows : 

(a)  Furniture  and  woodwork. 

(b)  Flat  glass,  bottle  glass,  and  domestic  glass. 
(<")   Ceramics. 

(d)   Bicycles. 

( t' )  Motorbicycles  under  60  cc. 

(/)   Potash. 

General  Level  of  Industry 

It  is  estimated  that  the  general  effect  of  the 
l>lan  is  a  reduction  in  the  level  of  industry  as  a 
whole  to  a  figure  about  50  or  55  percent  of  the  pre- 
war level  in  1938  (excluding  building  and  build- 
ing-materials industries) . 

Exports  and  Imports 

The  following  agreement  has  been  reached  with 
respect  to  exi^orts  and  imports : 

(17)  That  the  value  of  exports  from  Germany 
shall  be  planned  as  3,000,000,000  reichsmarks 
(1936  value)  for  1949,  and  that  sufficient  indus- 
trial capacity  shall  be  retained  to  produce  goods 
to  th.is  value  and  to  cover  the  internal  require- 
ments in  Germany  in  accordance  with  the  Potsdam 
Declaration. 

(h)  That  ajiproved  imports  will  not  exceed 
3,000,000,000  reichsmarks  (1936  value),  as  com- 
pared with  4,200,000,000  reichsmarks  in  1936. 

(c)  That  of  the  total  proceeds  from  exports  it 
is   estimated   that   not   more   than    1,500,000,000 


APRIL  21,  1946 


639 


reichsmai'ks  can  be  utilized  to  pay  for  imports  of 
food  and  fodder  if  this  will  be  required,  with  the 
understandino;  that,  after  all  imports  approved  by 
the  Control  Council  are  paid  for,  any  portion  of 
that  sum  not  needed  for  food  and  fodder  will  be 
used  to  pay  for  costs  of  occupation,  and  services 
such  as  transport,  insurance,  etc. 

Determination  of  Capacities  Available  for 
Reparations 

1.  After  the  approval  of  this  plan,  the  existing 


capacities  of  the  separate  branches  of  production 
shall  be  determined,  and  a  list  of  enterprises  avail- 
able for  reparations  shall  be  compiled. 

2.  After  decisions  have  been  given  on  the  mat- 
ters now  referred  to  the  coordinating  committee, 
the  Economic  Directorate  would  propose  to  pre- 
pare the  final  jjlan  embodying  these  decisions  and 
including  a  description  of  the  various  features  of 
the  plan,  such  as :  disarmament,  reparations,  post- 
war German  economy,  and  the  German  balance  of 
trade. 


Japanese     General     Elections 


[Released  to  the  press  by  the  Far  Eastern  Commission  April  1] 

Text  of  Commwnication  Sent  to  General  Mac  Ar- 
thur, Supreme  Commander  for  the  Allied  Powers 
in  Japan,  Through  the  Chairman  of  the  Far 
Eastern  Commission,  in  Regard  to  the  Japanese 
General  Election 

March  21,  19^6. 
The  Far  Eastern  Commission  has  given  some 
short  preliminary  and  tentative  consideration  to 
the  position  that  may  arise  after  the  forthcoming 
Japanese  elections.  Having  regard  to  the  estab- 
lished position  thi'oughout  the  country  of  the  more 
reactionary  political  parties,  and  to  the  very  short 
jjeriod  available  to  the  parties  of  a  more  liberal 
tendency  to  circulate  their  views  and  organize  sup- 
port, the  members  of  the  Commission  are  not  with- 
out the  apprehension  that  the  holding  of  the  elec- 
tion at  such  an  early  date  may  well  give  a  decisive 
advantage  to  the  reactionary  parties  and  thus 
create  the  embarrassment  of  a  Japanese  Govern- 
ment elected  in  terms  of  the  Potstlam  Declaration 
"in  accordance  with  the  freel^y  expressed  will  of 
the  Japanese  people",  which  might  not,  in  fact, 
truly  represent  their  wishes,  and  v/ith  which  it 
might  prove  impossible  for  the  Supreme  Com- 
mand to  cooperate.  From  another  point  of  view, 
the  Commission  feels  the  difficulty  of  expecting  a 
fully  instructed,  intelligent  and  authoritative  ex- 
pression of  the  views  of  the  Japanese  people  on 


their  j^olitical  future  during  this  uncertain  period 
when  the  whole  of  the  future  economic  structure 
of  Japan  is  still  in  doubt,  and  when  a  proportion 
of  the  electorate  must  necessarily  be  disfranchised 
owing  to  absence.  Finally,  the  issue  of  the  draft 
Constitution,  of  which  you  have  approved,  makes 
the  Constitution  at  this  late  stage  an  election  issue, 
upon  which  there  can  be  little  time  for  considera- 
tion by  the  Japanese  j^eople,  and  at  the  same  time 
may  give  an  undue  political  advantage  to  the 
political  party  preferring  this  Constitution. 

The  Far  Eastern  Commission  would  be  most 
grateful  if  the  Supreme  Commander  could  let 
them  have  a  very  early  expression  of  his  views 
generally,  and  in  particular  on  the  following  ques- 
tions : 

1.  Does  the  Supreme  Commander  share  the 
apprehensions  expressed  above  ? 

2.  If  so,  would  he  consider  it  possible  and  desir- 
able to  require  a  further  postponement  of  the  Jap- 
anese elections,  and  in  that  case,  for  what  period  ? 

3.  If  the  Supreme  Commander  should  not  con- 
sider a  further  postponement  desirable  at  this  late 
date,  would  he  express  his  views  on  the  desirabil- 
ity, as  an  alternative,  of  publicly  prescribing  that 
the  forthcoming  election  will  be  regarded  as  a  test 
of  the  ability  of  Japan  to  produce  a  responsible 
and  democratic  government  in  full  accordance 
with  the  wishes  of  the  people  and  that  further 
elections  will  be  held  at  a  later  date  ? 


6-10 


DEPARTMENT  OF  STATE  BULLETIN, 


Te.vt  of  livphj  of  Gene  red  MacA/thur 

Mai'clt  29,  lO.'fO. 

The  basis  of  occupational  policy  is  the  utiliza- 
tion of  the  Japanese  Government  to  the  fullest 
extent,  under  SCAP  supervision  and  control. 
Tills  is  only  possible  through  a  functioning  legis- 
lative body  to  enact  new  laws  required  to  imple- 
ment SCAP  directives  and  to  provide  for  routine 
governmental  business.  The  alternative  is  gov- 
ernment liy  Imperial  Edict  which  denies  to  the 
Jaiiauese  I'eople  the  right  to  participate  in  their 
own  domestic  affairs.  Such  emphasis  upon  the 
power  of  the  Emperor  would  obviously  be  both  un- 
democratic and  unwise  and  would  negative  the 
Ijasic  principles  envisaged  at  Potsdam,  which  we 
have  proclaimed  anil  are  meticulously  following. 
The  present  Diet  is  completely  unsatisfactory  be- 
cause of  its  war  attaint  and  its  unrepresentative 
character,  having  been  elected  in  1942  under  Tojo's 
control.  It  is  imperative  that  a  more  representa- 
tive body  be  organized  at  the  earliest  possible  date. 
The  urgent  requirements  of  the  present  situation 
denumd  an  expression  of  popular  will.  The  re- 
sults of  the  election  will  serve  to  define  more 
clearly  the  political  picture,  to  clarify  political 
issues  and  political  jiarties  and  to  indicate  the 
nature  and  trend  of  jiopular  opinion.  It  will  also 
provide  for  popular  participation  in  the  determi- 
nation of  major  questions.  The  suffrage  base  has 
been  greatly  broadened  through  the  lowering  of 
the  minimum  age  requirement  and  the  removal  of 
restrictiims  on  sex.  By  the  application  of  the 
purge  directive  of  January  4th  90  per  centum  of 
tiie  members  of  the  present  Diet,  as  well  as  many 
other  persons  holding  high  government  office  in  the 
war  administration,  have  been  removed  from  gov- 
eriunent  service  and  barred  from  public  office  or 
activity  as  officers  of  political  joarties.  No  politi- 
cal group  has  hereby  suffered  so  greatly  as  the  re- 
actionaries. Every  candidate  for  the  New  Diet, 
of  wh.om  there  are  over  .3000,  has  been  screened  for 
affiliation  or  association  with  militarism  and  ultra- 
nationalism.  Many  reforms  in  the  electoral  sys- 
tem have  been  accomplished.  The  election  laws 
are  now  sufficiently  democratic  to  provide  ample 
o]iportuuity  for  a  free  expression  of  the  popular 
will.  The  campaign  and  the  election  are  being 
carefully  watched  and  closely  studied  by  the  forces 
under  my  command,  with  the  objective  of  verify- 
ing the  democratic  nature  of  the  electoral  process. 


It  is  probable  that  the  new  Diet  will  be  the  most 
truly  responsive  body  to  the  will  of  the  peo^ile 
that  has  ever  served  Japan  and  will  provide  the 
basis  for  a  much  more  I'epresentative  cabinet. 
Under  any  circumstances  it  will  certainly  be  a 
great  improvement  over  the  last  Diet  along  demo- 
cratic and  liberal  lines.  There  is  no  ground  for 
supposition  that  the  reactionary  party  will  secure 
a  greater  advantage  as  a  result  of  the  election  at 
this  time  than  at  a  later  date.  Political  activity  is 
now  wide-spread.  Any  postponement  of  the  elec- 
tion would  inevitably  result  in  greater  advantage 
to  the  more  experienced  and  better  organized  re- 
actionary group  .severely  crippled  by  the  purge 
order  who  would  thereby  be  provided  the  oppor- 
timity  to  regroup  and  strengthen. 

Any  postponement  would  certainlj'  be  misun- 
derstood by  the  Japanese  People,  and  would  have  a 
profound  adverse  reaction  upon  the  purposes  and 
success  of  the  occupation.  Should  the  results  of 
the  election  prove  disadvantageous  to  the  purposes 
of  the  occupation,  the  remedy  is  always  in  my 
power  to  require  the  dissolution  of  the  Diet  and 
tiie  holding  of  a  new  election  under  such  provi- 
sions as  are  deemed  necessary. 

The  Commission  expressed  the  following  view : 
"Finally,  the  issue  of  the  draft  Constitution,  of 
which  you  have  approved,  makes  the  Constitution 
at  this  late  stage  an  election  issue,  upon  which 
there  can  be  little  time  for  consideration  by  the 
Japanese  people,  and  at  the  same  time  nuiy  give 
an  undue  political  advantage  to  the  political  party 
preferring  this  Constitution." 

The  Commission  seems  to  be  laboring  under  a 
confusion  of  thought  in  believing  that  the  consti- 
tution has  been  put  forth  by  any  particular  party. 
The  Cabinet  itself  does  not  represent  any  party. 
The  Prime  Minister.  Shidehara,  is  completel.v 
independent  aiul  has  no  party  affiliations  what- 
soever. All  parties  in  Japan,  except  the  Com- 
nuuiistic  Party,  overwhelmingly  favor  the  pro- 
posed constitution,  which  represents  the  work  of 
men  from  many  different  groups  and  many  dif- 
ferent affiliations.  It  has  created  confidence  in 
the  Cabinet  but  cannot  be  regarded  as  an  appre- 
ciable factor  in  the  elections  as  practically  every 
candidate  except  the  Connnunists  support  it.  My 
own  approval  of  it  will  have  no  slightest  effect  in 
any  way  on  the  election  returns  of  any  party  or 
any  candidate. 


APRIL  21,  1946 


641 


In  rt'ply  to  your  three  specific  questions  in  the 
last  paragraph  of  your  message  my  answers  are: 

1.  Question:  Does  the  Supreme  Commander 
share  the  api^rehensions  expressed  above? 

Answer:  No. 

2.  Question :  If  so,  would  he  consider  it  possible 
and  desirable  to  require  a  further  postponement 
of  the  Japanese  elections,  and  in  that  case,  for 
what  period  ? 

Answer:  No. 

;>.  Question :  If  the  S  u  p  r  e  m  e  Commander 
should  not  consider  a  further  postponement  desir- 


able at  this  late  date,  would  he  express  his  views 
on  tile  desirability,  as  an  alternative,  of  publicly 
prescribing  that  the  forthcoming  election  will  be 
regarded  as  a  test  of  the  ability  of  Japan  to  pro- 
duce a  responsible  and  democratic  government  in 
full  accordance  with  the  wishes  of  the  people  and 
that  further  elections  will  be  held  at  a  later  date  ? 
Answer :  The  suggested  statement  seems  wholly 
unnecessary.  The  conditions  it  would  announce 
are  inherent  in  the  situation  and  are  completely 
understood,  as  I  can  require  dissolution  of  the 
Diet  and  call  for  another  election  at  any  time. 


Completion  of  Work  of  U.S.  Education  Mission  to  Japan 


Tex't  of  a  letter  from  Dr.  George  D.  Stoddard, 
Chairman,  United  States  Education  Mission  to 
Japan 

April  4,  lOJfi. 
My  Dear  Mr.  Benton  : 

On  behalf  of  the  United  States  Education  Mis- 
sion to  Japan,  I  have  the  honor  to  state  that  its 
work  was  completed  in  Tokyo  on  March  30th, 
culminating  in  a  report  to  General  MacArthur  on 
that  date. 

A  copy  of  this  report,  and  of  the  letter  of  trans- 
mittal, is  attached. 1  The  original  draft  and  a 
carbon  copy  were  delivered  in  person  to  Major 
General  S.  J.  Chamberlain.  Chief  of  Staff,  GHQ, 
SCAP.  by  Col.  John  N.  Andrews,  Mr.  Gordon 
Bowles  and  tJie  Chairman.  Col.  Andrews  has  re- 
tained a  copy  for  the  War  Department  and  Mr. 
Paul  Stewart,  General  Secretary,  has  the  fifth 
and  final  copy.  The  report  is  being  mimeo- 
graphed in  Tokyo,  subject  to  release  by  SCAP. 
No  information  on  the  contents  of  the  report  has 
been  released  by  the  Mission. 

In  Tokyo  we  went  from  the  designation 
"Group"  to  that  of  "Mission"  in  order  to  contprm 
to  the  advance  preparations  and  announcements 
of  SCAP  in  Japan. 

As  indicated  in  the  report,  we  received  at  all 
points  courteous  and  extensive  aid. 

The  Mission  was  entei-tained  at  luncheon  by 
General  and  Mrs.  MacArthur,  and,  in  addition, 
the  three  members  mentioned  above  spent  over 
one  hour  with  the  Supreme  Commander  at  his 


I'equest.  We  were  received  on  a  high  plane  of 
social  and  professional  acceptance,  as  indicated  by 
engagements  with  the  Emperor,  the  Prime  Minis- 
ter, the  Minister  for  Foreign  Affairs,  the  Minister 
of  Education  and  the  President  of  Tokyo  Imperial 
University,  who  had  been  designated  as  Chairman 
of  the  Jai:)anese  Committee.  With  the  help  of  the 
CIc^E  Section,  we  interviewed  persons  and  in- 
spected programs  representative  of  all  stations  in 
Japanese  cultural  life. 

I  am  happy  to  report  that  the  morale  of  the 
group  remained  high  throughout.  You  would,  I 
am  sure,  be  proud  of  the  circumspect,  friendly, 
and  helpful  fashion  in  which  the  members  as  indi- 
viduals, and  as  a  whole,  conducted  themselves. 
Not  the  least  of  the  benefits  will  come  through 
this  fine  basis  for  cooperation  thus  built  up 
through  the  impact  of  American  personalities 
upon  their  Japanese  counterparts. 

It  is  not  feasible  to  single  out  all  who  con- 
tributed effectively  to  the  report  and  to  the  periph- 
eral aims  of  the  Mission,  but  everyone  played  a 
part.  The  report  is  truly  a  composite  of  group 
tliinking.  Those  who  left  early  signified  their 
desire  to  sign  it  and  all  names  accordingly  are  in- 
cluded. You  may  note  the  absence  of  Charles 
Iglehart  from  the  list.  We  found  that  he  was  al- 
ready retained  as  a  consultant  in  the  CI&E  Sec- 
tion of  SCAP,  and  could  not  therefore  properly 
make  recommendations,  in  this  manner,  to  his 
superiors.  However,  he  was  helpful  at  all  stages 
and  was  listed  as  a  consultant. 

'  Nut  printed. 


642 


DEPARTMENT  OF  STATE  BULLETIN 


A  few  persons  must  be  mentioned,  even  in  tliis 
brief  account.  Colonel  John  Andrews  carried  on 
his  manifold  duties  in  a  spirit  of  efficiency  and 
friendly  service  throughout.  We  would  have  been 
lost — probably  literally — without  him.  Mr.  Gor- 
don Bowles  proved  to  be  an  invaluable  member  of 
the  Mission,  applying  his  full  knowledge  of  the 
Japanese  in  a  quiet  and  detached  way  that  yielded 
a  maximum  benefit  to  everyone  concerned.  He 
will  prove  to  be  an  ideal  person  to  follow  through 
on  the  first  impact  of  the  report.  Mr.  Paul 
Stewart  mobilized  the  secretarial  staff  effectively 
and  facilitated  our  work  in  a  dozen  ways. 

The  Mission  has  proposed  two  actions  to  give 
tangible  evidence  of  its  good  will  toward  the  Japa- 
nese. At  the  sugge.stion  of  Dr.  T.  V.  Smith  and 
Mrs.  Douglas  Horton  a  fund  of  apjDroximately 
20,000  yen  was  raised  by  voluntary  subscriptions 
among  the  members.  It  was  decided  to  apply 
this  fund  to  the  purchase  of  a  collection  of  books, 
"to  be  as  widely  useful  as  possible  to  the  children 
and  teachers  of  Jaj^an".  Mr.  Leon  Carnovsky  is 
in  charge,  and  the  plan  has  already  been  announced 
in  Tokyo. 

A  second  measure,  not  announced,  involves  a  re- 
quest from  the  Mission,  to  the  State  Department 
to  assemble  thirty  sets  of  perhaps  one  dozen  copies 
of  books  on  American  life  and  letters,  to  be  sent 
to  the  members  of  the  Japanese  Education  Com- 
mittee as  a  token  of  good  will.  It  is  my  pleasure, 
as  Chairman,  to  convey  this  recpiest  to  you  with 
the  hope  that  it  can  be  met  through  the  State  De- 
partment channels. 

The  members  of  the  Mission  are  now  safely  at 
home,  richly  rewarded,  all  sharing  a  unique,  if  not 
historic  cultural  experience.  By  acclamation  they 
expressed  to  you,  and  to  all  who  made  their  ven- 
ture possible,  a  grateful  vote  of  thanks  and  a  desire 
to  carry  on  from  this  point  in  any  way  you  may 
find  to  be  appropriate. 

We  believe  that  a  good  start  has  been  made 
along  the  lines  laid  down  in  the  original  plan,  but 
we  know  well  that  it  is  only  a  start  and  that  the 
Jai^anese  leadei's  themselves,  aided  by  the  Ameri- 
cans, must  carry  on.  That  this  is  consistent  with 
Japanese  aspirations  is  indicated  by  the  speeches 
of  the  Minister  of  Education  and  the  Chairman  of 
the  Japanese  Education  Committee,  copies  of 
which  are  attached.^ 

'  Not  printed. 


Another  evidence  of  this  relationship  is  indi- 
cated by  the  Emperor's  request  to  the  Chairman 
that  he  assist  in  finding  an  American  woman  tutor 
for  the  Crown  Prince,  Akahito. 

Finally,  I  take  this  occasion  to  thank  you  per- 
sonally for  the  deep  pleasure  this  assignment  has 
given  me  and  to  assure  you  that,  in  common  with 
e^-ery  member  of  the  Mission,  I  should  count  it  a 
privilege  to  be  of  further  service. 
Very  sincerely  yours, 

George  D.  Stoddard 
The  Honorable  William  Benton, 

Assistant  Secretary  of  State 


National  City  Bank  to  Reopen 
in  Tokyo 

[Released  to  tlie  press  April  1] 

The  Department  of  State  announced  on  April 
1  that  the  Tokyo  branch  of  The  National  City 
Bank  of  New  York  would  be  permitted  to  reopen 
for  limited  operations  related  solely  to  the  needs 
of  the  occupation.  The  reopening  of  a  bank  was 
essential  for  military  reasons,  and  this  action 
should  not  be  considered  a  relaxation  of  the  gen- 
eral ban  on  the  entrance  of  private  business 
interests  into  Japan  at  this  time,  made  necessary 
by  the  lack  of  housing  and  food  and  by  the  gen- 
erally unsettled  conditions. 

The  National  City  Bank  branch  will  not  be  per- 
mitted to  engage  in  ordinary  commercial  bank- 
ing activities,  and  to  the  extent  that  any  yen 
earnings  accrue  to  the  bank  these  will  be  blocked 
and  subjected  to  the  same  disposition  as  accorded 
to  assets  in  Japan  of  other  American  business 
concerns.  In  general,  the  activities  of  the  branch 
will  include : 

1.  General  depository  for  such  public  moneys  of 
the  United  States  as  may  be  involved  in  occupa- 
tion activities. 

2.  Bank  of  deposit  for  members  of  the  United 
States  armed  forces  for  accumulation  of  pay  and 
allowances  found  excess  to  their  local  needs. 

3.  Depository  for  yen  proceeds  of  certain  re- 
mittances of  an  official  nature  after  they  have 
reached  Japan. 


APRIL  21,  1946 


643 


4.  Depositoi-y  for  proceeds  reulized  from  local 
sales  of  civilian  supplies  introduced  under  United 
States  military  authority  into  Japan. 

5.  Safekeeping  services  for  United  States  mili- 
tary forces  and  accredited  personnel. 

Since  it  is  recognized  that  the  opeiations  of  the 
bank  could  be  performed  by  other  American  banks 
with  similar  facilities,  such  banks  prepared  to" 
operate  in  Japan  under  the  same  conditions  afe 
those  prescribed  for  The  National  City  Bank  may 
make  application  to  open  or  reopen  branches  in 
Japan.  Similarly,  since  the  commanding  officer 
of  the  occupation  forces  of  other  Allied  nations 
in  Japan  may  as  a  matter  of  military  necessity 
require  non-commercial  banking  facilities  for  his 
troops,  banks  of  other  Allied  nations  will  be  per- 
mitted to  open  or  reopen  branches  in  Japan  under 
the  same  conditions  applicable  to  American 
branch  banks. 

For  American  banks  authorized  to  open  or  re- 
open branches  in  Japan  the  State  Department  will 
arrange  for  the  issuance  of  passports  and  the 
Treasury  Department  will  issue  licenses  permitting 
communication  subject  to  the  following  conditions  : 


1.  Such  communication  shall  relate  only  to 
operations  of  the  branch  bank  in  Japan  which  are 
authorized  by  the  Supreme  Commander  for  the 
Allied  Powers. 

2.  The  text  of  all  incoming  and  outgoing  com- 
munications will  be  submitted  by  the  representa- 
tives of  the  banks  in  Japan  to  the  appropriate  staff 
section  of  the  Supreme  Commander  for  the  Allied 
Powers  in  Japan. 

3.  In  the  event  telecommunication  facilities  are 
utilized  all  messages  from  the  United  States  to 
Japan  are  prepaid  in  dollars  and  all  messages  from 
Japan  to  the  United  States  are  sent  collect  in  dol- 
lars at  the  United  States  terminal. 

4.  All  communications  from  the  bank  in  the 
United  States  to  its  branch  in  Japan  are  addressed 
to  the  designated  representatives  in  Japan  in  care 
of  the  appropriate  staff  section  designated  by  the 
Supreme  Commander  for  the  Allied  Powers  in 
Japan. 

Applications  for  permission  to  open  or  reopen 
branch  banks  in  Japan  should  be  addressed  to  the 
Department  of  State,  attention  of  Assistant  Sec- 
retary for  Economic  Affaii-s. 


UNESCO— Con  Untied  from  page  639. 


of  the  mind  and  of  the  spirit — in  the  education  of 
children,  and  the  full  and  just  information  of  the 
citizens,  and  the  fullest  possible  development  of 
science  and  scholarship  and  the  fine  arts. 

I  have  heard  it  said  that  the  people  of  the  United 
States  were  not  interested  in  matters  of  education 
and  science  and  culture.  Nothing  I  have  seen 
during  my  life — certainly  nothing  I  have  seen  in 
the  years  of  the  war  and  the  months  after  it — would 
give  any  support  whatever  to  that  assertion.  On 
the  contrary,  I  think  the  history  of  the  American 
people  and  their  frequent  expressions  of  opinion 
have  clearly  demonstrated  that  they  attach  greater 
importance  to  education  a»d  science  and  to  all 
those  forms  of  human  expression  through  which 
their  life  as  a  people  has  been  developed  than  they 
attach  to  anything  else  except — if  it  is  an  excep- 
tion— their  religious  faith. 

My  colleagues  on  the  American  Delegation  to 


the  London  conference  will  be  able  to  report  to  the 
committee  on  the  details  of  the  constitution.  My 
own  report  to  the  Secretary  of  State,  to  which  I 
have  referred  above,  sums  up  my  own  opinions  on 
that  subject,  if  my  own  opinions  are  considered 
relevant.  I  cannot,  however,  too  strongly  assert 
my  personal  conviction  and  belief  that  UNESCO 
is  not  only  an  important  part  of  the  group  of  or- 
ganizations which  will  compose  the  UNO,  but  is 
also  an  instrument  of  particular  importance  to  the 
people  of  this  country. 

How  much  it  will  accomplish  in  fact  will  depend 
upon  the  men  who  staff  it  and  the  warmth  with 
which  it  is  supported  by  the  member  governments. 
The  constitution  drafted  at  London  does,  however, 
create  an  instrument  of  which  use  can  be  made, 
should  the  men  be  found  and  should  the  nations  so 
desire. 

Very  respectfully  submitted 

Archibald  MacLeish 


644 


DEPARTMENT  OF  STATE  BULLETIN 


Purchase  of  Natural  Rubber 
From  Malaya 

[Released  to  the  press  April  4] 

Price  negotiations  have  been  concluded  whereby 
the  Reconstruction  Finance  Corporation,  through 
its  subsidiary,  the  Ru)>ber  Deveh)j)inout  Corpora- 
tion, will  purchase  all  natural  rubber,  allocated  to 
the  United  States  by  the  Combined  Rubber  Com- 
mittee, from  Malaya  at  a  price  of  2014  cents  (U.S. 
currency)  a  pound  for  standard  top  grades,  deliv- 
ered free  on  board  ocean-going  steamer  at  Far 
Eastern  port.  This  extends,  through  June  30, 
1946,  the  previous  agreement  which  applied  to  de- 
liveries from  V-J  Day  through  March  31,  1946. 
Similar  price  arrangements  are  in  force  with  the 
Governments  of  France  and  the  Netherlands. 


U.S.  Withdrawal  From 
Galapagos  Base 

t  Released  to  the  press  .\pril  G] 

The  United  States  Government  has  informed 
the  Ecuadoran  Government,  following  an  exten- 
sive exchange  of  views  between  the  two  Govern- 
ments about  the  future  disposition  of  the  base,  that 
the  United  States  will  have  completely  withdrawn 
from  the  Galajiagos  base  by  July  1,  1946.  It  is 
anticipated  that  this  base,  which  was  constructed 
and  used  by  United  States  military  forces  during 
the  war  by  agreement  between  the  two  countries, 
will  be  reduced  to  a  minimum  operational  status 
by  May  1. 


U.S.  Policy  in  Korea 

[Released  to  the  press  .\pril  5 J 

The  Department  of  State  has  found  no  basis  in 
fact  for  rumors  to  the  effect  that  there  is  a  uni- 
lateral move  underway  by  U.S.  forces  in  Southern 
Korea  to  turn  over  affairs  to  Koreans  there.  In 
line  with  our  desire  to  expedite  the  emergence  of  a 
free,  united,  and  indeijendent  Korea,  tjie  U.S. 
Military  Government  authorities  in  Soutliern 
Korea  have  since  their  arrival  there  in  September 
1945  encouraged  qualified  Koreans  to  take  over  cer- 
tain functions  in  order  that  they  may  assume  re- 
.siJonsibilities  and  obtain  experience  in  govern- 
mental administration  looking  toward  the  ultimate 
as.sumption  by  Koi'eans  of  full  governmental 
responsibilities. 

This  Government  favors  the  early  establishment 
of  a  provisional  Korean  democratic  government 
for  all  of  Korea,  as  contemplated  under  the  terms 
of  the  agreement  I'eached  in  Moscow  in  December 
1945.  To  that  end  the  joint  U.S.-U.S.S.R.  Com- 
mission now  meeting  in  Seoul  has  been  charged  by 
the  two  Governments  with  consulting  Korean 
democratic  parties  and  social  organizations  in  or- 
der to  accomplish  the  establishment  of  a  Korean 
provisional  government. 


Our  Relations  With 
Great  Britain 

On  March  30  Anglo-American  relations  and 
their  significance  in  our  foreign  policy  were  dis- 
cussed on  the  NBC  University  of  the  Air  series 
entitled  "Our  Foreign  Policy".  Participants  in 
the  broadcast  were  John  G.  Winant,  retiring  Am- 
bassador to  Great  Britain  and  U.  S.  Representa- 
tive on  the  United  Nations  Economic  and  Social 
Council;  and  Edward  T.  Wailes,  Chief  of  the  Di- 
vision of  British  Commonwealth  Affairs,  Depart- 
ment of  State. 

For  text  of  the  broadcast  see  Department  of 
State  press  release  205  of  March  30. 


Corrigendum 

In  the  Bulletin  of  March  31,  1!I46,  page  527, 
the  footnote  to  the  Fourth  Ct)uncil  Session  of 
UNRRA  should  read — 

Made  on  March  17, 1946,  on  belialf  of  Assistant  Secretary 
Clayton  by  C.  Tyler  Wood,  Sijeclal  Assistant  to  Assistant 
Secretary  Clayton  and  flr.st  alternate  on  the  U.S.  Delega- 
tion, and  released  to  the  press  on  the  same  date. 


PUBLISHED    WITH    APPROVAL    OF    DIRECTOR    OF    BUREAU    OF    THE    BUDGET 
U.  S,  GOVERNMENT  PRINTING   OFFICE:  1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  355 


APRIL  21.  1946 


The  American  Trade  Proposals:  The  Proposals  and  the 
Trade -Agreements  Program 

Article  bv  CHARLES  BUNN 


Austria:  Zones  of  Occupation 

Article  l.v  LAWRENCE  A.  HOFFMAN 


^eNT    o^ 


For  complete  contents 
see  inside  cover 


M  19  1946 


THE   DEPARTMENT  OF  STATE 

BULLETIN 


^■'•'"Z.  "■ 


Vol.  XIV -No.  355» 


•  Publication  25ir> 


April  21,  1946 


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The  Department  of  State  BULLETIN, 
a  ueekly  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 
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the  Foreign  Service.  The  BULLETIN 
includes  press  releases  on  foreign 
policy  issued  by  the  White  House  and 
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officers  of  the  Department,  as  well  as 
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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 
(It  the  end  of  each  quarter,  as  well  as 
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national relations,  are  listed  currently. 


Contents 


The  American  Trade  Proposals:  The  Proposals  and  the  Trade 

Agreements  Program.  p^g^ 

Article  bj'  Charles  Bunn 647 

Austria:  Zones  of  Occupation. 

Article  by  L.  A.  Hotfraan 649 

International     Organizations      and 
Conferences 

Calendar  of  ^^eetings ' 655 

Activities  and  Developments:  Far  f^astern  Commission   .    .    .        655 
U.S.  Responsibilities  in  FAO 656 

The  United  Nations 

Meeting  of  the  Security  Council: 

Discussion  of  Soviet-Iranian  Matter 657 

Requests  to  Consider  Activities  of  Franco  Regime   ....  660 

Provisional  Rules  of  Procedure  of  the  Security  Council    .    .    .  661 

Special  Committee  on  Refugees  and  Displaced  Persons  ....  664 

The  Record  of  the  Week 

U.S.     Memorandum    to    American    Republics    on    Argentine 

Situation 666 

Continuation  of  Preparations  for  Atomic-Bomb  Tests.     State- 
ment by  the  President 667 

Report  on  Denaturing  of  Atomic  Explosives 668 

Yugoslav  Reply  to  U.S.  Note  on  General  Mikhailovich   .    .    .  669 

U.S.  Owners  of  Polish  Property  Granted  Assistance 670 

Statement   of   the   -Allied    Mission   for   Ob-serving  the   Greek 

Elections 671 

U.S.  Aid  in  Economic  Reconstruction  of  France.      By  Assistant 

Secretary  Hilldring 674 

Confirmation  of  Bernard  M.  Baruch 676 

The    Importance    of    International    Economic    Relations    to 

World  Peace.     By  Assistant  Secretary  Clayton 677 

Answer  to  Inquiries  on  German-Owned  Factories  in  Spain  .  681 
Commendation  to  Generals  McNarney  and  Clay  on  German 

Industry  Settlement 681 

.Answer   to   Soviet   Incjuir}'   on    Charges    Against    Lieutenant 

Redin 682 

Resumption  of  Relations  With  Haiti 682 

Canada  Purchases  U.S.  Defense  Installations 683 

*Air-Transport  Agreement  With  Belgium 683 

.Addresses  of  the  Week  on  Inter-American  Cooperation.    .    .  683 

^Interim  Arrangements  for  Air  Navigation  Facilities  Abroad  684 
Transfer   of   Corporations   of   OIAA   to   the   Department   of 
State: 

Statement  by  the  President 685 

Statement  by  the  Department  of  State 685 

Executive  Order  9710 686 

Mexican  Educator  Visits  U.S 687 

Funds  for  the  Department's  Intelligence  Program.     Statement 

by  the  Secretary  of  State 687 

The  Foreign  Service: 

Consular  Offices 687 

Confirmations 687 

Publications  of  the  Department  of  State 688 

*Treat.v  Information. 


The  American  Trade  Proposals: 

The  Proposals  and  the  Trade  Agreements  Program 


Article  by  CHARLES  BUNN  ^ 


THE  MAIN  PURPOSE  of  the  Reciprocal  Trade 
Agreements  Act  ever  since  its  passage  in 
1934:  has  been  to  increase  the  foreign  trade  of  the 
United  States  in  both  directions,  by  cutting  down 
tlie  barriers  wliich  we  and  otlier  countries  main- 
tain against  that  trade. 

In  June  1945  Congress  renewed  the  act  and 
increased  the  President's  authority  under  it  so 
that  he  is  now  autliorized  to  make  reductions  of 
particuhir  tariff'  rates  up  to  50  percent  of  their 
level  on  January  1,  1945.  This  increase  of  the 
President's  authority,  of  coui-se,  increases  corre- 
spondingly his  bargaining  poM-er  regarding  bai'- 
riers  against  the  trade  of  the  United  States  main- 
tained by  other  countries. 

This  increase  of  authority  does  not  mean  that 
any  particular  rate  is,  in  fact,  to  be  reduced  to  the 
authorized  extent.  Reductions  will  be  made  in  the 
future,  as  they  have  been  in  the  past,  selectively, 
after  full  hearing  and  consideration,  with  due  re- 
gard for  the  interests  of  American  producers,  and 
always  in  return  for  corresponding  concessions 
made  by  other  countries. 

With  the  war's  end  a  larger  opportunity  than 
ever  before  is  presented  for  the  operation  of  the 
trade-agreements  program. 

On  December  6, 1945  the  Secretary  of  State  pub- 
lished the  American  Proposals  for  Expansion  of 
World  Trade  and  Employment.'^  These  Proposals 
suggest  that  the  United  Nations  call  an  Interna- 
tional Conference  on  Trade  and  Employment  to 
create  an  International  Trade  Organization  as 
part  of  the  United  Nations  structure.  The  char- 
ter of  the  Organization,  if  the  Proposals  are  ac- 
cepted, would  contain  an  agreed  code  of  liberal 
rules  to  govern  foreign  trade  among  the  countries 
that  accept  it. 


The  Proposals  suggest  that  that  code  should 
provide : 

1.  Tliat  tariffs  be  substantially  reduced  and  that 
preferences  be  eliminated. 

2.  That  quotas  and  embargoes  be  limited  to  a 
few  reullj'  necessary  eases  and  that  they  be  ad- 
ministered without  discrimination. 

3.  That  export  subsidies  be  confined  to  excep- 
tional cases,  under  general  rules. 

4.  That  governments  conducting  foreign  trade 
by  their  own  agencies  agree  to  give  fair  treatment 
to  the  commerce  of  all  friendly  countries  and  to 
make  their  purchases  and  sales  on  purely  economic 
grounds. 

5.  That  cartels  and  combines  be  prevented  by 
international  action  from  restricting  the  commerce 
of  the  world. 

6.  That  the  special  problems  of  surplus  com- 
modities be  handled  by  agreements  among  gov- 
ernments; that  such  agreements  seek  always  to 
expand  consumption  and  to  ease  transitions  rather 
than  freezing  vested  interests;  that  they  be  at- 
tended at  every  stage  by  full  publicity;  and  that 
consuming  countries  have  an  equal  voice  with  i^ro- 
ducing  countries  in  making  and  operating  them. 

'  Mr.  Bunn  is  Adviser  to  the  OflBce  of  International 
Trade  Polic.v,  Department  of  State.  For  other  articles  on 
tlie  trade  proposal.s.  see  : 

"Trade  Barriers  Imposed  by  Government"  by  Margaret 
I'otter,  Bulletin  of  Mar.  17,  1946,  p.  403 ;  "Restrictive 
Business  Practices"  by  Robert  Terrill,  Bulletin  of  Mar. 
24,  1SM6,  p.  4.55;  "Intergovernmental  Commodity  Agree- 
ments" by  William  T.  Phillips,  Bulletin  of  Mar.  31,  1946, 
[I.  509;  "Proposals  Concerning  Employment"  by  Ellsworth 
H.  Plank  and  Maurice  J.  Erickson.  Bulletin  of  Apr.  7, 
1946,  p.  561 :  "The  American  Trade  Proposals :  An  Inter- 
national Trade  Organization"  by  Louis  K.  Hyde,  Jr., 
lUnLETiN  of  Apr.  14,  1946,  p.  616. 

"  For  text  of  Proposals  see  Bulletin  of  Dec.  9,  1945,  p. 
912. 

647 


648 


DEPARTMENT  OF  STATE  BULLETIN 


All  these  matters  and  otliers  are  covered  more 
fully  in  the  Projaosals  themselves  and  in  the  pre- 
vious articles  in  this  series  that  have  appeared  in 
the  Depautment  of  State  Bulletin. 

The  Proposals  have  been  submitted  for  consid- 
eration by  the  peojsle  of  the  United  States  and  by 
the  governments  of  other  countries  i^rior  to  their 
formal  consideration  by  an  international  confer- 
ence to  be  called  by  the  United  Nations. 

The  Economic  and  Social  Council  of  the  United 
Nations,  at  its  meeting  in  London  in  February 
1946,  adopted  a  resolution  of  which  the  preamble 
and  paragraph  1  read  as  follows: 

"The  Economic  and  Social  Council,  consider- 
ing it  essential  that  the  co-operative  economic 
measures  already  taken  be  supplemented  by  fur- 
tlier  international  measures  dealing  directly  with 
trade  barriers  and  discriminations  which  stand  in 
the  way  of  an  expansion  of  multilateral  trade  and 
by  an  undertaking  on  the  part  of  nations  to  seek 
full  employment, 

"1.  Decides  to  call  an  International  Conference 
on  Trade  and  Employment,  in  the  latter  part  of 
1946,  for  the  purpose  of  promoting  the  expansion 
of  production,  exchange  and  consumption  of 
goods;" 

Prior  to  this  action,  and  in  December  1945, 
the  United  States  had  invited  15  countries  to  meet 
to  draft  a  tentative  charter  of  an  International 
Trade  Organization  for  consideration  later  by  the 
general  Conference  and  to  negotiate  specific  reduc- 
tions of  trade  barriers  among  the  countries  par- 
ticipating in  the  meeting. 

Subsequentl,y,  and  by  the  same  resolution  above 
referred  to,  the  Economic  and  Social  Council  made 
its  own  arrangements  to  prepare  for  the  Confer- 
ence.    The  resolution  proceeds: 

"2.  Constitutes  a  Preparatory  Committee  to 
elaborate  an  annotated  draft  agenda,  including  a 
draft  convention,  for  consideration  by  the  Con- 
ference, taking  into  account  suggestions  which 
may  be  submitted  to  it  by  the  Economic  and  Social 
Council  or  by  any  Member  of  the  United  Nations ; 

"3.  Suggests,  as  a  basis  of  discussion  for  the 
Preparatory  Committee,  tliat  the  Agenda  include 
the  following  topics : 

"(a)   International   agreement  relating  to  tlie 

'This  list  includes  thf  I'l  countries  previously  invited  l)}" 
the  United  States,  plus  Chile,  Lebanon,  and  Norway. 


achievement  and  maintenance  of  high  and  stable 
levels  of  employment  and  economic  activity, 

"(&)  International  agreement  relating  to  regu- 
hitions,  restrictions  and  discriminations  atl'ecting 
international  trade, 

"(iT")  International  agreement  relating  to  re- 
strictive business  practices, 

"((^)  International  agreement  relating  to  inter- 
governmental conmiodity  arrangements, 

"(e)  Establishment  of  an  international  trade 
organization,  as  a  specialized  agency  of  the  United 
Nations,  having  responsibilities  in  the  fields  of 
(b),  (c)  and  (d)  above; 

"4.  Requests  the  Preparatory  Committee,  when 
considering  the  foregoing  items,  to  take  into  ac- 
count the  special  conditions  which  prevail  in  coun- 
tries whose  manufacturing  industry  is  still  in  its 
initial  stages  of  development,  and  the  questions 
that  arise  in  connection  with  commodities  which 
are  subject  to  special  problems  of  adjustment  in 
international  markets ; 

''5.  Requests  the  Preparatory  Committee  to  re- 
port to  a  subsequent  session  of  the  Council  recom- 
mendations regarding  the  date  and  place  of  the 
Conference  and  the  agenda  (including  a  draft  con- 
vention) and  also  what  States,  if  any,  not  Members 
of  the  United  Nations,  should  be  invited  to  the 
Conference  on  Trade  and  Employment ; 

"6.  Appoints  as  Members  of  the  Preparatory 
Committee  the  Representatives  of  the  Govern- 
ments of  the  following  countries:  Australia,  Bel- 
gium-Luxembourg, Brazil,  Canada,  Chile,  China, 
Cuba,  Czechoslovakia,  France,  India,  Lebanon, 
Netherlands,  New  Zealand,  Norway,  South  Africa, 
U.S.S.R.,  the  United  States  and  the  United 
Kingdom."  ^ 

It  will  be  noticed  that  under  this  resolution  the 
Preparatoiy  Counnittee  takes  over  the  work  of 
preparing  a  draft  convention  for  consideration  by 
the  Conference  but  does  not  take  over  the  other 
subject  mentioned  in  the  invitation  previously  is- 
sued by  the  LTnited  States,  namely,  the  negotiation 
of  specific  reductions  of  trade  barriers  among  the 
participating  countries.  It  therefore  seems  likely 
that  two  groups,  having  largely  but  not  entirely 
the  same  membership,  will  be  at  work  on  separate 
but  related  subjects,  (1)  the  preparation  of  "an 
annotated  draft  agenda,  including  a  draft  conven- 
tion, for  consideration  by  the  Conference"  and  ('2) 
(Contiimcfl  on  page  6'65) 


APRIL  21,  1946 


649 


Austria:  Zones  of  Occupation 


Article   by  L.   A.   HOFFMAN 


AUSTRIA  is  one  of  tlie  countries  now  undergoin<i' 
.  a  period  of  Allied  occupation.  The  jjresent 
zones  of  occupation  divide  the  country  neither  uni- 
formly nor  in  accordance  with  physical  or  eco- 
nomic I'egions.  With  two  excejations,  the  zonal 
boundaries  follow  the  1937  Austrian  provincial 
boundaries  (see  map).  A  study  of  these  zones  on 
the  basis  of  their  relative  inii)ortance  in  terms  of 
the  latest  pre-war  population,  resources,  and  eco- 
nomic productivity  may  give  an  indication  of  the 
strength  of  Austria's  economic  contribution  in  a 
world  at  peace. 

Physical  Setting 

Although  Austria  is  primarily  mountainous,  it 
affords  a  great  variety  of  productive  activities 
from  region  to  region.  The  tojjographic  complex- 
ity of  the  country  accounts  for  many  of  the  prob- 
lems of  occupation  and  administration  in  the  four 
zones. 

Austria  is  primarily  an  Al2:)ine  state'and  has  the 
complex  pattern  of  many  small  topographic  re- 
gions characteristic  of  areas  of  folded  mountains. 
This  pattern  in  turn  affects  the  distribution  of  pop- 
ulation, land-use,  and  general  productivity.  The 
zones  of  occui^ation  overlap  the  boundaries  of  the 
physiographic  regions;  thus,  each  zone  has  many 
features  in  common  as  well  as  some  distinctive 
ones. 

The  Austrian  Alps  are  broader  and  lower  than 
(he  Swiss  Alps  to  the  west  but  have  the  same  gen- 
eral formations.  Three  great  parallel  ranges  ex- 
tend from  west  to  east,  with  a  great  central  core 
range  separated  by  longitudinal  valleys  from  the 
limestone  ranges  on  both  the  north  and  south. 
This  central  core  range  is  chiefly  crystalline  (gi'an- 
ite  and  schist),  but  there  are  larger  limestone  rem- 
nants than  are  found  farther  west.  All  four  zones 
have  portions  of  these  ranges.  The  Alps  reappear 
as  the  great  curve  of  the  Carpathians,  to  the  north- 


eastward, across  the  structural  gap  in  which  the 
Danube  flows. 

In  the  west  (the  French  zone)  the  Austrian- 
Italian  boundary  runs  along  the  crest  of  the  great 
central  range;  and  the  southern  limestone  range 
(the  Dolomites)  and  the  intervening  valley  are 
in  Italy.  Also,  in  the  west,  the  northern  lime- 
stone range  forms  the  Austrian-German  boundary. 
In  the  intervening  vallej'  is  Innsbruck,  the  only 
large  city  in  western  Austria.  It  lies  at  a  strategic 
point  where  the  Brenner  Pass  route,  the  only 
north-south  route  that  crosses  the  Alps  without 
a  tunnel  at  an  elevation  less  than  a  mile  above 
sea-level,  crosses  the  Paris-Zurich- Vienna  route 
through  the  Inn  depression.  Farther  east,  the 
Austrian- Yugoslav  boundary  luns  along  the  south- 
ern limestone  range,  so  that  in  eastern  Austiia  all 
three  Alpine  ranges  and  both  longitudinal  valleys 
are  within  the  country.  In  the  south,  the  Austrian 
Alps  are  continued  in  the  karst  (limestone)  pla- 
teaus of  the  Dinaric  system  along  the  Adriatic. 

The  two  longitudinal  valleys  are  each  i-eally  a 
series  of  ridges  and  valleys,  something  like  the 
Great  Valley  in  the  Appalachian  system.  The 
northern  one  (drained  by  the  Inn,  Salzach,  and 
Enns  rivers)  and  the  southern  one  (drained  by  the 
Mur,  Miirz,  and  Drau  rivers)  together  contain 
most  of  the  1.5  million  population  living  in  the 
mountainous  half  of  Austria. 

Austria  has  been  referred  to  as  an  Alpine  state. 
This  is  true  so  far  as  the  area  as  a  whole  is  con- 
cerned.   Most  of  the  people,  however,  and  a  large 

Mr.  Hoffman  is  Population  Geographer  in  the  Division 
of  International  and  Functional  Intelligence,  Office  of  Re- 
search and  Intelligence,  Department  of  State.  For  his 
article  on  "Germany :  Zones  of  Occnpatiou"  see  Buixetin 
of  Apr.  14,  p.  590.  Copies  of  maps  of  the  zones  of  occupa- 
tion of  Germany  and  Austria  may  be  obtained  from  the 
Division  of  Research  and  Publication,  Department  of 
State. 


650 


DEPARTMENT  OF  STATE  BULLETIN 


part  of  tlie  resources  and  i)rodiictivity  are  concen- 
trated along  the  nortliern.  eastern,  and  southeast- 
ern edges.  Over  5  million  people  live  in  the  hills 
and  plains  around  the  edges  of  the  eastern  Alps, 
which  compi'ise  half  of  the  country.  Most  of  these 
peopl?  live  in  the  more  level  areas  which  together 
make  up  only  a  quarter  of  Austria. 

The  most  populous  and  productive  portion  of 
Austria  is  shaped  something  like  an  inverted  check 
mark.  The  shorter  arm  is  the  eastern  edge  of  the 
country,  mainly  the  Vienna  Basin  and  the  Burgen- 
land  plains  (part  of  the  Hungarian  Basin).  The 
long  arm  is  formed  mainly  by  the  Danubian  plains, 
which  trend  roughly  east  and  west.  Tlie  term 
Datiuhian  plains,  as  used  here,  includes  not  only 
the  narrow  flood  plain  in  the  Danube  gorge  but  also 
the  rolling  country  in  the  hilly  foreland  area  be- 
tween the  river  and  the  northern  Alpine  ridge,  plus 
the  smoother  eastern  portion  of  the  strip  of  the 
Bohemian  Plateau  that  lies  within  Austria  (north 
of  tlie  Danube). 

Vienna  Administered  Jointly 

Vienna  (Wien)  is  by  far  the  most  significant 
spot  in  Austria.  It  is  strategically  located  near 
the  point  where  the  Danube  debouches  from  its 
narrow  Austrian  gorge  into  the  plains  of  the  Hun- 
garian Basin.  Here  converge  the  main  routes 
from  the  Paris  Basin,  the  Rhineland,  Saxony,  and 
Bohemia,  the  German-Polish  sandy  plains,  the 
middle  and  lower  Danube  region,  and  the  Po  Val- 
ley. It  is  one  of  the  largest  transportation  nodes 
in  central  Europe. 

The  city  of  Vienna  (with  only  one  third  of  one 
percent  of  the  area  of  Austria)  included  over  a 
fourth  of  the  1939  total  Austrian  population  and 
comprised  almost  two  thirds  of  the  1939  Austrian 
urban  population.  Among  the  city's  population 
were  included  about  a  third  of  the  Austrian  indus- 
trial population,  and  about  two  fifths  of  the  Aus- 
trian commercial   and   professional  populations. 

In  its  pre-war  industrial  specialization,  Vienna 
resembled  Paris  more  than  it  did  any  other  Euro- 
pean city.    Its  industrial  output  trended  toward 

'  In  the  discussion  of  the  individual  zones  of  occupa- 
tion, that  part  of  Vienna  oociipicd  by  o'ach  power  is  not 
included  as  part  of  its  zone. 


items  that  emphasized  quality  and  artistry  rather 
than  mass-production  and  economy.  Among  its 
specialties  were  fine  cotton,  wool,  and  silk  textiles 
(hosiery,  lace,  and  knit  goods),  metal  fabrication 
(vehicles  and  machinery),  leather  goods,  fine 
furniture,  and  wood  products  (fine  paper,  toys, 
and  musical  instruments).  ]\Iuch  of  the  yarn  for 
the  Vieimese  textile  production  was  imported,  but 
some  came  from  other  parts  of  Austria. 

Although  iDrecise  figures  are  not  available,  prob- 
ably over  a  third  of  Austria's  1937  national  pro- 
duction, valued  at  some  1.1  billion  dollars,  came 
from  the  city  of  Vienna  alone.  Since  Viemia  was 
so  overwhelmingly  notable  as  tlie  political,  com- 
mercial, cultural,  and  industrial  center  of  Austria, 
it  was  not  assigned  to  any  one  of  the  Allies  for 
sole  control  but  is  administered  jointly  by  the 
four  powers,  with  individual  sectors  of  occupation. 

Vienna :  Sectors  of  Occupation 


Vienna  (1937  boundaries) 
Center  of  city  (Joint)  . 
Soviet  sectors  (2)  .  .  . 
British  sectors  (2)  .  .  . 
American  sector .  .  .  . 
French  sector 


Area  in 
square 
miles 

1939  popu- 
lation (in 
tliousands) 

Percent 

of  total 

population 

107 

1,  705 

100 

1 

33 

2 

59 

525 

31 

20 

403 

23 

18 

369 

22 

9 

375 

22 

Soviet  Zone  Significant  Agricultural  Area 

That  part  of  Austria  occupied  by  the  U.S.S.R. 
had  three  tenths  of  the  country's  total  pre-war 
poijulation,  an  absolute  poi^ulation  larger  than 
that  in  any  of  the  other  zones.^  Nine  tenths  of  the 
1!);]9  population  in  the  Soviet  zone  lived  in  com- 
munities under  10,000.  Except  for  the  Linz  area 
under  American  occupation,  and  the  Klagenfurt 
and  Graz  Basins  under  British  occupation,  the 
most  productive  parts  of  Austria  (outside  Vienna ) 
are  in  the  Soviet  zone. 

The  Soviet  zone  is  chiefly  agricultiu'al  and  in- 
cludes the  agricultural  part  of  the  Vienna  Basin, 
the  Burgenland  plains,  and  most  of  the  Danubian 
plains.  Over  three  fifths  of  the  pre-war  Austrian 
plowland  was  in  the  zone,  and  some  45  percent  of 
the  agricultural  population  lived  there.    Over  half 


APRIL  21,  1946 


651 


of  the  oats,  maize,  and  leguminous  fodder  crops, 
about  three  fifths  of  the  rye,  wheat,  and  root  crops, 
two  thirds  of  the  potatoes,  three  tenths  of  the  bar- 
lej',  three  quarters  of  the  mixed  green  fodder  crops, 
and  over  nine  tenths  of  the  sugar-beet  crop  came 
from  wliat  is  now  the  Soviet  zone.  In  addition, 
truck  and  fruit  crops  were  produced  in  the  Vienna 
Basin. 

Altliougli  cattle  and  horses  were  plentiful  in 
pre-war  days,  most  of  the  dairy  herds  were  in  other 
i:)arts  of  the  country.  Although  the  zone  had  over 
three  fifths  of  the  plowland,  it  had  only  a  fifth 
of  the  other  agricultural  land,  which  was  chiefly 
grassland.  The  Soviet  zone  was-  jarimarily  the 
granary  of  pre-war  Austria. 

A  little  more  than  a  fourth  of  the  pre-war 
Austrian  industrial  population  lived  in  the  zone, 
most  of  whom  were  in  the  Sankt  Polten  and 
Wiener-Neustadt  areas,  immediately  tributary  to 
Vienna.  Textile  manufacture  was  the  leading  in- 
dustry, but  considerable  metal  fabrication  also  was 
done  in  Wiener-Neustadt.  Mineral  fuels  were  not 
plentiful.  Prior  to  the  war,  all  of  the  Austrian 
hard  coal  -  and  one  tenth  of  the  Austrian  lignite 
production  came  from  areas  now  in  the  Soviet 
zone ;  but  most  of  the  electric  power  was  furnished 
by  hydroelectric  plants  in  the  mountains  and  by 
steam  plants  in  the  Vienna  area,  which  used  much 
Upper  Silesian  coal.  The  only  Austrian  oil  field — 
Zistersdorf ,  northeast  of  Vienna — is  in  the  Soviet 
zone  and  had  a  1937  production  of  only  33,000 
metric  tons.  This  had  risen,  however,  to  1,435,000 
tons  by  1941.  At  that  time  this  field  was  reported 
as  furnishing  the  Nazis  one  third  as  much  petro- 
leum as  the  bomb-damaged  Rumanian  fields. 

Commercial  and  professional  activities  were  not 
particularly  outstanding  in  the  zone,  since  much 
of  tlie  area  was  served  by  Vienna.  It  is  doubtful 
if  the  Soviet  zone  prt)duced  more  than  a  quarter 
of  the  Austrian  income,  since  much  of  the  popula- 
tion (especially  in  the  Burgenland  area)  was  en- 
gaged in  rather  extensive  agriculture  of  the  east- 
ern-European type,  which  was  not  particularly 
productive  compared  with  western-European 
types  of  agricultural  and  industrial  pursuits. 

Between  1934  and  1939  the  population  of  this 
zone  remained  almost  constant.  Like  all  of  the 
zones,  the  Soviet  one  was  overwhelmingly  Catholic. 

°Vei-y  small  amount:  228,000  tons  production  In  1937, 
7.5  million  tons  reserves. 


British  Zone  Heavy  Industry  and  Mineral 
Producer 

Although  the  British  zone  is  the  largest  of  the 
zones  in  area,  it  had  only  a  little  over  one  fifth  of 
the  1939  population.  Over  a  fourth  of  this  1.5  mil- 
lion population  was  in  the  10  cities  over  10,000 
(especially  in  Graz,  Austria's  second  largest  city). 
Average  density  of  population  is  deceiving  in  such 
a  hilly  area,  since  the  majority  of  the  people  live 
in  the  narrow  valleys  with  consequently  high  den- 
sities, leaving  large  areas  in  the  higher  mountains 
almost  uninhabited. 

Over  a  third  of  the  1939  population  was  de- 
pendent upon  agriculture.  A  fifth  of  the  Austrian 
plowland  was  in  the  zone,  as  was  about  the  same 
proportion  of  most  of  the  principal  crops.  About 
half  of  the  Austrian  cropland  planted  in  maize  and 
mixed  grain  was  here,  and  fodder  crops  were  sub- 
stantial. Dairying  was  a  leading  activity  since  al- 
most two  fifths  of  the  Austrian  grassland  was  in 
the  zone. 

Although  fewer  people  in  the  British  zone  were 
dependent  upon  industry  than  upon  agriculture, 
industrial  activities  probably  produced  as  large  a 
proportion  of  the  zonal  income  as  did  agricul- 
tural activities.  Most  of  the  industry  was  in  the 
Graz  and  Klagenfurt  basins  and  was  based  upon 
the  mineral  output  of  the  Eisenerzer  Alps  (be- 
tween the  headwaters  of  the  Enns  and  Mur  rivers) 
and  the  Steierische  Erzberg.  About  seven  tenths 
of  the  Austrian  lignite  production  came  from  this 
zone,  as  well  as  most  of  the  Austrian  iron,  lead, 
zinc,  copper,  and  magnesite. 

Austria:  Lignite  Reserves  and  Production 


1937  Production 

Reserves 

• 

Thou- 
sands 
of  tons 

Percent 
of  pro- 
duction 

Thousands 
of  tons 

Percent 

of 
reserves 

Austria  (1937  boundaries) 
Soviet  zone    ..... 

British  zone 

American  zone  .... 
French  zone  

3,220 
333 

2,243 

600 

44 

100 

10 

70 

19 

1 

433,  000 

11,500 

220,  500 

200,  000 

1,000 

100 

3 

51 

46 

Probably  the  most  outstanding  mineral  produc- 
tion was  the  1-1.5  million  tons  of  iron  ore  mined 
annually.  This  was  the  largest  pre-war  iron-ore 
production  of  the  Danubian  area.     It  was  mod- 


652 


DEPARTMENT  OF  STATE  BULLETIN 


erate  quality  (36-40  percent  Fe)  and  almost  free 
of  sulphur  and  phosphorus.  This  ore  formed  the 
basis  of  the  Styrian  metallurgical  industries,  the 
leading  metal  industries  in  Austria.^  Most  of 
the  1937  Austrian  production  of  389,000  tons  of 
pig  iron  and  650,000  tons  of  steel  came  from  the 
Graz  Basin  (although  there  were  small  plants  in 
Vienna,  Lower  Austria,  and  Salzburg).  In  the 
Graz  area  and  around  Klagenfurt  were  plants 
turning  out  electrical,  textile,  and  agricultural  ma- 
chinery, as  well  as  tools,  automobiles,  and  motor - 
cj'cles.  The  abundant  hych'oelectric  power  devel- 
oped in  the  Mur  and  Drau  river  systems,  together 
with  the  timber  output  of  the  two  fifths  of  the 
Austrian  forest  land  in  the  British  zone,  laid  the 
basis  for  an  extensive  pre-war  output  of  pulp, 
cellulose,  and  paper.  About  a  fifth  of  the  pre-war 
value  of  Austrian  production  came  from  the  Brit- 
ish zone. 

Between  1934  and  1939  this  zone  increased  only 
1  percent  in  population,  with  most  of  the  increase 
taking  place  in  the  industrial  mining  settlements 
of  the  upjjer  Graz  Basin.  This  zone  had  a  larger 
Protestant  minority  than  any  other  part  of  Aus- 
tria except  the  city  of  Vienna,  although  it  was  a 
very  small  minority  in  absolute  numbers. 

Varied  Activities  in  American  Zone 

About  a  fifth  of  Austria  is  under  American  oc- 
cupation. The  zone  contained  15  percent  of  the 
1939  Austrian  population,  of  which  over  seven 
tenths  lived  in  places  under  10,000. 

A  considerable  amount  of  rich  farmland  ex- 
ists in  the  hilly  area  southwest  of  Linz  and  in 
the  Salzach  Valley.  The  American  zone  con- 
tained almost  as  much  plowland  as  the  British 
zone,  although  it  is  less  than  three  fifths  as  lai'ge. 
A  cover  of  loess  in  the  rather  deeply  incised  val- 

'  Since  Austrian  lignite  is  of  pooi-  quality,  it  was  used 
chiefly  as  houseliold  fuel ;  industrial  fuel  was  imported 
from  tlie  Upper  Silesian  coal  field.  It  should  be  noted 
that  the  Austrian  metallurgical  industries  mentioned  here 
do  not  include  the  Hermann  Goering  worlds  near  Linz 
in  the  American  zone,  since  it  did  not  begin  to  i^roduce 
until  after  the  war  started. 

'  The  wartime  control  of  the  Lorraine  iron  deposits  also 
probably  made  it  less  desirable  to  use  the  low-grade  iron 
ores  of  the  Linz  area,  since  they  would  require  larger 
anioiuits  of  valuable  coke  to  smelt. 


leys  makes  very  fertile  soil,  which  produces  large 
crops  of  wheat,  rye,  barley,  and  oats.  Over  a  third 
of  the  zone  is  grassland,  the  basis  for  an  extensive 
dairy  industry. 

The  glacial  lakes  and  towering  limestone  cliffs 
i)f  the  southern  part  of  the  zone  were  the  scenic 
attractions  for  a  significant  pre-war  tourist  trade. 
A  fifth  of  the  Austrian  forest  land  was  in  the 
zone  and,  together  with  abundant  water  power, 
formed  the  basis  for  important  pre-war  wood  in- 
dustries. 

The  foreland  area  at  the  base  of  the  Alps  con- 
tained mineral  deposits.  About  a  fifth  of  the  Aus- 
trian lignite  production  and  considerable  amounts 
of  salt  and  iron  came  fi'om  this  area.  The  Nazis 
had  plans  for  an  extensive  metallurgical  industry 
in  the  Linz  area,  but  the  war  interfered  with  com- 
pletion of  the  works  on  the  plan  they  had  orig- 
inallv  worked  out.^ 

The  American  zone  was  one  of  the  two  zones  in 
Austria  that  increased  in  population  during  the 
period  1934-1939.  Most  of  the  increase  took  place 
in  the  cities  of  Linz,  Salzburg,  Steyr,  Gmunden, 
and  Wels. 

French  Zone  Least  Productive  of  Zones 

In  pojiulation,  resources,  and  productivity,  the 
Fz'ench  zone  is  the  least  important  of  the  zones 
of  occupation.  It  has  about  a  sixth  of  the  area, 
but  only  had  about  one  fourteenth  of  the  1939 
poiJulation.  Its  main  resources  are  grass  and  scen- 
ery ;  and  it  has  relatively  low  routes  of  travel. 

The  area  resembles  Switzerland  in  both  i)hysical 
environment  and  human  development.  Practi- 
cally all  of  the  cultivated  land  ( about  the  size  of  the 
city  of  Vienna)  is  in  the  valley  of  the  Inn  River. 
Mountain  pastures  cover  almost  a  third  of  the 
area  and  support  the  dairy  herds  which  furnish 
the  chief  agricultural  surplu.ses. 

This  was  the  only  zone  in  which  the  industrial 
population  was  slightly  larger  than  the  agricul- 
tural population  (although  both  are  relatively 
smaller  than  in  the  other  zones).  Water  power 
and  an  early  development  were  significant  in  the 
growth  of  the  cotton-textile  industries,  now 
centered  in  Innsbruck.  These  industries  had  their 
start  as  household  industries. 

The  French  zone,  like  the  American  zone,  was 
the  site  of  substantial  tourist  activities  in  pre-war 


APRIL  21,  1946 


6.53 


days.     It  had  a  moderate  increase  of  population 
between  VXU  and  19;3!). 

Interdependence  of  Zones 

As  has  been  mentioned,  in  general  the  present 
Allied  zones  of  occupation  follow  old  political  sub- 
divisions and  bear  little  relation  to  physiographic 
regions.  Tlie  iSoviet  zone  contains  most  of  the 
lowlands  as  well  as  considerable  ai'eas  of  Alpine 
foothills.  The  British,  American,  and  French 
zones  are  mainly  mountainous,  with  most  of  the 
population  living  in  the  small  plains,  valleys,  and 
basins  scattered  among  the  highlands.  In  terms 
of  activities  during  pre-war  days,  the  zones  formed 
an  intimately  related  economy;  not  one  of  them 
can  be  described  as  even  reasonablv  self-sufficient. 


Vienna  furnished  most  of  the  manufacture  of 
goods  that  were  exported  and  also  provided  many 
commeicial,  professional,  and  cultural  services  for 
the  whole  country.  The  Soviet  zone  furnished 
agricultural  surpluses  and  textile  yarns  from  the 
outer  industrial  suburbs  of  Vienna.  The  British 
zone  supplied  nn)st  of  the  industrial  minerals  and 
the  raw  and  semi-finished  iron  and  steel  goods. 
The  American  and  British  zones  furnished  most 
of  tlie  timber  and  pulp.  The  British,  American, 
and  French  zones  furnished  most  of  the  dairy  sur- 
pluses. The  American  and  French  zones  had  most 
of  the  tourist  industry.  Each  of  the  zones  de- 
pended upon  the  others  for  part  of  its  livelihood, 
as  well  as  upon  imports  that  were  paid  for  with 
surpluses  from  restricted  areas  of  the  country. 


Austria:  General  Population  Data  for  Zones  of  Occupation 


Total  .\rea 

1933  Total  Population 

Density  per  Square 
Mile 

Population  Change 

111  square 
miles 

Percent  of 

Austrian 

area 

In  thou- 
sands 

Percent  of 

.\ustrian 

population 

Of  total 
population 

Of  popu- 

lat  ion  in 

places 

under 

10.000 

1934  Popu- 
lation in 
thousands 

1934-1939 

zone 
change  in 
thousands 

Percent 
change 
in  zone 

Austria  (1937  Boundaries)    .    . 
Vienna  (.Joint  Administra- 
tion)       

Soviet  zone 

British  zone 

American  zone 

French  zone     

32,  381 

107 

10,  180 

10,  788 

6,  198 

5,  108 

100 

(t) 

31 
34 
19 
16 

6,650 

1,705 
1,  989 
1,459 
1,008 
489 

100 

26 
30 
22 
15 

7 

205 

15,  935 

195 

135 

163 

96 

124 

0 

177 

102 

120 

70 

*6,  760 

1,874 

1,991 

1,451 

966 

473 

-*110 

-169 
-2 

-t-8 
-f42 
-1-16 

-2 

-9 

(t) 
+  1 
+  4 
+  3 

Austria:  1939  Urban-Rural  Break-Down  for  Zones  of  Occupation 


Austria  (1937  Boundaries)      .    . 
Vienna    (Joint    Administra- 
tion)     

Soviet  zone 

British  zone 

American  zone 

French  zone 


Xumber  of 
cities 


32 

1 
9 

10 
7 
5 


Cities  in.OOO  and  Over 


square 
miles 


729 

107 
122 
193 
176 
131 


Population 

of  cities 

in 

thousands 


2,716 

1,705 
205 
379 
287 
140 


Percent  of 

population 

in  zone 


41 

100 
10 
26 
28 
29 


Percent  of 
Austrian 

city 
population 


100 

63 

7 

14 

11 

5 


Communities  Under  10,000  in  Size 


Area  in 
square 
miles 


31,652 

0 

10,  058 

10,  595 

6,022 

4,  977 


Rural  pop- 
ulation in 
thousands 


3,934 

0 

1,784 

1,080 

721 

349 


Percent  of 

population 

in  zone 


59 

0 
90 
74 

72 
71 


Percent  of 

Austrian 

rural 

population 


100 

0 
45 
28 
18 

9 


t  Very  small  amount  or  percent. 

•The  break-down  in  this  column  will  not  add  up  exactly  to  the  total  for  Austria  because  there  were  4,726  people  reported  without  specific  residences  in  the 
1934  Austrian  census. 


(i907S,i— 46- 


(554  DEPARTMENT  OF  STATE  BULLETIN 

Austria:  1939  Resident  Population'  Dependent  Upon  Major  Occupational  Groupings  for  Zones  of  Occupation 


Agriculture  and  Forestry 

Industry  and  Handicrafts 

Trade  and  Commerce 

Number 
dependent 

in 
tliousands 

Percent  of 
resident 

population 
in  zone 

Percent  of 

Austrian 

agricultural 

dependent 

Number 
dependent 

in 
thousands 

Percent  of 
resident 

population 
in  zone 

Percent  of 
Austrian 
industrial 
dependent 

Number 
dependent 

in 
thousands 

Percent  of 
resident 

population 
in  zone 

Percent  of 

Austrian 

commercial 

dependent 

Austria  (1937  Boundaries)     .    . 

1,805 

28 

100 

2,079 

32 

100 

894 

14 

100 

Vienna    (Joint   Administra- 

tion)   

7 

(t) 

(t) 

640 

38 

31 

360 

21 

40 

Soviet  zone 

813 

41 

45 

565 

28 

27 

188 

9 

21 

British  zone 

526 

37 

29 

421 

30 

20 

152 

11 

17 

American  zone 

318 

32 

18 

300 

31 

15 

126 

13 

14 

French  zone     

141 

29 

8 

153 

32 

7 

68 

14 

8 

Austria:  1939  Resident  Population  ' — Continued 


1939  Distribution  of  Major  Religions  for  Zones 
of  Occupation 


Austria  (1937  Boundaries)     .    . 
Vienna   (Joint  Administra- 
tion)   

Soviet  zone 

British  zone 

American  zone 

French  zone 


Government  and  Other  Professions 


Number 
dependent 

in 
thousands 


581 

220 
134 
102 

81 
44 


Percent  of 
resident 

population 
in  zone 


13 

7 
7 
8 
9 


Percent  of 

Austrian 

professional 

dependent 


100 

38 
23 

17 

14 

8 


Protestants 


Number  in 
thousands 


346 

123 
72 

100 
41 
10 


Percent  of 
resident 

population 
in  zone 


Percent  of 

Austrian 

Protestants 


100 

35 
21 
29 
12 
3 


Catholics 


Number  in 
thousands 

5, 

795 

1 

348 

1 

832 

1 

243 

912 

460 

Percent  of 
resident 

population 
in  zone 


88 

79 
92 
88 
93 
96 


Percent  of 
Austrian 
Catholics 


100 

23 
32 

21 
16 

8 


Austria:  1937  Land-Use  for  Zones  of  Occupation 


Plowland 

Other  Agricultural  Land  2 

Forest  Land 

Amount  in 
square 
miles 

Percent  of 
area  of 
zone 

Percent  of 
Austrian 
plowland 

Amount  in 
square 
miles 

Percent  of 

area  of 

zone 

Percent  of 

total  of 

such  land 

Amount  in 
squa-e 
miles 

Percent  of 

area  of 

zone 

Percent  of 
Austrian 
forest  land 

Austria  (1937  Boundaries)     .    . 

6,270 

19 

100 

9,730 

30 

100 

12,  117 

37 

100 

Vienna   (Joint  Administra- 

tion)   

24 

22 

(t) 

5 

5 

(t) 

14 

13 

(t) 

Soviet  zone 

3,876 

38 

62 

2,  135 

21 

22 

3,413 

34 

28 

British  zone 

1,232 

11 

20 

3,700 

34 

38 

4,962 

46 

41 

American  zone 

1,038 

17 

17 

2,270 

37 

23 

2,078 

34 

17 

French  zone     

100 

2 

1 

1,  620 

32 

17 

1,  650 

32 

14 

t  Very  small  amount  or  percent. 

1  Resident  population  is  the  total  population  minus  the  conscripts  in  the  armed  forces  and  compulsory  labor  forces. 

■  Estimated  land  in  gardens,  vineyards,  orchards,  pastures,  and  mountain  meadows;  all  except  a  very  small  amount  is  grassland. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers :  Meeting  of  Deputies 
Far  Eastern  Commission 

Preliminary  Meeting  of  Conference  on  Health  Organization 
Allied-Swiss  Negotiations  for  German  External  Assets 
Anglo-American  Committee  of  Inquiry- 
Third  Conference  of  American  States  Members  of  the  International 
Labor  OfJice 

Fifth  Pan  American  Railway  Conference 

PICAO: 

European  Route  Service  Conference 

Annual  Meeting  of  the  Assembly 

Near  Eastern  Route  Service  Conference 

International  Office  of  Public  Health 

Tlie  United  Nations : 
Security  Council 
Military  Staff  Committee 

Negotiating  Committee  on  League  of  Nations  Assets 
Special  Committee  on  Refugees  and  Displaced  Persons 
("imnnissions  of  the  Economic  and  Social  Council 
Economic  and  Social  Council 
Conference  International  Health 
General  Assembly 


The  dates  in  the  calendar  are  a;^  of  Apr,  14. 


London 

January  18 

Washington 

February  26 

Paris 

March  15-April  5 

Washington 

March  18 

Lausanne 

April  1 

Mexico,  D.F. 

April  1 

Montevideo 

April  5 

Paris 

April  24 

Montreal 

May  21 

Cairo 

June  25 

Paris 

April  24 

New  York 

March  25 

New  York 

March  25 

Geneva 

April  6 

London 

April  8 

New  York 

April  20 

New  York 

May  25 

New  York 

June  19 

Ni'W  York 

Septembm-  3 

Activities  and  Developments 


Far  Eastern  Commission,  At  its  weekly  meet- 
ing on  April  10  the  Commission  elected  Mr.  O. 
Reuchlin  of  the  Netherlands  Delegation  and  Rear 
Admiral  Ramishbily  of  the  Soviet  Delegation  to 
serve  as  chairman  and  deputy  chairman,  respec- 
tively, of  its  Committee  on  Disarmament  of  Japan. 
The  activation  of  the  Committee  on  Disarma- 
ment makes  a  total  of  seven  committees  that  the 
Commission  has  set  up  to  study  various  aspects  of 
policy  for  Japan.     This  number  of  committees  has 


made  necessary  a  greater  degree  of  coordination 
in  the  work  of  the  Commission,  and  the  Commis- 
sion today  approved  a  policy  whereby  the  chair- 
man of  the  Steering  Committee,  Sir  Carl  Berend- 
sen  of  New  Zealand,  is  given  discretion  to  decide 
whether  reports  from  committees  may  be  placed 
immediately  upon  the  agenda  of  the  Commission 
or  should  be  reviewed  by  the  Steering  Committee, 
and  the  secretariat  shall  assume  i-esponsibility  for 
coordination  of  documents  as  to  form  and  style. 

655 


656 


DEPARTMENT  OF  STATE  BULLETIN 


U.  S.  Responsibilities  in  FAO 


[Released  to  the  press  by  the  White  House  April  1] 

Letter  sent  hy  the  President  to  the  Secretary  of 
Agricultwre 

March  30, 1946 
My  Dear  Mr.  Secrktart  : 

In  order  that  the  Government  of  the  United 
States  may  readily  fulfill  the  obligations  and  re- 
sponsibilities wliich  it  assumed  when  it  became  a 
member  of  the  Food  and  Agriculture  Organiza- 
tion of  the  United  Nations,  I  wish  to  see  appropri- 
ate interdepartmental  relationships  established 
among  the  interested  agencies  of  this  government. 
Therefore,  I  am  asking  the  Secretary  of  Agricul- 
ture to  take  the  leadership  in  coordinating  the 
work  of  the  various  agencies  of  the  Government  on 
problems  arising  from  United  States  participa- 
tion in  the  Food  and  Agriculture  Organization. 
To  assist  you  in  this  task,  I  hereby  establish  an 
inter-agency  committee,  with  you  or  your  nominee 
as  chairman,  with  representatives  from  the  De- 
partment of  State,  Treasury,  Commerce,  Interior, 
Labor,  the  Federal  Security  Agency,  and  the  Bu- 
reau of  the  Budget.  The  Committee  may  add  rep- 
resentatives of  other  agencies  for  such  participa- 
tion as  may  seem  advisable  to  the  committee.  You 
may  designate  additional  members  from  your  De- 
partment, and  you  sliould  make  provision  for  an 
adequate  secretariat  for  the  Committee. 

This  inter-agency  committee  shall  have  the  re- 
sponsibility for  ensuring  that  our  Government 
aids  to  the  fullest  extent  the  proper  functioning 
of  the  FAO.  In  particular,  the  Gommittee  will 
assist  in  formulating  the  position  which  this  Gov- 
ernment should  take  in  the  various  fields  of  activity 


falling  within  the  general  purposes  and  functions 
of  the  Food  and  Agriculture  Organization  of  the 
United  Nations.  The  Department  of  State  will 
continue  to  provide  policy  guidance  on  interna- 
tional political  questions  and  on  general  organiza- 
tional and  administrative  questions  as  they  affect 
the  relationships  of  the  Food  and  Agriculture 
Organization  to  the  United  Nations  and  other  in- 
ternational organizations.  The  Executive  Com- 
mittee on  Economic  Foreign  Policy  will  continue 
to  consider  broad  economic  foreign  policy  ques- 
tions including  those  on  commercial  policy  and 
international  commodity  policy.  The  FAO  com- 
mittee will,  of  course,  also  need  to  work  closely 
with  other  appropriate  inter-agency  committees. 

You  should  also  give  consideration  to  the  ap- 
pointment of  an  advisory  committee  of  citizens  to 
aid  you  and  the  inter-agency  committee  in  con- 
nection with  the  work  of  FAO.  I  am  anxious  that 
our  relationships  witli  all  inter-natioilal  organi- 
zations have  a  firm  foundation  in  wide  j^ublic  un- 
derstanding and  participation.  An  advisory 
committee  of  public  spirited  citizens  might  well 
be  of  inestimable  value  to  our  Government's  full 
participation  in  the  work  of  the  Food  and  Agri- 
culture Organization  of  the  United  Nations. 

I  am  sending  copies  of  this  letter  to  the  heads 
of  the  departments  and  agencies  who  will  have 
representatives  on  the  inter-agency  committee. 
You  should  work  directly  with  them  in  getting  the 
connnittee  established  and  functioning. 
Very  sincerely  yours, 

Harry  S.  Tri:max 


The  United  Nations 


Meeting  of  the  Security  Council 


DISCUSSION  OF  SOVIET-IRANIAN  MATTER 

Report  Transmitted  by  the  Secretary-General  to 
the  President  of  the  Security  Council,  April  3, 
1946 

Sir: 

I  have  the  honour  to  advise  you  that,  in  accord- 
ance with  the  suggestion  made  by  Mr.  Byrnes  at 
the  meeting  of  the  Security  Council  on  29  March 
19i6  and  endorsed  by  the  Council  at  that  meeting, 
I  despatched  letters  to  Ambassador  A.  A.  Gromyko 
and  to  Ambassador  Hussein  Ala. 

The  text  of  the  letters  to  Ambassador  A.  A. 
Gromyko  and  Ambassador  Hussein  Ala  was  as 
follows : 

29  March,  1940 
Sir, 

I  have  the  honour  to  advise  you  that  at  its  meet- 
ing on  29  March,  1946,  the  Security  Council  en- 
dorsed the  suggestion  made  by  Mr.  Byrnes  that 
the  President  of  the  Council  request  the  Secretary- 
General  to  ascertain  at  once  from  the  Soviet  Gov- 
ernment and  tlie  Iranian  Government  through 
their  representatives  the  existing  status  of  nego- 
tiations between  the  two  Governments,  and  report 
to  the  Council  at  its  meeting  on  Wednesday,  April 
o,  and  particularly  to  ascertain  from  the  repre- 
sentatives of  the  two  Governments  whether  or  not 
the  I'epoiled  witlidrawal  of  troops  is  conditioned 
upon  the  conclusion  of  agreements  between  the 
two  Governments  on  other  subjects  and  report. 

Accordingly,  I  am  instructed  by  the  President  to 
request  that  you  ascertain  the  above  information 
from  your  government  and  communicate  it  to  me 
prior  to  the  meeting  of  the  Security  Council  on 
Wednesday,  April  3,  1946. 

I  have  the  honour  [etc.] 

Secretary  General 


On  1st  April,  1946, 1  received  the  following  com- 
munication from  Ghavani  Saltaneh,  Iranian  Prime 
Minister  and  Foi-eigi\  Minister : 

''Honorable  Trygve  Lie,  Secretary  General,  United 
Nations. 

Hussein  Ala  lias  been  and  continues  to  be  fully 
accredited  and  qualified  to  represent  Iran  in  the 
matter  concerning  Iran  now  before  the  Council  and 
in  any  other  matters  concerning  Iran  which  may 
come  before  the  Council  requiring  Iranian  repre- 
sentation. This  accreditation  will  remain  valid 
until  further  notice  is  given. 

Ghavam  Saltaneii 
Iranian  Prime  Minister  and  Foreign  Minister.'''' 

On  1st  April,  1946,  Mr.  A.  Sobolev,  Assistant 
Secretary-General,  forwarded  a  copy  of  the  above 
credentials  to  Ambassador  Hussein  Ala. 

At  9 :  10  a.m.  to-day  I  received  from  Ambassador 
A.  A.  Gromyko  a  communication,  dated  3rd  April, 
1 946.     I  attach  a  copj'. 

At  9 : 1.5  a.m.  to-day  I  received  from  Ambassador 
Hussein  Ala  a  communication  dated  2nd  April, 
1946.     I  attach  a  copy. 

Trygve  Lie 
Secretary -Gener-al. 

Letters  From  Ambassador  Gromyko  ^ 


Sir: 


April  3,  WJfG. 


In  reply  to  j^our  letter  of  March  29,  in  which 
you,  under  instructions  from  the  President  of  tlie 
Security  Council,  request  information  concerning 
the  state  of  the  negotiations  between  the  Soviet 
and    Iranian    Governments    and,    in    particular, 


'  Translated  from  the  Russian. 


657 


658 


DEPARTMENT  OF  STATE  BULLETIN 


whether  the  withdrawal  of  Soviet  troops  from 
Iran  is  conditional  upon  the  conclusion  of  an  agree- 
ment on  other  matters  between  the  two  Govern- 
ments. I  have  the  honor  on  behalf  of  my  Govern- 
ment to  inform  you  as  follows : 

These  negotiations  have  already  led  to  an  un- 
derstanding regarding  the  withdrawal  of  Soviet 
troops  from  Iran;  this  withdrawal  was  renewed  on 
March  24  last  and  will  be  completed  within  one 
and  a  half  months,  as  I  informed  the  Security 
Council  officially  at  the  meeting  of  March  26  last. 

Thus,  the  question  regarding  the  evacuation  of 
the  Soviet  troops  which  was  brought  before  the 
Security  Council  on  March  18  by  the  Iranian  Gov- 
ernment was  settled  by  the  understanding  reached 
between  the  Soviet  and  Iranian  Governments. 

As  regards  the  other  questions,  they  are  not  con- 
nected with  the  question  of  the  withdrawal  of 
Soviet  troops. 

It  is  well  known  that  the  question  of  an  oil  con- 
cession or  of  a  mixed  joint  stock  company  arose 
m  1944  independently  of  the  question  of  the  evacu- 
ation of  the  Soviet  troops. 
Yours  respectfully, 

Andrei  A.  Gromyko, 

Ambassador 

His  Excellency 
Mr.  Trygve  Lie, 

Secretary  General  of  the  United  Nations. 


6  April  191,6 

Mu.  President, 

On  26  March,  when  the  Security  Council  pro- 
ceeded to  consider  the  Iranian  Government's  state- 
ment of  18  March  regarding  the  delay  in  the  with- 
drawal of  Soviet  troops  from  Iran,  I  proposed, 
under  instructions  from  the  Soviet  Government, 
that  this  question  should  not  be  considered  by  the 
Security  Council. 

I  pointed  out  on  that  occasion  that,  under  the 
understanding  with  the  Iranian  Government,  full 
evacuation  of  the  Soviet  troops  from  Iran  was 
started  on  24  March  and  would  be  completed  in 
five  or  six  weeks  and  that  in  consequence  the  S?- 
curity  Council  had  no  reason  to  consider  the  Iran- 
ian question. 


The  Security  Council,  however,  did  not  agree 
with  tlie  Soviet  Government  and  retained  the 
Iranian  question  on  the  agenda.  In  the  meantime 
the  Syviet-Iranian  negotiations  continued  and,  as 
is  known  from  the  joint  Soviet-Iranian  commu- 
nique published  on  4  April,  an  understanding  on 
all  points  was  reached  between  the  Soviet  and  the 
Iranian  Governments. 

This  has  fully  confirmed  the  accuracy  of  the 
Soviet  Government's  statement  of  26  March  and 
the  absence  of  any  reason  for  bringing  the  Iranian 
question  before  the  Security  Council  for  consid- 
eration. 

The  Soviet  Government,  moreover,  cannot  ig- 
nore the  resolution  adopted  by  the  Security  Council 
on  4  April.  Under  this  resolution  the  Security 
Council  decided  to  continue  the  considei'ation  of 
the  Iranian  question  on  6  May  despite  the  fact 
that  on  o  April  the  Soviet  Government  stated  that 
the  question  of  the  evacuation  of  Soviet  troops 
had  been  settled  by  an  understanding  reached  be- 
tween the  Soviet  and  the  Iranian  Governments. 
Such  a  resolution  of  the  Security  Council  might 
have  been  well-founded  if  the  position  in  Iran  had 
threatened  international  peace  and  security,  as 
provided  in  Article  34  of  the  Charter  of  the  United 
Nations. 

Under  the  Charter,  the  Security  Council  may  in- 
vestigate any  dispute  or  any  situation  which  might 
endanger  the  maintenance  of  international  peace 
and  security.  It  is,  however,  quite  obvious  that  in 
fact  such  a  i:)osition  did  not  and  does  not  now  exist 
in  Iran,  so  that  the  Security  Council  had  no  reason 
to  give  further  consideration  to  the  Iranian  ques- 
tion on  6  May. 

Accordingly  tlie  above-mentioned  resolution  of 
the  Security  Council  of  4  April  is  incorrect  and 
illegal,  being  in  conflict  with  the  Charter  of  the 
United  Nations. 

For  the  above-mentioned  reasons  the  Soviet 
Government  insists  that  the  Iranian  question 
should  be  removed  from  the  agenda  of  the  Security 
Council. 

I  have  the  honour  [etc.] 

Andrei  A.  Gromyko, 

Amba^ssador 

His  Excellency, 
Dr.  Quo  Tai-Chi, 

President  of  the  Sccurifij  Coiincil 


APRIL  21,  1946 


659 


Letters    From   the   Iranian   Ambassador   to   the 
Secretary-General 

April  2,  1946. 
Sik: 

As  stated  in  my  letter  of  acknowledgment  to 
you  of  March  30,  1946,  I  did  not  fail  to  cable  to 
my  Government,  on  the  evening  of  March  '29th. 
the  complete  test  of  your  communication  of  the 
same  day,  and  I  requested  that  an  early  answer 
be  sent  to  the  two  questions  suggested  by  Secre- 
tary of  State  Byrnes  and  endorsed  by  the  Security 
Council. 

I  am  now  instructed  to  convey  to  you,  for  com- 
munication to  the  Security  Council  at  its  meeting 
of  Wednesday,  April  3rd,  the  following  reply  to 
the  two  questions : 

1.  You  first  ask  as  to  "the  existing  status  of 
negotiations  between  the  two  Governments." 

With  respect  to  the  interference  in  the  internal 
affairs  of  Iran,  the  subject  matter  of  the  first 
dispute,  negotiations  have  taken  place  pursuant 
to  the  resolution  of  the  Security  Council  of  Jan- 
uary 30,  1946.  As  to  these  negotiations,  I  sub- 
mitted a  report  to  the  Council  at  its  meeting  on 
March  27,  1946.  The  negotiations  pursuant  to 
the  resolution  of  January  30,  1946,  have  achieved 
no  positive  results,  and  Soviet  agents,  officials  and 
armed  forces  are  continuing  to  interfere  in  the 
internal  affairs  of  Iran.  They  are  still  preventing 
the  Government  of  Iran  from  exercising  any 
authority  in  the  Province  of  Azerbaijan. 

Regarding  the  withdrawal  of  Soviet  troops 
from  Iran,  there  has  been  and  there  can  be  no 
negotiation. 

2.  Your  second  question  is  "whether  or  not  the 
reported  withdrawal  of  troops  is  conditioned  upon 
the  conclusion  of  agreements  between  the  two  Gov- 
ernments on  other  subjects." 

The  best  way  to  answer  is  to  give  you  a  simple 
and  exact  account  of  the  conversations  that  have 
taken  place  in  Teheran  since  the  arrival  there  of 
the  new  Soviet  Ambassador. 

On  March  24th,  the  day  before  the  opening 
meeting  of  the  Security  Council,  the  Soviet  Am- 
bassador called  on  the  Prime  Minister  of  Iran 
and  handed  him  three  memoranda.  One  was  an 
announcement  that  the  evacuation  of  the  Eed 
Army  from  Iran  would  begin  March  24th  and  last 
five  to  six  weeks.    In  this  memorandum  there  was 


no  mention  of  any  condition  being  attached  to  the 
withdrawal  of  the  troops.  The  second  memoran- 
dum related  to  the  formation  of  a  joint  Iranian- 
Soviet  Corporation  for  the  extraction  of  oil.  The 
third  memorandum  dealt  with  Azerbaijan  and  sug- 
gested a  form  of  autonomous  government. 

Within  a  few  hours  aftfer  delivering  the  three 
memoranda,  the  Soviet  Ambassador  again  called 
on  the  Prime  Minister  and,  on  the  basis  of  a  tele- 
gram he  had  received  from  Moscow,  orally  con- 
firmed the  promise  to  evacuate  Iran,  but  on  the 
condition  that  no  unforeseen  circumstances  should 
occur.  When  the  Iranian  Premier  objected  to  this 
proviso  and  asked  for  explanations,  the  Soviet 
Ambassador  did  not  give  a  convincing  reply. 
Three  days  later  the  Iranian  Prime  Minister  again 
referred  to  this  proviso  and  said  that  the  evacua- 
tion of  the  Soviet  troops  must  be  unconditional, 
and  that  he  could  not  agree  to  the  Soviet  proposals 
on  the  subjects  of  oil  and  Azerbaijan.  To  this  the 
Soviet  Ambassador  responded  that  if  agreement 
could  be  reached  on  these  other  two  subjects,  there 
would  be  no  further  cause  for  anxiety  and  no 
unforseen  circumstances  would  take  place.  This 
statement  has  not  been  further  clarified. 

AVith  respect  to  the  other  two  memoranda,  the 
Prime  Minister  has  outlined  his  views  to  the  Soviet 
Ambassador.     His  position  is : 

(a)  That  as  the  status  of  the  Province  of  Azer- 
baijan, like  that  of  all  the  other  Provinces  in  Iran, 
is  I'egulated  hy  the  Iranian  Constitution  and  the 
law  on  Provincial  Councils,  it  is  an  internal  matter 
with  which  the  Iranian  Government  will  deal ; 

(b)  That  the  formation  of  a  stock  company  with 
joint  participation  by  Iran  and  the  Soviet  Union  is 
a  matter  to  be  submitted  for  approval  to  the  next 
Parliament  after  the  Soviet  troops  have  been  with- 
drawn from  Iran  and  elections  can  be  held  lawfully 
for  the  organization  of  the  15th  Legislature. 

This  is  the  present  state  of  the  discussions  on  the 
subject  of  oil  and  the  future  status  of  Azerbaijan. 
According  to  the  latest  information  from  my  Gov- 
ernment dispatched  to  me  on  April  1st,  no  under- 
standing had  been  arrived  at  and  no  agi-eement  had 
been  made. 

The  Prime  Minister  of  Iran  emphatically  states 
that  he  has  not  accepted  and  cannot  accept  any 
condition  whatsoever  being  attached  to  the  com- 
plete withdrawal  of  the  Red  Army  from  the  whole 


660 


DEPARTMENT  OF  STATE  BULLETIN 


of  Jriin.  These  forces  should  have  lieeu  iincoiuli- 
tionally  removed  from  Iran  on  or  before  ]Mardi 
2nd  last.  It  is  our  position,  as  explained  by  me  at 
the  meeting  of  the  Security  Council  on  Friday 
last,  that  the  evacuation  of  the  whole  of  Iran  by 
Soviet  forces  cannot  properly  be  made  dependent 
u})on  anj'  conditions,  foreseen  or  unforeseen. 

In  closing  permit  me  to  repeat  that,  in  referring 
these  disputes  to  the  Council,  the  Iranian  Govern- 
ment is  animated  by  no  feeling  of  hostility  toward 
the  Soviet  Union.  It  is  our  hope  that  the  Council 
will  find  a  just  solution  which  will  promote 
friendly  relations  in  the  future. 
I  have  the  honour  [etc.] 

Hussein  Ala 
Iranian  Ambassador  and  Representative 

of  Iran  Before  the  Security  Council 


New  York,  April  'J,  191,6. 

SiH : 

Permit  me  to  thank  you  for  your  note  of  8  April, 
194G,  forwarding  for  my  information  a  copy  of 
Mr.  Gromyko's  letter  dated  6  April  1946,  request- 
ing that  the  cjuestions  brought  to  the  attention  of 
the  Security  Council  of  Iran  be  removed  from  the 
agenda. 

I  am  instructed  to  state  that  the  position  of  the 
Iranian  Goveiuiment  remains  the  same  as  stated 
to  the  Security  Council  in  the  session  of  4  April 
1940.  It  is  the  desire  of  my  Govermnent  that  the 
matters  referred  by  Iran  to  the  Security  Council 
remain  on  its  agenda  as  provided  by  the  resolution 
adopted  on  4  April  1946. 

I  have  the  honour  [etc.] 

Hussein  Ala 
Iranian  Ambassador  and  Representative 

of  Iran  before  the  Security  Council 


REQUESTS  TO  CONSIDER  ACTIVITIES  OF  FRANCO  REGIME 


Letters  From  the  Polish  Ambassador  to  the 
Secretary-General 

April  8, 191,6. 
My  Dear  Mr.  Secretary  General  : 

I  should  like  to  inform  you  that  I  have  received 
instructions  from  my  Government  to  draw  the 
attention  of  the  Security  Council  to  a  situation  of 
the  nature  referred  to  in  article  34  of  the  Charter. 
This  situation  is  due  to  international  frictions  re- 
sulting from  the  existence  and  activities  of  the 
Franco  regime  in  Spain. 

In  view  of  the  fact  that  information  about  it  has 
already  appeared  in  press  dispatches  from  War- 
saw, I  want  to  inform  you  that  in  the  very  next 
days  I  shall  present  you  with  a  request  to  put  this 
matter  on  the  agenda  of  the  Security  Council. 
Very  respectfully  yours, 

Oscar  Lange 
Polish  Ambassador 

0  April  1946. 
My  Dear  Mr.  Secretary  General, 

On  February  9th,  l!)4fi  the  General  Assembly 
of  the  United  Nations  without  a  dissenting  vote 
condemned  the  Fascist  regime  in  Spain  as  having 
been  founded  "with  the  support  of  the  Axis 
powers"  and  banned  it  from  membership  in  the 
United  Nations  on  the  grounds  that  "it  does  not 


possess  by  reason  of  its  origins,  its  nature,  its 
record  and  its  close  association  with  aggressor 
states  the  qualifications  necessary  to  justify  ad- 
mission." The  Assembly  also  recommended  that 
the  United  Nations  take  this  resolution  into  ac- 
count "in  conducting  their  future  relations  with 
Spain." 

Since  then  a  series  of  developments  has  made 
it  clear  that  the  activities  of  the  Franco  govern- 
ment have  already  caused  international  friction 
and  endangered  international  peace  and  .security. 
As  a  consequence  the  French  government  was  com- 
pelled on  February  26th,  1946,  to  close  the  fron- 
tiers between  France  and  Spain.  These  frontiers 
continue  to  be  closed.  One  day  later  the  Franco 
government  ordered  the  concentration  of  troops 
at  the  border  of  France. 

Moreover,  the  Franco  regime  has  given  haven 
to  the  largest  aggregation  of  Nazi  assets  and  per- 
sonnel, it  has  given  refuge  to  a  large  number  of  war 
criminals  and  Nazi  leaders  who  continue  their  ac- 
tivities from  Spanish  territory,  it  allows  and  pro- 
motes scientific  research  by  Gei'man  scientists  en- 
gaged in  devising  new  means  of  warfare. 

In  view  of  the  foregoing,  the  situation  in  Spain 
must  be  considered  not  as  an  internal  affair  of  that 
country  but  as  a  concern  of  all  the  United  Nations. 
Article  2  of  the  Charter  in  jiaragraph  (>  provides 
that  the  Ignited  Nations  Organization  shall  insure 


APRIL  21,  1946 


661 


tliut  states  not  members  of  the  United  Nations  act 
in  atrordance  witii  tlie  principles  of  tlie  or<i;ani'za- 
tion  so  far  as  may  be  necessary  for  the  maintenance 
of  international  peace  and  security.  The  situa- 
tion in  Spain  makes  the  application  of  this  pro- 
vision imperative. 

The  Polish  delegation,  therefore,  under  Articles 
34  and  ;>;")  of  the  Charter,  requests  the  Security 


Council  to  place  on  its  agenda  the  situation  arising 
from  the  existence  and  activities  of  the  Franco  re- 
gime in  Spain  for  consideration  and  for  adoption 
of  such  measures  as  ai'c  pi'ovided  for  in  the 
Charter. 

Very  sincerely  yours, 

Oscar  Lange 
Delegate  of  Poland 


Provisional  Rules  of  Procedure  of  the  Security  Councir 


I.  MEETINGS 

Rulel 

Meetings  of  the  Security  Council  shall,  with  the 
exception  of  the  periodic  meetings  referred  to  in 
Rule  4.  be  held  at  the  call  of  the  President  at  any 
time  he  deems  necessary,  but  the  interval  between 
meetings  shall  not  exceed  fourteen  days. 

Rule  2 

The  President  shall  call  a  meeting  of  the  Security 
Council  at  the  request  of  any  member  of  the 
Security  Council. 

Rule  3 

The  President  shall  call  a  meeting  of  the  Security 
Council  if  a  dispute  or  situation  is  brought  to  the 
attention  of  the  Security  Council  under  Article  35 
or  under  Article  11  (3)  of  the  Charter,  or  if  the 
General  Assembly  makes  reconiiiiendations  or  re- 
fei-s  any  question  to  the  Sectirity  Council  uiuler 
Article  11  (-2).  or  if  the  Secretary-General  brings 
to  the  attention  of  the  Security  Council  any  matter 
under  Article  !)9. 

Rule  4 

Periodic  meetings  of  the  Security  Council  called 
for  in  Article  28  (2)  of  the  Charter  shall  be  held 
twice  a  year,  at  such  times  as  the  Security  Coinicil 
may  decide. 

Rules 

Meetings  of  the  Security  Council  shall  normally 
be  held  at  the  seat  of  the  United  Nations. 

Any  member  of  the  Security  Council  or  the  Sec- 
retary-General may  propose  that  the  Security 
Council  should  meet  at  another  place.  Should  the 
Security  Council  accept  any  such  proposal,  it  shall 

(!!)I)7S5 — 4« 3 


decide  upon  the  i)lace,  and  the  period  during  which 
the  Council  shall  meet  at  such  place. 

II.  AGENDA 

Rule  6 

The  Secretary-General  shall  immediately  bring 
to  the  attention  of  all  representatives  on  the  Se- 
curity Council  all  conuuunications  from  States, 
organs  of  the  United  Nations,  or  the  Seci'etary- 
General  concerning  any  matter  for  the  considera- 
tion of  the  Security  Council  in  accordance  with  the 
provisions  of  the  Charter. 

Rule? 

The  Provisional  Agenda  for  each  meeting  of  the 
Security  Council  shall  be  drawn  up  by  the  Secre- 
tary-General and  approved  by  the  President  of  the 
Security  Council. 

Only  items  which  have  been  brought  to  the  at- 
tenti(m  of  the  representatives  on  the  Security 
Council  in  accordance  with  Rule  6,  items  covered 
by  Rule  10,  or  matters  which  the  Security  Council 
has  previously  decided  to  defer,  niay  be  included 
in  the  Provisional  Agentla. 

Rules 

The  Provisional  Agenda  for  a  meeting  shall  be 
communicated  by  the  Secretary-General  to  the  rep- 
resentatives on  the  Security  Council  at  least  three 
days  before  the  meeting,  but  in  urgent  circum- 
stances it  may  be  communicated  simultaneously 
with  the  notice  of  the  meeting. 

'Adopted  by  the  Security  Council  at  its  first  meeting  and 
amended  at  its  thirty-first  meeting,  April  9,  1946. 


662 


DEPARTMENT  OF  STATE  BULLETIN 


Rule  9 

The  first  item  of  the  Provisional  Agenda  for 
each  meeting  of  the  Security  Council  shall  be  the 
adoption  of  the  Agenda. 

Rule  10 

Any  item  of  the  Agenda  of  a  meeting  of  the 
Security  Council,  consideration  of  which  has  not 
been  completed  at  that  meeting,  shall,  unless  the 
Security  Council  otherwise  decides,  automatically 
be  included  in  the  Agenda  of  the  next  meeting. 


Rule  14 

Any  Member  of  the  United  Nations  not  a  mem- 
ber of  the  Security  Council  and  any  State  not  a 
Member  of  the  United  Nations,  if  invited  to  par- 
ticipate in  a  meeting  or  meetings  of  the  Security 
Council,  shall  submit  credentials  for  the  repre- 
sentative appointed  by  it  for  this  purpose.  The 
credentials  of  such  a  representative  shall  be  com- 
municated to  the  Secretary-General  not  less  than 
twenty-four  hours  before  the  first  meeting  which 
he  is  invited  to  attend. 


Rule  11 

The  Secretary-General  shall  communicate  each 
week  to  the  representatives  on  the  Security  Coun- 
cil a  summary  statement  of  matters  of  which  the 
Security  Council  is  seized  and  of  the  stage  reached 
in  their  consideration. 


Rule  15 

The  credentials  of  representatives  on  the  Secu- 
rity Council  and  of  any  representative  appointed 
in  accordance  with  Rule  14  shall  be  examined  by 
the  Secretary-General  who  shall  submit  a  report 
to  the  Seciu'ity  Council  for  approval. 


Rule  12 

The  Provisional  Agenda  for  each  periodic  meet- 
ing shall  be  circulated  to  the  members  of  the  Secu- 
rity Council  at  least  twenty-one  days  before  the 
opening  of  the  meeting.  Any  subsequent  change 
in  or  addition  to  the  Provisional  Agenda  shall  be 
brought  to  the  notice  of  the  members  at  least  five 
days  before  the  meeting.  The  Security  Council 
may,  however,  in  urgent  circumstances,  make  addi- 
tions to  the  Agenda  at  any  time  during  a  periodic 
meeting. 

The  provisions  of  Rule  7  paragraph  1,  and  of 
Rule  9,  shall  apply  also  to  periodic  meetings. 


Rule  16 

Pending  the  approval  of  the  credentials  of  a 
representative  on  the  Security  Council  in  accord- 
ance with  Rule  15,  such  representative  shall  be 
seated  provisionally  with  the  same  rights  as  other 
representatives. 

Rule  17 

Any  representative  on  the  Security  Council,  to 
whose  credentials  objection  has  been  made  within 
the  Security  Council,  shall  continue  to  sit  with  the 
same  rights  as  other  representatives  until  the 
Security  Council  has  decided  the  matter. 


III.  REPRESENTATION  AND  CREDENTIALS 

Rule  13 

Each  member  of  the  Security  Council  shall  be 
represented  at  the  meetings  of  the  Security  Coun- 
cil by  an  accredited  representative.  The  creden- 
tials of  a  representative  on  the  Security  Council 
shall  be  communicated  to  the  Secretary-General 
not  less  than  twenty-four  hours  before  he  takes 
his  seat  on  the  Security  Council.  The  Head  of  the 
Govermnent  or  Minister  for  Foreign  Affairs  of 
each  member  of  the  Security  Council  sliall  be 
entitled  to  sit  on  the  Security  Council  witliout 
submitting  credentials. 


IV.  PRESIDENCY 

Rule  18 

The  Presidency  of  the  Security  Council  shall  be 
lield  in  turn  by  the  members  of  the  Security  Coun- 
cil in  the  English  alphabetical  order  of  their  names. 
Each  President  sliall  hold  office  for  one  calendar 
month. 

Rule  19 

The  President  shall  preside  over  the  meetings 
of  the  Security  Council  and.  under  tlie  authority 
of  the  Security  Council,  shall  represent  it  in  its 
cnpacity  as  an  organ  of  the  United  Nations. 


APRIL  21,  1946 


663 


V.  SECRETARIAT 


Rule  20 


The  Secretary-General  shall  act  in  that  capacity 
in  all  meetings  of  the  Security  Council.  The 
Secretary-General  may  authorize  a  deputy  to  act 
in  his  place  at  meetings  of  the  Security  Council. 

Rule  21 

The  Secretary-General  shall  provide  the  staff 
required  by  the  Security  Council.  This  staff  shall 
form  a  part  of  the  Secretariat. 

Rule  22 

The  Secretary -General  shall  give  to  representa- 
tives on  the  Security  Council  notice  of  meetings 
of  the  Security  Council  and  of  its  commissions 
and  committees. 

Rule  23 

The  Secretai'y-General  shall  be  responsible  for 
the  preparation  of  documents  required  by  the  Se- 
curity Council  and  shall,  except  in  urgent  cir- 
cumstances, distribute  them  at  least  forty-eight 
hours  in  advance  of  the  meeting  at  which  they 
are  to  be  considered. 

VI.  CONDUCT  OF  BUSINESS 

Rule  24 

Any  reconnnendation  to  the  General  Assembly 
regarding  the  appointment  of  the  Secretary-Gen- 
eral shall  be  discussed  and  decided  at  a  private 
meeting. 

Rule  25 

The  Security  Council  may  invite  members  of 
the  Secretariat  or  any  person,  whom  it  considers 
competent  for  the  purpose,  to  supjDly  it  with  in- 
formation or  to  give  their  assistance  in  examin- 
ing matters  within  its  competence. 

VII.  LANGUAGES 

Rule  26 

The  rules  adopted  at  the  San  Francisco  Con- 
ference regarding  languages  shall  prevail  until 
otherwise  decided. 

Vm.  VOTING 

Rule  27 

Voting  in  the  Security  Council  shall  be  in  ac- 
cordance with  the  relevant  Articles  of  the  Chai'ter 


and  of  the  Statute  of  the  International  Court  of 
Justice. 

IX.  PUBLICITY  OF  MEETINGS 

Rule  28 

Unless  it  decides  otherwise,  the  Security  Council 
shall  meet  in  public. 

Rule  29 

At  the  close  of  each  private  meeting,  the  Security 
Council  shall  issue  a  communique  through  the 
Secretary-General. 

Rule  30 

The  verbatim  record  of  public  meetings  and  the 
documents  relating  thereto  shall  be  published  as 
soon  as  possible. 

X.  RECORDS 

Rule  31 

Subject  to  the  provisions  of  Rule  32,  the  Secre- 
tary-General shall  kee^j  a  verbatim  record  of  all 
meetings  and  shall  send  it  as  soon  as  possible  to 
the  representatives  on  the  Council,  who  shall  within 
forty-eight  hours  inform  the  Secretariat  of  any 
corrections  they  wish  to  have  made. 

Rule  32 

The  Security  Council  may  decide  that,  for  a  pri- 
vate meeting,  a  summary  record  in  a  single  copy 
shall  alone  be  made.  This  record  shall  be  kept  by 
the  Secretary-General,  and  the  representatives  of 
states  who  have  taken  part  in  the  meeting  may 
have  corrections  made  in  their  own  speeches  within 
a  period  of  ten  days.  On  the  expiry  of  this  period 
the  record  shall  be  considered  as  approved,  and 
shall  be  signed  by  the  Secretary-General. 

XI.  ADMISSION  OF  NEW  MEMBERS  OF  THE 
UNITED  NATIONS 

Rule  33 

Any  state  which  desires  to  become  a  Member  of 
the  United  Nations  shall  submit  an  application  to 
the  Secretary-General.  This  application  shall  be 
accompanied  by  a  declaration  of  its  readiness  to 
accept  the  obligation  contained  in  the  Charter. 


664 


DEPARTMENT  OF  STATE  BULLETIN 


Rule  34 

The  application  for  membership  in  the  United 
Nations  shall  be  placed  bv  the  Seci'etary-Genei-al 
before  the  Security  Council,  which  shall  decide 
whether  in  its  judgment  the  applicant  is  a  peace- 
lovinp  state  and  is  able  and  willing  to  carry  out  the 
obligations  contained  in  the  Cliarter. 

Rule  35 

Should  the  Security  Council  decide  to  recom- 
mend the  applicant  state  for  membership  in  the 
United  Nations,  this  reconnnendation  shall  be 
placed  before  the  General  Assembly  by  the  Secre- 
tary-General. 


ANNEX 

Provisional  Procedure  for  Dealing  With  Com- 
munications From  Private  Individuals  and 
Non-Governmental  Bodies 

A.  A  list  of  all  comnmnications  from  private 
individuals  and  nt)n-governmental  bodies  relating 
to  matters  of  which  the  Security  Council  is  seized 
shall  be  circulated  to  all  representatives  on  tlie 
Security  Council. 

B.  A  copy  of  any  conununication  on  the  list  shall 
be  given  by  the  Secretariat  to  any  representative  on 
the  Security  Council  at  his  request. 


Special  Committee  on  Refugees  and  Displaced  Persons 


[Released  to  the  press  by  U.  N.  April  6] 

The  Special  Committee  on  Refugees  and  Dis- 
l>laced  Persons,  which  started  work  in  London  on 
April  8,  is  composed  of  the  following  '20  member 
nations : 

Australia,  Belgium,  Brazil,  Byelorussia,  Can- 
ada, China,  Colombia,  Czechoslovakia,  Dominican 
Republic,  France,  Lebanon,  Netherlands,  New 
Zealand,  Peru,  Poland,  Ukraine,  U.S.S.R.,  United 
Kingdom,  United  States,  and  Yugoslavia. 

This  Committee  was  established  by  the  Eco- 
nomic and  Social  Council  of  the  United  Nations 
on  February  Ifi,  104(i  in  London,  following  a  reso- 
lution passed  by  the  General  Assembly  on  Feb- 
ruary 13,  1946. 

The  General  Assembly  recommended  that  the 
committee  should  take  into  consideration  three 
principles:  first,  that  the  problem  is  international 
in  scope  and  nature ;  second,  that  no  genuine  refu- 
gees or  displaced  persons  who  have  finally  and 
definitely,  in  complete  freed(mi,  and  after  receiv- 
ing full  knowledge  of  the  facts,  expressed  valid 
objections  to  returning  shall  be  compelled  to  re- 
turn, but  shall  become  the  concern  of  whatever 
international  body  finally  emerges ;  third,  that  the 
main  task  concerning  displaced  i)ersons  is  to  en- 
courage and  assist  their  early  return.  The  reso- 
lution added  that  no  action  was  to  be  taken  that 


might  interfere  with  the  surrender  of  war  crim- 
inal and  traitors.  It  also  excluded  from  its  pro- 
visions Germans  being  transferred  to  Germany 
from  occupied  territories  or  from  other  states  to 
which  they  had  fled. 

The  London  Committee  will  have  to  deal  with 
a  :^5-year-old  problem,  first  recognized  when,  in 
1921,  Fridtjof  Nansen  was  appointed  High  Com- 
missioner of  the  League  of  Nations  for  Refugees. 
The  subject  has  already  occupied  two  full  plenary 
meetings  of  the  General  Assembly  of  the  LTnited 
Nations  in  London,  as  well  as  a  great  deal  of  the 
time  of  a  special  committee  during  the  meetings 
of  both  the  Preparatory  Commission  and  the  Gen- 
eral Assembly.  Mrs.  Eleanor  Roosevelt  played 
a  prominent  part  in  both  the  work  of  Special  Com- 
mittee ;5  and  the  (ieneral  Assembly  debate. 

In  1921  there  were  approximately  2,;)00,()0() 
refugees;  700,000  were  still  in  tlie  care  of  the  Nan- 
sen  International  Refugees  Committee  in  19.")(),  not 
counting  the  refugees  who  from  1933  onward  came 
from  Germany,  for  whom  the  League  of  Nations 
had  appointed  a  special  high  commissioner.  Tliere 
are  no  official  figures  available  on  tlie  pi-eseiit  num- 
ber f)f  refugees. 

In  July  1938,  on  the  initiative  of  the  United 
States,  32  countries  met  in  p]vian,  France,  and 
constituted  an  all-embracing  "Intergoverniiiental 
Committee  on  Refujiees"  which  met  in  London  in 


APHIL  21,  1946 


665 


August  of  the  same  year.  In  November  li>4r>  tlie 
Committee  met  in  Paris  and  authorized  its  Execu- 
tive Committee  to  negotiate  for  tlie  absorption  of 
its  functions  bj'  the  Economic  and  Social  Council 
of  the  United  Nations.  It  will  however  continue 
to  function  pending  the  result  of  the  United  Na- 
tions deliberations. 

When  UNRRA  was  established  iu  194;i  it  took 
over  the  responsibility  for  displaced  persons.  Ref- 
ugees who  do  not  intend  to  return  to  their  original 
homes  remain  the  responsibility  of  the  Intergov- 
ernmental Committee. 

The  discussion  in  London  clearly  showed  the  two 
sides  of  the  problem :  the  humanitarian  and  the 
political.  AVhile  the  humanitarian  side  met  with 
general  approval,  a  discussion  developed  on  the 
j)olitical  aspect  between  those  who  considered  that 
the  problem  was  no  longer  of  the  first  importance, 
as  the  basic  reason  which  prevented  refugees  from 


returning  to  their  own  count  lies  had  now  disap- 
peared, and  those  who  believed  that  there  were  still 
large  numbers  of  persons  who  were  neither  war 
criminals  nor  traitors,  but  who  still  did  not  feel 
able,  for  political  reasons,  to  return  home. 

Finally  a  resolution  was  adopted  which  referred 
the  problem  to  the  Economic  and  Social  Council, 
after  recognizing  the  immediate  urgency  of  the 
problem  and  emphasizing  the  necessity  of  dis- 
tinguishing between  genuine  refugees  and  dis- 
placed persons,  on  the  one  hand,  and  war  criminals, 
quislings,  and  traitors  on  the  other. 

The  Economic  and  Social  Council's  report  on  the 
work  of  the  Coumiittee  must  be  communicated  by 
the  Secretary-General  to  the  members  of  the 
United  Nations  not  latei-  than  45  days  before  the 
convening  of  the  second  part  of  the  first  session  of 
the  General  Assembly,  that  is  to  say,  no  later  than 
July  21,  194(5. 


BUNN Continued  from  page  648. 


the  negotiation  of  specific  reductions  of  trade  bar- 
riers. It  is  of  course  hoped  that  the  two  meetings 
can  occur  at  the  same  time  and  in  the  same  city. 
No  date  has  yet  been  fixed. 

The  negotiations  for  the  reduction  of  trade 
barriers  will  lie  conducted,  so  far  as  the  United 
States  is  concerned,  under  the  Trade  Agreements 
Act.  They  will  be  preceded  by  public  notice  and 
regul.ir  hearings  before  the  Committee  for  Reci- 
procity Information  under  that  act.  The  tariff 
concessions  to  be  oti'ered  by  the  United  States  will 
be  careftdly  considered  from  the  point  of  view  of 
the  whole  national  interest,  in  the  light  of  what- 
ever may  be  developed  at  the  hearings.  Since  this 
will  take  a  considerable  time,  it  is  not  now  pos- 
sible to  state  v.hen  the  international  negotiations 
can  commence. 

The  success  of  these  negotiations  will  depend 
upon  the  willingness  of  the  participating  coun- 
tries, including  the  United  States,  to  make  sub- 
stantial cuts  in  the  many  barriers  which  they 
maintain  against  each  other's  ti'ade.  Aiiy  reduc- 
tion in  our  tariff  will,  of  course,  be  within  the 
authority  granted  by  the  Trade  Agreements  Act. 


In  the  meantime,  the  Preparatory  Committee 
will  be  proceeding  with  the  drafting  of  a  charter. 
The  Proposals  state  the  general  lilies  on  which 
we  hope  it  will  proceed.  If  its  work  is  successful 
and  if  in  the  meantime  real  reductions  of  trade 
barriers  have  been  negotiated  by  important  coun- 
tries, the  general  Conference  can  meet  in  an  at- 
mosphere of  real  accomplishment.  It  will  then 
be  for  it  to  carry  the  work  forward. 

This  International  Trade  Organization  will  sub- 
stantially complete  the  main  economic  units  of  the 
United  Nations  structure.  The  International 
Bank,  the  International  Monetary  Fund,  the  or- 
ganizations for  Food  and  Agriculture,  Labor, 
Civil  Aviation,  and  Trade,  and  tlie  Economic  and 
Social  Council  itself,  cover  the  nuijor  economic 
fields  in  which  the  interests  of  nations  cross.  By 
working  together  in  these  fields,  and  in  any  others 
that  the  future  may  disclose,  the  United  Nations 
can  consolidate  their  partnership  in  the  material 
affairs  upon  which  the  connnon  welfare  of  their 
people  rests.  That  partnership  is  the  material 
foundation  of  their  political  collaboration  in  all 
fields,  on  which  in  turn  the  preservation  of  the 
peace  dejDends. 


The  Record  of  the  Week 


U.  S.  Memorandum  to  American  Republics 
on  Argentine  Situation 


[Released  to  the  press  April  8] 

In  the  consultation  among  the  other  American 
republics  on  the  Argentine  situation,  the  Govern- 
ment of  the  United  States  submitted  the  following 
memorandum  to  the  other  American  republics  ex- 
cept Argentina  under  date  of  Api-il  1.  Although 
all  the  replies  are  not  yet  in,  a  majority  of  the 
Governments  have  already  informed  us  of  their 
concurrence. 

Text  of  niemorandum 

1.  In  October  1945  this  Government  within  the 
framework  established  by  the  Inter-American 
System  initiated  consultation  with  the  other 
American  republics  concerning  the  Argentine 
situation  and  in  connection  therewith  issued  a 
memo  now  commonly  known  as  the  Blue  Book.^ 

2.  In  initiating  such  consultation  the  United 
States  was  not  animated  by  any  feeling  of  hostility 
towards  the  Argentine  people.  On  the  contrary 
it  was  the  desire  of  the  United  States  to  strengthen 
the  friendly  relationships  between  the  people  of 
United  States  and  the  people  of  Argentina  by 
bringing  into  the  open  those  conditions  which  liad 
caused  the  Government  of  the  United  States  great 
embarrassment  and  concern  in  its  relations  with 
the  then  Government  of  Argentina.  It  was  also 
the  desire  of  the  United  States  that  the  other 
American  republics  should  know  the  conditions 
M-hicli  caused  this  embarrassment  and  concern  so 
that  it  would  be  clear  that  the  United  States  was 
acting  in  defense  and  not  in  derogation  of  the 
principles  of  the  inter-American  system. 

As  Secretary  of  State  Byrnes  stated  in  his  ad- 

^  Department  of  State  publication  2473. 
^  BuLLimN  of  Nov.  4,  1945,  p.  709. 

'Apr.  1,  1946.    The  replies  referred  to  in  this  sentence 
concerned  the  Blue  Book. 

666 


dress  before  the  Herald  Tribune  Forum  on  Octo- 
ber 31,  1945 :  - 

"We  believe  other  nations  have  a  right  to  know 
of  our  own  deep  attachment  to  the  principles  of 
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 
furthered  by  the  free  exchange  of  ideas. 

"While  we  adhere  to  the  policy  of  non-inter- 
vention, we  assert  that  knowledge  of  what  other 
people  are  thinking  and  doing  brings  understand- 
ing; and  understanding  brings  tolerance  and  a 
willingness  to  cooperate  in  the  adjustment  of 
differences.  .  .  . 

"The  policy  of  non-intervention  in  internal  af- 
fairs does  not  mean  the  approval  of  local  tyranny. 
Our  policy  is  intended  to  protect  the  right  of  our 
neighbors  to  develop  their  own  freedom  in  their 
own  way.  It  is  not  intended  to  give  them  free 
rein  to  plot  against  the  freedom  of  others.  .  .  . 

"If,  tlierefore,  there  are  developments  in  any 
country  within  the  inter- American  system  which, 
realistically  viewed,  threaten  our  security,  we  con- 
sult with  other  members  in  an  effort  to  agree  upon 
common  policies  for  our  mutual  protection." 

3.  The  consultation  respecting  the  Argentine 
situation  initiated  by  the  United  States  raised  the 
question  whether  the  proposed  inter- American 
Mutual  Assistance  Treaty  should  be  negotiated 
with  the  participation  of  the  Farrell  Government 
of  Argentina  in  view  of  its  failure  to  fulfill  its 
obligations  and  commitments  under  the  inter- 
American  system. 

4.  To  date,^  in  the  consultation  respecting  the 
Argentine  situation  initiated  by  the  Government 
i)f  the  United  States,  replies  have  been  received 


AI'RIL  21,  1946 


667 


from  less  tluin  half  of  the  other  Americiui  re- 
publics. Some  of  these  answers  entirely  agree 
with  views  expressed  by  the  United  States;  others 
emphasize  the  changed  position  resulting  from 
the  recent  election.  All  of  the  Governments  so 
far  heard  from  join  with  the  United  States  in  their 
dedication  to  the  following  principles  and  ob- 
jectives: 

(1)  The  "unity  of  the  peoples  of  America  ).« 
indivisible"  and  "the  Argentine  nation  is  and  al- 
ways has  been  an  integral  part  of  the  union  of  the 
Amei'ican  republics." 

(•2)  The  security  of  the  Hemisphere  is  of  para- 
nioiuit  importance  and  will  be  materially  enhanced 
by  the  negotiation  and  signature  of  a  Mutual  As- 
sistance Treaty  at  the  projected  Rio  de  Janeiro 
Conference. 

;■).  While  it  is  not  clear  that  the  election  will  re- 
move the  conditions  which  prompted  the  Govern- 
ment of  the  United  States  to  initiate  a  consulta- 
tion on  the  Argentine  situation,  the  Government 
of  the  United  States  does  not  believe  that  the 
people  of  Argentina  intended  to  approve  the  con- 
tinuance of  conditions  which  would  threaten  the 
safety  of  the  inter- American  system. 

6.  A  new  constitutional  govermnent  will  soon  be 
inaugurated  in  Argentina.  The  Government  of 
the  United  States  feels  that  it  expresses  the  sen- 
timents of  all  its  sister  governments  in  declaring 
its  fervent  hope  that  when  that  newly  elected 
government  takes  office  and  its  congress  meets,  it 
will  give  prompt  implementation  by  positive  acts 
to  its  solemn  commitments  under  the  Inter- Amer- 
ican System,  in  particular,  those  undertaken  in 
the  Final  Act  of  the  Inter-American  Conference 
on  Problems  of  War  and  Peace.*  Those  under- 
takings are  plain  and  unequivocal.  They  I'equire 
the  elimination  from  this  Hemisphere  of  Axis 
influences  which  have  threatened  the  security  of 
the  inter-American  system. 

Were  such  unequivocal  and  sustained  perform- 
a)ice  to  ensue,  the  road  would  then  be  open  to  that 
''complete  unity  of  the  peoples  of  America",  and 
the  negotiation  and  signature  of  a  Mutual  As- 
sistance Pact.  But  there  must  be  deeds  and  not 
merely  promises. 

'  Final  Act  of  the  Inter-American  Conference  on  Prob- 
lems of  War  and  Peace,  Mexico  City.  February-Marcb. 
1945  (Pan  American  Union,  Washington,  D.C.,  1945). 

°  For  text  of  the  Act  of  Chapiiltppee,  see  Bulletin  of 
Mar.  4,  1945.  p.  339. 


7.  The  military  assistance  commitments  under- 
taken by  the  United  States  under  the  Act  of  Cha- 
pultepec  ■'  will  terminate  with  the  expiration  of 
the  War  Powers  Act  in  this  country.  It  is  to  the 
benefit  of  all  of  the  American  republics  that  a 
treaty  of  mutual  assistance  be  negotiated  and 
signed  at  the  earliest  possible  date. 

To  do  this,  it  is  proposed  that  at  the  next  meet- 
ing of  the  Governing  Board  of  the  Pan  American 
Union  a  conmiittee  of  its  members  be  appointed 
to  coordinate  the  five  draft  treaties,  which  have 
been  under  consideration,  together  with  such 
other  suggestions  as  may  then  be  received,  into  a 
single  document. 

This  document  would  in  due  coui'se  be  presented 
to  the  Rio  Conference. 

We  hope  the  Conference  can  be  called  to  meet 
after  the  new  Government  of  Argentina  has  been 
installed  and  has  had  a  reasonable  time  to  comply 
with  the  promises  made  at  Mexico  City.  When  it 
has  complied  we  feel  satisfied  the  American  re- 
publics will  welcome  that  Government's  participa- 
tion in  the  treaty  of  mutual  assistance. 


Continuation  of  Preparations 
for  Atomic-Bomb  Tests 

STATEMENT  BY  THE  PRESIDENT 

[Released  to  the  press  by  the  White  House  April  12] 

Preparations  for  the  atomic-bomb  tests  in  the 
Pacific  are  being  pressed  forward,  and  I  have  be^n 
assured  that  the  present  target  dates  for  the  explo- 
sions will  be  met.  I  am  in  complete  agreement 
with  the  Joint  Chiefs  of  Staff  and  the  Secretary  of 
War  and  the  Secretary  of  the  Navy  in  their  view 
that  these  tests  are  of  vital  importance  in  obtaining 
information  for  the  national  defense.  Without 
the  information  from  these  experiments,  designers 
of  ships,  aircraft,  and  military  ground  equipment, 
as  well  as  our  strategists,  tacticians,  and  medical 
officers,  will  be  working  in  ignorance  regarding  the 
effects  of  this  revolutionary  new  weapon  against 
naval  and  other  targets  not  previously  exposed  to 
it.  These  tests,  which  are  in  the  nature  of  a  labora- 
tory experiment,  should  give  us  the  information 
which  is  essential  to  intelligent  planning  in  the 
future  and  an  evaluation  of  the  effect  of  atomic 
enerjiv  on  our  defense  establishments. 


668 


DEPARTMENT  OF  STATE  BULLETIN 


Report  on  Denaturing  of 
Atomic  Explosives 

[Released  to  the  press  April  9] 

The  Department  of  State,  on  March  28,  1946, 
made  public  A  Report  on  the  Intrrnational  Con- 
trol of  Atomic  Energy  (Department  of  State 
publication  2498)  In  the  public  discussion  of 
tlie  Eeport  questions  liave  arisen  with  respect 
to  the  denaturing  of  materials  utilized  in  atomic 
explosives. 

After  consultation  with  the  Department  of 
State,  Maj.  Gen.  L.  R.  (iroves  called  together  a 
grouj),  representative  of  the  outstanding  scientists 
connected  with  the  Manliattan  Project  during  the 
development  of  the  atomic  boml)  and  all  of  whom 
are  still  connected  with  the  project  on  either  a 
full-time  or  consulting  basis.  This  gi-ouj)  has  met 
and  has  just  completed  a  conference  in  which  the 
measure  of  safety  afforded  by  the  use  of  dena- 
turants  was  discussed.  They  preitared  among 
other  papers  a  report  which  can  be  released  with- 
out jeopardizing  security.  Their  report  is  as 
follows : 

"The  possibility  of  denaturing  atomic  explo- 
sives has  been  brought  to  public  attention  in  a 
recent  Report  released  by  the  State  Department  on 
the  international  control  of  atomic  energy.  Be- 
cause, for  .security  reasons,  the  technical  facts 
could  not  be  made  public,  there  has  been  some 
))ublic  misunderstanding  of  what  denaturing  is, 
and  of  the  degree  of  safety  that  it  could  atl'ord. 
We  have  thought  it  desirable  to  add  a  few  com- 
ments on  these  points. 

"The  Report  released  by  the  State  Department 
Ijroposes  that  all  dangerous  activities  in  the  field 
of  atomic  energy  be  carried  out  by  an  interna- 
tional authority,  and  that  operations  which  by  the 
nature  of  the  plant,  the  materials,  the  ease  of 
inspection  and  control,  are  safe,  be  licensed  for 
private  or  national  exploitation.  The  Report 
points  out  that  the  possibility  of  denaturing  ex- 
l^losive  materials  so  that  they  'do  not  readily  lend 
themselves  to  the  making  of  atomic  explosives' 
nniy  contribute  to  the  range  of  licensable  activi- 
ties, and  to  the  overall  flexibility  of  the  proposed 
controls.  The  Report  does  not  contend  nor  is  it  in 
fact  true,  that  a  system  of  control  based  solely  on 
denaturing  could  provide  adequate  safety. 

"As  the  Report  states,  all  atomic  explosives  are 
based  on  the  raw  materials  uranium  and  thorium. 


In  every  case  the  usefulness  of  the  material  as 
an  atomic  ex]ilosive  depends  to  some  extent  on 
different  proi)erties  than  those  which  determine 
its  usefulness  for  peacetime  application.  The 
existence  of  these  differences  makes  denaturing 
possible.  In  evei-y  case  denaturing  is  accom- 
plished by  adding  to  the  explosive  an  isotope, 
which  has  the  same  chemical  properties.  These 
isotopes  cannot  be  separated  by  ordinary  chemical 
means.  The  separation  requires  plants  of  the 
same  general  type  as  our  plants  at  Oak  Ridge, 
though  not  of  the  same  magnitude.  The  construc- 
tion of  such  plants  and  the  use  of  such  plants 
to  process  enough  material  for  a  significant  num- 
ber of  atomic  bombs  would  probably  require  not 
less  than  one  nor  more  than  three  years.  Even 
if  such  plants  are  in  existence  and  ready  to  operate 
some  months  must  elapse  before  bomb  production 
is  significant.  Hut  unless  there  is  reasonable  as- 
.surance  that  such  plants  do  not  exist  it  would  be 
unwise  to  rely  on  denaturing  to  insure  an  interval 
of  as  much  as  a  year. 

"For  the  various  atomic  explosives  the  denatur- 
ant  has  a  ditlereiit  effect  on  the  explosive  properties 
of  the  materials.  In  some  cases  denaturing  will 
not  completely  preclude  making  atomic  weapons, 
but  will  reduce  their  effectiveness  by  a  large  factor. 
The  effect  of  the  denaturant  is  also  different  in  the 
peaceful  application  of  the  materials.  Further 
technical  information  will  be  required,  as  will  also 
a  much  more  complete  experience  of  the  peacetime 
uses  of  atomic  energy  and  its  economics,  before 
precise  estimates  of  the  value  of  denaturing  can 
be  formulated.  But  it  seems  to  us  most  probable 
that  within  the  framework  of  the  proposals  ad- 
vanced in  the  State  Dei)artinent  Report  denaturing 
will  play  a  heljjful  part. 

"In  conclusion  we  desire  to  emphasize  two  points, 
both  of  which  have  been  challenged  in  public  dis- 
cussion. 1.  Without  uranium  as  a  raw  material 
there  is  no  foreseeable  method  of  releasing  atomic 
energy.  With  uranium,  thorium  can  also  be  used. 
•1.  Denaturing,  though  valuable  in  adding  to  the 
flexibility  of  a  sy.stein  of  controls,  cannot  of  itself 
eliminate  the  dangers  of  atomic  warfare. 


L.  W.  Alv.vrez 

R.  F.  Bacher 

M.  Bexeuict 

H.  A.  Betiie 

A.  H.  C  ojn'TON 

Fariuxotox  Daniels 


J.  R.  Oi'pexheimer 

J.  R.  RUHOFF 

G.  T.  Seaborc. 
F.  H.  SPF.nniNG 
C.  A.  Thomas 
W.  H.  Zixn" 


APRIL  21,  1946 


669 


Yugoslav  Reply  to  U.  S.  Note  on  General  Mikhailovich 


[Released  to  the  press  April  12] 

The  D.^purtnient  of  State  has  received  a  tele- 
gram dated  April  a  from  the  Ameritaii  Charge 
d'Aifaires  at  Belgrade.  Mr.  Harold  Shaiitz,  trans- 
mitting the  text  of  a  note  from  the  Yugoslav  For- 
eign Office,  dated  April  1  and  received  liy  Mr. 
Sliantz  on  April  5.  The  note  was  in  reply  to  the 
note  of  the  United  States  Government  of  March 
28^  delivered  by  the  Charge  on  the  same  date. 

Text  of  Note 

The  Ministry  of  Foreign  Affairs  of  the  Federa- 
tive Peoples  RejHiblic  of  Yugoslavia  present  their 
compliments  to  the  Embassy  of  the  United  States 
of  America  and  with  reference  to  latter  note  of 
March  28  last,  have  the  honour  to  state  as  follows  : 

The  Government  of  the  FPRY  regret  that  they 
are  unable  to  comply  with  the  desire  of  the  Gov- 
ernment of  the  USA  that  officers  of  the  American 
Army  who  had  been  at  headquarters  of  Draza 
Mihailovich  should,  as  witnesses,  participate  in  the 
investigations  and  on  the  trial  in  the  case  of  the 
traitor  Draza  Mihailovich.  It  is  solely  up  to  the 
Military  court,  which  will  deal  with  this  case,  to 
summon  any  witness  whom  it  might  deem  neces- 
sary, and  the  (iovernment  of  the  FPEY  are  not 
entitled  to  exercise  any  influence  upon  the  courL 

Furthermore,  the  Government  of  the  FPRY 
cannot  agree  with  the  contents  of  the  note  deny- 
ing the  treacherous  attitude  of  Draza  Mihailovich 
during  the  war.  It  is  most  surprising  tliat  after 
all  that  has  up  to  now  been  published  and  ascer- 
tained of  the  treason  and  collaboration  of  Draza 
Mihailovich  with  the  Germans  in  committing 
number  of  crimes  upon  our  people,  the  note  is  over- 
looking these  facts,  and  expressed  an  opinion  which 
is  not  correct,  since  on  the  numerous  trials  of  Draza 
Mihailovich  treacherous  officers'  evidence  was 
given,  absolutely  freely,  confirming  all  those  docu- 
ments on  the  treason  of  Draza  Mihailovich  which 
are  in  possession  of  the  Government  of  FPRY. 
This  treason  is  being  confirmed  by  tens  of  thou- 
sands of  fighting  men  of  the  Yugoslav  Army.  This 
treason  is  being  confirmed  by  tens  of  thousands  of 
living  witnesses  whose  relatives  or  goods  perished 


by  action  of  Draza  Mihailovich  and  his  men. 
After  all,  this  treason  confirms  Draza  Mihailovich 
himself,  too. 

Besides  it  would  be  a  great  historical  mistake 
to  carry  on  declaring  that  Draza  Mihailovich 
started  the  National  Resistance  against  the  Ger- 
mans in  Yugoslavia  in  1!)41  as  it  is  stated  in  the 
note.  He,  it  is  true,  organized  in  Ifl-tl  his  bands, 
but — with  a  small  exception — looked  until  Novem- 
ber 1941  passively  at  the  fight  of  the  partisans 
against  the  Germans  when,  on  November  2.  1941. 
he  openly  attacked  the  forces  of  the  National  Re- 
sistance— the  Partisans,  and  collaborated  since 
then  until  the  end  directly  or  indirectly,  witliout 
interruption,  with  the  Germans,-  Italians  and 
Ustashis  against  the  Partisans  respectively  against 
the  National  Liberation  Army.  Today  it  is  doubt- 
lessly proved,  whereof  tliere  are  living  witnesses, 
that  Draza  Miiiailovich  [garbled  j-eps  or,  met]  the 
German  Command  for  the  first  time  in  August 
1941  in  an  armoured  train  in  tlie  vicinity  of  tlie 
small  town  of  Ljig  where  the  collaborating  [ion] 
against  the  National  Liberating  movement  was 
discussed. 

The  appointment  of  Draza  Mihailovich,  Gen- 
eral and  War  Minister  by  the  Emigrant  Govern- 
ment in  London  changed  in  no  way  the  facts;  it 
is  known  that  the  Government  made  this  appoint- 
ment just  for  the  purpose  of  thus  enabling  Draza 
Mihailovich  to  have  more  success  in  his  fight 
against  the  National  I^iberation  movement,  re- 
spectively for  the  purpose  of  enabling  him  to 
mobilize  forces  against  the  National  Liberation 
Army. 

It  is  exactly  known  to  the  Government  of  the 
FPRY  that  ever  since  1941  a  British  Military 
mission  was  with  Draza  Mihailovich,  and  that  this 
mission  left  Draza  Mihailovich  in  1944.  We  have 
seen  the  whole  world  had  already  knowledge  of 
Draza  Mihailovich's  collaboration  with  the  Ger- 
mans. After  the  departure  of  the  British  Mili- 
tary mission,  as  far  as  it  is  known  to  the  Govern- 

'  Bulletin  of  Apr.  14.  1946,  p.  634. 


670 


DEPARTMENT  OF  STATE  BULLETIN 


nient  of  the  FPRY,  a  military  mission  of  the 
American  Army  arrived  in  August  1044  at  the 
iieailquarters  of  Draza  Mihailovieh.  which  fact 
raised  in  the  ranks  of  the  National  Liberation 
movement  a  considerable  dissatisfaction. 

On  the  protest  lodged  by  the  Supreme  Head- 
quarters of  the  National  Liberation  Army,  the 
Allied  Command  replied  that  mission  had  only  the 
task  of  receiving  crashed  airmen. 

The  Government  of  the  FPRY  admit  and  be- 
lieve that  Di-aza  Mihailovieh  assumed  the  appear- 
ance as  though  he  had  a  loyal  attitude  towards 
America,  and  that  a  number  of  American  air- 
men forced  to  land  on  territory  under  his  control 
were  saved.  But  could  he  do  elsewise — the  more 
because  he  expected  assistance  in  food  and  weap- 
ons for  this  favour?     On  this  occasion  the  Gov- 


ernment of  the  FPRY  have  to  remind  that  forces 
of  the  National  Liberation  Army  rescued,  often 
not  .sparing  their  own  lives,  about  two  thousand 
Allied  airmen  most  of  them  Americans.  They 
considered  that  their  duty  towards  their  com- 
mandants in  arms. 

The  crimes  of  the  traitor  Draza  Mihailovieh 
against  the  people  of  Yugoslavia  are  far  too  big 
and  horrible  that  it  could  be  or  should  be  allowed 
to  be  discussed  whether  he  is  guilty  or  is  not. 

The  Government  of  the  FPRY  assure  the  Gov- 
ernment of  the  USA  that  full  defendants'  rights 
will  be  granted  during  the  investigations  as  well 
as  on  the  trial  of  the  case. 

The  Ministry  of  Foreign  Affairs  avail  them- 
selves of  the  opportunity  to  renew  to  the  Embassy 
the  assurance  of  their  high  consideration. 


U.  S.  Owners  of  Polish  Property  Granted  Assistance 


[Released  to  the  press  April  8] 

Text  of  note  trarismitted  hy  the  Polish  Embassy  in 
Washington  to  the  State  Department  on  March 
29, 1946  in  reply  to  queries  made  by  the  U.  S.  Am- 
bassador in  Warsaw  regarding  the  nationalization 
of  industry  in.  Polmid  and  the  question  of  compen- 
sation- to  Ame?'ican  property  owners 

The  Ambassador  of  Poland  presents  his  compli- 
ments to  the  Secretary  of  State  and  has  the  honor 
to  inform  him  that  the  Provisional  Government  of 
National  Unity  has  made  a  thorough  analysis  of 
the  note  of  the  United  States  Government  of  Janu- 
ary 17,  1946,^  in  its  desire  to  deal  with  the  subject 
matters  of  the  note  in  as  concrete  and  detailed  a 
manner  as  possible.  However,  no  definitive  and 
exhaustive  reply  is  yet  possible.  The  enactment 
of  the  law  of  January  3rd  necessitates  the  issuance 
of  numerous  implementing  orders  and  regulations, 
and  such  orders  and  regulations  are  now  in  the 
course  of  preparation. 

In  conformity  with  Polish  legal  procedures,  the 
statute  of  January  3rd  sets  forth  principles  of  gen- 
eral application,  leaving  the  implementation  of 
such  principles  to  executive  orders  and  regulations. 
Therefore  the  Provisional  (lovernment  of  National 

'  Not  printed. 


Unity  will  be  able  to  define  in  detail  its  position  in 
relation  to  the  questions  touched  upon  in  the  note 
of  the  United  States  Government  of  January  17, 
only  after  the  issuance  of  such  executive  orders 
and  regulations  pursuant  to  the  law  of  January  3, 
1946. 

The  Provisional  Government  of  National  Unity 
will  at  that  time  take  up  in  detail  the  problems 
touched  upon  by  the  United  States  Government. 
The  Provisional  Government  can,  however,  al- 
ready at  this  time  state  the  principle  that,  pursuant 
to  Article  7  of  the  law  of  January  3,  United  States 
citizens  who  believe  themselves  affected  by  that 
law  are  to  receive  compensation  on  an  equal  basis 
with  Polish  citizens. 

With  reference  to  the  matter  raised  in  the  note 
of  the  United  States  Government  that  United 
States  citizens  be  granted  entry  permits  to  Poland 
for  the  purpose  of  acquainting  themselves  with 
the  conditions  of  industrial  establishments  owned 
by  them  in  Poland  before  September  1.  1939,  the 
Provisional  Government  of  National  Unity  ex- 
presses its  readiness  to  give  consideration  to  ap- 
plications of  United  States  citizens  to  enter  Poland 
on  the  basis  of  as  liberal  interpretation  as  possible 
of  existing  regulations. 

(Continued  on  page  682) 


APRIL  21,  1946 


671 


Statement  of  the  Allied  Mission  for  Observing  the  Greek 
Elections 


[Released  to  the  press  by  the  White  House  April  11] 

Formal  signing  of  the  unanimous  report  of  the 
Allied  Mission  for  Observing  the  CJreek  Elections 
took  place  last  night  in  Athens,  Greece.  The  re- 
port was  signed  on  behalf  of  their  respective  mis- 
sions by  the  three  Chiefs  of  Mission — Ambassador 
Henry  Grady  representing  the  United  States  Gov- 
ernment, Mr.  Richard  T.  Windle  representing  the 
British  Government,  and  General  Arnaud  Laparra 
representing  the  French  Government.  Other 
members  of  the  United  States  Mission,  with  the 
liink  of  Minister,  are :  Joseph  C.  Green,  Walter  H. 
Mallory,  Major  General  Harry  J.  Malony,  James 
Grafton  Rogers,  William  W.  Waymack,  and  Her- 
man B.  Wells. 

The  three  Chiefs  of  Mission  will  transmit  an 
original  signed  copy  of  the  report  to  their  respec- 
tive Governments,  and  publication  of  the  document 
simultaneously  by  the  three  Governments  will  take 
place  at  an  early  date.  At  that  time  the  report 
will  also  be  delivered  to  the  Government  of  Greece. 

The  foi'mal  signing  of  the  report  marked  the 
termination  of  the  Mission's  activities  in  Greece. 
Numerous  members  of  the  personnel  of  the  Mis- 
sion— American,  British,  and  French — already 
have  departed  from  Greece  and  others  will  depart 
as  quickly  as  transportation  facilities  permit.  The 
following  is  a  summary  of  the  important  conclu- 
sions outlined  in  the  report  of  the  Mission.  This 
summary  has  been  presented  to  the  Greek  Govern- 
ment and  a  copy  has  likewise  been  handed  to  the 
Soviet  Ambassador  in  Athens  in  keeping  with  the 
three  Governments'  earlier  statement  that  the 
Soviet  Union  would  be  kept  informed  of  the  activi- 
ties of  the  Allied  Mission  even  though  it  did  not 
participate. 

The  Greek  elections  of  March  31  were  conducted 
under  conditions  that  waiTanted  holding  them  on 
the  date  selected.  They  were  on  the  whole  free 
and  fair,  and  the  results  rejDresent  a  true  and  valid 
verdict  of  the  Greek  people,  in  the  considered 
judgment  of  the  Allied  Mission  To  Observe  the 
Greek  Elections. 


This  is  the  Mission's  final  judgment  in  a  report 
to  the  American,  British,  and  French  Govern- 
ments, made  after  analysis  of  factual  information 
gathered  in  all  parts  of  Greece  by  240  trained  obser- 
vation teams  throughout  the  period  of  pre-election 
campaigning,  on  election  day,  and  in  the  few  days 
immediately  after. 

The  rejDort  recognizes  "the  present  intensity  of 
jjolitical  emotions  in  Greece"  and  gives  the  election 
a  favorable  verdict  after  giving  that  factor  in  all 
its  aspects  stud}^  and  consideration.  If  Leftist 
parties  which  boycotted  the  election  had  taken 
part,  the  single-house  Parliament  that  was  chosen 
would  now  include  perhaps  20  percent,  but  cer- 
tainly not  moi'e  than  25  percent,  of  the  representa- 
tives of  those  parties,  but  this  would  not  have 
altered  the  general  outcome,  the  Mission  reports. 

The  Populist  Party,  a  conservative  party,  had  a 
majority  in  the  popular  vote  and  has  a  majority  in 
the  Parliament  now.  Almost  all  of  the  remaining 
votes  and  seats  were  won  by  the  National  Political 
Union,  a  party  cooperating  with  the  Populists,  and 
the  Liberal  Paitj'  under  former  Premier  Sophoulis. 

The  Allied  Mission's  report  states  that  election 
day  was  peaceful  and  orderly,  ranking  well  with 
past  Greek  elections  and  capable  of  standing  com- 
parison as  to  decorum  with  general  elections  in 
France,  Great  Britain,  and  America.  It  points 
out  that,  while  some  of  the  registration  lists  of 
voters  had  been  completely  recompiled  for  the  elec- 
tion and  were  satisfactory,  others  have  not  been 
corrected  by  sti-iking  off  the  names  of  all  the  dead 
and  others  not  qualified  to  vote.  War  and  disorder 
and  careless  administration  of  electoral  laws  are 
mentioned  as  being  responsible  for  this.  The  total 
registration  figures  are  therefore  inaccurate  and 
misleading.  The  Mission's  experts  find  that 
Greece's  population  is  about  7,500,000,  that  a  maxi- 
mum of  1,980,000  males  were  qualified  to  be  regis- 
tered, and  that  of  those  1,850,000  actually  were 
validly  registered.  This  was  93  percent  of  the 
eligibles.  The  numljer  who  voted  March  31  was 
1,117,000.  While  the  jiresence  of  the  names  of 
dead  or  otherwise  ineligible  men  on  the  uncor- 


672 


DEPARTMENT  OF  STATE  BULLETIN 


rected  registei'S  provided  ()i)i)oitnnity  for  fraud, 
tlie  Mission  found  no  evideiu-e  of  such  fraud  on  an 
ini]iortant  scale  either  in  making  up  tlie  lists  of 
(lualitied  voters  or  in  plural  voting.  Among  the 
specific  findings  of  the  section  of  scientific  sampling 
experts  of  the  Mission  were  these:  lor  all  Greece, 
71  percent  of  the  names  on  registration  lists  were 
unquestionably  valid,  only  1.'5  percent  were  invalid, 
iuid  16  percent  were  of  doubtful  validity.  Sixty 
percent  of  the  number  validly  registered  actually 
voted.  The  40  percent  who  did  not  vote  included 
an  estimated  9.3  percent  wlio  allegedly  abstained 
for  "party"'  i-easons,  and  varying  percentages  for 
otiier  reasons  iu)t  identifiable  with  political  strat- 
egy'. However,  the  technical  analysts  have  al- 
lowed, in  tiieii-  basic  estimates,  for  from  10  to  an 
absolute  maxinniui  ^0  percent  of  "party"  absten- 
tion, with  15  peirent  as  a  probable  maximum.  The 
15-percent  estinuite  gives  a  total  for  deliberate 
abstainers  of  :i80,000.  But  of  the  votes  actually 
cast  not  moi'e  than  "2  percent  were  cast  illegally  in 
the  names  of  dead  or  unidentifiable  persons.  In 
otlicr  words,  fraud  of  this  kind  nuiy  have  been 
responsible  for  a  maximum  (^f  '22,0(10  votes  out  cf 
approxinuitely  1,117,000  and  could  not  have  in- 
fluenced general  election  results.  Of  the  regis- 
tered voters  who  did  not  vote,  only  11,000  can  be 
definitely  regarded  as  having  abstained  because 
unfairly  prevented  from  voting,  the  sampling  staif 
says.  Though,  therefore,  the  Mission  finds  that 
the  opportunity  for  fraud  that  was  presented  by 
tlie  exaggerated  registration  lists  was  not  exploited 
in  this  election,  it  reconnnends  in  its  rei)ort  that  all 
registration  lists  in  Greece,  in  rural  as  well  as  city 
areas,  be  completely  recompiled  before  the  opinion 
of  the  Greek  jieople  is  again  sought  on  matters  of 
national  importance,  so  as  to  remove  all  possible 
justification  for  fraud  charges  based  on  inaccurate 
registers  in  tlie  future. 

Some  intimidation  of  voters  both  by  Rightists 
and  by  Leftists  was  found,  varying  by  regions  and 
even  villages.  While  this  was  general  enough  to 
be  consequential  on  election  day  itself,  it  is  re- 
garded by  the  Mission  as  an  inevitable  product 
of  (Jreece's  experience  under  domestic  dictatorship, 
under  enemy  occupation,  and  especially  of  the 
brief  but  desperate  "civil  war"  between  Leftist 
forces  of  the  resistance  movement  and  Cireek  Gov- 
ernment forces  at  the  end  of  I'M-i.  The  passions 
tiuis  generated  did  produce  intimidation  in  the 
year  preceding  the  election.  This  was  particularly 
marked  ajiainst  extreme  Leftists  in  the  agricultural 


regions  of  the  Peloponnesus  and  in  northwestern 
Greece.  These  conditions,  says  the  Mission,  had 
an  important  bearing  on  the  abstention  of  EAM 
members  from  voting,  and  did  have  "some  effect" 
on  the  election,  without  materially  affecting  the 
outcome. 

Presence  of  British  troojis  in  (Jreece  had  no  ef- 
fect whatever  on  the  election  results,  the  Mission 
finds. 

Investigation  of  complaints  about  pro-Rightists 
bias  by  police  and  gendarmerie  led  to  the  conclu- 
sion that  the  police  as  a  whole  were  loyal  to  their 
duties  but  that  some  of  the  gendarmerie  showed 
partisanship.  This,  however,  had  a  very  minor  in- 
fluence on  the  general  results,  the  Mission  says. 

AVhile  under  the  present  Greek  election  law  ab- 
stention is  illegal,  its  practice  as  party  strategy 
is  too  well  established  by  custom  to  permit  control 
by  legalistic  means,  says  the  Mission,  and  it  does 
not  feel  that  party  abstentions  this  time  either 
altered  the  results  or  represent  a  new  and  alarming 
element  in  (ireek  politics.  The  fact  that  absten- 
tion, although  a  contravention  of  Greek  law,  was 
countenanced  by  the  authorities  gave  even  dis- 
sident elements  an  opportunity  fully  to  indicate 
their  views.  The  Mission  is  convinced  that  its 
presence  in  Greece  has  a  reassuring  effect  and  con- 
Irilmted  to  orderliness. 

Today's  report  by  the  Mission,  which  will  be 
sent  to  the  cooperating  Allied  Goveruments  of 
France,  the  United  States,  and  (ireat  Britain,  and 
tlie  Union  of  South  Africa,  reveals  how  the  un- 
precedented task  of  election  observation  in  Greece 
was  planned  and  organized  and  the  methods  used 
to  arrive  at  conclusions.  This  summary  of  the 
report  has  been  furnished  to  the  above-named  Gov- 
ei-nments  and  to  the  (ireek  Government  and  the 
Soviet  Goveriunent.  The  Mission  grew  out  of  the 
agreement  at  Yalta  by  America,  Great  Britain, 
and  Russia  to  help  liberated  countries  set  up  demo- 
cratic governments,  followed  by  the  agreement  of 
(Jreek  political  parties  to  seek  such  Allied  help 
through  election  observatiou,  and  by  the  specific 
request  thereafter  of  the  then  Greek  Government. 
America,  Great  Bi'itain,  and  France  accepted  the 
invitation.    Russia  declined. 

Last  October  Dr.  Henry  F.  Grady  was  named 
chief  of  the  American  contingent,  R.  T.  Windle 
of  the  British,  and  General  Arnaud  Laparra  of 
tlie  French.  From  November  onward,  through 
conferences  in  Athens  ami  the  other  capitals,  the 


AHHIL  21,  1946 


673 


]\Iission  took  I'oiin.  It  w;is  decided  by  acceptance 
of  an  American  plan  that  the  cooperating  na- 
tionalities should  merge  completely  into  an  Allied 
team,  whose  policies  would  be  determined  by 
the  whole  and  whose  report  would  be  a  single 
document. 

For  operational  purposes  Greece  was  divided 
into  five  districts,  with  an  Allied  district  board 
stationed  at  each  district  office,  and  in  Athens  a 
central  board,  headed  by  the  three  Chiefs  of  Mis- 
sion, functioned  continuously  from  February  25 
to  April  10.  The  observers,  all  of  whom  had  been 
given  an  intensive  background  course  on  Greek 
conditions  for  a  week  in  Italy  before  moving  to 
Greece,  consisted  of  selected  men  from  the  Allied 
armed  forces.  Army  personnel  was  used  because 
of  availability  in  the  area,  acquaintance  with 
Mediterranean  conditions,  and  suitability  for  the 
arduous  task  of  constant  travel  in  mountainous 
country  under  practically  nulitary  conditions  as 
to  rations,  equipment,  and  general  living.  Opera- 
tionally, the  whole  undertaking  was  set  up  on  a 
military  basis  in  order  to  meet  requirements  of 
supply,  communications,  and  immediate  organiza- 
tional efficiency. 

Two  distinct  methods  of  ascertaining  facts  were 
adopted.  One  was  the  method  of  scientific  sam- 
pling, developed  in  great  detail  on  the  ground  in 
Greece  by  outstanding  American  and  British 
experts  before  the  observation  teams  arrived. 
Questionnaire  forms  designed  to  assemble  pre- 
cisely the  information  needed  in  order  to  answer 
the  important  questions  were  prepared.  These 
were  used  by  the  240  observer  teams,  which  visited 
l,55f)  polling  places  in  the  pre-election  period, 
watched  the  actual  voting  procedure  all  day  at 
105  selected  polling  places,  visited  in  addition  708 
other  polling  places  on  election  day,  and  con- 
ducted many  post-election  inquiries  and  special 
investigations  of  typical  complaints. 

Through  a  huge  amount  of  data  thus  gathered 
from  places  carefully  selected  so  as  to  be  repre- 
.sentative,  under  secrecj'  as  to  when  and  where  ob- 
servers would  appear,  the  sampling  section  of  the 
Mi.ssion  was  able  to  arrive  at  definite  statistical 
conclusions  and  rej^ort  them  to  the  whole  Mission. 

The  final  report  from  this  section  was  signed 
by  Dr.  Raymond  Jessen,  of  the  statistical  labora- 
tory of  Iowa  State  College,  Ames,  Iowa ;  by  Mr. 
Oscar  Kempthorne,  of  the  statistical  department 


of  Eothamsted  Experiment  Station,  Harpenden, 
Herts,  England;  and  by  Dr.  S.  Shepard  Jones, 
in  charge  of  Public  Attitudes  Branch,  Division 
of  Public  Liaison,  Department  of  State,  Wash- 
ington, D.  C. 

Meantime,  in  every  district  a  simultaneous  pro- 
gram of  general  inquiry,  modeled  on  an  ''intelli- 
gence service",  was  carried  out,  in  which  civilian 
personnel  as  well  as  all  tlie  military  observers  par- 
ticipated. Every  available  source  of  information 
was  explored  in  this  phase  of  the  study.  In  the 
end  the  judgments  arrived  at  through  this  method 
by  the  Allied  district  boards  were  compared  with 
the  conclusions  based  on  scientific  sampling,  and 
were  found  to  supplement  and  confirm  each  other 
on  ever}'  basic  point.  Observer  teams  consisted  of 
three  men,  an  officer  observer,  tlie  interpreter,  and 
a  driver.  Jeeps  were  the  vehicles  used,  frequently 
su2:)plemented  by  long  and  difficult  journeys  on 
donkeys  to  remote  places,  sometimes  by  long  walks. 
Water  craft  were  also  emploj^ed.  And  for  reach- 
ing islands  as  well  as  maintaining  communication 
between  central  and  district  headquarters,  aircraft 
of  several  types  were  in  operation  regularly.  In- 
terpreters for  the  Mission  were  all  men.  They 
were  chosen  by  a  careful  screening  process  to  guard 
against  political  bias,  and  the  training  of  observer 
teams  was  so  designed  as  to  reduce  the  interpreter's 
role  to  that  of  translation  solely.  Close  contact 
was  maintained  between  the  Mission  and  those  of- 
ficials of  the  Greek  Government  responsible  for 
decisions  and  preparations  for  the  election.  The 
Mission  accepted  no  responsibility  in  these  fields 
beyond  keeping  itself  informed  and  reporting  to 
the  Greek  authorities  such  conditions  as  it  found 
which  might  affect  the  election  seriously. 

The  Mission's  report  points  out  that  the  date  of 
the  election  was  several  times  postponed  by  the 
Greek  Government  to  meet  requests  by  Left  Wing 
parties,  and  that  the  method  of  proportional 
representation  was  adopted  also  as  a  concession  to 
the  Left.  Complete  freedom  of  the  press  of  Greece 
was  found  to  characterize  the  election  period.  The 
Mission  mentions  some  criticisms  to  which  it  was 
itself  subjected,  now  from  the  Right  and  now  from 
the  Left. 

The  report  transmitted  to  the  cooperating  Allied 
Governments  10  days  after  the  election  will  be  pub- 
lished in  full,  with  complete  documentation  and 
explanation,  as  early  as  possible. 


674 


DEPARTMENT  OF  STATE  BULLETIN 


U.  S.  Aid  in  Economic  Reconstruction  of  France 


BY  ASSISTANT  SECRETARY  HILLDRING 


THE  United  States  full.y  appreciates  tlie  needs 
of  France  as  she  begins  the  long  task  of  reha- 
bilitation and  modernization.  In  every  com- 
numity  in  the  United  States  are  returned  soldiers 
who  can  testify  to  France's  shattered  villages  and 
broken  towns.  They  can  speak  with  firsthand 
knowledge  of  her  crippled  transportation  system, 
her  disabled  industrial  establishments,  her  pillaged 
agricultural  resources.  After  two  bitter  winters, 
they  know  its  need  for  fuel,  and  they  have  wit- 
nessed the  painful  lack  of  adequate  foodstufl's 
among  all  classes  of  the  population.  They  do  not 
need  to  be  convinced  that,  as  a  gallant  ally  and  as 
a  major  victim  of  war  and  occupation  and  war 
again,  France  deserves  a  better  fate  than  she  is  now 
suffering.  Nor  do  they  need  to  be  persuaded  that, 
as  long  as  present  conditions  endure,  France  can- 
not make  the  contribution  that  she  is  capable  of 
making  to  the  recovery  of  Europe  and  of  the  world. 
Because  of  their  recognition  of  the  needs  of 
France,  the  people  and  the  Government  of  the 
United  States  have  already  made  noteworthy  con- 
tributions to  her  matei'ial  recovery.  The  first  were 
made  immediately  after  D  Day,  when,  in  order  to 
enable  them  the  more  eifectively  to  conduct  their 
own  civil  administration,  the  Army  made  available 
to  the  French  authorities  many  of  the  basic  require- 
ments of  civilian  life.  While  the  first  difficult 
battles  were  being  fought  among  the  hedgerows  of 
Normandy,  the  Army  laid  down  on  the  beaches 
clothing  and  food  and  medicine,  which  the  French 
themselves  put  into  the  hands  of  their  local  au- 
thorities.    From  its  own  short  supply,  the  Army 


Excerpts  from  an  address  delivered  at  the  reception  to 
Leon  I'.luni  and  the  French  Mission  in  New  York,  N.  Y., 
on  Apr.  12,  1!)46  and  released  to  the  press  on  the  same 
date.  Mr.  Blum  is  Ambassador  Extraordinary  and  Pleni- 
potentiary of  France  on  a  special  mission  to  the  U.  S. 
For  complete  text  of  Mr.  Hilldring's  addre.ss,  see  Depart- 
ment (if  State  press  release  248  of  Apr.  12,  1946. 


provided  gasoline  and  oil  and  lubricants  so  that 
the  French  could  distribute  the  necessaries  of  life 
among  the  people  whose  homes,  farms,  and  shops 
had  unhappily  stood  in  the  line  of  battle.  Between 
D  Day  and  December  1944  the  United  States  Army 
in  cooperation  with  the  British  Army  shipped 
175,000  tons  of  civilian  supplies  to  southern 
France  and  northwest  Europe.  Such  assistance 
was  not  grudged  then,  nor  is  it  grudged  now.  It 
was  rightly  regarded  as  an  essential  ingredient  of 
victory. 

Assistance  to  France  on  the  part  of  the  United 
States  did  not  cease  with  the  termination  of  hos- 
tilities. Since  V-J  Day  the  French  have  been 
enabled  to  purchase  surplus  equipment  stored  in 
depots  and  warehouses  all  over  France.  With  it 
the  French  are  restoring  their  ports  and  increasing 
the  number  of  trucks  on  their  roads.  Until  the 
railways  of  France  are  fully  restored,  trucks  con- 
stitute a  prime  means  of  moving  fuel  and  food 
from  the  areas  in  which  they  may  be  found  to  the 
cities  and  towns  where  they  are  needed. 

The  United  States  has  made  a  special  effort  to 
assist  France  in  overcoming  deficiencies  in  two 
critically  required  commodities.  One  is  wheat. 
The  other  is  coal.  Let  me  speak  first  of  wheat. 
When,  several  months  ago,  it  became  apparent  that 
France  would  need  considerable  exports  of  wheat 
in  order  to  maintain  even  a  minimum  diet,  the 
United  States  made  arrangements  to  cooperate 
fully  in  supi)lying  them.  Even  though  the  war 
against  Japan,  then  still  going  on,  was  exerting  a 
heavy  strain  on  all  shipping  resources,  cargo  ves- 
sels were  made  available  to  carry  wheat  to  France. 
During  the  last  six  months  of  191.5,  well  over  a 
million  long  tons  of  wheat  were  shipped.  In  the 
first  three  months  of  1946,  well  over  a  half  million 
more  tons  have  been  shipped.  Nor  has  assistance 
to  the  French  in  the  matter  of  wheat  been  rendered 
only  in  their  own  country.  When  the  French  au- 
thorities in  connnand  of  the  occupation  zones  in 


APRIL  21,  1946 


675 


Gernumy  and  Austria  I'ouiul  themselves  rumiing 
dangerously  short  of  breadstuffs,  General  Clay  and 
General  Chirk  lent  them  wheat  fiom  their  own 
very  short  supplies.  These  loans  helped  to  over- 
come the  dangers  that  would  inevitably  arise  if 
the  populations  of  the  various  occujiation  zones 
Avere  subject  to  widely  disparate  treatment. 

The  United  States  does  not  assume  that  what  it 
has  already  done  to  alleviate  the  urgent,  immediate 
need  of  France  for  wheat  is  enough.  With  other 
nations,  it  is  planning  not  only  to  continue  but  to 
increase  the  flow  of  grain  until  the  basic  require- 
ments of  the  French  are  fully  met.  If  Americans 
can  prevent,  the  French  loaf  will  not  be  further 
shortened. 

Similarly,  in  the  matter  of  coal  the  United  States 
has  endeavored  earnestly  to  alleviate  the  problems 
of  France.  Since  last  August  we  have  shipped  live 
million  tons  to  France,  all  of  it  in  Liberty  ships. 
We  are  also  making  underground  mining  machin- 
ery available,  ileanwhile  the  French  have  raised 
their  own  coal  production  higher  than  the  pre- 
war level — a  magnificent  achievement. 

Yet  neither  their  own  resources  nor  our  ship- 
ments of  coal  are  enough  to  meet  the  urgent  re- 
quirements of  reconstruction.  The  United  States 
lecognizes  that  more  is  needed  if  France  is  to  get 
her  industries  going,  her  transport  moving,  her 
utilities  operating  fully.  Consequently,  we  have 
n(jt  undertaken  merely  to  help  France  with  coal 
from  our  own  supplies.  In  addition,  we  are  sym- 
pathetic with  the  needs  of  France  for  the  largest 
practicable  allocations  of  the  output  of  the  mines 
of  the  Kuhr. 

The  United  States  also  regrets  the  continuation 
of  arrangements  within  Germany  that,  in  our 
opinion,  prevent  the  most  efficient  exploitation  of 
German  resources  for  the  benefit,  first  of  all,  of  the 
nations  despoiled  by  the  Nazis.  The  supply  of 
coal  from  the  Ruhr  has  been  governed  largely  by 
one  factor — transportation.  Efficient  transporta- 
tion is  needed  to  get  food  into  the  Ruhr  so  that 
miners  can  maintain  a  high  level  of  individual  out- 
put. Efficient  transportation  also  is  needed  so  that, 
once  mined,  the  coal  can  be  quickly  distributed  to 
the  areas  where  it  is  most  required.  The  view  of 
the  United  States  is  that  France  is  one  of  the  most 
important  of  those  areas. 

Unhappily,  the  efficiency  of  transportation  in 
Germany  is  hampered  greatly  by  the  circumstance 
that  no  central  administrative  machinery  exists 


for  its  management.  The  railroads  of  Germany 
do  not  constitute  one  system.  In  effect,  they  con- 
stitute four  systems,  one  for  each  occupation  zone. 
Under  such  an  arrangement,  the  advantage  of  cen- 
tral direction  of  this  essential  economic  instrumen- 
tality is  lost,  and  the  sufferers  are  not  only  or  even 
primarily  the  Germans.  Rather  they  are  the 
peoples  of  the  liberated  areas  who  require  the  out- 
put of  German  resources  in  tlie  upbuilding  of  their 
industries  and  the  restoration  of  their  commercial 
and  economic  life. 


The  reparations  program  as  established  at  the 
Potsdam  Conference  last  summer  also  embraces  a 
concept  which  was  different  from  that  established 
after  the  first  World  AVar.  Under  the  Potsdam 
Agreement,  production  by  Germany  of  metals. 
chemicals,  machinery,  and  other  items  that  are  di- 
rectly necessary  to  a  war  economy  shall  be  rigidly 
controlled  and  restricted  to  approved  peacetime 
needs  of  the  German  economy.  After  World  War 
I,  Germany  retained  and  increased  her  industrial 
dominance  over  many  of  her  neighbors  and  was 
able  to  utilize  her  economic  power  to  force  other 
countries  to  assist  in  her  rearmament.  From  now 
on,  Germany  will  be  only  one  among  many  nations 
and  will  no  longer  enjoy  the  economic  predom- 
inance which  she  established  during  the  1930's. 
This  policy  does  not  mean  that  Germany  will  be 
perpetually  enslaved,  but  she  will  no  longer  be 
permitted  to  play  the  tyrant  in  Europe,  either 
economically  or  politically.  Under  the  Potsdam 
Declaration  the  German  productive  capacity  which 
is-  not  needed  for  its  peacetime  needs  will  be  re- 
moved in  accordance  with  the  reparations  plan, 
furthermore,  in  accomplishing  this  industrial  dis- 
armament of  Germany  it  is  the  intention  of  the 
Allies  to  decentralize  German  economy  for  the  pur- 
l)ose  of  eliminating  the  excessive  concentration  of 
economic  power,  which  the  Hitler  Government 
found  so  useful  in  accomplishing  the  military  re- 
armament of  Germany. 

The  reparation  policy,  therefore,  has  its  con- 
structive as  well  as  its  removal  aspects  and  under 
the  Potsdam  Agreement  primary  emphasis  will  be 
given  in  organizing  German  economy  to  the  devel- 
oj^ment  of  agriculture  and  peaceful  domestic  in- 
dustries. Only  a  Europe  which  is  a  stable,  pros- 
perous, and  progressive  community  in  all  of  its 
parts  will  avoid  those  conflicts  which  have  twice 
involved  us  in  war  and  only  in  such  a  Europe,  I 


676 


DEPARTMENT  OF  STATE  BULLETIN 


may  add,  can  France  or  anj'  other  country  enjoy 
health,  prospei'ity  and  peace. 

So  far  I  have  been  talking  about  economic  re- 
construction. Now  I  want  to  speak  of  something 
which  France  craves  even  more  jjrofoundly :  secu- 
lity.  It  is  hardly  necessary  for  me  to  state  that  we 
are  cordially  at  one  on  this  objective  too.  No  point 
in  the  post-war  policy  of  the  United  States  has 
been  more  categorically  stated  than  our  determina- 
tion that  Germany  shall  not  again  be  a  menace.  At 
Yalta  we  joined  in  declaring  that  "It  is  our  in- 
llexible  purpose  to  .  .  .  ensure  that  Germany 
will  never  again  be  able  to  disturb  the  peace  of  the 
world."  Tliis  commitment  has  been  unequivocally 
lepeated  and  expanded  in  subsequent  agi-eements. 
I  would  like  to  add,  however,  that  the  French  have 
a  right  to  a  unique  sense  of  urgency  on  this  point. 
We  can  understand  this  point  of  view  only  to  the 
extent  that  we  can  imagine  what  it  would  be  like 
to  be  in  their  shoes.  Surely  the  least  we  can  do 
in  recognition  of  the  gallant  part  they  have  played 
as  our  Allies  is  to  make  this  effort  of  imaginative 
symj)athy. 

Unity  begins  and  is  first  tested  on  a  small  scale. 
From  this  point  of  view  the  Allied  Control  Coun- 
cil at  Berlin  has  a  significance  far  wider  than 
Germany.  It  is  the  pilot  model  of  international 
collaboration.  Friendly  cooperation  there  has 
been  an  essential  part  of  our  foreign  policy  all 
along.  It  is  something  for  which  we  shall  con- 
tinue not  merely  to  speak  but  to  work.  I  should 
like,  at  this  point,  to  paj'  a  special  tribute  to  the 
untiring  labors  of  Generals  Koenig,  Koeltz,  Mc- 
Narney,  Cla}^,  and  their  colleagues  which  have 
ah'eady  accomplished  so  much  in  this  direction. 
Their  collaborative  efforts  have  contributed  and, 
I  hope,  will  continue  to  make  ever  larger  contri- 
bution to  the  solution  of  the  German  problem  and 
thereby  to  the  stability  of  Europe  and  the  peace 
of  the  world. 

Tfniight  I  have  dwelt  on  some  of  the  ways  in 
which  the  United  States  has  worked  and  will  work 
with  France  in  the  pursuit  of  goals  which  are 
essentially  the  same  for  both.  I  have  not  wished 
to  go  into  the  points  on  which,  from  time  to  time, 
we  have  differed  as  to  the  best  means  of  attaining 
those  goals.  That  is  not  because  I  think  we  should 
ignore  the  ftict  that  differences  occttr.     I  siin])ly 


wanted  to  affirm  my  belief  that  tliey  can  be  worked 
out  as  we  go  along.  That  is  my  faith  not  only  for 
France  but  for  all  of  Europe,  and  all  the  world. 

When  I  speak  thus  hopefully  of  Europe,  I 
realize  that  I  am  speaking  in  the  presence  of  one 
who  is  not  only  a  good  Frenchman  but  a  great 
EurofDean.  Mr.  Blum  has  been  called  the  last  of 
that  distinguished  line.  Let  us  say  rather  that  he 
is  one  of  the  first  of  a  new  line  of  great  Europeans 
to  set  foot  on  the  shores  of  a  new  age. 

The  way  to  that  order  will  be  long  and  hard. 
The  hatreds  and  obsessions  with  which  Hitler  left 
his  curse  upon  mankind  will  not  be  cured  in  a 
daj'.  To  speak  jauntily  of  our  hopes  would  be  to 
insult  the  sufferings  of  every  famished  child  and 
every  homeless  Jew.  So  beside  my  faith  in  the 
future  I  want  to  set  my  determination.  I  believe 
it  is  also  the  determination  of  my  Government  and 
my  countrymen. 

We  shall  not  waver  in  our  commitments.  What 
we  said  at  Yalta  and  at  Potsdam  that  we  would 
do  we  will  do. 

We  are  committed  to  the  pacification  of  Ger- 
many. To  that  end  we  shall  maintain  troops 
there  in  adequate  numbers  and  civilian  adminis- 
trators in  necessary  strength  until  the  job  is  done. 

We  are  committed  to  the  international  expan- 
sion of  production  and  trade  upon  which  world 
prosperity  and  peace  depend.  To  that  end  we 
shall  continue  to  provide  material  assistance  for 
immediate  needs,  and  we  shall  vigorously  cham- 
pion international  economic  arrangements  look- 
ing to  the  creation  of  a  balanced  system  of  world 
trade  and  world  commerce. 

We  are  committed  to  the  expanding  influence 
of  the  United  Nations.  To  that  end  we  shall  seek 
to  promote  unity  of  action  in  all  spheres  of  inter- 
national life. 


Confirmation  of 
Bernard  M.  Baruch 

The  Senate  confirmed  on  April  5,  1946  the  nom- 
ination of  Bernard  IM.  Baruch  to  be  Representa- 
tive of  the  United  States  of  America  on  the 
United   Nations  Commission  on  Atomic  Energy. 


APRIL  21.  J 946 


677 


The  Importance  of  International  Economic  Relations 
to  World  Peace 

BY  ASSISTANT  SECRETARY  CLAYTON 


ANY  EXAMINATION  of  the  importance  of  inter- 
.  national  economic  relations  to  world  peace  is 
at  the  same  time  an  examination  of  the  foreign 
economic  policy  of  the  United  States.  The  success 
or  failure  of  that  policj?  will,  in  the  last  analysis, 
be  measured  by  our  contribution  to  the  safeguard- 
ing of  the  peace. 

The  foreign  economic  relations  of  the  United 
States  cover  a  very  wide  range  of  problems.  Each 
new  problem  presses  so  closely  on  the  heels  of  its 
predecessor  that  there  is  little  space  between  for 
reflection. 

Nevertheless,  day-to-day  decisions  nuist  fit  into  a 
broad  ijolicy  pattern  and  must  contribute  to  the 
attainment  of  our  ultimate  purpose.  Not  only 
must  we  know  where  we  want  to  go  but  we  must 
have  a  good  idea  of  how  we  intend  to  get  there. 

Clearly,  the  evaluation  of  economic  policy  in 
terms  of  its  bearing  on  the  maintenance  of  peace 
cannot  proceed  far  in  the  absence  of  at  least  a 
rough  analytical  framework.  Perhaps  such  a 
framework  can  be  outlined  very  briefly  in  three 
jn-opositions. 

We  in  the  Department  of  State  believe,  first,  that 
foreign  economic  policies  which  give  effect  to  the 
principle  of  equal  treatment  for  all  nations  will 
tend  to  eliminate  some  of  the  important  causes  of 
international  friction  and  ill-will  and  will  thus 
tend  to  strengthen  the  peace. 

Secondly,  we  believe  that  the  adoption  of  wise 
and  far-sighted  economic  policies  will  stimulate 
world  trade  and  prosperity,  and  that  prosperity 
itself  is  a  direct  bulwark  of  peace. 

Third,  and  most  important,  we  believe  that  a 
wise  economic  policy  will  contribute  to  prosperity, 
that  prosperity  is  the  most  congenial  economic 
atmosphere  for  the  growth  and  spread  of  democ- 
racy and  the  institutions  of  freedom,  and  that  the 
peace  is  safest  in  the  hands  of  free  men. 

Let  us  now  take  up  these  propositions  in  order. 

The  first  of  these  is  the  proposition  that  dis- 


criminatory economic  policies  can  undermine 
friendly  relations  between  states  and  weaken  the 
structure  of  peace.  Discrimination  in  this  sense 
can  take  a  multitude  of  forms.  It  can  include  pref- 
erential tariff  systems,  favoritism  in  the  allocation 
of  imjjort  fiuotas,  or  the  use  of  exchange  controls 
to  the  disadvantage  of  certain  foreign  countries. 
It  can  include  the  denial  by  a  colonial  sovereign 
of  equality  of  access  to  the  trade  or  raw  materials 
of  its  colonies.  It  may  be  overt  or  concealed ;  there 
are  many  ways  of  achieving  discriminatory  pur- 
poses in  regulations  or  legislation  which  appear  on 
their  face  to  be  of  general  applicability. 

Even  though  the  economic  effect  of  a  particular 
act  of  discrimination  be  slight,  the  act  may  have 
consequences  entirely  out  of  proportion  to  its  real 
significance.  Acts  of  economic  discrimination 
often  provoke  reactions  in  terms  of  national  pride 
and  honor,  especially  when  nationalistic  feelings 
have  previously  been  aroused  by  other  causes. 

A  colonial  sovereign  which  uses  its  political 
powers  to  deny  to  other  nations  the  right  of  equal 
access  to  the  trade  and  raw  materials  of  dependent 
areas  may  do  serious  injury  to  the  economy  of 
its  neighbors.  The  economic  effects  of  imperi- 
alism may  not  be  inherently  incompatible  with 
the  interests  of  peace ;  but  imperialism  can  be  used 
to  undermine  the  peace  when  the  sovereign  ob- 
structs trade  and  economic  relations  generally 
between  the  dependent  areas  and  other  nations. 

In  the  sense  in  which  the  terms  are  customarily 
used,  no  nation  is  really  a  "have"  nation,  as  op- 
posed to  a  "have-nof  nation,  unless  it  obstructs 
access  by  other  nations  to  its  markets  and  raw 

An  address  delivered  before  the  Academy  of  Political 
Science  in  New  York.  N.  Y.,  on  Apr.  11,  1046,  and  released 
to  the  press  on  the  same  date.  For  an  address  by  Emilio 
G.  Collado,  Deputy  on  Financial  Affairs  to  Mr.  Clayton, 
on  the  subject  of  foreign  trade  and  foreign  investment, 
delivered  on  April  10  before  the  .\ssociation  of  Reserve 
City  Bankers  in  Palm  Beach,  Fla.,  see  Department  of 
State  press  i-elease  236  of  April  9. 


678 


DEPARTMENT  OF  STATE  BULLETIN 


materials.  Likewise,  no  nation  is  leally  a  "have- 
not"  nation,  no  matter  liow  barren  its  territory 
may  be  of  important  natural  resources,  unless  it 
is  denied  the  right  of  access,  on  a  basis  of  equality, 
to  the  trade  and  raw  materials  of  other  areas 
which  are  more  richly  endowed.  This  access  may 
be  denied  in  several  ways.  'If  nations  rich  in  es- 
sential raw  materials  raise  their  tariffs  on  imports 
unreasonably,  the  purchase  of  such  raw  materials 
becomes  difficult  for  countries  which  must  have 
them.  It  is  not  inevitable,  or  even  natural,  that 
nations  richlj'  endowed  with  raw  materiafs 
should  be  rich,  while  nations  poorly  endowed  with 
such  resources  should  be  poor.  Nature  often  pro- 
vides compensations  for  such  differences.  Such 
compensations  may  take  the  form  of  special  skills 
of  the  so-called  "have-not"  peoples.  When  a  so- 
called  "have-not"  nation  enjoys  equal  rights  on 
reasonable  terms  to  economic  intercourse  with  an 
area  rich  in  natural  resources,  it  has  little  further 
to  gain  in  the  way  of  economic  advantages  by 
forcing  the  area  under  its  political  control.  If  the 
principle  of  equality  of  access,  on  reasonable 
terms,  to  the  trade  and  raw  materials  of  the  world 
were  universally  practiced,  the  appetite  for  ex- 
pansion of  sovereignty,  so  productive  of  interna- 
tional friction,  would  largely  disappear. 

This,  we  believe,  is  an  important  lesson  for  eco- 
nomic policy.  Whether  discrimination  has  its 
major  impact  on  values  as  incalculable  as  national 
pride  or  as  concrete  as  the  standard  of  living,  the 
nation  discriminated  against  becomes  a  little  more 
likely  to  regard  itself  as  underprivileged  and  op- 
pressed. When  such  views  are  popular,  there  are 
always  leaders  who  wall  cry  for  military  action 
to  obtain  justice,  and  there  are  always  followers 
who  will  listen.  It  may  be  doubted  if  the  denial 
of  equality  of  treatment  in  international  economic 
matters  could  in  itself  ever  lead  directly  to  war; 
but  it  can  contribute  to  the  creation  of  an  inter- 
national climate  which  is  more  congenial  to  war, 
and  it  can  become  one  of  a  complex  of  factors 
which  do  lead  directly  to  war. 

Let  us  turn  now  to  the  second  proposition.  We 
have  said  that  the  adoption  of  wise  and  far-sighted 
economic  policies  is  capable  of  stimulating  world 
trade  and  prosperity,  and  that  prosperity  itself 
is  a  bulwark  of  peace.  As  soon  as  the  proposition 
is  stated,  however,  it  becomes  apparent  on  simple 
historical  grounds  that  prosperity  alone  cannot 
assure  permanent  peace.  Within  the  limits  of 
modern  history,  wars  have  occurred  in  good  times 


and  peace  has  been  preserved  in  bad  times.  But 
economic  well-being,  rising  standards  of  living,  ex- 
panding opportunities  for  work  and  trade  do  tend 
to  create  a  psychological  atmosphere  in  which  ag- 
gressive impulses  are  less  likely  to  become  domi- 
lunit.  One  could  hardly  put  it  better  than  it  was 
put  by  Cordell  Hull  in  1937. 

''Peoples  that  are  employed  and  prosperous  are 
not  easily  incited  to  either  internal  or  international 
strife.  But  peoples  living  in  want  and  misery 
come  to  hold  life  cheaplj^  and  stand  ready  to  gam- 
ble upon  the  use  of  force." 

People  do  not  differ  nuich  from  one  country  to 
another  or  from  one  age  to  another  in  the  universal 
desire  to  better  their  condition.  If  they  are  able 
through  the  peaceful  channels  of  production  and 
trade  to  secure  for  themselves  a  gradual  improve- 
ment of  their  mode  of  living,  they  are  more  likely 
than  otherwise  to  devote  themselves  to  the  cultiva- 
tion of  the  arts  of  peace.  If,  however,  the  eco- 
nomic environment  is  such  that  they  are  thwarted 
in  their  efforts  to  improve  their  lot,  they  may  and 
often  do  seek  outlets  for  their  ambitions  in  conduct 
of  a  more  violent  sort.  If  they  conclude  that  the 
obstacles  to  their  improvement  and  advancement 
are  internal,  they  may  pursue  their  objectives  in 
ways  that  lead  to  internal  unrest  or  even  to  civil 
strife.  If,  however,  they  believe  or  are  led  to  be- 
lieve that  their  distress  arises  from  unfriendly 
external  acts,  their  passions  may  take  them  down 
the  road  to  military  adventure  and  war. 

The  third  proposition,  which  we  regard  as  the 
most  important,  is  closely  related  to  the  second. 
We  believe  that  economic  policy  can  contribute  to 
prosjaerity,  that  prosperity  is  the  most  congenial 
economic  atmosi^here  for  the  growth  and  spread  of 
democracy  and  the  institutions  of  freedom,  and 
that  the  peace  is  safest  in  the  hands  of  free  men. 

Democracy  is  in  many  ways  a  fragile  form  of 
political  organization.  This  is  especially  true  of 
young  democracies,  where  the  institutions  of  free- 
dom are  not  imbedded  in  a  solid  fcundation  of 
habit  and  tradition. 

For  a  democracy  to  function  effectively,  there 
nuist  be  an  atmosphere  of  mutual  restraint,  a  dis- 
position to  compromise  differences,  and  a  willing- 
ness to  tolerate  opposing  views.  In  times  of 
economic  crisis,  internal  cleavages  are  widened, 
political  conflicts  arouse  deep  emotions  and  bitter- 
ness, and  the  inclination  to  compromise  in  order  to 
])reserve  free  government  is  weakened. 


APRIL  21,  1946 


679 


That  prosperity  can  contribute  to  the  strength- 
ening of  the  democratic  order  is  much  more  than  a 
vague  hypothesis.  All  of  us,  \rithin  our  own  life- 
times, have  seen  democracies  fall  apart  under  the 
pressure  of  economic  crisis.  When  a  choice  must 
be  made  between  civil  liberties  and  democratic 
rights  on  the  one  hand,  and  the  promise  of  a  decent 
standard  of  living  and  economic  security  on  the 
other  hand,  there  are  always  many  who  will  choose 
the  latter,  although  it  may  clearly  entail  the  loss  of 
the  former.  When  stomachs  are  empty,  the  rights 
of  free  citizenship  are  regarded  as  small  consola- 
tion. In  every  democracy,  there  are  always  dema- 
gogs who  will  come  to  the  fore  in  periods  of 
economic  crisis  to  bargain  the  promise  of  economic 
security  for  the  surrender  of  freedom.  It  was  no 
accident  that  the  successes  of  the  Nazi  Party  at  the 
polls  when  German  elections  were  still  free  showed 
a  striking  correlation  to  German  unemployment 
figures. 

If  economic  well-being  is  a  factor  of  paramount 
importance  in  the  defense  of  democracy,  then  how 
does  the  defense  of  democracy  relate  to  the  preser- 
vation of  peace?  The  evidence  is  within  reach  of 
anyone  whose  memory  extends  across  the  tragic 
years  of  our  century.  Democracies,  by  their  na- 
ture, are  not  only  less  able  to  organize  and  launch 
aggressive  war,  but  they  are  less  likely  to  desire 
war.  It  is  virtually  mipossible  to  prepare  for 
aggression  without  exercising  a  degree  of  ruthless- 
ness  in  the  control  of  opinion  and  infonnation 
which  is  utterly  incompatible  with  the  spirit  of 
democracy.  Even  if  it  desired  war,  no  govern- 
ment of  a  democratic  state  could  force  its  people 
into  a  silent,  united,  and  obedient  phalanx  without 
first  subverting  the  people's  rights.  Simply  from 
the  point  of  view  of  the  technical  aspects  of  mili- 
tary preparations,  democracy  and  aggi'ession  do 
not  mix. 

More  important,  however,  is  the  fact  that  com- 
mon people,  by  and  large,  abhor  war.  Wherever 
it  is  within  the  power  of  the  common  man  to  decide, 
we  may  be  reasonably  certain  that  he  will  choose 
peace.  The  common  man  never  wins  a  war.  When 
rulers  think  of  aggression  in  terms  of  national 
power  and  prestige,  the  reward  of  the  common 
man  will  probably  be  conscription,  mud,  and 
death.  When  the  national  prize  is  said  to  be 
markets  and  riches,  the  common  man  generally 
reaps  ration  cards,  ersatz  food,  and  inflation.  So 
long  as  the  organs  of  public  information  and  opin- 
ion are  free,  and  so  long  as  the  people  control  the 


govermnent  and  not  the  government  the  people,  we 
shall  not  be  misled  if  we  trust  the  people  to  choose 
peace. 

In  the  words  of  Sir  William  Beveridge,  "to  make 
the  world  safe  for  democracy  does  increase  the 
chances  of  its  being  a  peaceful  world,  for  the  com- 
mon man  neither  has  nor  thinks  he  has  anj'thing  to 
gain  by  war." 

Prosperity,  then,  is  a  bulwark  of  peace,  both  as  a 
dii'ect  deterrent  to  war  and  as  an  ally  of  democ- 
racy. 

In  the  presence  of  this  framework  of  ideas,  let  us 
turn  now  to  questions  of  policy — to  the  question  of 
what  we  should  do  and  what  we  can  do  to  stimulate 
prosperity  here  and  abroad. 

Our  problems  are  of  two  kinds.  There  are  im- 
mediate problems,  relating  principally  to  the  tasks 
of  making  good  the  material  ravages  of  war. 
There  are  longer-run  problems,  involving  the 
organization  of  the  world  economy  to  achieve  the 
maximum  output  of  goods  and  services  and  the 
elevation  of  living  standards.  The  two  are  by  no 
means  independent  of  each  other.  If  we  should 
bungle  the  job  of  solving  the  economic  problems  of 
the  transition  from  war  to  peace,  we  shall  certainly 
delay,  and  we  may  even  lose,  the  opportvmity  to 
organize  the  world  economy  for  enduring  prosper- 
ity. In  the  eyes  of  people  who  lack  a  roof  over 
their  heads  today,  the  construction  of  a  substantial 
dwelling  for  use  in  the  future  will  have  to  wait. 

The  world  is  now  in  the  cruel  aftei'math  of  a 
ghastly  war.  Each  day  brings  fresh  reports  of 
suffering  and  misery  over  wide  areas,  new  accounts 
of  hunger,  disease,  and  the  still-spreading  ravages 
of  war.  In  Europe  and  Asia,  many  millions  of 
people  are  right  now  on  the  verge  of  starvation. 
Throughout  these  continents,  fuel  and  raw  materi- 
als to  run  the  factories  and  fertilizers  to  restore 
the  land  are  dangerously  scarce.  Many  countries 
are  caught  in  a  vicious  circle :  Without  food,  coal 
miners  cannot  dig  coal ;  without  coal,  f  actoi-ies  can- 
not iDroduce  agricultural  machinery  and  fertiliz- 
ers; without  farm  machinery  and  fertilizers, 
farmers  cannot  produce  food. 

If  we  were  to  ignore  these  problems,  or  to  under- 
estimate their  importance,  we  should  do  so  at  our 
peril.  Neither  j^eace  nor  prosperity  can  be  secure 
so  long  as  great  areas  of  the  world  are  submerged 
in  the  economic  morass  of  post-war  disorganiza- 
tion. Assistance  from  the  United  States,  and  from 
all  other  countries  in  a  position  to  help,  is  the  main 


680 


DEPARTMENT  OF  STATE  BULLETIN 


source  of  hope  to  the  areas  whicli  liave  been  devas- 
tated by  war.    . 

President  Truman,  in  liis  Army  Day  speech  last 
Saturday,  set  the  keynote  of  our  policy  : 

"The  United  States",  he  said,  "is  in  a  position 
to  help ;  we  are  helping  now,  and  we  shall  continue 
to  help.  We  shall  help  because  we  know  that  we 
ourselves  cannot  enjoy  prosj^erity  in  a  woi'ld  of 
economic  stagnation.  We  shall  help  because  eco- 
nomic distress,  anywhere  in  the  world,  is  a  fertile 
breeding  ground  for  political  upheaval.  And  we 
sliall  help  because  we  feel  it  is  simple  humani- 
tarianism  to  lend  a  hand  to  our  friends  and  allies 
who  are  convalescing  from  woiuids  inflicted  by  our 
common  enemy." 

As  evidence  that  we  are  fulfilling  the  President's 
pledge  is  the  fact  that  a  larger  tonnage  of  supplies 
now  leaves  bur  Atlantic  i:iorts  each  month  than  was 
shipped  in  the  peak  month  of  the  war.  The  prod- 
ucts of  Amei'ican  farms  and  factories  are  moving 
abroad  tlirough  many  channels  to  aid  the  sick  and 
tlie  hungry,  to  plant  the  land  and  rebuild  the  cities, 
and  to  start  again  the  wheels  of  production  and 
trade.  They  are  moving  through  the  machinery 
of  UNKRA,  through  direct  procurement  here  by 
foreign  governments  and  importers,  and  under  re- 
construction loans  made  by  the  Export-Import 
Bank.  Goods  will  begin  to  move  before  long  under 
credits  extended  by  the  International  Bank  feu- 
Reconstruction  and  Development,  to  whose  treas- 
ury the  United  States  is  the  largest  contributor. 

Let  us  turn  now  to  the  longer-run  problems,  to 
the  problems  of  employing  foreign  economic  policy 
to  expand  trade  and  promote  prosperity.  Pros- 
i:)erity  abroad  is  dependent  on  the  state  of  foreign 
trade  to  a  much  greater  degree  than  many  of  us 
realize.  For  many  countries,  thriving  foreign 
trade  means  prosperity  and  stagnant  international 
trade  means  severe  distress.  Several  countries  nor- 
mally derive  more  than  a  quarter  of  their  total 
national  income  from  their  foreign  trade.  Some 
countries  derive  more  than  half  of  their  income 
from  foreign  trade.  The  figures  run  all  the  way 
up  to  C)7  percent,  wliich  is  the  figure  for  Norway. 
It  is  not  an  exaggeration  to  say  that  economic  well- 
being  and  political  stability  abroad  will  depend 
largely,  in  tlie  years  to  come,  on  the  state  of  inter- 
national trade. 

Our  unparalleled  economic  strength  and  our 
position  in  world  trade  demand  that  the  United 
States  take  tlie  lead  in  an  efi'ort  to  put  the  trade 


of  the  world  back  on  a  healthy  basis.  Great 
Britain,  leader  of  the  greatest  international  trad- 
ing area  in  tlie  world,  is  prepared  to  assume  full 
partnership)  with  us  in  this  high  enterprise  pro- 
vided we  can  assist  lier  tliroughout  the  next  criti- 
cal three-  or  four-j-ear  period  of  reconversion  from 
war  to  peace.  To  tliis  end,  we  have  negotiated  a 
financial  agreement  with  the  United  Kingdom. 
This  agreement  is  now  before  the  Congress  for  ap- 
proval. We  consider  it  the  key  to  our  entire  for- 
eign economic  policy.  If  that  policy  is  to  have  a 
fair  cliance  of  success  it  is  essential  that  the  Con- 
gress approve  this  agreement. 

If  world  trade  is  to  become  a  highway  of  peace, 
we  and  other  peace-loving  nations  must  foreswear 
the  use  of  the  tactics  of  economic  nationalism  which 
turned  the  international  economy  into  a  jungle  in 
tlie  period  between  the  two  wars.  We  must  not 
again  permit  trade  to  be  strangled  in  a  web  of 
excessive  tariffs,  quotas,  embargoes,  preferences, 
subsidies,  licenses,  exchange  controls,  clearing 
agreements,  barter  deals,  and  discriminations  of  all 
kinds.  The  Hawley-Smoot  tariff  of  1!);',(),  the 
highest  in  our  history,  was  passed  in  sulilime  disre- 
gard of  its  effect  on  foreign  countries.  This  tariff 
act  caused  serious  injury  to  foreign  economies,  and 
brought  numerous  heavy  reprisals  and  retaliations. 

The  trade  practices  which  prevailed  in  the  193U"s 
have  been  aptly  described  as  "beggar  my  neighbor" 
policies.  Each  nation  tried  to  improve  its  own 
position  at  the  expense  of  its  neighbors.  The  net 
effect  of  these  practices  was  to  depress  living  stand- 
ards, to  engender  ill-will  among  nations,  and  to 
contribute  to  the  political  and  economic  instability 
of  the  decade. 

International  trade  will  contribute  to  prosperity 
and  well-being  to  the  extent  that  it  is  organized 
within  a  framework  which  will  advance  the  inter- 
national division  of  labor  and  minimize  trade  dis- 
criminations. A  plan  to  establish  such  a  frame- 
work is  contained  in  our  Proposals  for  Expansion 
of  World  Tra/le  and  Employnvent,  which  were 
worked  out  in  preparation  for  the  forthcoming 
AVorld  Conference  on  Trade  and  Employment. 
The  Proposals  represent  what  we  believe  to  be  an 
effective  and  realistic  framework  for  a  concerted 
international  attack  on  the  restrictions  and  dis- 
criminations which  hobbled  world  trade  before  the 
war.  They  would  achieve  in  the  field  of  interna- 
tional trade  what  the  Bretton  Woods  agreements 
should  achieve  in  the  field  of  monetarv  and  ex- 


APRIL  21,  1946 


681 


eliaiiyi'  problems;  in  fact,  tlie  Proposals  are  de- 
signed to  dovetail  with  and  to  supplement  the  Bret- 
ton  Woods  agreements.  The  Proposals  contem- 
plate the  establishment  of  an  International  Trade 
Organization,  which  would  be  tied  into  the  United 
Nations  tlirough  the  Economic  and  Social  Coun- 
cil, and  the  adherence  by  all  members  to  a  detailed 
charter,  which  would  establish  rules  of  trading 
])olicy  and  conduct. 

These  are  the  princiiDal  lines  of  action  which 
should  be  followed  in  the  interests  of  prosperity 
and  rising  standards  of  living  for  all  peoples 
everywhere.  The  position  of  responsibility  and 
leadership  which  the  United  States  occupies  in  the 
world  demands  that  we  vigoi-ously  pursue  the 
achievement  of  these  ends.  They  are  not  only 
good  in  themseh'es,  but  their  realization  will  im- 
prove the  chances  that  this  peace  will  endure. 


Answer  to  Inquiries  on  German- 
Owned  Factories  in  Spain 

[Released  to  the  press  April  1 1  ] 

hi  (inswe/-  to  inquiries  concei^ning  press  dispatches 
alleging  that  the  Department  of  State  had  uncov- 
ered Nazi  atomic  plants  in  Spain,  the  De partment 
issued  the  following  statement: 

The  Department  of  State  has  no  information 
that  German-owned  factories  in  Spain  are  working 
on  atomic  research.  The  Department  does  know 
of  German-owned  factories  in  Spain,  particularly 
in  Bilbao,  but  has  no  information  that  these  or 
any  other  plants  in  Spain  are  being  used  in  con- 
nection with  atomic-energy  projects. 

The  Department  has  information  that  2.200 
Germans  classified  as  obnoxious  remain  in  Spain 
and  hopes  for  further  cooperation  from  the  Span- 
ish Government  in  removing  them.  Included 
among  these  are  certain  technicians,  but  the  De- 
partment has  no  specific  information  as  to  their 
individual  skills.  Their  repatriation  to  Germany 
is  being  sought  because  they  took  part  in  activities 
aiding  the  German  war  effort.  The  names  of  all 
obnoxious  Germans  in  Spain  known  to  the  Amer- 
ican and  British  Governments  have  been  given 
and  are  being  given  to  the  Spanish  Government, 
together  with  tlieir  addresses  when  known. 


Commendation  to  Generals 
McNarney  and  Clay  on 
German  Industry  Settlement 

[ Released  to  the  press  April  12] 

Text  of  a  letter  of  commendation  sent  by  Acting 
Secretary  of  State  Dean  Acheson  to  Secretary  of 
War  Robert  P.  Patterson  concerning  the  part 
played  by  Gen.  Joseph  T.  McNarney  and  Gen. 
Lucius  D.  Clay  in  the  successful  negotiation  of 
the  level-of-industry  settlement  recently  agreed 
by  the  four  occupying  powers  in  the  Allied  Con- 
trol Council  in  Berlin 

April  o.  1946 
My  Dear  Mr.  Patterson  : 

I  should  like  to  exj^ress  to  you  my  gratification 
at  the  part  played  by  General  McNarney  and  Gen- 
eral Clay  in  the  successful  negotiation  of  the  level 
of  industry  settlement,  recently  agreed  by  the  four 
Occupying  Powers  in  the  Control  Council,  Berlin.' 
The  tei'ms  of  that  settlement  conform  closely  to  the 
conception  of  this  government  with  respect  to  the 
appropriate  interpretation  of  the  Potsdam  Agree- 
ment. They  appear  to  satisfy  the  agreed  require- 
ments with  respect  to  security  and  reparations,  and 
at  the  same  time  to  promise  the  Germans  the  pos- 
.sibility  of  an  adequate  and  rising  standard  of  liv- 
ing, when  present  acute  problems  of  fuel,  food,  and 
trans^jort  are  solved. 

I  appreciate  fully  that  this  negotiation  was  tech- 
nically comf)lex  and  required  the  resolution  of 
widely  conflicting  national  viewpoints.  The  vig- 
orous and  constructive  role  played  by  the  Ameri- 
can element  in  the  achievement  of  quadripartite 
agreement  appears  to  me  woithy  of  the  high  com- 
mendation of  the  government. 

Would  you  convey  my  congratulations  in  this 
matter  to  General  MacNarney,  General  Clay,  and 
their  staff. 

Sincerely  yours, 

Deax  Achesox 
Acting  Secretary 

The  Honorable 

Robert  P.  Patterson, 
Secretary  of  War. 


'  BuTLLETiN  of  Apr.  14,  1946,  p. 


636. 


682 


DEPARTMENT  OF  STATE  BULLETIN 


Answer  to  Soviet  Inquiry 
on  Charges  Against 
Lieutenant  Redin 

Statement  issued  by  the  Department  on  April  9 

The  Soviet  Embassy  on  April  6  inquired  of  the 
Department  of  State  regarding  the  arrest  of  Lt. 
Nicohxi  G.  Redin  at  Portland,  Oregon,  on  jNIareli 
26,  1946.^  The  Soviet  Embassy  indicated  that  ac- 
cording to  its  information  there  is  no  foundation 
for  the  charges  brought  against  Lieutenant  Redin. 
It  therefore  asked  that  the  case  be  dropped  since 
Lieutenant  Redin  was  innocent  of  the  chai-ges 
brought  against  him. 

The  Soviet  Embassy  was  informed  by  the  De- 
partment of  State  today  that  under  United  States 
juridical  procedure  the  decision  as  to  whether  any 
prosecution  should  be  brought  rests  with  the  De- 
partment of  Justice  and  tlie  appropriate  grand 
jury  and  not  with  the  Department  of  State.  The 
Embassy  was  also  assured  that  Lieutenant  Redin 
would  be  afforded  full  protection  under  American 
law  and  that  any  trial  would  be  just  and  fair. 

'  Lieutenant  Redin,  who  was  indicted  on  Apr.  8  by  a 
Federal  grand  jury  at  Seattle,  Wash.,  on  five  counts,  is 
charged  with  having  induced  an  unnamed  person  to  give 
him  data  on  the  submarine  tender  U.S.S.  Yellowstone. 

POLISH    PROPERTY-ro«/;»Hrd  from  page  070 

The  Provisional  Government  of  National  Unity 
states  that,  irrespective  of  the  procedure  to  be  fol- 
lowed in  the  future  in  granting  compensation  in 
accordance  with  the  provisions  of  the  law  of  Janu- 
ary 3,  194C,  there  is  no  doubt  that  United  States 
citizens  will  be  accorded  facilities  for  acquainting 
themselves  with  the  state  of  industrial  enterprises 
owned  by  them  in  Poland  before  September  1, 
1939. 

Eicphitiafory  Note  hy  State  Department 

AVith  a  view  to  facilitating  the  entry  into  Poland 
of  those  American  citizens  who  desire  to  inspect 
their  properties  there,  the  Department  of  State  is 
prepared  to  lend  its  assistance  in  transmitting  re- 
quests for  entry  permits  to  the  Polish  (iovem- 
ment  through  the  American  Embas.sy  at  Warsaw. 
Requests  for  entry  permits  should  be  nuide  when 
applying  for  passports. 


Resumption  of  Relations 
With  Haiti 

[Released  to  the  press  \\\v\\  8] 

The  Department  of  State  has  instructed  the 
Embass}^  at  Port-au-Prince  to  resume  diplomatic 
i-elations  with  the  Government  of  Haiti  on  April  8 
and  has  informed  the  Embassy  of  Haiti  in  Wash- 
ington in  the  sanae  sense. 

The  President  of  Haiti  resigned  on  January  11, 
19-tfi.  The  Cabinet  having  resigned  a  few  days 
earlier,  executive  power  was  assumed  provisionally 
by  a  Military  Executive  Committee  of  three  officers 
of  the  Garde  d'Haiti  headed  by  Colonel  Franck 
Lavaud.  The  committee  subsequently  dissolved 
the  two  legislative  chambers  and  decreed  national 
legislative  elections  for  May  12.  The  new  cliam- 
bers  are  expected  to  draft  a  new  constitution  and 
to  elect  a  President,  to  whom  the  Military  Execu- 
tive Committee  will  surrender  power.  The  com- 
mittee has  decreed  that  no  member  of  the  mili- 
tary may  be  a  candidate  in  these  elections,  and 
the  members  of  the  committee  have  stated  that 
they  themselves  are  not  candidates  for  the  presi- 
dency and  that  they  intend  to  retire  from  political 
activities  as  soon  as  power  can  be  assvuned  by  a 
constitutional  civilian  regime. 

Following  the  change  in  government  and  in  ac- 
cordance with  established  inter-American  proce- 
dures, consultations  regarding  recognition  were 
immediately  undertaken  among  the  American  re- 
publics last  January.  These  consultations  demon- 
strated general  agreement  that  the  change  of  gov- 
ernment in  Haiti  had  not  taken  place  through  Axis 
influence.  However,  a  number  of  governments 
expressed  reluctance  to  extend  recognition  in  view 
of  the  wholly  military  nature  of  both  the  Military 
Executive  Committee  and  the  Cabinet.  Recogni- 
tion was  accordingly  deferred  awaiting  further 
developments  which  have  now  included  the  sched- 
uling of  elections  next  month  and  the  disqualifica- 
tion of  the  military,  on  its  own  initiative,  from 
being  candidates  therein.  Subsequent  consulta- 
tions have  revealed  a  consensus  of  views  in  favor 
of  recognition  in  the  light  of  the  situation  as  set 
forth  above  and  the  fact  that  the  Military  Execu- 
tive Committee  («)  has  control  of  the  machinery 
of  government  and  of  the  country,  (&)  appears  to 
enjoy  the  full  support  of  the  Haitian  people,  and 
{c)  has  declared  its  intention  to  fulfil  its  inter- 
lujtional  obliffations  and  is  able  to  do  so. 


APRIL  21,  1946 


683 


Canada  Purchases 

U.  S.  Defense  Installations 

The  Governments  of  the  United  States  and 
Canada,  finding  it  mutually  advantageous  at  this 
time  to  expedite  and  simplify  the  procedure  relat- 
ing to  the  disposition  of  defense  facilities  and 
equipment  provided  in  Canada  by  the  United 
States,  have  accordingly  concluded  an  agreement 
for  the  purchase  by  the  Canadian  Government  for 
the  sum  of  $12,000,000  (U.  S.)  of  certain  defense 
installations  and  projects  and/or  equipment  and 
supplies  connected  therewith  owned  by  the  United 
States  Government  and  located  in  Canada  which 
liad  not  previously  been  transferred  to  Canada. 
Details  of  the  transaction  were  worked  out  by 
I'epresentatives  of  the  office  of  the  Field  Commis- 
sioner for  Foreign  Liquidation  for  Canada  and 
the  North  Atlantic  Areas  on  behalf  of  the  Depart- 
ment of  State  and  the  President  of  War  Assets 
Corporation,  Canada. 

The  installations  and  equipment  referred  to  in- 
clude those  located  along  the  Alaska  Highway  and 
Northwest  Staging  Route,  wartime  weather  sta- 
tions located  in  northeastern  Canada,  surplus 
movable  property  reported  by  the  United  States 
Government  to  War  Assets  Corporation  but  which 
has  not  been  sold,  and  certain  naval  and  air  equip- 
ment which  has  been  provided  the  United  King- 
dom under  lend-lease  and  which  when  returned  to 
United  States  account  remained  in  Canada.  The 
United  States  Government  will  endeavor  to  make 
available  to  Canada  such  surplus  equipment  to  be 
used  in  the  training  programs  of  the  Canadian 
armed  forces  as  may  be  desired  by  Canada  up  to 
April  1, 1947  in  such  quantities  and  at  such  prices 
as  may  be  negotiated  between  the  two  Governments 
up  to  a  maximum  cost  of  $7,000,000  (U.  S. ). 

Both  Governments  feel  that  this  agreement  is 
mutually  advantageous  and  that  its  conclusion 
r.gain  demonstrates  the  ability  of  the  United  States 
and  Canada  to  reach  by  negotiation  satisfactory 
and  beneficial  agreement  on  the  problems  of  the 
post-war  period.^ 

'  For  text  of  the  exchange  of  notes  between  the  U.  S.  and 
Canadian  Governments,  see  Department  of  State  press 
release  229  of  Apr.  8. 


Air-Transport  Agreement 
with  Belgium 

The  Department  of  State  on  April  9,  1946  re- 
leased to  the  press  the  text  of  the  air-transport 
agreement  concluded  between  the  Governments  of 
the  United  States  and  Belgium.  The  text  of  the 
agreement  follows  substantially  that  of  the  air- 
transport agreement  with  the  United  Kiitgdom, 
as  printed  in  the  Bulletin  of  April  7,  with  the 
exception  of  that  section  of  the  annex  which 
pi'ovides  for  the  air  routes  as  follows: 

"(Points  on  any  of  the  routes  may.  at  the  option 
of  air  carrier,  be  omitted  on  any  or  all  flights.) 

1.  Route  to  be  served  by  air  carriers  of  Bel- 
giiun : 

Belgium  to  New  York  by  a  direct  route  via  the 
British  Isles  and  other  intermediate  points;  in 
both  directions. 

2.  Routes  to  be  served  by  air  carriers  of  the 
United  States : 

(a)  The  United  States  to  Brussels  by  a  direct 
route  via  the  British  Isles  and  other  intermediate 
points  to  India  and  beyond;  in  both  directions. 

(b)  The  United  States  via  the  Azores  and  Da- 
kar (and  via  South  America)  and  intermediate 
points  to  Leopoldville,  and  beyond  via  interme- 
diate points,  to  the  Union  of  South  Africa;  in 
both  directions." 


Addresses  of  the  Week  on 
Inter- American  Cooperation 

Assistant  Secretary  Braden  addressed  the  For- 
eign Policy  and  Pan  American  Associations  on 
April  13, 194G  in  Philadelphia,  Pa.,  on  the  subject 
of  inter- American  cooperation  and  its  relation  to 
world  peace.  For  the  text  of  Mr.  Braden's  ad- 
dress, see  Department  of  State  press  release  237 
of  April  10.  For  an  address  on  inter-American 
collaboration  delivered  by  Joseph  F.  McGurk, 
American  Ambassador  to  the  Dominican  Repub- 
lic, before  the  Indianapolis  Chamber  of  Com- 
merce at  Indianapolis,  Ind.,  on  April  12,  see  De- 
partnient  of  State  press  release  210  of  April  10. 


684 


DEPARTMENT  OF  STATE  BULLETIN 


Interim  Arrangements  for  Air  Navigation  Facilities  Abroad 


[Released  to  the  press  by  the  White  House  March  29] 

Whereas  certain  air  navigation  and  aeronauti- 
cal communications  facilities  provided  by  the 
United  States  for  military  purposes  are  located  at 
{joints  in  foreign  territoi'y  and  elsewhere  outside 
the  continental  limits  of  the  United  States  where 
such  facilities  can  be  utilized  to  material  advan- 
tage in  the  oi:)eration  of  international  air  carriers 
of  the  United  States  and  of  other  nations;  and 

Whereas  it  is  desirable  that  temporary  provi- 
sion be  made  for  the  custody,  operation  and  main- 
tenance of  such  facilities  pending  the  completion 
of  arrangements  for  their  permanent  operation  or 
disposition : 

Now,  THEREFORE,  by  virtue  of  the  authority 
vested  in  me  by  the  Constitution  and  statutes, 
including  Title  I  of  the  First  War  Powers  Act, 
1941  (55  Stat.  838) ,  and  as  President  of  the  United 
States,  it  is  hereby  ordered  as  follows: 

1.  There  are  transferred  to  the  Department  of 
Commerce  all  functions  and  authority,  facilities, 
property,  records,  equipment  and  maintenance 
supplies  of  the  War  and  Navy  Departments  relat- 
ing to  the  care,  control,  maintenance  and  opera- 
tion, of  air-navigation,  air-traffic-control,  airway- 
communication,  and  meteorological  facilities  of 
tlie  United  States  Government  (including  compo- 
nents thereof  and  all  structures  and  equipment 
appurtenant  thereto  or  used  in  connection  there- 
with) which  (a)  are  located  at  points  in  foreign 
territory  and  elsewhere  outside  the  continental 
limits  of  the  United  States,  (h)  are  determined  by 
the  War  or  Navy  Departments,  as  the  case  may 
be,  to  be  no  longer  required  for  military  purposes, 
(c)  are  determined  by  the  Department  of  Com- 
merce to  now  be  or  to  be  likely  to  become  useful 
in  connection  with  the  safe  and  efficient  operation 
of  United  States  civil  aircraft  in  foreign  air  com- 
merce, and  (d)  can  be  continued  in  operation  with 
funds  available  to  the  Department  of  Commerce 
for  the  purpose. 

2.  The  Department  of  Commerce,  in  carrying 
out  the  {provisions  of  section  1  of  this  order,  and 
to  the  extent  permitted  by  law,  is  authorized  and 
empowered  to  make,  with  the  collaboration  and 

'  Exec-titive  Oi-<1pi-  0709 ;  11  Fedpial  Register  3389. 


aiDi:)roval  of  the  Department  of  State  when  the 
property  is  located  in  foreign  territory,  arrange- 
ments with  the  appropriate  agencies  of  the  respect- 
ive foreign  Governments,  or  with  an  appropriate 
international  agency,  or  with  any  air  carrier  or 
other  suitable  private  agencj',  for  the  interim  cus- 
tody, operation,  and  maintenance  of  facilities 
transferred  to  the  Department  of  Commerce  under 
the  provisions  of  this  order. 

3.  Tiie  Department  of  Commerce  is  authorize:!, 
on  behalf  of  the  United  States,  to  accept  funds 
from  any  foreign  Government  or  air  carrier  in 
payment  for  services  rendered  in  the  operation  of 
facilities  transferred  under  this  order,  which 
funds  shall  be  covered  into  the  general  fund  of 
the  Treasury. 

4.  The  functions  vested  in  the  Department  of 
Commerce  hereunder  may  be  {performed  by  the 
Secretary  of  Commerce  through  such  agencies  and 
personnel  of  the  Department  of  Commerce  and  in 
such  manner  and  subject  to  such  terms  and  condi- 
tions as  he  shall  determine. 

5.  The  provisions  of  this  order  shall  become 
effective  with  respect  to  the  facilities  and  equip- 
ment at  each  location  at  such  time  or  times  as 
may  be  agreed  upon  between  the  Department  of 
Commerce  and,  as  the  case  may  be,  the  War 
Department  or  the  Navy  Department. 

6.  The  provisions  of  this  order  shall  be  applic- 
able to  the  facilities,  propert_y,  and  functions 
transferred  by  Executive  Order  No.  9669  of  De- 
cember 28,  1945,  which  order  is  hereby  superseded. 

7.  The  provisions  of  this  order  shall  not  be  ap- 
plicable to  loran  or  other  sea  and  air  navigation 
facilities  now  operated  by  the  Coast  Guard,  nor 
to  any  functions  or  authority  of  the  Navy  Depart- 
ment respecting  such  facilities. 

8.  Such  further  measures  and  dispositions  as 
may  be  determined  by  the  Director  of  the  Bureau 
of  the  Budget  to  be  necessary  or  appropriate  to 
effectuate  the  provisions  of  this  order  shall  be 
taken  and  carried  out  at  such  time  and  in  such 
manner  as  he  shall  prescribe. 

Harry  S.  Truman. 
The  White  House, 

March  29.  WJ,G. 


AHRIL  21,  1946 


685 


Transfer  of  Corporations  of  OIAA  to  the  Department  of  State 


STATEMENT  BY  THE  PRESIDENT 


[Released  tu  the  press  by  the  White  House  April  loj 

I  have  today  signed  an  Executive  Oixler  trans- 
fei'iing  corporations  of  the  Office  of  Intcr-Aineri- 
can  Affairs  to  the  Department  of  State.  The  order 
terminates  the  Office  of  Inter-American  Affairs 
and  places  those  of  its  functions  involving  con- 
tinued cooperation  with  the  other  American  repub- 
li&s  in  a  regular  department  of  our  Government. 

The  Office  of  Inter-American  Affairs  has  made 
an  invaluable  contribution  to  our  victory.  It  has 
developed  a  new  pattern  of  international  relation- 
ships. Its  cooperative  programs  with  other  Amer- 
ican republics,  in  the  fields  of  health  and  sanita- 
tion, food  supply,  education,  transportation,  and 
hemisphere  economic  advancement,  serve  as  guides 


to  what  can  be  done  by  the  governments  every- 
where when  they  are  willing  to  cooperate  in  solv- 
ing problems  of  nnitual  interest  to  their  peoples. 

As  it  initiated  and  developed  programs  of  co- 
ordination and  cooperation  during  the  war-emer- 
gency years,  the  OIAA  progressively  transferred 
them  to  other  agencies  and  departments  for  their 
completion  or  continuation.  On  August  31,  1945, 
I  signed  Executive  Order  9t)08  ^  transferring  the 
information  functions  of  the  OIAA  to  the  Depart- 
ment of  State.  With  today's  order,  the  completion 
of  action  programs,  undertaken  by  the  OIAA 
through  its  corporations  to  implement  and  per- 
petuate our  good-neighbor  policy,  becomes  the  I'e- 
sponsibility  of  the  Department  of  State. 


STATEMENT  BY  THE  DEPARTMENT  OF  STATE 


[Iteleased  to  the  press  April  10] 

Responsibility  for  the  continued  performance  of 
the  extensive  liealth  and  sanitation,  agricultural 
and  educational  cooperative  programs  conducted 
in  the  other  American  republics  by  the  Office  of 
Inter-American  Affairs  has  been  intrusted  directly 
to  the  Secretary  of  State  under  an  Executive  order 
signed  today  by  President  Truman.  The.se  pro- 
grams were  not  carried  out  by  the  Office  of  Inter- 
Amei'ican  Aft'airs  itself  but  through  Government 
corporations  which  it  controlled.  The  cooperative 
health  and  sanitation  and  agricultural  programs 
were  conducted  through  the  mediiun  of  the  Insti- 
tute of  Inter- American  Affairs  and  the  cooperative 
educational  programs  through  the  Inter-Ameri- 
can Educational  Foundation.  Control  over  these 
corporations,  and  consequently  the  task  of  assuring 
the  successful  accomplishment  of  their  programs, 
is  now  vested  by  the  Executive  order  in  the  Secre- 
tary of  State.  The  transfer  will  in  no  way  affect 
the  continuous  and  smooth  functioning  of  the  cor- 
porations, M^hich  will  now  operate  dii'ectly  under 
the  auspices  of  the  Secretary  of  State. 


The  presidential  order  brings  to  a  close  any  di- 
rect o^Jerations  of  the  Office  of  Inter-American 
Affairs,  and  its  functions  are,  therefore,  termi- 
nated, except  for  those  necessary  to  insure  the 
orderly  disposition  of  its  personnel,  records,  funds, 
and  property  and  the  satisfactory  winding  up  of 
such  of  its  affairs  as  cannot  be  completed  befoi'e 
May  20, 1940,  the  effective  date  of  the  order.  Such 
reserved  functions  are  transferred  to  the  Depart- 
ment of  State  for  apjiropriate  action. 

The  Institute  of  Inter-American  Affairs  and  the 
Inter-American  Educational  Foundation  are  not 
the  only  corporations  operated  by  the  Office  of 
Inter-American  Affairs  whose  control  is  now  being- 
turned  over  to  the  Secretary  of  State  by  the  Presi- 
dent. Also  included  in  this  transfer  are  three 
other  corporations,  the  Inter-American  Transpor- 
tation Corporation,  the  Inter-American  Naviga- 
tion Corporation,  and  Prencinradio,  whose  pro- 
grams have  been  completed  with  the  exception  of  a 
transportation  program  in  Mexico  under  an  agree- 

■  Bulletin  of  Sept.  2,  1945,  p.  307. 


686 


DEPARTMENT  OF  STATE  BULLETIN 


meiit  with  the  Government  of  that  country  which  is 
scheduled  to  expire  on  June  30,  1946.  After  that 
date  tliese  corporations  will  be  devoted  only  to 
winding  up  their  affairs. 

In  assuming  this  responsibility,  delegated  by 
the  President,  it  is  the  purpose  of  the  Depart- 
ment of  State  to  insure  the  successful  perform- 
ance, under  conditions  of  peacetime  economy  and 
efficiency,  of  the  highly  important  cooperative 
programs  of  the  Institute  of  Inter-American  Af- 
fairs and  the  Inter-American  Educational  Foun- 
dation, for  which  commitments  have  been  given 
to  the  other  American  republics.  Funds  for  the 
accomplishment  of  these  programs  are  derived 
from  congressional  appropriations  under  the  con- 
tract authority  granted  by  Congress  in  1944  and 
by  means  of  contributions  received  from  the  gov- 
ernments of  the  other  American  republics  in 
whose  countries  cooperative  programs  are  being 
carried  out.  Consequently,  no  interruption  or 
alteration  in  the  vigorous  and  sustained  prosecu- 
tion of  these  programs  is  envisioned. 

These  Government  corporations,  control  over 
which  is  being  vested  in  the  Secretary  of  State, 
are  non-profit  membership  corporations.  The 
Secretary  of  State  will  designate  the  members  of 
the  corporations  (who  are  the  equivalent  of  stock- 
holders in   a   commercial   corporation)    and  will 


nominate  the  members  of  the  board  of  directors 
of  each  corporation.  It  is  expected  that  identical 
members  and  directors  will  be  thus  designated  for 
the  corporations,  thus  assuring  uniformity  of 
policy  control  and  a  maximum  of  coordination  in 
the  development  of  their  various  programs.  Rep- 
resentatives of  the  diiferent  offices  of  the  Depart- 
ment of  State  concerned  with  the  progress  of  the 
cooperative  programs  of  the  corporations  will  be 
included  in  the  management  of  the  corporations. 
In  this  way  the  cultural  programs  of  the  Dejiart- 
ment  under  Assistant  Secretary  for  Public  Ati'airs 
Benton,  the  economic  programs  under  Assistant 
Secretary  for  Economic  Affairs  Clayton,  will  re- 
ceive full  representation  under  the  policy  control 
of  Assistant  Secretary  for  American  Republic 
Affairs  Braden  on  the  boards  of  the  corporations. 
The  complete  and  successful  jierformance  of  the 
cooperative  health  and  sanitation  and  agricultural 
jirograms  of  the  Institute  of  Inter- American  Af- 
fairs and  the  cooperative  educational  programs 
of  the  Inter- American  Educational  Foundation 
has  the  firm  and  decided  backing  of  the  Depart- 
ment of  State.  By  contributing  through  mutual 
collaboration  to  the  improvement  of  living  stand- 
ards and  the  general  welfare  of  the  people  of  the 
Americas,  they  serve  to  fulfil  basic  aspirations 
of  the  good-neighbor  policy. 


EXECUTIVE  ORDER  9710 


Tekmixating  the  Ornt'E  or  Inter-American  Af- 
fairs AND  Transferring  Certain  of  Its  Func- 
tions 

By  virtue  of  the  authority  vested  in  me  by  the 
Constitution  and  statutes,  including  Title  I  of  the 
First  AA'ar  Powers  Act,  1941,  and  as  President  of 
the  United  States,  it  is  hereby  ordered  as  follows: 

1.  The  Office  of  Inter-American  Affairs  (estab- 
lished as  the  Office  of  Coordinator  of  Inter-Ameri- 
can Affairs  by  Executive  Order  No.  8840  of  July 
30, 1941,  and  renamed  the  Office  of  Inter-American 
Affairs  by  Executive  Order  No.  9532  of  March  23, 
1945),  hereinafter  referred  to  as  the  Office,  is  ter- 
minated. 

2.  Thei'e  are  transferred  to  the  Secretary  of 
State  all  functions  of  the  Director  of  the  Office  with 
I'esjiect    to    the    following-named    corporations, 

'  11  Federal  Register  3941. 


namely,  the  Institute  of  Inter-American  Affairs, 
the  Inter-American  Educational  Foundation,  Inc., 
the  Institute  of  Inter-American  Transportation^ 
the  Inter-American  Navigation  Corporation,  and 
Prencinradio,  Inc.,  together  with  all  rights  and 
interests,  authority,  and  obligations  of  the  Director 
and  of  his  predecessors  with  respect  to  such  cor- 
porations. All  other  functions  of  the  Director  are 
terminated.  The  Director  shall,  prior  to  the  effec- 
tive date  of  this  order,  take  such  steps  as  may  be 
appiopriate  and  necessary  on  his  part  to  effectuate 
the  provisions  of  this  order,  including  the  turning 
o^  er  to  the  Secretary  of  State  of  the  capital  stock 
of  the  said  corporations. 

3.  There  are  transferred  to  the  Department  of 
State  (a)  all  of  the  functions  of  the  Office  with 
respect  to  the  aforesaid  corporations,  (b)  the  duty 
of  winding  up  any  affairs  relating  to  the  Office  and 
functions  terminated  by  this  order  which  shall  re- 
main unliquidated  on  the  effective  date  of  this  or- 


APRIL  21,  1946 


687 


der,  (c)  the,  records,  property,  and  funds  of  the 
Office,  and  (d)  so  much  of  the  personnel  of  tlie 
Office  as  shall  remain  therein  on  the  effective  date 
of  this  order.  All  other  functions  of  the  Office 
are  terminated. 

4.  As  soon  as  possible  after  the  promul<>ation  of 
this  order  the  Secretary  of  State  shall  furnish  the 
Director  of  the  Office  a  list  of  such  of  the  personnel 
of  the  Office  as  the  Secretary  shall  determine  to 
be  required  by  the  Department  of  State  for  the 
pui'pose  of  carrying  out  the  provisions  of  this  or- 
der; and  the  Director  shall,  prior  to  the  effective 
date  of  this  order,  separate  from  the  service  or 
ti'ansfer  to  other  Government  agencies  the  person- 
nel of  the  Office  excluded  from  such  personnel  list. 

5.  Except  as  otherwise  provided  in  this  order, 
the  provisions  hereof  shall  take  effect  as  of  the 
opening  of  business  May  20, 1946. 

6.  All  provisions  of  prior  Executive  orders  in 
conflict  with  this  order  are  amended  accordingly. 

Harry  S.  Truman 
The  White  House, 
April  10, 19^6. 


Mexican  Educator 
Visits  U.S. 

[Released  to  the  press  Ai>ril  10] 

Adela  Formoso  de  Obregon  Santacilia,  founder 
and  president  of  the  University  for  Women  of  the 
National  University  of  Mexico,  is  now  in  the 
United  States  at  the  invitation  of  the  Department 
of  State  to  study  university  administration  and 
educational  institutions  for  women  in  this  country. 
She  is  also  interested  in  observing  methods  in  this 
country  for  the  prevention  of  blindness.  She 
plans  to  spend  three  months  in  the  United  States, 
visiting  educational  and  social-welfare  centers  in 
AVashington,  Richmond.  Philadelphia,  New  Yoik, 
Boston,  Detroit,  Ann  Arbor,  and  Chicago. 

In  addition  to  her  work  in  founding  and  direct- 
ing the  University  for  Women,  the  first  institution 
of  higher  learning  for  women  in  Mexico.  Sehora 
de  Obregon  has  been  one  of  the  princijjal  organ- 
izers of  many  other  organizations  for  the  further- 
ing of  women's  education  and  social-welfare  work 
in  her  country. 


Funds  for  the  Department's 
Intelligence  Program 

STATEMENT  BY  THE  SECRETARY  OF  STATE 

[Released  to  the  press  April  11] 

The  Secretary  of  State  announced  on  April  11 
his  intention  to  seek  a  restoration  of  the  sum  of 
$4,150, i;3r.  for  the  Department's  mtelligence  pro- 
gram which  had  been  eliminated  from  its  1947 
budget  by  the  House  Appropriations  Committee. 
The  Secretary  stated : 

"I  cannot  stress  too  strongly  my  tirm  conviction 
tliat  a  well-organized  research  and  intelligence 
service  in  the  Department  working  in  close  col- 
laboration with  the  intelligence  services  of  the 
Army  and  the  Navy  and  the  newly  established  Na- 
tional Intelligence  Authority  is  not  only  an  essen- 
tial instrumentality  in  the  conduct  of  our  national 
policy  but  represents  a  vital  element  of  our  national 
security  system.  The  failure  of  the  House  Appro- 
priations Committee  to  appropriate  any  funds  for 
this  service  makes  it  impossible  for  the  Department 
to  undertake  even  a  modest  foreign  intelligence 
program,  and,  of  course,  virtually  precludes  any 
effective  collaboration  on  the  part  of  the  Depart- 
ment with  the  National  Intelligence  Authority  es- 
tablished by  the  President  on  January  2'2.  I  am 
hopeful  that  adequate  funds  for  intelligence  pur- 
poses will  be  voted  by  the  Senate  and  ultimately 
agreed  upon  in  conference." 


The  Foreign  Service 


Consular  Offices 

The  American  Consulate  General  at  Mukden,  Man- 
churia, was  opened  to  the  public  on  March  27,  1946. 

Tlie  American  Consulate  at  Bremen,  Germany,  was 
reestablished  on  April  2,  1946. 

Confirmations 

On  March  27,  1946  the  Senate  confirmed  the  nomina- 
tion of  W.  Averell  Harriman  to  be  Ambassador  Extra- 
ordinary and  Plenipotentiary  of  the  United  States  of 
America  to  Great  Britain. 

On  April  11,  1946  the  Senate  confirmed  the  nomination 
of  (ieorge  S.  Messersmith  to  be  Ambassador  Extraordinary 
and  Plenipotentiary  of  the  United   States  to  Argentina. 


688 


DEPARTMENT  OF  STATE  BULLETIN 


Publications 

of  the  DEPARTMENT  OF  STATE 

For  sale  by  the  Su})eriiife>i(lcut  of  Documents,  Government 
Printing  Office.  Washington  25,  D.  C.  Address  requests 
direct  to  the  Superintendent  of  Documents,  except  in  the 
case  of  free  publications,  which  may  be  obtained  from 
the  Department  of  State. 

A  Report  on  the  International  Control  of  Atomic 
Energy,      Pub.  2498.  xiii,  61  pp.     20^. 

Report  in-epared  for  the  Secretary  of  State's  Com- 
mittee on  Atomic  Energy  by  a  Board  of  Consultants, 
March  16,  1946. 

Charter  of  the  United  Nations,  Pub.  2472.  2  p\). 
Free. 

A  poster  containing  tlie  preamble  and  text  of  the 
United  Nations  Charter,  and  facsimile  signatures  of 
the  American  Delegation  and  of  the  chairmen  or  lead- 
ing members  of  other  delegations  to  the  San  Fran- 
cisco conference. 

Why  Lend  to  Britain  ?  Address  by  Clair  Wilcox, 
Director,  Office  of  International  Trade  Policy,  De- 
partment of  State,  January  1946.  Commercial 
Policy  Series  82.    Pub.  2468.    20  pp.  5^*. 

An  explanation  of  United  States  proposals  for  the 
expansion  of  world  trade  and  employment,  with  spe- 
cific reference  to  the  jiroposed  loan  to  the  United 
Kingdom. 

The  Credit  to  Britain — The  Key  to  Expanded 
Trade,  Address  by  Dean  Acheson,  Under  Sec- 
retary of  State,  February  1,  1946.  Commercial 
Policy  Series  83.    Pub.  2469.    16  pp.  10^*. 

An  address  explaining  the  importance  of  the  proposed 
loan  agreement  with  the  United  Kingdom, 

The  Credit  to  Britain  and  World  Trade.  Ad- 
dress by  Dean  Acheson,  Under  Secretary  of  State, 
February  19.  1946.  Commercial  Policy  Series  84. 
Pub.  2477.    21  pp. 

An  addi'i'ss  explaining  the  dependen<-y  of  free  trade  on 
Britain's  ability  to  participate. 

The  British  Loan.  Message  of  President  Tru- 
man to  tlie  Congress,  January  30,  1946.  Address 
by  Secretary  of  State  Byrnes,  February  11,  1946. 
Commercial  Policy  Series  8.").  Pub.  248.").  26  pp. 
10^. 

Message  of  the  President  transmitting  the  financial 
agreement  to  Congress  and  reconniiending  its  imple- 


mentation. Address  by  Secretary  Byrnes  explaining 
the  interdependence  of  the  world  economy  and  answer- 
ing objections  to  the  financial  agreement. 

"the  defenses  of  peace":  Documents  Relating  to 
UNESCO,  the  United  Nations  Educational,  Sci- 
entific   and    Cultural    Organization.       Part    II. 

Conference  Series  81.     Pub.  247.5.    r)8  pp.    15^. 

Contains  background  report  of  the  London  confer- 
ence for  the  establishment  of  UNESCO;  .summary 
and  analysis  of  UNESCO ;  selected  quotations  from 
iiddres.ses  at  plenary  sessions  of  the  London  confer- 
ence ;  congressional  resolutions,  194.5 ;  provisions  of 
the  Charter  of  the  United  Nations  applicable  to 
UNESCO:  text  of  article  I  (Purposes  and  Functions) 
as  approved  by  Commission  I. 

Address  by  the  Honorable  James  F.  Byrnes,  Sec- 
retary of  State.  February  28,  1946.  Pub.  2492. 
14  pp.     5^. 

Statement  of  the  necessity  of  cooperation  among 
states  in  order  to  maintain  peace;  the  United  States 
and  other  nations  must  defend  the  principles  of  and 
accept  their  responsibilities  under  the  Charter  of  the 
United  Nations. 

The  United  States  and  the  United  Nations,  Cou- 
ference  Series  82.    Pub.  2484.    x,  54  pp.     15^. 

Report  of  the  United  States  Delegation  to  the  first  part 
of  the  first  session  of  the  General  Assembly  of  the 
United  Nations,  London,  England,  .January  10-Feb- 
ruary  14,  1946.  Submitted  to  the  President  of  the 
United  States  by  the  Secretary  of  State. 

Consultation  Among  the  American  Republics 
With  Respect  to  the  Argentine  Situation,     luter- 

American  Series  29.     Pub.  2473.     86  pp.     20^:-. 

Memorandum  of  the  United  States  Government  ex- 
plaining the  military,  political,  social,  and  economic 
aspects  of  Argentine-Nazi  complicity :  analysis  and 
comment  on  the  Nazi-I<\iscist  character  of  the  Argen- 
tine regime. 

The  Spanish  Government  and  the  Axis,     Euro- 
pean Series  8.    I'ub.  2483.    39  pp.    lov*. 

A  collection  of  15  official  documents,  including  letters 
exchanged  between  General  Franco  and  Mussolini,  be- 
tween Hitler  and  General  Franco. 

A  cumulative  list  of  the  pub/icatloii.s  of  the  De- 
partment of  State,  from  Oct.  1,  192.9  to  Jan.  1. 
1946  (pub.  24^4),  may  he  obtained  from  the  De- 
partment of  State. 


PUBLISHED    WITH     APPROVAL    OF    DIRECTOR    OF    BUREAU    OF    THE    BUDGET 
0.  S    GOVERNMENT  PRINTING   OFFICE:  1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  356 


APRIL  28,  1946 


America's  Solemn  Obligation  in  World  Famine  Crisis 


Addresses  by  THE  PRESIDENT,  FIORELLO  LA  GUARDIA 
and  HERBERT  HOOVER  


page  716 


Transition  From  League  of  Nationsb  to  United  Nations 

Article  )).v  HENRY  REIFF page  691 

German  Documents  on  Invasion  of  Norway,  1940    page  599 


The  ILO  Coal  Mining  Committee 


Article  ))y  MURRAY  ROSS 


American  News  Abroad 

Bv  ASSISTANT  SECRETARY  BENTON 


page  704 


page  722 


For  complete  contents 
see  inside  cover 


^©NX    o^ 


U.  S.  SUPERINTENDENT  OF  DOCUMENTS 


THE  DEPAKTMEINT  OF  STATE 


BULLETIN 


Vol.  XIV  •No  35G 


Publication  2519 


April  28,  1946 


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JUN  19  l^P 

Contents 


Page 

Transition  from  League  of  Nations  to  United  Nations. 

Article  by  Henry  Reiff 691 

German  documents  on  the  invasion  of  Norway,  1940  ....  699 
Tlie  ILO  Coal  Mming  Committee. 

Article  by  Murray  Ross 704 

The  United  Nations 

Meeting  of  the  Security  Council: 

Discussion  of  Soviet-Iranian  Matter 706 

Discussion  of  Present  Regime  in  Spain 709 

International  Organizations  and  Conferences 

Calendar  of  Meetings 711 

Activities  and  Developments: 

Council  of  Foreign  Ministers 711 

The  Far  Eastern  Commission 712 

The  United  States  Delegation  to  the  Fir.st  Meeting  of  the 
International  Labor  Organization  Industrial  Committee 

on  Iron  and  Steel 712 

The  United  States  Delegation  to  the  European  and  Mediter- 
ranean Air  Route  Service  Conference 713 

The  International  Cotton  Advisorv  Committee 714 

UNESCO " 714 

♦Bermuda  Telecommunications  Agreement 714 

*Aviation  Agreements:   Peru,  United  Kingdom,  Venezuela, 

Philippines,  Greece 715 

The  Record  of  the  Week 

America's  Solemn  Obligation  in  \^'orld  Famine  Crisis: 

Address  by  the  President 716 

Address  by  the  Director-General  of  UNRRA 716 

Address  b^'  Herbert  Hoover 717 

Individual   Liberty — A    Pan-American   Ideal.     By    President 

Truman 720 

American  News  Abroad.     By  Assistant  Secretary  Benton   .    .        722 
Establishment    of    Diplomatic    Relations    With    Yugo.slavia: 
Notes  From  the  Secretary  of  State  to  tlie  Yugoslav  Charge 

d' Affaires 728 

Addresses  of  the  Week 728 

Claims   for   American   and   Other    Foreign    Property    in   the 

Netherlands 729 

Czechoslovakia-Siam  Status  in  Relation  to  the  War   ....        730 

LT.S.  Liberty  Ships  Load  Russian  Grain  for  France 730 

Letters  of  Credence:   Paraguay,  Venezuela 730 

Vi.sit  to  Greece  of  the  U.S.S.   Missouri 731 

Cen.sorship  Procedure  for  American  Correspondents  in  Mos- 
cow             731 

Dispatches  of   Foreign   Correspondents   To   Be   Censored   m 

Tehran 731 

PAU   Committee   To   Draft  Treaty   Proposals  for   Rio   Con- 
ference:   Adojition   of   Resolution   of   Assistant  Secretary 

Braden 732 

Removal  of  Alien  Enemies 732 

Lend-Lease  and  Surplus  Property  Settlement  With  India   .    .        733 

•Treaty  inf.irmation. 

{Continued  on  page  736) 


Transition  From  League  of  Nations  to  United  Nations 


Article  by  HENRY  REIFF 


10NG  BEFORE  the  United  Nations  Conference  on 
J  International  Organization  met  at  San  Fran- 
cisco in  the  spring  of  1945  it  was  evident  that 
establishment  of  a  new  general  organization 
would  necessitate  the  termination  of  the  League 
of  Nations.  Aside  from  obvious  political  con- 
siderations, the  presence  among  the  51  United  Na- 
tions of  32  League  members  suggested  the  desira- 
bility of  a  speedy  elimination  of  dual  burdens 
and  of  possible  conflicting  obligations.  In  the 
generation  since  World  War  I  the  fvmctions,  ac- 
tivities, powers,  and  duties  of  the  League  had  pro- 
liferated amazingly  both  under  the  Covenant^ 
and  in  pursuance  of  several  hundred  separate 
treaties  entrusting  matters  to  the  League.^  Dur- 
ing World  War  II  the  League  had  ceased  to  per- 
form most  of  its  political  functions,  but  it  still 
carried  on  humanitarian  and  economic  work  of 
universal  importance  at  Geneva,  London,  Wash- 
ington, and  Princeton.*  The  Permanent  Court 
of  International  Justice,  with  its  seat  at  The 
Hague,  and  the  International  Labor  Organization, 
functioning  at  Geneva  and  Montreal,  both  depend- 
ent upon  the  League  in  various  ways,  were  still  in 
being.  It  was  generally  felt  that  on  dissolution 
of  the  League  there  should  be  as  little  interrup- 
tion as  possible  in  the  performance  of  the  non- 
political  and  technical  work.  Termination  of  the 
League  also  would  require  severance  of  the  inter- 
ests of  the  International  Labor  Organization, 
whatever  the  ultimate  disposition  of  that  organi- 
zation might  be.  Establishment  of  the  seat  of 
the  new  International  Court  of  Justice  at  The 
Hague  ^  indicated  the  desirability  of  using  the 
premises  occupied  by  the  old  Court.  This  pro- 
cedure would  involve  also  some  negotiation  with 
the  League.  To  these  several  ends,  therefore,  the 
conference  at  San  Francisco  in  the  Interim  Ar- 
rangements adopted  June  26,  19-15 "  directed  the 
Preparatory  Commission,  among  its  other  tasks, 


to  "formulate  recommendations",  for  presenta- 
tion to  the  first  General  Assembly  of  the  United 
Nations,  "concerning  the  possible  transfer  of  cer- 
tain functions,  activities,  and  assets  of  the  League 
of  Nations  which  it  may  be  considered  desirable 
for  the  new  Organization  to  take  over  on  terms 
to  be  arranged". 

The  United  Nations  Committees 

In  pursuance  of  this  mandate,  and  in  further 
execution  of  the  purposes  involved,  a  series  of  five 
committees  of  the  United  Nations  have  dealt  suc- 
cessively with  the  problem  of  transfer,  each  carry- 
ing the  process  of  solution  a  few  steps  further: 

1.  Committee  9  of  the  Executive  Committee,  14 
members,  whose  report  was  adopted  bj'  the  Execu- 
tive Committee  October  12,  1945.' 

'  Dr.  Reiff  is  an  officer  in  the  Division  of  International 
Organization  Affairs,  Office  of  Special  Political  Affairs, 
Department  of  State.  He  served  as  a  Tecbnical  Expert 
with  the  Delegation  of  the  United  States  to  the  United 
Nations  Conference  on  International  Organization  at  San 
Francisco.  Part  II  of  this  article  will  appear  in 
Bulletin  of  May  5. 

'  Essential  Facts  about  the  League  of  Nations  ( Infor- 
mation Section,  Geneva,  1939,  10th  ed.,  revised)  ;  D.  P. 
Myer.s,  Handbook  of  the  League  of  Nations  (Boston,  1935). 

^  Poioers  and  Duties  Attributed  to  the  League  of  Nations 
by  International  Treaties  (League  of  Nations,  C.3.M.3. 
1944. V,  Geneva,  July  1944)  ;  List  of  Conventions  with 
Indication  of  the  Relevant  Articles  Conferring  Powers  on 
the  Organs  of  the  League  of  Nations  (League  of  Nations, 
C.100.M.100.ie4.5V,  Geneva,  Sept.  1945). 

'  Report  on  the  Wo^rk  of  the  League  During  the  War, 
submitted  to  the  Assembly  by  the  Acting  Secretary-Gen- 
eral (Geneva,  Oct.  1945,  A.G.1946). 

°  Statute  of  the  International  Court  of  Justice,  art.  22. 

"Par.  4  (c). 

'PC/EX/96,  Oct.  13,  1945;  Report  bit  the  Executive 
Committee  to  the  Preparatory  Commission  of  the  United 
Nations,  Nov.  12,  1945,  part  II,  see.  IX,  and  part  III,  ch. 
IX.  The  Executive  Committee  sat  in  London,  Aug.  16  to 
Nov.  24,  1945. 


691 


692 


DEPARTMENT  OF  STATE  BULLETIN 


2.  Coiuiaittee  7  of  the  Preparatory  Conuuission, 
51  members,  whose  report  was  adopted  by  the  Pre- 
paratory Commission  December  18,  1015.** 

3.  A  small  special  (interim)  committee  of  eiglit 
members,  appointed  at  the  conclusion  of  the  labors 
of  the  Preparatory  Commission  to  enter  on  its 
behalf  into  discussion  with  the  Leajrue  of  Nations 
Supervisory  Commission  for  tlie  purpose  of 
establisliing  a  common  plan  for  the  transfer  of  the 
assets  of  the  League.''  This  committee  operated 
in  the  interval  between  the  meetings  of  the  Pre- 
paratory Commission  and  the  first  part  of  tlie  first 
General  Assembly  and  also  during  that  first  part. 
It  reported  on  February  1, 1946  to  the  ad  hoc  Com- 
mittee on  the  League  of  Nations  established  by  tlie 
General  Assembly.^" 

4.  An  ad  hoc  Committee  on  the  League  of  Na- 
tions, established  by  the  first  part  of  the  first 
General  Assembly,"  51  members,  whose  report, 
including  the  Common  Plan,  was  adopted  by  the 
General  Assembly,  February  12,  lOlti.'- 

5.  A  small  negotiating  committee  of  eight  mem- 
bers set  up  by  the  General  A.ssembly  in  pursuance 
of  the  report  of  the  ad  hoc  Committee  for  the  pur- 
pose of  conferring  with  the  League  authorities,  the 
Swiss  and  Netherlands  authorities,  and  the  Car- 
negie Foundation  of  the  Netherlands  on  matters 
arising  out  of  the  transfer  of  the  properties  located 
at  Geneva  and  The  Hague,  as  envisaged  in  the 
Common  Plan  adopted." 

In  consequence  of  the  efforts  of  these  several 
bodies,  certain  of  the  non-political  and  technical 


functions  of  the  League  are  already  in  process  of 
provisional  assumption  and  continuance  by  the 
United  Nations;"  others  it  is  expected  will  be  as- 
sumed in  the  months  to  come;  and  the  legal  trans- 
fer of  the  material  assets,  it  is  also  expected,  will  be 
consunnnated  on  or  about  Augvist  1,  1946." 

The  United  States,  as  an  important  member  of 
the  United  Nations,  as  a  party  to  numerous  sep- 
arate treaties  referring  to  the  League  or  entrust- 
ing to  it  various  non-political  and  technical  func- 
tions, particularly  those  dealing  with  the  control 
of  narcotics,'"  and  as  having  displayed  as  a  non- 
member  of  the  League  considerable  interest  in 
its  humanitarian  and  economic  work,  particularly 
in  the  fields  of  health  and  women  and  children,^' 
was  represented  on  each  of  these  United  Nations 
committees.'* 

In  all  cases  where  a  committee  or  subccjmmittee 
contained  fewer  than  the  total  of  51  members  of 
the  United  Nations,  care  was  exercised  to  pro- 
duce a  composition  for  the  body  in  proper  pro- 
portion to  the  interests  of  states  members  of  the 
United  Nations  which  were  still  members  of  the 
League,  states  like  the  U.S.S.R.,  which  were  for- 
merly membei's,  and  states  like  the  United  States, 
which  never  had  been  members.  Tliroughout  the 
discussions,  however,  there  was  remai'kable  unity 
of  appreciation  of  the  task  to  be  performed.  All 
the  coinmittees  felt  the  need  for  a  clear-cut, 
s]ieedy  solution  of  the  problem  of  transition. 

Various  governments  still  members  of  the 
League  offered  at  different  stages  working  pa- 


'  PC/11,  Dec.  17,  19-t.5,  and  PC/12,  Dec.  15,  194.5;  Journal 
no.  22,  pp.  107-llU;  Ri'twrt  of  the  Preparatory  Commission 
of  the  United  Nations.  Dec.  23,  1945,  ch.  XI.  The  Prepara- 
tory Commis.sion  sat  iu  London,  Nov.  24  to  Dec.  24,  1945. 

"Report  of  the  Preparatory  Commission,  ch.  XI,  sec.  3. 
The  delegations  of  the  following  menihcis  were  repre- 
sented: Chile,  China,  France,  Poland,  South  Africa,  the 
Soviet  Union,  the  United  Kinydoni,  and  the  United  States. 

'"A/18,  A/18/Add.  1.  and  A/18/A<kl.  2,  Jan.  28,  1946; 
Journal  no.  22:  Snpp.  no.  7-A/LN/2,  p.  3. 

"  Journal  no.  IG,  Jan.  20,  194G,  p.  316. 

'=  A/28,  Feb.  4,  1946 ;  Journal  no.  30. 

"  The  delegations  represented  on  this  committee  were 
the  same  as  those  on  the  other  small  connnittee,  footnote 
9  above. 

"Resolution  implementing  A/28  above  adopted  as  E/10, 
Feb.  15,  1946,  by  the  Economic  and  Social  Council  on  Peli. 
16,  1946  {Journal  of  tlir  Evonomie  <nul  f^ocia]  Council. 
no.  11,  p.  110). 

"'The  date  agreed  on  in  the  Comm<in  Plan. 

"  See  P.  M.  Burnett,  "International  Bodies  for  Narcotics 


Control",  BuLLKTiN  of  Oct.  14,  1945,  p.  570;  also  statement 
of  United  States  Delegate  in  UNCIO,  Committee  II/3,  Doc. 
780,  II/3/53,  June  4, 1945  and  the  Report  of  the  Rapporteur 
of  Committee  II/3,  Doc.  861,  II/3/.55  (1),  June  8,  1945. 

"  See  amuml  survey,  "The  United  States  and  World 
Organization  during  1939",  in  International  Coneiliatirin, 
no.  361  (June  1940),  and  for  previous  years,  see  the 
same  series. 

"  (1)   Executive  Connnittee,  Committee  9,  Henry  Reiff ; 

(2)  Preparatory  Commi.ssion,  Committee  7,  Dr.  ReifC  and 
John  W.  Halderman,  Acting  Assistant  Chief,  Division  of 
International  Organization  Affairs,  Department  of  State: 

(3)  Committee  on  Transfer  of  League  Assets.  Ben.iamin 
Gerig.  Chief.  Division  of  Dependent  Area  Affairs,  and 
Associate  Chief,  Division  of  International  Organization 
Affairs,  Department  of  State,  A.  H.  Feller,  Department  of 
State,  and  Dr.  Reiff;  (A) Ad  hoe  Committee  on  League  of 
Nations,  Frank  Walker,  Alternate  Delegate  to  General 
Assembly,  Dr.  Gerig.  Dr.  Reiff,  and  William  F.  Cronin. 
Assistant  to  Jlr.  Walker:  (5)  Negotiating  Committee,  Dr. 
tierig. 


AfKIL  28,  1946 


693 


pei's  "  as  bases  fur  discussion,  and  the  secretariats 
of  the  Preparatory  Commission,  the  United  Na- 
tions, and  the  League  of  Nations  supplied  volum- 
inous data  essential  to  the  work  of  the  connnit- 
tees.  The  presence  in  the  United  Nations  of  3'2 
of  the  states  which  iire  still  members  of  the 
League  enabled  the  conmiittees  at  all  times  to 
proceed  with  ample  knowledge  of  what  the 
League  planned  to  do  with  respect  to  its  own 
liquidation.  This  knowledge  operated  to  permit 
both  the  United  Nations  and  the  League  of  Na- 
tions, within  the  spheres  of  their  respective  com- 
petences, to  act  with  a  considerable  degree  of 
timely  concurrence. 

Development  of  Solution 

These  United  Nations  committees  were  con- 
fronted witli  the  complex  problem  of  devising  a 
means  to  eifect  a  transition  of  limited  scope 
between  a  general  international  organization 
about  to  be  liquidated  and  a  general  international 
organization  in  process  of  being  constituted.  No 
precise  precedent  existed  for  solving  that  problem. 
The  several  committees  charged  with  responsibil- 
ity in  the  premises  felt  their  way  along  toward  a 
solution,  step  by  step.  These  steps  can  now  be 
set  forth  seriatim. 

The  Executive  Committee  of  the  Preparatory 
Commission  and  Its  Committee  9 

1.  At  the  beginning  of  the  discussion  in  Com- 
mittee 9  of  the  Executive  Committee  it  was  agreed 
that  under  the  terms  of  reference  of  the  Interim 
Arrangements  the  United  Nations  could  not  con- 
cern itself  M'ith  the  devising  of  legal  and  practical 
modes  of  dissolving  the  League  of  Nations.  That 
was  a  task  outside  its  competence  and  devolved 
squarely  upon  the  League  itself. 

2.  But  it  was  also  agreed  that,  wherever  possi- 
ble, the  United  Nations  should  within  its  com- 
petence facilitate  a  dignified  and  speedy  dissolu- 
tion of  the  League.  A  result  so  achieved  would 
be  of  mutual  interest. 

3.  Furthermore,  complete  agreement  existed  at 
the  outset  that  only  non-political  and  technical 
functions  and  activities  and  the  assets  of  the 
League  should  be  considered  for  transfer.-"  Hence 
such  political  functions  as  the  League  might  still 
possess  under  the  Covenant  or  in  pursuance  of 
separate  treaties  would  presumably  cease  upon 
dissolution  of  the  League  or  be  disposed  of  other- 


wise by  the  interested  parties.-'     In  this  connec- 
tion, three  troublesome  items  may  be  mentioned: 

(a)  No  recommendation  relating  to  mandates 
was  made  by  Committee  9  or  any  of  its  successors. 
If  any  feature  of  the  mandates  system  survives 
the  termination  of  the  League,  it  presumably  will 
ajipear  within  the  scope  of  the  new  trusteeship 
system. 

(J)  Committee  9  made  no  recommendation  to 
transfer  the  activities  concerning  refugees,-^  nor 
did  the  Preparatory  Conunission.  The  first  part 
of  the  first  General  Assembly  dealt  afresh  with 
the  subject  of  refugees.-^ 

(c)  Although  Committee  9  recommended 
transfer  of  League  functions  relating  to  League- 
supervised  loans  (of  post  -  World  War  I  signifi- 
cance),^^ Committee  7  of  the  Preparatory  Com- 
mission made  no  I'ecommendation,  believing  that 
the  subject  could  "be  brought  by  any  interested 
government  before  the  Economic  and  Social 
Council".-'^ 

4.  It  was  clear  also  at  the  beginning  of  the  dis- 
cussions in  Committee  9  that  transfer  of  functions 
entrusted  to  the  League  under  separate  treaties 
involved  enormously  complex  problems  of  a  jurid- 
ical and  practical  nature.  Hence  that  committee 
drew  up  a  separate  resolution,-"  readopted  with 

'"  For  example,  in  Committee  9  of  the  Executive  Commit- 
tee :  PC/EX/LN/3,  Sept.  6,  194.5,  Memorandum  liy  the 
Chinese  Delegation  on  the  future  of  the  League  of  Nations ; 
PC/EX/LN/8,  Sept.  13,  1945,  Memorandum  by  tlie  French 
Delegation  on  procedure  for  transferring  functions  aris- 
ing out  of  inlernatiunal  agreements  from  the  League  of 
Nations  to  the  United  Nations  Orjianization ;  PC/EX/LN/ 
10,  Sept.  18,  191.5,  Proposal  by  tlie  United  Kingdom  Dele- 
gation for  a  report  on  the  transfer  to  the  United  Nations 
I  if  tlie  functions  of  the  League  of  Nations  under  various 
treaties  and  international  instruments;  and  several  other 
working  papers  resulting  from  comprehensive  study  by 
United  Kingdom  experts. 

""The  future  of  the  League  of  Nations  Intellectual  Coop- 
eration Organization  was  left  to  be  disposed  of  when  the 
contemplated  United  Nations  Educational  and  Cultural 
Oi'ganization  had  been  set  up. 

^'  e.g.  those  related  to  minorities,  and  numerous  other 
political  matters  accvunulated  since  the  peace  settlements 
of  1919. 

--Report  of  the  ExcciUive  Committee,  p.  108  n. 

■'  See  discussion  on  Report  of  the  Third  Committee  on 
Refuges,  K/i'i,  Feb.  11,  1946,  in  General  As.sembly,  Feb. 
12  {Joiirniil  no.  30,  p.  535,  and  ihid..  no.  31,  p.  .544). 

'"  Report  of  tlie  Exceutire  Committee,  eh.  IX,  sec.  3, 
par.  9. 

"'Report  of  the  Preparatory  Commission,  ch.  XI,  sec.  2. 

-"Report  of  the  Exeeutive  Committee,  cli.  IX,  sec.  2. 


694 


DEPARTMENT  OF  STATE  BULLETIN 


only  stylistic  changes  by  both  the  Preparatory 
Commission  ^'  and  the  first  part  of  the  first  Gen- 
eral Assembly,-®  providing  (a)  for  the  perform- 
ance by  the  United  Nations  of  secretarial  functions 
required  under  the  treaties  and  (&)  for  the  contin- 
ued exercise,  provisionally,  of  such  technical  and 
non-political  functions  as  the  United  Nations 
might  wish  to  select.  It  is  expected  that  in  due 
course  the  parties  to  these  two  sets  of  treaties  will 
wish  to  make  the  changes,  where  necessary,  in  their 
terms  and  in  some  cases,  perhaps"  to  revise  them 
altogether,  (r)  In  the  case,  however,  of  treaties 
entrusting  political  functions  to  the  League,  provi- 
sion was  made  in  the  resolution  for  examination  by 
the  United  Nations  of  any  request  by  the  parties  to 
such  treaties  that  the  United  Nations  assume  the 
exercise  of  any  of  those  functions. 

The  En  Bloc  and  Selective  Formulas 

5.  Early  in  the  deliberations  of  Committee  9 
it  also  became  apparent  that  transfer  of  func- 
tions, activities,  and  assets  of  the  League  stem- 
ming from  the  Covenant  could  be  achieved  feasi- 
bly under  one  or  the  other  of  two  principal  and 
relatively  simple  formulas.  After  excising 
certain  matters  ^^  from  consideration  under  eitlier 
formula,  it  would  be  possible  either  (a)  to  trans- 
fer eth  bloc  (or  in  tofo)  all  the  remaining  League 
functions,  activities,  and  assets  (together  with 
certain  of  their  attached  liabilities),  placing  the 
burden  on  the  United  Nations  to  discontinue  any 
function  or  activity  transferred  and  to  liquidate 
any  of  the  assets  and  liabilities  transferred;  or 
(b)  to  authorize  the  appropriate  organs  of  the 
United  Nations  to  make  a  selection  of  functions, 
activities,  and  assets  to  be  assumed,  leaving  to  the 
League  the  task  of  liquidating  such  matters  as 
had  not  been  embraced  in  this  scheme  of  transfer. 

Either  formula  was  felt  by  most  members  of 
Committee  9  to  be  justifiable  under  the  provisions 
of  the  Interim  Arrangements.  Each  also  had  its 
advantages  and  disadvantages.  In  brief,  the  en 
bloc  formula  was  thought  to  facilitate  speedy  ter- 
mination of  the  League.  Under  it,  dates  for  the 
consimimation  of  various  stages  in  the  process 
of  transition  could  be  fixed  with  some  degree  of 

-^Report  of  the  Prepaid  tori/  Commission,  ch.  XI,  sec.  1. 

^^  Journal  no.  30,  p.  52(i,  and  ibid.,  no,  34,  p.  700. 

■"e.g.  all  political  matters,  activities  concerning  refu- 
gees and  international  bureaus,  and  the  League  Intel- 
lectual Cooperation  Organization;  and  certain  of  the 
funds  and  liabilities  of  the  League. 


certainty.  It  appealed  to  most  of  the  govern- 
ments represented  on  the  Executive  Committee 
as  permitting  a  neat,  early,  and  definitive  solu- 
tion. Certain  delegations,  opposing  it,  argued 
that  it  would  operate  to  place  the  burden  of  liqui- 
dating the  League  on  the  United  Nations  and 
that  it  would  imply  a  form  of  "succession"  which 
they  felt  to  be  undesirable. 

On  the  other  hand,  the  advocates  of  the  selective 
formula  felt  that  it  alone  could  preserve  for  the 
United  Nations  all  the  freedom  in  devising  new 
spheres  of  non-political  and  technical  work  which 
a  new  organization  ought  to  have ;  that  if  any  assets 
were  taken  over  they  should  not  be  encumbered 
with  liabilities ;  that  the  League  could  stay  in  be- 
ing or  operate  through  some  sort  of  liquidating 
body  until  the  United  Nations  had  made  the  selec- 
tion of  functions  and  activities  which  it  might 
wish  to  assume;  and  that  meanwhile  the  League 
should  bear  the  cost  of  maintaining  those  func- 
tions and  activities  as  well  as  the  risk  arising  out 
of  the  possession  of  valuable  properties  until  their 
ultimate  disposition  could  be  determined.  The 
process  of  selection  of  the  functions  and  activities 
should  not,  in  their  judgment,  take  more  than  a  few 
months,  perhaps  a  year. 

The  opponents  of  the  selective  formula  felt,  how- 
ever, that  the  process,  depending  as  it  would  on 
prior  constituting  of  the  organs  of  the  United 
Nations  and  their  going  into  operation,  could  easily 
take  some  two  or  more  j^ears.  Meanwhile,  the 
League  itself  or  some  licjuidating  body  authorized 
by  it  would  have  to  stay  in  being  until  all  League 
affairs  had  been  wound  up.  States  members  of 
the  United  Nations  which  were  also  League  mem- 
bers could  not  view  with  enthusiasm  a  solution 
which  would  likely  entail  for  them  dual  financial 
and  other  burdens  which  might  run  on  for  several 
years  until  the  League  was  terminated  in  fact 
and  in  law. 

In  the  meantime,  for  reasons  of  economy  or 
otherwise,  services  of  great  value  to  the  inter- 
national community  might  have  to  be  discontinued 
by  the  League.  Various  of  the  technical  experts 
.still  employed  l)y  the  League,  facing  an  uncertain 
future,  might  find  it  necessary  to  seek  other  em- 
ployment, leaving  important  work  unperformed. 
This  loss  of  experienced  personnel  could  hardly 
be  afforded  at  a  time  when  it  was  most  desirable 
that  there  be  no  interruption  in  such  non-political 
and  technical  work. 


APRIL  28,  1946 


695 


There  could  be  little  question  that  a  going  con- 
cern like  the  United  Nations  could  find  suitable 
uses  for  the  plant  and  equipment  of  the  League 
at  Geneva  in  the  futui'e,  even  if  the  headquarters 
were  moved  to  some  other  place  in  Europe  or  to 
America.  It  could  be  used  for  a  branch  office,  for 
some  of  the  periodic  jneetings,  or  as  the  seat  o"f  one 
or  more  specialized  agencies.  With  this  prospect, 
it  was  felt  by  most  members  of  the  Committee  that 
it  would  hardly  be  equitable  to  require  a  moribund 
organization  to  bear  the  risk  and  expense  of  main- 
taining the  jDlant  beyond  a  minimum  of  time 
needed  for  transition. 

Underlying  these  considerations,  for  and  against 
the  two  formulas,  were  others  of  a  political,  senti- 
mental, and  fiscal  character.  Resentment  toward 
the  League  of  Nations  for  having  allegedly  failed 
in  its  mission ;  opposition  to  any  settlement  which 
might  involve  a  "return  to  Geneva"  even  in  some 
tentacular  form;  fear,  perhaps  hope,  that  acqui- 
sition of  the  properties  in  Geneva  might  influence 
the  choice  of  a  site  for  the  new  headquarters — feel- 
ings such  as  these  were  implicit  in  certain  of  the 
arguments  put  forth  in  the  committee.  There  was, 
however,  a  strong  current  of  belief  that  undignified 
or  inconsiderate  treatment  of  the  interests  of  the 
League  and  its  members  could  hardly  redound  to 
the  credit  of  the  new  Organization  to  which  the 
loyalties  of  many  goA'ernments  and  individuals 
were  being  transferred.  Finally  it  might  be  ob- 
served that,  if  the  United  Nations  acquired  the 
material  assets  of  the  League,  those  members  of 
the  United  Nations  which  had  as  members  of  the 
League  contributed  to  the  creation  of  those  assets 
would,  in  equity,  be  entitled  to  some  credit  toward 
their  financial  obligations  under  the  new  Organi- 
zation— a  consideration  not  without  weight  in  a 
period  of  financial  retrenchment. 

Adoption    of    So-called    "En    Bloc"    Transfer 
Formula 

In  the  end.  Committee  9  recommended  and  the 
Executive  Committee  adopted,  with  certain  quali- 
fications, the  en  bJoc  (or  in  toto)  formula  for  trans- 
fer of  League  functions,  activities,  and  assets.™ 
Throughout  the  deliberations  in  Committee  9  the 
representatives  of  the  Union  of  Soviet  Socialist 
Republics  reserved  their  position  with  respect  to 
the  en  bloc  formula,  and  in  the  Executive  Commit- 
tee they  voted  against  adoption  of  the  I'eport  con- 
taining it.    They  preferred  a  restricted  form  of 


the  selective  principle.^^  In  the  Executive  Com- 
mittee the  Australian  Delegation  announced  its 
preference  for  the  selective  principle  and  joined 
the  Soviet  Delegation  in  voting  against  adoption 
of  the  report.^- 

In  all  discussions  of  transfer  of  League  assets 
until  a  satisfactory  arrangement  was  achieved 
under  the  Common  Plan  the  representatives  of  the 
United  States  reserved  their  position  on  the  valu- 
ation of  the  buildings  involved.^^  At  all  appro- 
priate times  also  they  insisted  that  the  discretion 
of  the  Secretary-General  of  the  United  Nations 
in  engaging  the  services  of  any  of  the  former 
League  technical  personnel  remain  completely  un- 
fettered.''* 

The  scheme  of  transfer  as  it  emerged  from  the 
Executive  Committee  is  set  forth  in  the  three  sec- 
tions and  one  appendix  contained  in  chapter  IX  of 
part  III  of  its  Report.  Briefly,  those  documents 
embrace  the  following  features : 

{a)  Section  2  disposes  of  the  problem  of  trea- 
ties entrusting  functions  to  the  League  along  the 
lines  indicated  above. 

(6)  Section  3  surveys  the  functions,  activities, 
and  assets  involved  in  the  transfer  and  stipulates 
certain  exceptions  and  qualifications  to  the  prin- 
ciple of  en  bloc  transfer. 

These  exceptions  and  qualifications  had  become 
so  numerous  in  the  course  of  the  deliberations  of 
Committee  9  that  the  committee  felt  in  its  final 
drafting  sessions  that  the.  term  in  toto  (or  en 
bloc),  as  used  in  earlier  drafts  of  the  recoimnen- 
dations,  could  no  longer  be  accurately  used. 
Hence  the  term  was  stricken  out  of  the  recom- 
mendations ^^  as  presented  to  the  Executive  Com- 
mittee. If  a  single  term  were  desired  to  describe 
the  quantum  of  functions,  activities,  and  assets 
contemplated  under  these  recommendations  for 
transfer,  residual  would  have  been  more  nearly 
accurate. 

'°  Report  of  the  Executive  Committee,  p.  108. 

="  PC/EX/96,  Oct.  12,  1945. 

='  Ibid. 

="  e.  g.  PC/EX/LN/27,  Oct.  S,  1945 ;  PC/EX/LN/27/Corr. 
1,  Oct.  S,  1945 ;  PC/LN/11,  Dee.  8,  1945. 

''  Also  with  respect  to  engagement  of  former  League 
personnel  by  the  contemplated  new  international  health 
organization  (PC/LN/10,  Dec.  5.  1945). 

^  Sec.  1 ;  but  the  term  was  retained  with  respect  to 
"assets  and  liabilities"  as  qualified  in  paragraph  28  of 
the  accompanying  report  in  sec.  3. 


696 


DEPARTMENT  OF  STATE  BULLETIN 


(c)  The  appendix  contains  a  brief  statement 
of  assets  and  liabilities  of  tlie  Leaoue  of  Nations 
as  of  December  31,  1944. 

(d)  Section  1  contains  the  so-called  en  Hoc 
formula,  hedged  with  the  restrictions  finally 
agreed  upon,  in  the  following  language : 

•'Tlie  Plxecutive  Cimnnittee, 

"Having  considered  the  possibility  of  transfer- 
ring certain  functions,  activities  and  assets  of 
the  League  of  Nations  which  it  maj'  be  consid- 
ered desirable  for  the  United  Nations  to  take 
over;  and 

"Considering,  after  it  had  received  the  report, 
contained  in  Section  3,  of  a  committee  which  had 
examined  this  problem,  that  it  would  be  useful  for 
the  United  Nations  to  state  certain  terms  for  this 
transfer; 
"Reconnnends : 

"1.  that  the  functions,  activities  and  assets  of 
the  League  of  Nations  be  transferred  to  the  United 
Nations  with  such  exceptions  and  qualifications  as 
are  made  in  the  report  referred  to  above,  and 
without  prejudice  to  such  action  as  the  United 
Nations  may  subsequentlj'  take  with  the  under- 
standing that  the  contemplated  transfer  does  not 
include  the  political  functions  of  the  League, 
which  liave  in  fact  ah'eady  ceased,  but  solely  the 
teciinical  and  non-political  functions." 

For  the  convenience  of  the  Executive  Committee, 
the  conclusions  of  the  report  in  section  3  were  sum- 
marized in  the  following  language  which  appears 
as  a  footnote  to  the  above  j)aragraph  1 :  ^"^ 

''The  Committee  reconnnends  tliat  no  political 
question  should  be  included  in  the  transfer.  It 
makes  no  recommendation  to  transfer  the  activities 
concerning  refugees,  mandates  or  international 
bureaux.  The  contemplated  transfer  will  not  in- 
clude transfer  of  personnel.  Transfer  of  assets  and 
liabilities  should  imply  neither  profit  nor  loss  for 
the  United  Nations.  The  pi'oblem  of  separating 
tlie  finances  of  the  International  Laliour  Organisa- 
tion from  those  of  the  League  is  left  for  later  con- 
sideration. 

"Report  of  the  Executive  Committee,  p.  108. 

"Consisting  of  the  representatives  of  Poland  (Mr.  Mo- 
(lerow,  chainnaii),  the  U.S.S.IJ.  (Professor  Stein),  the 
United  Kingdom  (Mr.  McKinnon  Wood),  iind  E^iypt 
(Ahmed  Saroit  Bej-). 

'^Report  of  the  Prciitinitoiii  ('(iiiiiiiix.sinii.  cli.  XI.  sec.  1. 


"T])e  ti-ansfer  of  economic  activities  is  limited 
to  such  work  in  this  field  as  the  United  Nations 
might  wish  to  continue;  that  of  the  health  activi- 
ties will  be  subject  to  any  decisions  made  in  the 
future  regarding  a  new  health  organisation;  and 
that  of  the  social  activities  would  take  place  with 
the  understanding  that  the  question  as  a  whole  will 
have  to  be  referred  to  the  competent  organ  of  the 
United  Nations.  The  transfer  of  functions  arising 
from  treaties  is  contemplated  only  as  far  as  is  pos- 
sible and  desirable." 

(e)  The  remainder  of  section  1  contains,  infer- 
alia,  a  reconnnendation  that  continuity  be  main- 
tained in  the  work  done  by  the  League  on  eco- 
nomic and  health  questions  and  in  relation  to  the 
control  of  the  drug  traffic.  It  recommended  also 
that  "the  United  Nations  effectively  assume  at 
the  earliest  possible  moment  the  powers  and  fimc- 
tions  attributed  to  the  League  of  Nations  under 
international  conventions  concerning  the  control 
of  the  Drug  Traffic".  It  further  recommended 
that  "the  League  of  Nations,  prior  to  the  trans- 
fer, settle  the  question  of  conti'ibutions  to  be  paid 
to  the  League  of  Nations  by  members  in  arrears, 
tlie  question  of  the  payment  to  the  judges  of  the 
Permanent  Court  of  International  Justice  of  ar- 
rears in  salaries  and  other  claims".  It  also  con- 
tains a  suggestion  by  the  Executive  Committee: 

"that  the  Preparatory  Commission  should  ap- 
point a  small  Committee  to  discuss  with  the  Su- 
pervisory Commission  of  the  League  of  Nations 
the  parallel  measures  that  should  be  adopted  by 
the  League  of  Nations  and  the  LTnited  Nations. 
This  Committee  might,  where  necessary,  consult 
with  representatives  of  the  International  Labour 
Office  on  all  matters  regarding  the  liquidation  of 
the  League  of  Nations  which  are  of  interest  to 
the  International  Labour  Office  and  which  it  was 
impossible  to  settle  directly  with  the  League." 

Revision  by  the  Preparatoiy  Commission 

Committee  7  of  the  Preparatory  Commission, 
assisted  by  a  highly  competent  small  drafting 
committee,''  refined  the  product  of  the  Executive 
Committee.  It  separated  very  clearly  the  ques- 
tion of  transfer  of  f mictions  and  activities  from 
the  ([uestion  of  transfer  of  assets.  It  drew  up 
two  separate  recommendations  on  the  subjects. 
The  recommendation  relating  to  functions  en- 
trusted to  the  League  under  separate  tre;ities  was 
sent  foi'wai-(l  with  only  stvlistic  changes.^* 


APRIL  28,  1946 


697 


Assumption    of    Functions,    Powers,    and 
Activities  of  the  League 

Early  in  the  deliberation  of  Committee  7,^"  a 
sharp  distinction  was  made  between  the  nature  of 
the  operation  involved  in  so-called  "transfer  of 
functions  and  activities"'  and  the  nature  of  the 
operation  involved  in  the  transfer  of  assets.  In 
tiie  latter  case,  there  woidd  be  actual  handing  over 
by  one  organization  to  the  other  of  certain  build- 
ings, equii)ment,  furnishings,  and  other  properties. 
In  the  former  case,  it  was  contended,  despite  the 
language  of  the  Interim  Arrangements,*"  there 
could  be,  in  legal  contemplation,  only  the  cessa- 
tion of  performance  of  function  or  activity  by  the 
League  when  its  mandate  expired  and  the  taking 
up  or  assumjition  of  the  performance  of  the  same 
substantive  tasks  by  the  United  Nations  under  its 
new  mandates.  The  use  of  the  term  axxumption, 
it  was  argued,  would  avoid  the  implication  of  a 
legal  continuity  which  did  not  exist.  Although 
it  was  pointed  out  that  no  such  implication  neces- 
sarilj-  arose  out  of  the  use  of  the  term  fmmfer 
and  that  use  of  the  term  assumption  made  a  dis- 
tinction without  a  difference  in  effect,  the  Commit- 
tee, to  satisfy  doubts  on  the  point,  adopted  the  term 
assumption  in  its  final  recommendation  on  the 
subject.*^  It  was  also  Ijelieved,  at  the  outset  of 
the  discussion,  that  such  a  terminological  change 
woidd  meet  in  pait  the  objections  of  the  Union 
of  Soviet  Socialist  Republics  to  the  Executive 
Committee's  Report. 

Verbal  magic  could  not,  liowever,  meet  those 
objections.  After  the  Committee  had  quickly 
agreed  in  principle  to  separate  out  from  the 
problem  of  transfer  the  whole  question  of  assets 
and  lo  deal  with  it  through  a  special  committee 
authorized  to  consult  with  the  Supervisory  Com- 
mission of  the  League,^'-  the  Soviet  spokesman, 
Professor  Stein,  proposed  to  the  Committee  the 
following  formula  for  '•assumption''  of  League 
functions  and  activities : 

"that  the  Economic  and  Social  Council  should 
consider  which  of  its  organs  might  exercise  cer- 
tain non-political  functions  formei'ly  performed 
by  the  League  of  Nations."  *^ 

This  proposal  was  in  effect  a  revival  of  the  selec- 
tive formula  with  the  added  safeguard  that,  if 
the  Economic  and  Social  Council  performed 
strictlj'  within  its  Charter  mandate,  no  function 

691621—46 2 


or  activity  previously  exercised  by  the  League 
and  assumed  by  the  Council  could  lawfully  par- 
take of  a  political  character. 

"In  explanation  of  the  proposed  amendment 
Mr.  Stein  .  .  .  nuiintained  that  the  difference 
of  opinion  which  had  caused  the  Soviet  Del- 
egation to  vote  against  chapter  IX  in  the  Ex- 
ecutive Committee  was  a  difference  of  opinion 
on  sul)stance  and  not  on  presentation  as  had  been 
suggested  at  the  previous  meeting.  Recommen- 
dation 1  of  the  Report  by  the  Executive  Com- 
mittee was  based  on  the  principle  that  all  non- 
political  functions  of  the  League  should  be  trans- 
ferred to  the  United  Nations.  This  principle  was 
not  acceptable  to  the  Delegation  of  the  Soviet 
Union  on  the  grounds  that  no  general  distinction 
could  l)e  drawn  between  political  and  non- 
political  functions.  Separate,  careful  and  con- 
crete consideration  was  necessary  of  each  partic- 
ular function  before  any  decision  on  the  desirabil- 
ity of  the  ITuited  Nations  carrying  out  such  a  func- 
tion couhl  be  made.  As  the  majority  of  the  func- 
tions concerned  would  fall  within  the  competence 
of  the  Economic  and  Social  Council  it  was  this 
body  which  should  properly  carry  out  such  an 
examination.''  " 

New  Formula  of  Transfer 

The  formula  i^roposed  by  Professor  Stein  was, 
of  course,  open  to  most  of  the  objections  voiced 
in  Committee  9  of  the  Executive  Committee  when 
it  discussed  the  selective  principle.  Committee  7 
of  the  Preparatory  Commission  was,  therefore, 
not  willing  to  accept  it  without  considerable  qual- 
ification. In  the  end,  the  formula  lelating  to 
functions  and  activities  was  a  compromise  be- 
tween the  selective  principle  as  restricted  in  the 
Soviet  proposal  and  the  so-called  en  Hoc  princi- 
ple as  restricted  in  the  Executive  Committee's 
Report. 

The  metamorphosis  of  Professor  Stein's  pro- 
posal can  be  sketched  briefly.  An  early  sugges- 
tion that  a  time  limit  should  be  placed  on  the  sur- 


'°PC/I,N/2,   Nov.   28,    194.5;    PC/LN/.'i,   Nov.   20,   194."> 
and  PC/LN/7,  Nov.  30.  1945. 
"Par.  4   (c)   quoted  above. 
"PC/12,  Dec.  1.-.,  194.5. 
"  PC/LN/2,  Nov.  28,  1945. 
«  PC/LN/4,  Nov.  29,  1945. 
"  PC/LN/5,  ^■o^•.  29,  1945. 


698 


DEPARTMENT  OF  STATE  BULLETIN 


vey  b}'  the  Economic  and  Social  Council  *^  was 
droijped  when  it  was  agreed  that  "pending  the 
adoption  of  the  measures  decided  upon  as  a  re- 
sult of  this  examination,  the  Council  should,  on 
the  dissolution  of  the  League,^"  assume  and  con- 
tinue on  a  provisional  basis,  the  work  hitherto 
done"  by  the  Economic,  Financial,  and  Transit 
Department  and  the  Health  and  Opium  Sections 
of  the  League.  Additional  provision  was  made 
for  "taking  over  and  maintaining  in  oj^eration" 
certain  functions  of  the  League  which  could  not 
fall  within  the  orbit  of  choice  exercisable  by  the 
Council,  namel}',  the  Library,  the  Archives,  and 
the  completion  of  the  League  of  Nations  Treaty 
Serjes.  It  was  also  suggested  that  it  was  "desir- 
able to  engage  for  the  above-mentioned  work  on 
appropriate  terms  such  members  of  the  experi- 
enced personnel  by  whom  it  is  at  present  being 
performed  as  the  Secretarj^-General"  of  the 
United  Nations  might  select.  Having  said  this. 
Committee  7  added  that  it  believed  the  foregoing 
reconunendations  covered  "all  the  parts  of  the 
Report  ■•'  by  the  Executive  Committee  relating  to 
the  transfer  of  functions,  powers,  and  activities 
of  the  League  of  Nations,  with  the  exception  of 
paragraph  9  [relating  to  League-sponsored 
loans]."''*  As  so  elaborated  in  Committee  7,  the 
formula  on  assumption  of  functions  and  activities 
was  adopted  by  the  Preparatory  Commission  •"' 
and,  with  the  necessary  stylistic  changes,  by  the 
General  Assembly.^" 

"  To  Uie  effect  that  tlie  Council  "should  report  to  the 
General  Assembly  not  later  than  the  second  part  of  the 
General  Assembly's  first  session"  (PC/LN/7,  Nov.  30, 
1945). 

'"  Changed  in  tlie  General  Assembly  to  "on  or  before 
tlie  dissolution  of  the  League"   (A/2S,  Feb.  4,  1946). 

"  Meaning  sec.  3  of  ch.  IX  of  part  III  of  the  compre- 
hensive Report. 

*  See  discussion  immediately  below. 

"Report  of  the  Preiniratory  Commission,  pp.  117-lS. 

"A/28,  Feb.  4,  1946;  Journal  no.  34,  p.  708. 

"For  brief  description,  see  Powers  and  Duties  Attrib- 
uted to  the  League  of  Nations  by  International  Treaties, 
pp.  28-35,  cited  above,  footnote  3. 

^-Report  of  the  Exeeutive  Committee,  p.  111. 

"  PC/LN/4,  Nov.  29,  1945. 

"  PC/LN/5,  Nov.  29,  1945. 

'=  PC/12,  Dec.  15,  1945;  Report  of  the  PrvDoratorii  Com- 
mission, p.  118. 

"  A/28,  Feb.  4,  1046. 


League-Sponsored  Loans 

Another  troublesome  question  disposed  of  at  the 
Preparatory  Commission  related  to  League-spon- 
sored loans. °^  The  Executive  Committee  recom- 
mended in  i^aragraph  9  of  section  3  of  chapter  IX 
of  its  Eeport  that  the  United  Nations  should  take 
over  from  the  League  its  surviving  functions  un- 
der the  several  loan  arrangements,  declaring  that 
"these  functions  are  of  a  technical  character  and 
would  involve  no  financial  liability  on  the  part  of 
the  United  Nations".'*-  The  Soviet  and  Chinese 
Delegations  in  both  the  Executive  Committee  and 
the  Preparatory  Commission  opposed  the  assump- 
tion of  such  a  responsibility  by  the  United  Na- 
tions. As  part  of  his  original  proposal  dealing 
with  functions  and  activities,  described  above,  Pro- 
fessor Stein  included  a  suggestion  that  the  item 
relating  to  the  loan  functions  be  deleted  from  any 
new  reconmiendation  on  the  subject  of  transfer.'*^ 
His  proposal,  he  said,  "was  based  on  the  view  that 
the  public  loans  issued  with  the  assistance  of  the 
League  were  in  fact  more  or  less  political  loans 
for  which  the  United  Nations  should  take  no  re- 
sponsibilit_y,  even  if  that  re.sponsibility  amoimted 
to  no  more  than  the  appointment  of  trustees".^* 
A  compromise  was  thereupon  effected,  the  recom- 
mendation of  Committee  7,  after  excepting  from 
the  scope  of  the  transfer  formula  "Paragraph  9", 
declaring:  "The  Preparatory  Commission  makes 
no  recommendation  on  this  subject;  it  considers 
that  it  can  be  brought  by  any  interested  govern- 
ment before  the  Economic  and  Social  Council."  ^' 
There  the  matter  rested.  The  Eeport  of  the  League 
of  Nations  Committee  to  the  General  A.ssembly 
contains  no  reference  to  the  subject. ^° 


Reeducation  in  the  American  zone  in  Germany 
is  progressing  as  fast  as  approved  teachers  and 
textbooks  can  be  made  available,  the  State  Depart- 
ment reports. 

As  of  February  1.  88.5  percent  of  all  children 
aged  6-14  were  enrolled  in  10,179  schools  despite 
the  fact  that  the  shortage  of  teachers  resulted  in 
an  average  of  82  pupils  per  teacher. 

In  the  444  secondary  schools  105,000  students 
were  receiving  schooling  in  classes  averaging  32 
pupils  per  teacher. 


APRIL  28,  1946 


699 


German  Documents  on  the  Invasion  of  Norway,  1940 


Telephone  Message  from  Minister  Brduer,  Oslo, 
April  10,  lO.'fO,  11  p.m. 

After  the  King  this  morning  had  dechired  him- 
self ready  to  receive  me  imconditionally,  I  de- 
parted at  about  11  o'clock,  (icrnian  Summer  Time, 
by  way  of  Hamar  for  Elverum,  where  I  arrived 
about  4  p.m.  German  time.  The  meeting  place  was 
in  a  school  building.  The  King  received  me  at 
once  and  requested  that  Foreign  Minister  Koht 
be  present  at  our  conversation.  However,  I  asked 
the  King  that  I  be  allowed  to  speak  to  him  at  first 
alone,  wliicli  after  some  discussion  was  agreed 
upon.  I  then  explained  to  him  the  situation  and 
the  circumstances  which  had  brought  about  our 
occupation  of  Norw^ay.  I  emphasized  in  that  con- 
nection that  England  was  solely  to  blame.  The 
King  listened  without  contradiction,  even  ap- 
parently with  a  certain  amount  of  agreement. 
I  then  told  him  that  a  change  in  the  dynasty  in 
Norway  was  not  under  consideration,  but  that,  on 
the  contrary,  we  considered  it  of  importance  in 
Norway,  as  in  both  the  other  Scandinavian  coun- 
tries, that  the  dynasty  should  be  preserved  and 
strengthened.  I  then  referred  to  the  folly  of  the 
continuing  military  I'esistance  in  isolated  places 
in  Norwa}^  I  said  that  yesterday,  unfortunately, 
Oscarborg  had  had  to  be  completely  destroyed  and 
that  we  would  like  to  spare  other  places  from  suf- 
fering the  same  fate.  For  this  it  was  necessary, 
howevei',  that  all  resistance  cease  at  once.  I  went 
into  my  proposal  of  the  night  and  morning  of 
April  9  and  referred  to  the  burden  of  guilt  which 
the  previous  Norwegian  Government  had  brought 
upon  itself  through  refusing  the  proposals  in  our 
memorandum.  I  referred  further  to  the  lack  of 
confidence  on  our  part  in  this  Government,  which 
had  taken  a  position  repeatedly  in  the  last  several 
months  which  had  to  be  regarded  by  us  as  favor- 
ing England  in  a  one-sided  manner  and  which  had 
finallj^  culminated  in  the  un-understandable  re- 
fusal of  our  generous  offer.  We  had  no  desire  to 
mix  in  the  internal  political  situation  in  Norway 
in  any  way.    We  did  consider  it  of  importance  to 


know  that  there  was  at  the  helm  in  Norway  a 
Government  upon  which  we  could  count  for  an 
understanding  of  the  necessity  of  the  preservation 
of  good  relations  between  Germany  and  Norway 
and  for  an  appreciation  of  the  position  of  Ger- 
many. A  Government  liad  been  formed  yester- 
day in  Oslo  by  State  Councilor  Quisling,  and  it 
seemed  proper  to  us  that  this  man,  whose  Nor- 
wegian national  attitude  and  whose  understand- 
ing for  us  is  well  known,  should  be  entrusted  with 
the  responsibility  of  government  at  this  time. 

The  King  was  visibly  impressed,  especially  by 
the  reference  to  the  attitude  of  his  brother,  the 
King  of  Denmark,  who  by  his  radio  address  and 
by  his  position  with  respect  to  the  German  entry, 
had  preserved  his  country  in  peace  and  had 
avoided  unpleasantness  for  himself  and  his 
family. 

At  the  conclusion  of  our  conversation,  however, 
the  King  considered  it  necessary  to  renew  contact 
with  his  Government  and  brought  in  Foreign 
Minister  Koht  for  the  end  of  the  interview,  in 
whose  presence  I  repeated  my  views  as  previously 
outlined. 

The  King  and  Herr  Koht  both  promised  me  to 
acquaint  the  Prime  Minister  with  the  situation 
and,  since  I  did  not  wish  to  wait  for  the  decision, 
to  give  me  the  reply  on  the  way  back  to  Oslo  by 
telephone.  I  had  already  desci'ibed  this  as  neces- 
sary, since  otherwise  under  the  circumstances,  de- 
cisions might  be  made  on  our  side  which  would 
lead  to  certain  consequences. 

These  documents  on  the  invasion  of  Norway,  secured 
from  the  German  Government  files,  are  among  the  official 
papers  which  the  Bitlletin  is  now  publishing;  th«  German 
documents  on  Hitler's  plans  for  the  future  of  Norway 
and  Denmark  will  appear  in  a  later  issue.  For  an  article 
on  and  excerpts  from  a  German  handbook  of  propaganda 
directives  and  for  tJie  German  documents  on  Sumner 
Welles'  mission  in  1940,  see  Bxjlletin  of  Feb.  24,  1946, 
p.  278,  Mar.  3,  p.  311,  Mar.  10,  p.  365,  and  Mar.  24,  p.  459. 

These  documents  have  been  selected  and  translated  by 
J.  S.  Beddie,  an  officer  in  the  Division  of  Research  and 
Publication,  Office  of  Public  Affairs,  Department  of  State. 


700 


DEPARTMENT  OF  STATE  BULLETIN 


I  then  departed  at  about  (i :  15  p.m.  tierman  time 
from  the  Elverum  school.  At  Eidsvokl  the  mes- 
sap:e  reached  me  from  Foreign  Minister  Koht, 
which  I  had  had  forwarded  by  the  legation.  It 
was  to  the  effect  tliat  after  a  two-hour  conference 
with  the  King,  Foreign  Minister  Koht  forwarded 
to  me  on  tlie  way  to  Oslo  the  folh)wing  message : 

The  King  will  name  no  Government  heailed  l)y 
Quisling  and  tliis  decision  was  that  of  the  Govern- 
ment unanimously.  To  my  specific  question,  For- 
eign Minister  Koht  replied:  "Resistance  will  con- 
tinue as  long  as  possible." 

The  I'esult,  I  think,  can  be  explained  by  the  fact 
that  not  only  the  Cabinet,  but  also  the  Storting 
assembled  at  Elverum,  or  at  least  part  of  it,  had 
been  made  accjuainted  with  tlie  matter.  The  real 
difficulty  for  the  King  and  perluips  also  for  the 
Cabinet  was  that  no  proper  way  could  be  found 
in  order  to  bring  about  a  summons  to  Quisling  in 
consonance  witli  the  Constitution.  The  desire  to 
come  to  an  agreement  with  us  was  no  doubt  strong, 
wliich  became  especially  evident  as  I  referred  to 
l)ledges  that  we  would  make  for  upholding  the 
integrity  and  independence  of  Norway  now  and 
for  the  future.  In  the  presence  of  the  crowd  of 
heterogeneous  elements  assembled  there  and  under 
the  influence  of  parliamentary  intrigues,  the  only 
course  which  could  have  clarified  the  situation 
could  not,  however,  be  taken. 

On  the  journey  back  to  Oslo  in  the  neighborhood 
of  Haniar  and  Eykholm,  troop  movements  of  lim- 
ited numbers  and  road  blocks  were  observed.  I 
reported  my  observations  to  the  militai-y  com- 
mander. 

Conversation  hetvyeen  the  Fiihrer  and  Director 
Hagelin,  the  Minister  of  Economics  and  Supply  in 
the  newly  formed  Norivegian  National  Govern- 
ment, at  11: 15  a.m.  April  13,  WlfO,  with  the  Reich 
Foreign  Minister  and  Under  Secretary  of  State 
Ilahicht  also  present 

Hagelin  reported  that  the  operation  in  Norway 
had  gone  off  well.  Only  one  flaw  appeared  and 
that  had  been  that  the  German  paratroops  arrived 
in  Oslo  too  late  as  a  result  of  cloudy  weather.  As  a 
result  the  Government  had  been  able  to  get  away. 
Had  the  arrival  of  the  Germans  taken  place  ac- 
cording to  plan,  the  King  and  the  Govei-nment 
could  have  been  taken  jjrisoner  and  the  order  to 

'The  Nazi  Party  in  Norwa.v. 


cease  fire  would  liave  been  issued  and  obeyed.  It 
was  regrettable  that  it  had  come  out  differently. 
However,  some  of  the  members  of  the  Storting 
who  had  fled  were  now  already  returning,  among 
others  Bjornsen  and  the  Commander  of  the  Guard, 
whose  name  he  didn't  know. 

The  Fiihrer  read  a  Reuters  report  from  Stock- 
holm which  stated  that  Major  Hvosleff,  who  had 
been  named  as  Foreign  Minister  by  the  shadow 
Govermnent,  had  resigned  and  had  arrived  at 
Stockholm.  Hagelin  said  that  this  must  be  a  lie, 
for  he  himself  had  seen  the  telegram  in  which 
Hvosleff'  had  placed  his  services  at  the  disposal  of 
the  ]iew  Government.  Hagelin  had  been  in  active 
service  in  Finland  and  had  organized  the  SA  of 
the  Nasjonal  Samling.^ 

He  considered  the  problem  of  the  position  of  the 
King  as  not  yet  settled.  Unfortunately  the  Ger- 
man Minister  had  made  his  proposals  to  the  King 
at  the  same  time  as  Quisling,  and  he  was  convinced 
that  if  Quisling  had  gone  to  the  King  before 
Briiuer  the  affair  would  have  come  out  better. 
However,  the  Quisling  tiovei-nment  laid  great  im- 
portance on  coming  to  an  agreement  with  the  King, 
and  he  believed  that  it  would  be  possible  to  achieve 
this  by  working  through  the  Crown  Princess.  It 
must  be  admitted  that  the  King  was  closely  bound 
to  the  English  and  was  anti-German.  If  an  ar- 
rangement could  not  be  made  with  him  it  could 
probably  be  made  with  Crown  Prince  Olaf.  In 
reply  to  the  Fiihrer's  questioning  Hagelin  stated 
that  conditions  in  Oslo  itself  were  completely 
qinet. 

The  Fiihrer  then  outlined  the  military  position 
and  said  that  on  that  day  three  and  tomorrow  four 
divisions  would  be  in  Norway,  two  and  a  half  in 
Oslo  itself.  He  had  planned  on  two  divisions  for 
Denmark  and  ten  for  Norway  and  these  figures 
could  easily  be  increased  without  drawing  on  the 
army  reserve.  Seven  divisions  were  still  at  his 
ready  disposal.  Narvik  presented  a  difficult  prob- 
lem since  there  was  no  communication  with  it.  He 
did  not  believe  that  Sweden  would  permit  the 
transit  of  German  troops  and  arms  over  her  rail- 
ways. In  addition,  the  Norwegians  had  blown  up 
bridges  and  tunnels  so  that  he  must  use  other 
routes,  but  that  also  had  been  foreseen.  With  the 
exception  of  Stavanger  and  Oslo,  the  airfields  in 
Norway  were  exceptionally  bad,  and  he  had  had  a 
great  deal  of  dilHculty  in  reconstructing  the  air- 
field at  Trondlieini  for  military  purposes. 


ArRIL  28,  1946 


701 


He  was  convinced  that  the  English  would  try  to 
land  some  troops  here  and  thei'e.  They  wanted  a 
sort  of  guerrilla  warfare.  That  the  counti-y 
would  be  completely  destroyed  thereby  made  no 
difference  to  tliem.  The  tragedy  consisted  of  this, 
that  through  the  destruction  of  railroads  and 
roads  the  countrj-  itself  would  be  thrown  into 
greatest  want,  since  the  peoj^le  would  lose  their 
means  of  transportation.  The  Norwegians  needed 
these  communication  lines  worse  than  he  did  since 
his  troops  could  be  transported  in  other  ways. 
Within  the  next  few  days  he  would  have  com- 
pletely barred  the  Kattegat  to  English  war  ves- 
sels. 

After  some  discussion  of  the  technique  of  land- 
ing and  loading  of  ships,  the  Fiihrer  said  that  in 
a  short  time  there  wouldn't  be  an  Englishman  to 
be  seen  in  Norway.  They  had  attempted  an  air 
attack  on  Narvik  in  which  one  plane  had  been 
shot  down.  In  a  second  attack  on  Stavanger  nine 
more  were  shot  down.  They  could  not  continue 
that  much  longer,  but  in  the  course  of  it  Norway 
would  be  destroj'ed. 

Tlic  Fiihrer  then  asked  Hagelin  whether  he 
could  estimate  what  might  be  the  following  of  the 
Quisling  regime.  Hagelin  said  that  this  would 
amount  to  15  percent  of  the  population,  including 
the  most  active  elements.  In  discussing  efforts  at 
stabilizing  the  new  Government,  the  Fiihrer  said 
that  the  Quisling  Government  would  have  to  se- 
cure the  active  support  of  certain  groups  who 
would  have  to  declare  their  positions,  such  as  the 
chambers  of  commerce,  the  merchants,  the  ship- 
ping interests,  intellectual  elements,  professors, 
et  cetera.  Resistance  was  pure  folly,  and  what 
would  follow  if  it  was  continued  would  be 
terrible  and  fruitless.  Many  guiltless  people 
would  be  thereby  destroyed.  It  was  evident  that 
the  English  could  no  longer  drive  out  the  Ger- 
mans. The  Germans  were  now  occupying  the 
country  according  to  plan.  Hagelin  said  that  the 
King  also  would  have  given  in  had  not  new  hopes 
been  repeatedly  encouraged  by  false  reports. 

The  Fiihrer  considered  whether  he  himself 
.should  address  a  letter  to  the  King  in  order  to  put 
the  problem  in  front  of  liim  and  to  show  him  that 
he  would  be  forced  to  make  a  decision  between  two 
eventualities :  Either  to  follow  the  example  of 
Denmark  where  everything  was  quiet  and  in  order 
and  an  atmosphere  of  friendship  was  develop- 
ing or  to  urge  his  country  to  a  purposeless  resist- 
ance and  thereb}'  commit  everything  to  ashes  and 


ruins.  He  inquired  about  the  possibility  of  for- 
warding such  a  letter,  and  Hagelin  said  that  he 
could  guarantee  that  through  him  the  letter  would 
reach  the  hands  of  the  King  even  if  he  were  in 
Sweden.  He  had  personal  contacts  with  good 
friends  of  the  King,  especially  Captain  Irjens  and 
his  wife  who  were  not  active  politically  and  who 
could  approach  the  King  at  any  time.  Where  the 
King  was  at  the  moment  he  did  not  know.  The 
last  report  of  his  location  had  come  from  Elverum. 
As  the  discussion  came  to  the  proposal  of  the 
Swedish  Legation  to  undertake  the  protection  of 
Norwegian  interests,  the  Fiihrer  said  that  he 
wished  to  speak  to  the  Norwegian  Minister.  The 
latter  was  thereupon  invited  to  the  Rei»h  Chan- 
cellery. 

During  the  period  of  waiting  the  Fiihrer  made 
some  observations  about  the  circles  aroiuid  the 
King  which  had  led  the  King  to  make  a  false  es- 
timate of  the  situation.  He  said  that  the  little  man 
in  Norway,  especially  since  he  had  had  no  military 
training,  was  inclined  easily  to  put  faith  in  the 
English  lies,  since  he  was  totally  unprepared  to 
form  a  judgment  of  the  military  situation.  In 
that  way  rimiors  could  ujiset  everything  and,  for 
example,  the  report  that  Bergen  had  been  occu- 
pied by  the  English  fleet  could  rekindle  into 
flame  a  resistance  which  had  been  once  stamped 
out.  The  age  of  battle  fleets  was  over,  and  Eng- 
land could  no  longer  even  maintain  her  fleet  at 
Scapa  Flow. 

The  Fiilirer  believed  there  was  no  longer  any 
l^ossibility  of  making  an  impression  on  the  King. 
Even  in  Sweden  there  was  a  totally  false  idea  to 
the  effect  that  England  might  possibly  win  the 
war.  It  would  have  to  be  made  entirely  clear  that 
England  could  never  win  the  war.  Even  if  Ger- 
many lost  the  struggle,  Russia  would  be  the  victor 
in  the  northern  lands,  but  never  England.  The 
people  were  being  deluded,  and  ni  that  connection 
the  Jews  in  Sweden  were  taLing  a  large  part. 
Hagelin  again  declared  that  there  was  certainly 
still  a  chance  to  make  a  deal  with  the  King  or  the 
Crown  Prince.  The  King  had  been  under  the 
influence  of- those  who  surrounded  him,  who  were 
a  crowd  of  absolute  weaklings  who  had  lost  their 
heads  and  were  now  running  around  like  chickens 
in  a  chicken  yard.  This  sort  of  people,  said  the 
Fiihrer,  had  no  power  of  decision  and  never  had 
the  capacity  to  judge  a  situation  correctly.  Such 
weaklings  had  no  presence  of  mind  for  deciding 
what  has  happened  and  what  Mould  be  of  some  use 


702 


DEPARTMENT  OF  STATE  BULLETIN 


and  what  not.  He  made  some  comparisons  with 
the  hajjpenings  in  Poland.  At  the  suggestion  of 
the  Reich  Foreign  Minister  that  the  King  also 
might  well  have  been  sobered  by  the  latest  news, 
the  Fiihrer  said  that  new  lies  wei-e  always  being 
made  up.  Hagelin  portrayed  the  King  as  not 
stupid  even  if  he  were  also  not  very  acute  po- 
litically. The  Quisling  regime  would  certainly 
first  of  all  attempt  to  come  to  an  agreement  with 
the  King  in  order  to  calm  the  population.  In  the 
meantime  in  Oslo  business  activities  were  pro- 
ceeding quietly. 

The  Fidirer  noted,  however,  that  we  would  un- 
fortunately have  to  destroy  the  radio  station  at 
Tromso  by  bombing  since  it  was  broadcasting  regu- 
larly in  English. 

Following  a  short  discussion  on  the  subject  of 
Eussia  and  Finland,  the  conversation  was  inter- 
rupted as  the  Norwegian  Minister  had  arrived. 


Aft«r  Hagelin  had  been  brought  in  again  the 
Fiihrer  asked  him  how  large  he  estimated  the  mili- 
tary forces  of  Norway  to  be  at  the  moment.  Hage- 
lin said  that  they  were  not  large.  There  were  sev- 
eral regiments,  but  these  had  been  completely 
mixed  up  and  in  part  they  were  untrained.  For 
the  German  Army  they  would  certainly  form  no 
hindrance.  The  Fiihrer  considered  it  sinful  to 
attempt  to  make  a  stand  with  such  forces  and 
Hagelin  was  of  the  opinion  that  it  was  essential  to 
bring  this  to  the  attention  of  the  King. 

The  Reich  Foreign  Minister  again  brought  up 
the  question  of  whether  an  attempt  might  be  made 
through  the  King  of  Denmark,  who,  Hagelin  said, 
had  a  strong  influence  on  his  brother.  The  Fiihrer 
concluded  the  interview  with  the  remark  that  it 
made  no  difference  to  him  who  ruled  up  there.  He 
was  sending  his  troops  in  and  that  was  the  main 
thing.  Our  soldiers  certainly  did  not  conceive 
of  the  Norwegian  troops  as  opponents. 

Hagelin  requested  the  Fiihrer  to  name  a  military 
liaison  officer  to  his  Government  and  mentioned  a 
Major  Richter,  Breslau,  Holderstrasse  9,  as  espe- 
cially suited  for  the  position  since  he  had  many 
friends  in  Norway.  The  Fiihrer  agreed  and  gave 
(lie  order  that  Major  Richter  should  be  summoned 
to  Berlin. 

With  this  the  conversation  ended  having  lasted, 
with  interruptions,  from  11:  30  a.m.  to  1:  1.")  p.m. 

Berim,  April  13.  19. 'fi 

Hewel 


Conversation  hetween  the  Fiihrer  and  the  Norwe- 
gian Minister  Scheel  on  April  13,  lOJfO.  Also  pres- 
e7\t^  the  Reich  Foreign  Minister,  Under  Secretary 
of  State  Hahicht,  and  Foreign  Office  OfficialHewel 

The  Reich  Foreign  Minister  received  Minister 
Scheel  in  the  Reich  Chancellery  and  informed  him 
that  the  Fiihrer  wished  to  speak  with  him  on  ac- 
comit  of  tlie  uncertainty  of  the  situation.  AVith 
that  they  took  themselves  to  the  presence  of  the 
Fiihrer. 

The  Fiihrer  opened  the  discussion  by  asking 
what  Government  the  Norwegian  Minister  was 
actually  representing.  Minister  Scheel  replied 
that  he  did  not  know  himself.  Thereupon  the 
Fiihrer  outlined  to  him  the  reasons  for  the  entry 
of  the  German  Army  into  Norway.  The  situation 
was  very  simple.  He  had  gone  in  since  he  had 
learned  that  England  intended  to  occupy  Norway. 
Thanks  to  the  talkativeness  of  Mr.  Churchill  and 
reliable  reports  which  had  reached  him,  he  had 
complete  knowledge  of  the  English  intention.  No 
other  course  was  open  to  him  but  to  march  into 
Norway,  since  it  could  not  be  pei-mitted  that  Eng- 
land should  open  a  new  theater  of  war  there 
against  the  Reich. 

The  King  of  Denmark  had  come  to  the  cleverest 
and  wisest  decision.  Germany  had  moved  in  there 
and  would  pay  for  everything.  Favorable  trade 
relations  would  be  cultivated  with  Denmark. 
Denmark  could  send  many  things  to  Germany, 
and  he  would  insure  that  Denmark  would  be  able 
to  secure  from  Germany  whatever  she  had  pre- 
viously secured  from  the  Allies,  even  if  Germany 
had  to  draw  on  Russia  for  the  purpose.  After 
the  end  of  the  war  Denmark  would  get  everything 
back.  The  German  troops  were  conducting  them- 
selves in  a  praiseworthy  manner.  There  was  no 
plundering  and  already  friendly  relations  with 
the  i^opulation  were  being  formed.  Thus  Den- 
mark was  completely  unharmed  by  the  war.  If 
the  English  should  undertake  bombing  attacks 
on  Danish  cities,  every  such  attack  would  be 
aiiswered  by  a  jDOwerful  counterstroke.  The  same 
situation  would  have  prevailed  in  Norway  also 
if  the  King,  inider  the  influence  of  irresponsible 
advisers,  had  not  decided  on  a  foolish  course.  He, 
the  Fiihrer,  did  not  wage  war  with  kid  gloves. 
In  the  meantime  he  had  gotten  four  divisions  over 
there.  In  Oslo  alone,  this  evening,  there  were 
three  divisions.  Only  a  childish  sort  of  adviser 
would  counsel  resistance  against  such  force.    The 


APRIL  28,  1946 


703 


whole  thing  was  utter  folly.  If  the  Norwegians 
destroyed  their  railroads  they  were  hurting  them- 
selves, for  they  needed  these  means  of  transporta- 
tion for  the  upkeep  of  their  country  nuich  worse 
than  he  did,  wlio  had  other  means  of  supplying 
his  troops.  Personally  he  regretted  all  this  very 
much,  for  he  did  not  wish  to  wage  war  against 
Norway.  He  wanted  only  to  protect  his  own 
country  against  England.  The  neutrality  of 
Norway  would  have  been  best  for  him.  On  the 
following  day  the  German  troops  would  pass  to 
the  attack.  Any  resistance  would  be  broken 
by  most  barbarous  means.  The  sacrifices  in 
destruction  and  loss  of  life  which  Norwaj^  would 
have  to  suffer  were  to  him  personally  a  cause  of 
boiuidless  regret,  but  as  the  Norwegian  King  had 
decided  on  war,  he,  the  Fiihrer,  would  wage  war. 
To  the  question  of  Minister  Scheel,  whether  the 
Fiihrer  did  not  believe  that  all  would  be  over 
quickly,  the  Fiihrer  replied  that  he  certainly  be- 
lieved so,  but  that  it  would  be  a  slow  process  to 
stamp  out  the  small  resistance  units  which  had 
formed.  No  one  could  now  drive  us  out  of  Nor- 
way, least  of  all  the  English.  Minister  Scheel 
said  he  did  not  know  whether  sufficient  force  had 
been  on  hand  to  prevent  the  English  from  making 
an  attempt  at  landing  in  Norway.  To  this  the 
Fiihrer  replied  that  he  had  accurate  information 
that  Norway  had  known  of  the  English  plans  for 
a  landing,  and  that  he  was  convinced  that  Nor- 
way had  not  undertaken  to  prevent  it.  But  he 
was  not  one  of  those  people  who,  as  Mr.  Chamber- 
lain expressed  it,  missed  busses.  He  spoke  of  the 
Altmarh  and  protested  against  the  practice  of 
the  smaller  neutrals  dealing  with  the  belligerents 
with  dissimilar  policies.  It  was  time  that  re- 
sponsible people  even  in  Norway  should  remove 
the  picture  of  the  German  people  of  1918  from 
their  minds.  They  were  still  confusing  the  Ger- 
man people  of  today  with  those  of  that  day,  when 
Germany  was  being  governed  by  a  lot  of  mer- 
cenary dogs.  Today  there  were  83  million  Ger- 
mans M'ho  would  not  let  themselves  be  treated 
so  and  who  abpve  all  would  not  let  themselves 
be  treated  worse  than  the  English.  The  Nor- 
wegians should  have  made  armed  resistance  in 
the  Altmark  case.  We  Germans  had  not  violated 
Norwegian  neutrality.  German  U-boats  had  not 
operated  in  Norwegian  territorial  waters,  and  if, 
as  Herr  Scheel  believed,  Norway  was  actually 
jDowerless  against  English  attacks,  he  certainly 
could  not  allow  these  English  attacks  to  take  place. 


The  tragedy  for  all  these  countries  was  that  when- 
ever he  was  foiced  to  make  certain  demands  upon 
some  country  or  had  to  make  threats  against 
these  countries,  the  English  always  appeared  upon 
the  scene  and  told  the  people  in  conti'ol:  "He  can 
do  nothing.  He  is  only  bluffing.  He  is  only  trying 
to  frighten  you !"  The  result  of  foolish  trust 
in  these  shameless  English  declarations  was  an 
endless  amount  of  sorrow  and  ruin.  He  believed 
even  today  two  thirds  of  the  Norwegians  put  trust 
in  the  English  insinuations.  Minister  Scheel  said 
that  he  had  a  different  opinion.  The  Fiihrer  con- 
tinued that  he  had  not  willed  this  war.  What 
had  he  done  to  the  English  and  French?  He 
had  not  made  any  demands  of  them !  Minister 
Scheel  said  that  Norway  had  always  adopted 
a  correct  attitude  toward  Germany.  The  Fiihrer 
disputed  this  and  pointed  to  the  attitude  of  the 
press  in  the  small  neutral  states.  In  those  states 
any  fool  could  attack  Germany  and  sling  mud 
at  the  head  of  the  German  state.  Had  Herr  Scheel 
ever  seen  that  the  head  of  the  Norwegian  state 
was  attacked  in  the  German  press?  Herr  Scheel 
sought  to  show  that  the  relations  of  Norway  to 
Germany  had  been  really  very  good  and  as  for 
what  appeared  in  the  press,  there  was  in  Norway 
a  considerable  degree  of  freedom  of  the  i^ress. 
Here  the  Fiihrer  interrupted  him  and  showed  ex- 
amples indicating  that  the  freedom  of  the  press 
was  very  one-sided  and  that  if  an  article  favorable 
to  Germany  turned  up,  this  was  forbidden  on 
the  grounds  of  neutrality,  while  the  most  hostile 
articles  on  the  opposite  side  were  permitted  under 
the  motto  of  fi'eedom  of  the  press.  The  Fiihrer 
also  cited  examples  of  this  from  the  Belgian, 
Swiss,  and  Turkish  press. 

To  the  Foreign  Minister's  question  of  whether 
Minister  Scheel  was  in  communication  with  his 
Government,  whether  he  had  sent  telegrams  or  had 
an  answer,  Herr  Scheel  answered  that  he  had  had 
no  word  from  his  Government  since  the  entry  of 
the  Germans.  He  didn't  even  know  where  it  was. 
He  supposed  that  it  was  in  the  neighborhood  of 
the  Swedish  border.  He  had  telegraphed  by  way 
of  Stockholm  but  had  had  no  reply.  He  returned 
once  more  to  German-Norwegian  relations  and 
said  that  these  had  always  been  good,  except  for 
the  Ossiewsky  case,  which  had  been  very  difficult. 
Also  his  personal  relationships  in  Germany  had 
been  most  pleasant.  At  this  the  Fiihrer  said  that 
Germany  had  not  declared  war  on  Norway.  He 
{Continued  on  page  721) 


704 


DEPARTMENT  OF  STATE  BlLLETIiS 


The  ILO  Coal  Mining  Committee 


Article  by  MURRAY  ROSS  ' 


THE  INITIAL  SESSION  of  the  Coiil  Mining;  Com- 
mittee, first  of  the  newly  authorized  tripar- 
I  ite  industrial  committees  of  the  International 
Labor  Organization,  took  place  in  London  from 
December  5  to  12,  1945.  It  was  attended  by  rep- 
resentatives of  governments  and  iirominent  leaders 
of  workers'  and  employers'  organizations  from  11 
of  the  12  major  coal-producing  countries  which 
comprise  the  committee,  including  Australia,  Bel- 
gium. Canada,  Fiance,  India,  Netherlands,  Poland, 
South  Africa.  Turkey,  the  United  Kingdom,  and 
t  he  United  States.  During  its  six  days  of  delibera- 
tion the  committee  covered  various  social  and 
economic  aspects  of  the  coal  industry.  Its  major 
actions  consisted  of  the  fornudation  of  a  "mine- 
workers'  charter''  for  possible  eventual  adoption  as 
an  international  code  and  the  submission  to  the 
Governing  Body  of  the  International  Labor  Office 
of  a  set  of  recommendations  concerning  the  future 
recruitment  of  labor  for  the  coal  industry. 

The  meeting  was  held  under  the  chairmanship 
of  Leon  Troclet,  Belgian  Minister  of  Labor  and 
representative  of  member  governments  on  the  ILO 
(xoverning  Body.  The  employers'  and  workers' 
groups  of  the  Governing  Body  were  represented 
respectively  by  Sir  John  Forbes- Watson,  director 
of  tiie  British  Employers'  Confederation,  and  by 
Leon  Jouhaux,  general  secretary  of  the  French 

'  llr.  Ross  is  Assistant  Cliief  of  the  International  Lalior 
Oi-frnnizatioiis  Braiieli,  Division  of  International  Labor, 
Social  anil  Hi'iilth  .Vftiiirs,  Office  of  International  Trade 
Policy,  Deiiartnient  of  State. 

■Inland  Transport;  Textiles;  Coal  Mining;  Petrolenni 
Production  and  Refining;  Metal  Trades;  Iron  and  Steel 
Production  ;  and  liuilding.  Civil  Engineering  and  Public 
Works. 

^  IntentntioiKit  Ldhar  Rcrirtr.  vol.  LII,  nos.  2-3,  Aug.- 
Sept.,  104.'!. 

*  For  article  on  the  Eumijean  ("oal  Orjianization  by 
Wayne  G.  Jack.son,  .see  Rclletin  of  Dec.  2,  ItUf),  13.  87!). 


Confederation  of  Labor.  The  United  States  Gov- 
ernment was  represented  by  Witt  Bowden,  econo- 
mist in  the  Department  of  Labor,  and  George  A. 
Lamb,  assistant  director  of  the  Bureau  of  Mines, 
Department  of  Interior.  Robert  T.  Koenig, 
president  of  the  Ayrshire  Collieries  Corporation, 
and  H.  J.  Connolly,  president  of  the  Pennsylvania 
Coal  Company,  represented  United  States  em- 
ployers. Thomas  Kennedy,  secretary-treasurer  of 
the  United  Mine  Workers  of  America,  and  John  T. 
Jones,  president  of  district  16  of  the  United  Mine 
Workers  of  America,  represented  United  States 
workers. 

On  the  basis  of  its  experience  since  1919,  the 
ILO  had  come  to  the  conclusion  that  the  amount 
of  attention  that  could  be  devoted  to  the  social 
problems  of  specific  industries  by  its  annual  con- 
ference was  necessarily  so  restricted  that  addi- 
tional machinery  to  cope  adequately  with  these 
problems  was  desirable.  As  a  result,  the  Governing 
Body  took  the  step  in  January  1945  to  establish 
seven  major  industrial  committees  -  for  the  pur- 
jjose  of  paying  closer  attention  to  particular  in- 
dustries and  in  this  way  to  give  practical  eti'ective- 
ness  to  its  previously  evolved  general  principles.^ 
Because  of  the  intrinsic  importance  of  the  coal 
industry  to  all  industrial  reconstruction,  the  Coal 
INIining  Committee  was  selected  as  the  first  one 
to  convene.  The  Governing  Body  of  the  ILO  had 
placed  two  questions  on  its  agenda  :  (1)  Tiie  social 
problems  of  the  industry  during  the  transition 
from  war  to  peace;  and  (2)  future  international 
cooperation  concerning  social  policy  and  its  eco- 
nomic foundations  in  the  industry.  In  choos- 
ing these  topics  great  care  was  exercised  to  com- 
plement the  work  of  tlie  European  Coal  Organi- 
zation and  to  avoid  overlapping  jurisdictions.^ 

Tlie  conference  sessions  were  held  in  an  atmos- 
phere dominated  by  the  dire  fuel  shortage,  the 


APRIL  28,  1946 


705 


impending  nutionulizution  of  coal  mines  in  the 
United  Kingdom  and  France,  and  the  acute  short- 
age of  properly  trained  workers  in  several  of  the 
countries  represented.  In  the  course  of  their  in- 
troductory remarks,  the  Governing  Body  repre- 
sentatives at  the  session  urged  the  delegates  to 
establish  the  conunittee  as  a  "working  party" 
taking  practical  decisions  leading  to  action,  rather 
than  merely  passing  general  resolutions.  In  this 
connection  it  was  pointed  out  that,  in  addition  to 
refei'ring  its  resolutions  to  the  ILO  for  further 
exploration  or  for  embodiment  in  an  international 
convention,  the  conunittee  could  bring  agreed 
decisions  directly  to  the  attention  of  governments 
concerned  for  approval  and  implementation. 

The  emploj'ers'  delegates  to  the  committee,  sev- 
eral of  whom  were  in  an  anomalous  position  because 
of  the  impending  nationalization  of  the  coal  in- 
dustry in  their  countries,  expressed  the  attitude 
that  the  most  valuable  results  from  the  conference 
would  probably  be  an  exchange  of  views  and  the 
e.stablishment  of  a  reliable  fact-finding  agency. 
The  woi-kers'  delegates  urged  concentration  and 
effective  practical  action  on  the  problems  of  work- 
ing hours,  safety  measures,  and  similar  social  and 
economic  issues.  Speakers  of  all  groups  and  coun- 
tries present  stressed  manpower  deficiencies  as  the 
industry's  basic  problem.  To  expedite  action,  two 
subcommittees  were  established,  the  first  to  deal 
with  the  question  of  manpower  and  the  second  to 
explore  social  conditions  with  special  reference  to 
hours  of  work.  The  long-term  program  for  the 
coal  industry  was  left  for  consideration  by  the 
steering  subconnnittee  of  the  group. 

After  due  consideration  of  the  pressing  prob- 
lems facing  the  coal  industry,  the  .subcommittee 
on  manpower  pi'oposed  a  resolution  recognizing 
that  prisoners  were  employed  in  several  European 
countries  in  order  to  alleviate  fuel  scarcity  caused 
by  the  war  and  asking  the  ILO  to  advise  member 
governments  to  stagger  prisoners'  return  so  that 
employers  would  have  ample  warning  to  make  the 
necessary  replacements  and  avoid  dislocation. 
The  resolution  also  recommended  that  where  gov- 
ernments derived  financial  profit  from  the  differ- 
ence between  wages  paid  to  them  by  employers  for 
prisoners  and  the  cost  of  maintaining  the  pris- 
oners, all  such  profits  should  be  used  for  the  general 
benefit  of  the  mining  community.  Although  the 
American,  Australian,  and  Canadian  workers' 
delegates  expressed  their  opposition  to  the  em- 
ployment of  prisoners  in  mines  as  morally  unsound, 

6911521—40 ;! 


they  appreciated  the  position  of  formerly  occupied 
countries.  The  resolution  was  adopted  without 
record  vote. 

On  the  subject  of  manpower  recruitment,  the 
subcommittee  recommended  that  the  ILO  be 
asked  to  undertake  an  appropriate  inquiry,  in- 
cluding the  preparation  and  circulation  of  a  ques- 
tionnaire on  which  member  governments  could 
give  their  views  as  well  as  the  views  of  national 
emjDloyers'  and  workers'  organizations.  The  re- 
sults would  then  be  submitted  to  the  committee's 
ne.xt  session.  The  subcommittee  also  proposed  a 
resolution  recommending  that  miners  be  granted 
"more  favorable  conditions  of  life  than  those 
enjoyed  in  other  industries"  and  that  govern- 
ments undertake  a  publicity  campaign  to  present 
mining  "in  its  true  light"  and  to  remove  present 
"unfavorable  public  prejudice."  Another  unan- 
imously adopted  resolution  requested  the  ILO  to 
start  an  inquiry  which  would  provide  the  com- 
mittee with  information  necessary  for  the  study 
of  social  problems  and  certain  economic  and  tech- 
nical aspects  of  the  coal  industry.  As  part  of 
the  inquiry,  a  questionnaire  to  the  member  gov- 
ernments is  to  include  special  reference  to  the 
mechanization  of  mining.  It  was  felt  that  these 
preliminary  steps  should  precede  any  recommen- 
dation by  the  committee  on  the  subject  of  the 
utilization  of  available  resources  in  the  coal  in- 
dustry. 

The  subcommittee  on  minewoi'kers'  charter,  in 
spite  of  wide  differences  of  opinion,  was  able  to 
reach  substantial  agreement  on  all  major  points. 
It  offered  the  following  statement  of  eight  prin- 
ciples designed  to  maintain  stable  employment, 
miners'  social  welfare,  and  adequate  recruitment : 
stabilization  of  coal  production  and  use,  and  the 
development  of  alternative  uses  of  coal;  wages 
attractive  in  comparison  with  the  general  wage 
level,  and  paid  holidays;  a  lower  maximum  work- 
week than  in  other  industries;  adequate  safety 
provisions  and  compensation  schemes;  social  bet- 
terment; adequate  pensions;  training  schemes 
for  young  recruits;  cooperation  among  all  inter- 
ests involved,  including  collective  bargaining. 
The  subcommittee  also  passed,  with  some  absten- 
tions, a  recommendation  to  the  effect  that  inter- 
national agreement  between  coal-producing  coun- 
tries to  remove  unfair  competition  would  facili- 
tate   implementation    of    the    above    principles. 

{Continued  on  page  727) 


The  United  Nations 


Meeting  of  the  Security  Councir 

DISCUSSION  OF  SOVIET-IRANIAN  MATTER 


Letter  From  the  Iranian  Ambassador  to  tlie  Presi- 
dent of  the  Secwrity  Council  ^ 

New  York,  15th  April,  191,6. 
Sir, 

On  April  9,  194G,  I  had  the  honour  to  state,  in 
accordance  with  the  instructions  of  my  Govern- 
ment, its  position  regarding  the  request  of  the 
Soviet  Representative  on  tlie  Security  Council 
that  the  Council  remove  from  its  agenda  the 
matters  relating  to  the  continued  presence  of 
Soviet  troops  in  Iran  and  the  interfei-ences  in  the 
internal  affairs  of  Iran.  In  my  letter,  I  informed 
the  Council  of  the  desire  of  my  Government  that 
these  matters  remain  on  its  agenda  as  provided  by 
tlie  resolution  adopted  on  4  April  1946. 

Yesterday,  April  14,  my  Government  instructed 
me  to  make  to  the  Security  Council  the  following 
statement : 

"As  a  result  of  the  signature  of  the  agreement 
between  the  Iranian  Government  and  the  Govern- 
ment of  the  Soviet  Union,  it  has  been  agreed  that 
the  Red  Army  evacuate  all  Persian  Territory  by 
the  6th  May  1946.  The  Iranian  Government  has 
no  doubt  that  this  agreement  will  be  carried  out, 

'  In  session  since  Mar.  25, 1946  at  Hunter  College  in  New 
York,  N.  Y. 

'Read  by  the  President,  Dr.  Quo  Tai-Clii,  before  the 
32d  meeting  on  Apr.  15. 

'Edward  R.  Stettinius,  .Ir.  These  reniarljs  were  made 
liefore  the  32d  meeting  on  Apr.  15,  immediately  following 
the  Soviet  member's  remarlcs  to  the  effect  that  since  the 
Iranian  Government  understands  that  no  useful  purpose 
can  be  served  by  having  the  Iranian  matter  on  the  agenda, 
the  Council  should  decide  to  remove  the  matter  from  the 
agenda. 

706 


but  at  the  same  time  has  not  the  right  to  fix  the 
course  the  Security  Council  should  take." 

This  morning  I  received  a  further  telegram  from 
my  Government  reading  as  follows : 

"In  view  of  the  fact  that  the  Soviet  Ambassador 
has  again  today  14  April  categorically  reiterated 
that  the  unconditional  evacuation  of  Iranian  ter- 
ritory by  the  Red  Army  will  be  completed  by  the 
6  May  1946  it  is  necessary  that  j'ou  immediately 
inform  the  Security  Council  that  the  Iranian  Gov- 
ernment has  complete  confidence  in  the  word  and 
pledge  of  the  Soviet  Government  and  for  this 
reason  witlidraws  its  complaint  from  the  Security 
Council." 

I  have  the  honour  [etc.] 

Hussein  Ala, 
Iranian  Ambassador. 
His  Excellency 
Dr.  Quo  Tai-Chi, 

President  of  the  Security  Ootmcil, 

New  York. 

Remarks  by  the  U.  S.  Representative  ^ 

The  United  States  is  naturally  pleased  to  learn 
that  the  Soviet  Union  and  Iran  consider  that  the 
issues  between  them  are  in  the  course  of  being 
solved  in  a  manner  satisfactory  to  both  parties. 

The  difficulties  between  the  Soviet  Government 
and  the  Iranian  Government  have  twice  been 
brought  to  the  Council's  attention. 

On  the  first  occasion  the  Iranian  Government 
complained  of  activities  of  the  Soviet  troops  on 
Iranian  territory,  which  it  contended  were  not 
authorized  or  permitted  by  the  Tripartite  Treaty 
of  29  January  1942,  and  interfered  with  the 
sovereignty  of  Iran. 


APRIL  28,  1946 


707 


On  the  second  occasion  the  Iranian  Government 
complained  of  the  continued  presence  of  Soviet 
troops  in  Iran,  without  its  approval,  beyond  the 
date  stipulated  for  their  withdrawal  in  that  treaty. 

In  the  view  of  the  United  States  Delegation  tlie 
complaints  of  the  Iranian  Government  were  prop- 
erly brought  to  the  Council's  attention  under 
Article  34  of  the  Charter. 

It  is  the  clear  duty  of  the  Council  to  receive  the 
complaint  of  any  sovereign  State  that  foreign 
troops  are  being  used  on  its  territory  in  a  manner 
not  authorized  or  permitted  by  treaty.  It  is  the 
clear  duty  of  the  Council  to  receive  the  complaint 
of  an}'  sovereign  State  that  foreign  troops  are  con- 
tinuing to  i-emain  on  its  territory,  without  its 
consent,  beyond  the  date  authorized  by  treaty. 

Such  complaints  pi-esent  grave  issues  under 
Article  2  of  section  4  of  the  Charter  of  the  United 
Nations  concerning  "the  threat  or  use  of  force 
against  the  territorial  integrity  or  the  political 
indeijendence  of  any  State  or  in  any  other  manner 
inconsistent  with  the  jjurposes  of  the  Charter". 
When  such  complaints  are  presented  to  the  Coun- 
cil, clearly  it  is  not  permissible  for  the  Council 
to  take  the  position  that  the  continuation  of  the 
conditions  complained  about  would  not  endanger 
international  jDeace  and  security. 

The  Council  had  before  it  on  4  April,  when  it 
adopted  the  resolution  on  the  Iranian  matter,  the 
assurances  given  to  it  by  the  Soviet  Government 
that  the  withdrawal  of  Soviet  troops  had  com- 
menced and  would  be  completed  by  6  May,  and  that 
this  withdrawal  was  not  conditional  upon  any 
other  matters  being  discussed  by  the  two  Gov- 
ernments. These  assurances,  and  the  willingness 
of  the  Iranian  Government  to  accept  them,  were 
the  basis  upon  which  the  Council  acted. 

I  emphasize  these  facts  that  these  assurances 
were  given  to  the  Council  itself  and  that  the  ac- 
tion of  the  Council  on  4  April  was  to  leave  the 
matter  on  the  agenda  until  6  May  in  the  hope  and 
belief  that  the  withdrawal  of  Soviet  troops  by  that 
date  would  have  disposed  of  all  phases  of  the  mat- 
ter before  the  Council. 

Tlius,  the  assurances  given  to  the  Council  and  the 
action  taken  by  the  Council  are  interdependent. 

We  are  now  asked  to  consider  this  matter  again, 
and  prior  to  6  May.  It  is  not  represented  to  us 
that  the  situation,  in  connection  with  the  with- 
drawal of  troops,  has  in  any  manner  changed  since 
4  April.  Neither  the  Soviet  Government  nor  the 
Iranian  Government  suggests  that  the  assurances 


will  not  be  carried  out,  nor  that  they  will  be  car- 
ried out  sooner  than  was  anticipated  on  4  April. 

To  reconsider  the  case  at  this  time  would  raise 
many  difficult  and  grave  questions,  which  my  Gov- 
ernment hopes  and  believes  will  be  solved  by  the 
withdrawal  of  troops,  in  accordance  with  the  So- 
viet assurances.  We  do  not  see  that  any  advan- 
tage would  be  gained  by  going  into  such  questions, 
at  this  interim  phase,  of  the  matter. 

For  these  reasons,  my  Government  does  not  be- 
lieve that  there  are  valid  grounds  for  changing  the 
procedure,  adopted  by  the  Council  on  4  April,  for 
the  disposal  of  the  Iranian  case,  and  will  therefore 
not  support  the  motion  to  delete  the  Iranian  mat- 
ter from  the  agenda  at  this  time. 

We  sincerely  hope  that  on  6  May,  upon  being 
informed  that  the  withdrawal  of  Soviet  troops 
from  Iran  has  been  completed,  the  Council  will 
be  able  to  drop  the  matter  from  the  agenda. 

Here  follow]  remarks  hy  other  representatives. 
Mr.  Stettinius  later  in  the  meeting  made  the 
following  remarks 

Before  we  adjourn  and  before  further  discus- 
sion, in  which  I  hojae  to  take  part,  I  must  make  it 
clear  to  the  Delegate  for  the  Soviet  Union  and  to 
the  Council  that  I  have  made  no  proposal  in  our 
discussion  this  afternoon.  I  have  merely  at- 
tempted to  explain  to  the  Council  the  reasons  why 
it  was  impossible  for  the  United  States  Govern- 
ment to  support  a  request  that  was  put  before  the 
Council,  by  the  Delegate  for  the  Soviet  Union. 

Letter  fronh  the  Secretaiy-General  to  the  President 
of  the  Security  Covmcil  Conceiving  the  Question  of 
the  Retention  of  the  Iranian  Case  on  the  Agenda 
of  the  Security  Council  ^ 

April  16,  19Jfi. 

I  feel  it  desirable  to  present  to  you  my  views 
with  respect  to  the  legal  aspects  of  the  question 
of  the  retention  of  the  Iranian  case  on  the  agenda 
of  the  Security  Council.  The  decision  taken  by 
the  Council  in  this  matter  may  institute  an  im- 
portant pi'ecedent  for  the  future,  and  it  seems  to 
me  advisable  to  consider  it  most  carefully  in  order 
to  avoid  a  precedent  which  may  cause  later 
difficulties. 

I  submit  the  views  herein  expressed  to  you  for 
such  use  as  you  may  care  to  make  of  them. 

'Read  by  the  President,  Dr.  Quo  Tai-Chi,  at  the  33d 
meeting  on  Apr.  16. 


708 


DEPARTMENT  OF  STATE  BULLETIN 


On  March  18,  1946,  the  Iranian  representative 
brought  to  the  attention  of  the  Security  Council, 
pursuant  to  Article  35,  paragraph  1,  of  the  Char- 
ter, "a  dispute  between  Iran  and  the  U.S.S.R.,  the 
continuance  of  which  is  likely  to  endanger  the 
maintenance  of  international  peace  and  security." 
On  April  8  the  Council  "resolved  that  the  Council 
defer  further  proceedings  on  the  Iranian  appeal 
until  May  0."  On  April  15  the  Iranian  represent- 
ative informed  the  Security  Council  that  the  Iran- 
ian Government  "withdraws  its  complaints  from 
the  Security  Council.  Previously  the  Soviet  rep- 
resentative had  requested  "that  the  Iranian  ques- 
tion sliould  be  removed  from  the  agenda  of  the 
Security  Council." 

The  issue  considered  yesterday  in  the  Security 
Council  is  whether  the  question  can  properly  be 
retained  on  the  agenda  in  view  of  the  fact  that 
both  parties  now  have  requested  that  it  be  re- 
moved. 

The  powers  of  the  Security  Council  are  set  forth 
in  Chapter  VI  of  the  Charter  in  the  following 
manner : 

Under  Article  33  the  Council  may  call  upon  the 
parties  to  a  dispute  to  settle  it  by  negotiation, 
enquiry,  etc.  Under  Article  34  it  may  investigate 
any  dispute  or  situation  which  might  lead  to  inter- 
national friction  or  give  rise  to  a  dispute.  Under 
Article  30  it  may  recommend  appropriate  proce- 
dures for  the  settlement  of  a  dispute  under  Arti- 
cle 33,  or  of  a  situation  of  like  nature.  Under 
Article  37  the  Council  may  decide  to  take  action 
under  Article  36  if  it  deems  that  the  continuance 
of  a  dispute  is  in  fact  likely  to  endanger  the  main- 
tenance of  international  peace  and  security. 
Finally,  under  Article  38  it  may,  if  all  the  parties 
to  any  dispute  so  request,  make  recommendations 
to  the  parties  with  a  view  to  pacific  settlements. 

It  is  to  be  noted  that  the  Security  Council  can 
be  seized  of  a  dispute  or  situation  in  one  of  three 
ways: 

1.  Under  Article  35  by  a  state. 

2.  Under  Article  34  by  the  Security  Council 

itself. 

3.  Under  Article  99  by  the  Secretary-General. 

In  the  present  case.  Article  99  is  obviously  not 
applicable.  The  Security  Council  has  taken  no 
action  under  Article  34,  i.e.  it  has  not  ordered  an 


'  Mailc   liefore   the   3.''.(1    inct'tiiig   (in    Apr.    IG. 
from  vei-biitim  minutes. 


Printed 


investigation,  which  is  the  only  action  possible 
imder  that  article.  It  is  therefore  not  applicable 
at  this  time  and  cannot  become  applicable  until 
an  investigation  is  ordered. 

The  Council  was  originally  seized  of  the  dispute 
under  Article  35,  paragraph  1.  Now  that  Iran 
has  withdrawn  its  complaints,  the  Council  can 
take  no  action  under  Article  33,  36,  37  or  38,  since 
the  necessary  conditions  for  applying  these  articles 
(namely,  a  dispute  between  two  or  more  parties) 
do  not  exist.  The  only  Article  under  which  it  can 
act  at  all  is  Article  34.  But  that  Article,  as  has 
already  been  said,  can  only  be  invoked  by  a  vote 
to  investigate,  which  has  not  been  taken  or  even 
suggested  in  this  case. 

It  is  therefore  arguable  that  following  with- 
drawal by  the  Iranian  representative,  the  question 
is  automatically  removed  from  the  agenda,  unless : 

a.  The  Security  Council  votes  an  investigation 
under  Article  34,  or 

b.  A  member  brings  it  up  as  a  situation  or  dis- 
pute under  Article  35,  or 

c.  The  Council  proceeds  under  Article  36,  par. 
1,  which  would  appear  to  require  a  preliminary 
finding  that  a  dispute  exists  under  Article  33,  or 
that  there  is  "a  situation  of  like  nature." 

An  argument  which  may  be  made  against  the 
view  of  automatic  removal  from  the  agenda  is  that 
once  a  matter  is  brought  to  the  attention  of  the 
Council,  it  is  no  longer  a  matter  solely  between 
the  original  jiarties,  but  one  in  which  the  Council 
collectively  has  an  interest,  as  representing  the 
whole  of  the  United  Nations.  This  may  well  be 
true;  but,  it  would  appear  that  the  only  way  in 
which,  imder  the  Charter,  the  Council  can  exercise 
that  interest,  is  under  Article  34,  or  under  Article 
36,  paragraph  1.  Since  the  Council  has  not  chosen 
to  invoke  Article  34  in  the  only  way  in  which  it 
can  be  invoked,  i.e.  through  voting  an  investiga- 
tion, and  has  not  chosen  to  invoke  Article  36.  para- 
graph 1,  by  deciding  that  a  dispute  exists  luider 
Article  33  or  that  there  is  a  situation  of  like  na- 
ture, it  may  well  be  that  there  is  no  way  in  wliich 
it  can  remain  seized  of  the  matter. 

Trygve  Lie. 

Beniarks  by  the  U.  S.  Representative  ^ 

Mr.  President,  the  Soviet  Delegate  yesterday 
questioned  the  motives  of  the  United  States  in  this 
case.     I   am  genuinely  sorry  he  has  done  this, 


APRIL  28,  1946 


709 


because  I  feel  deeply  that  tlie  membership  on 
this  great  Council  carries  a  tremendous  responsi- 
bility. In  my  view,  we  should  all  avoid  indulging 
in  accusations  against  the  motives  of  any  of  the 
United  Nations. 

My  Government,  throughout  the  conduct  of  this 
so-called  Iranian  case,  has  had  only  one  motive 
in  mind  at  any  time,  and  that  was  fulfilling  the 
objective  of  the  Charter  of  the  United  Nations. 
Both  Secretary  of  State  Byrnes  and  I  have  scru- 
pulously refrained  from  questioning  the  motives 
of  any  member,  and  I  shall  therefore  not  pursue 
this  aspect  of  the  matter  further  but  shall  turn 
to  the  merits  of  the  actual  question  before  us. 

The  question  before  us  is  the  request  of  the  So- 
viet Rei^resentative  that  the  case  should  be  stricken 
immediately  fi'om  the  agenda  of  the  Council.  I 
would  like  to  point  out  in  this  connection  that  the 
Soviet  Representative  continues  to  maintain  the 
contention  set  forth  in  his  letter  of  April  6th  ^  that 
the  entire  Council  action,  including  the  resolu- 
tion of  April  4th,-  was  illegal  and  not  in  conform- 
ity with  the  Charter.  I  think  the  Council,  in  con- 
sidering the  Soviet  proposal,  should  not  allow  the 
subsequent  Iranian  request  received  on  April  15 
for  the  withdrawal  of  the  complaint  to  divert  its 
attention  from  this  unjustifiable  charge. 

It  has  been  stated  that  the  mere  withdrawal  of  a 
complaint  by  a  member  of  the  United  Nations  in 
itself  prevents  the  Council  from  retaining  the 
question  on  its  agenda.  I  cannot  agree  with  this 
interpretation  that  it  is  not  within  the  power  of  the 
Council  to  continue  this  matter  on  the  agenda 
despite  the  withdrawal  of  its  complaint  by  the 
Iranian  Government. 

In  view  of  this  power  of  the  Council,  the  only 


question  is  whether  or  not  the  present  circum- 
stances justify  a  reversal  of  the  resolution  of  April 
4th.  In  the  opinion  of  the  United  States  Gov- 
ernment— and  apparently  of  other  members  who 
spoke  to  this  point  yesterday — it  would  be  unwise 
for  the  Council  to  drop  the  Iranian  matter  from 
its  agenda,  in  spite  of  the  fact  that  the  parties 
concerned  have  requested  to  do  so. 

I  believe  it  has  been  made  clear  to  the  members 
of  the  Council  that  the  principal  factor  in  this 
case,  and  the  one  which,  from  the  Iranian  Gov- 
ernment's own  standpoint,  led  it  to  bring  this  case 
fii-st  to  this  table,  has  been  the  actual  presence  of 
Soviet  forces  in  Iran  after  the  expiration  of  the 
Tripartite  Ti-eaty  and  against  the  protest  of  the 
Iranian  Government.  The  Council  cannot  ignore 
the  fact  that  the  sudden  reversal  by  the  Iranian 
Government  of  the  position  which  it  has  stead- 
fastly maintained  until  yesterday  occurred  while 
Soviet  troops  were  still  physically  in  Iran. 

I  would  like  to  add  one  more  point,  Mr.  Presi- 
dent. The  retention  of  this  matter  on  the  agenda 
as  provided  by  the  resolution  of  April  4th  does  not, 
as  some  members  of  the  Comicil  have  implied,  con- 
stitute any  infringement  of  the  sovereign  rights  or 
independence  of  Iran,  nor  interfere  in  the  agi'ee- 
ments  already  reached  between  the  parties.  On  the 
contrary,  it  affords  to  them  the  opportunity  of 
demonstrating  to  the  Council  and  to  the  world 
that  the  confidence  reposed  by  the  Council  in  the 
assurances  received  in  this  matter  is  fully  justified. 
Procedures  set  forth  in  the  resolution  of  April  4th 
will  make  it  possible  on  May  6th  or  before,  if  the 
withdrawal  is  completed  before  that  date,  for  the 
Council  to  dispose  of  this  case  in  conformity  with 
its  responsibilities  under  the  Charter. 


DISCUSSION  OF  PRESENT  REGIME  IN  SPAIN 


Eemwks  by  the  U.  S.  Representative  ^ 

Mr.  President,  the  hour  is  late.  I  shall  therefore 
be  brief.  I  am  sure  that  many  of  us  would  wish 
an  opportunity  to  study  the  statements  that  have 
been  made  by  the  Polish  Delegate.  Therefore, 
without  specific  reference  to  the  Resolution  that 
the  Polish  Delegate  has  presented  to  the  Council,* 
or  without  specific  reference  to  the  views  of  other 


Delegates  who  have  spoken  this  afternoon,  I 
would  like  at  this  time  to  state  briefly  the  basic 
position  of  the  United  States  of  America  in 
regard  to  the  question  before  the  Council. 

'■  BuixETiN  Of  Apr.  21,  1946,  p.  6.58. 
=  Bulletin  of  Apr.  14,  1946,  p.  621. 
'  Made  before  the  34th  meeting  on  Apr.  17. 
'The  text  of  the  resolution  proposed  by  Oscar  Lange, 
Polish  Ambassador  to  the  United  States  and  Representa- 


710 


DEPARTMENT  OF  STATE  BULLETIN 


The  attitude  of  my  Government  in  regard  to 
tlie  governing  regime  in  Spain  has  been  clearly 
stated  on  frequent  occasions.  More  than  a  year 
ago,  the  late  President  Roosevelt,  in  a  letter  that 
has  already  been  referred  to  several  times  this 
afternoon,  wrote  our  newly  appointed  Ambassa- 
dor Armour  in  Spain,  and  stated  that  although 
we  had  the  most  friendly  feelings  for  the  Spanish 
people,  we  could  take  no  measures,  in  economic 
or  other  fields,  to  demonstrate  that  friendship 
so  long  as  the  Franco  regime  remained  in  power. 
He  wished  to  make  it  abundantly  clear  that  his 
action  in  sending  an  Ambassador  to  Spain  was  not 
to  be  misconstrued  as  indicating  approval  of  the 
Franco  regime.  In  that  letter,  part  of  which 
the  Polish  Re|3resentative  quoted  this  afternoon 
in  his  remarks,  Mr.  Roosevelt  said :  "Having  been 
helped  to  power  by  Fascist  Italy  and  Nazi  Ger- 
many, having  patterned  itself  along  totalitarian 
lines,  the  present  regime  in  Spain  is  naturally  the 
subject  of  distrust  by  a  great  many  Americaji 
citizens  who  find  it  difficult  to  see  the  justifica- 
tion for  this  country  to  continue  to  maintain  re- 
lations with  such  a  regime.  Most  certainly,  we 
do  not  forget  Spain's  official  position  and  assist- 
ance to  our  Axis  enemies  at  a  time  when  the  for- 
tunes of  war  were  less  favorable  to  us,  nor  can  we 
disregard  the  activities,  aims,  organizations,  and 
public  utterances  of  the  Falange,  both  past  and 
present.    These  memories  cannot  be  wiped  out  by 


actions  more  favorable  to  us,  now  that  we  are 
about  to  achieve  our  goal  of  complete  victory  over 
those  enemies  of  all  humanity.  The  present  Span- 
ish regime  identified  itself  in  the  past  by  its  public 
expressions  and  by  its  acts."  That  is  the  end  of 
the  reference  to  Mr.  Roosevelt's  letter  to  which  I 
referred.^ 

It  is  well  known  that  we  have  gladly  sup- 
ported the  resolutions  at  San  Francisco  and 
at  Potsdam,"  and  the  resolution  passed  by  the 
General  Assembly  in  London ''  last  January,  all 
of  which  have  been  referred  to  this  afternoon. 
So  long  as  the  present  regime  I'emains  in  power 
in  Spain,  that  country  will  not  be  permitted  to 
become  a  member  of  the  United  Nations. 

My  Government  has  two  broad  objectives  with 
regard  to  the  situation  in  Spain.  The  first  is  that 
the  Franco  regime  and  its  trappings  and  affiliated 
organizations,  such  as  the  Falange,  be  removed 
from  power  by  the  Spanish  people  at  the  earliest 
possible  moment  in  order  that  Spain  may  resume 
its  rightful  place  in  the  family  of  nations.  Our 
second  objective  is — and  I  am  sure  that  this  is  also 
the  earnest  desire  of  every  one  of  us  here  at  this 
table — that  this  change  in  regime  in  Spain  be  ac- 
complished by  peaceful  means  and  that  the  Span- 
ish people  be  spared  the  horrors  of  a  resumption 
of  civil  conflict  which  would  almost  certainly  have 
serious  international  repercussions.  We  have  been 
(Continiied  on  page  115) 


tive  of  Poland  on  the  Security  Council  is  as  follows : 

"The  Security  Council  declares  that  the  existence  and  ac- 
tivities of  the  Franco  regime  in  Spain  have  led  to  inter- 
national friction  and  endangered  International  peace  and 
security. 

"In  accordance  with  the  authority  vested  in  it,  under 
articles  39  and  41  of  the  Charter,  the  Security  Council 
calls  upon  all  Members  of  the  United  Nations  who  main- 
tain diplomatic  relations  with  the  Franco  Government  to 
sever  such  relations  immediately. 

"The  Security  Council  expresses  its  deep  sympathy  to 
the  Spanish  people.  It  hopes  and  expects  that  the  people 
of  Spain  will  regain  the  freedom  of  which  tliey  have  been 
deprived  with  the  aid  and  contrivance  of  Fascist  Italy 
and  Nazi  Germany.  Tlie  Security  Council  is  convinced 
that  the  day  will  come  soon  when  it  will  be  able  to  wel- 
come the  Spanish  nation  into  the  community  of  the  United 
Nations." 

°  Bulletin  of  Sept.  30,  1945,  p.  466. 

°  BtnxBTiN  of  Aug.  5,  1945,  p.  159. 

'  The  text  of  the  resolution  adopted  by  the  General 
Assembly  follows : 


1.  The  General  Assembly  recalls  that  the  San  Fran- 
cisco Conference  adopted  a  resolution  according  to  which 
paragraph  2  of  article  4  of  chapter  II  of  the  United  Na- 
tions Charter  "cannot  apply  to  States  whose  regimes  have 
been  installed  with  the  help  of  armed  forces  of  countries 
which  have  fought  against  the  United  Nations  so  long  as 
these  regimes  are  in  power." 

2.  The  General  Assembly  recalls  that  at  the  Potsdam 
Conference  the  Governments  of  the  United  Kingdom,  the 
United  States  of  America  and  the  Soviet  Union  stated 
that  they  would  not  support  a  request  for  admission  to  the 
United  Nations  of  the  present  Spanish  Government  "which, 
having  been  founded  with  the  support  of  the  Axis  powers, 
in  view  of  its  origins,  its  nature,  its  record  and  its  close  as- 
sociation with  the  aggressor  States,  does  not  possess  the 
necessary  qualifications  to  justify  its  admission." 

3.  The  General  Assembly,  in  endorsing  these  two  state- 
ments, recommends  that  the  Members  of  the  United  Na- 
tions should  act  in  accordance  with  the  letter  and  the 
spirit  of  these  statements  in  the  conduct  of  their  future 
relations  with  Spain. 

Twenty-sixth  plenary  meeting,  9  Febrnai-y  IB'/G. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers: 
Meeting  of  Deputies 
Meeting  of  Foreign  Ministers 

Far  Eastern  Commission 

Allied-Swiss  Negotiations  for  German  External  Assets 
Anglo-American  Committee  of  Inquiry- 
Third  Conference  of  American  States  Members  of  the  International  Labor 
Office 

Fifth  Pan  American  Railway  Congress 

International  Labor  Organization: 

Industrial  Committee  on  Iron  and  Steel 
Metal  Trades  Committee 

PICAO: 

European  and  Mediterranean  Air  Route  Service  Conference 
Annual  Meeting  of  the  Assembly 
Near  Eastern  Route  Service  Conference 

International  Office  of  Public  Health 

International  Cotton  Advisory  Committee 

The  United  Nations: 
Security  Council 
Military  Staff  Committee 

Negotiating  Committee  on  League  of  Nations  Assets 
Special  Committee  on  Refugees  and  Displaced  Persons 
International  Court  of  Justice 
Commissions  of  the  Economic  and  Social  Council 
Economic  and  Social  Council 
International  Health  Conference 
General  Assembly:  Second  Part  of  First  Session 

The  dates  in  the  calendar  are  as  of  Apr.  21. 


London 

January  18 

Paris 

April  25 

Washington 

February  26 

Washington 

March  18 

Lausanne 

April  1 

Mexico,  D.F. 

April  1-16 

Montevideo 

April  5 

Cleveland 

April  23 

Cleveland 

May  2 

Paris 

April  24 

Montreal 

May  21 

Cairo 

June  25 

Paris 

April  24 

Washington 

May  7 

New  York 

March  25 

New  Yorli 

March  25 

Geneva 

April  6 

London 

April  8 

The  Hague 

April  18 

New  York 

April  29 

New  York 

May  25 

New  York 

June  19 

New  York 

September  3 

Activities  and  Developments 


Council  of  Foreign  Ministers.^  Secretary  of 
State  Byrnes  will  be  accompanied  to  Paris  by 
Senators  Tom  Connally  and  Arthur  H.  Vanden- 
berg  as  advisers.  Also  accompanying  the  Secre- 
tary will  be  Benjamin  V.  Cohen,  Counselor  of 
the  Department;  H.  Freeman  Matthews,  Direc- 


tor of  the  Office  of  European  Affairs ;  Charles  E. 
Bohlen,  Assistant  to  the  Secretary;  James  E. 
Doyle,  Assistant  to  the  Counselor;  Miss  Cassie 
Connor,  Secretary  to  Mr.  Byrnes;  and  Donald 
Eddy  of  the  Division  of  International  Conferences. 

■Released  to  the  press  Apr.  17. 


711 


712 


DEPARTMENT  OF  STATE  BULLETIN 


The  Far  Eastern  Commission  at  its  regular 
weekly  meeting  on  April  18  approved  reports  by 
its  subcommittees  on  organizational  matters. 

The  Commission  had  as  its  guests  Lord  Wright, 
Chairman  of  the  United  Nations  War  Crimes  Com- 
mission, who  will  leave  shortly  for  Japan,  at  the 
invitation  of  the  Australian  Government,  to  ob- 
serve trials  of  major  war  criminals,  and  General 
Peschkoff,  of  France,  who  will  shortly  proceed  to 
Japan  to  rej)resent  France  as  Chief  of  Mission. 

The  Commission  heard  the  following  statement 
by  Sir  Carl  Berendsen,  which  was  warmly  sup- 
ported by  the  representatives  of  India  and  the 
Philippines.  There  was  general  sympathy  in  the 
Commission  for  the  case  advanced  by  the  New  Zea- 
land representative.  However,  no  decision  was 
taken  and  the  matter  was  referred  to  the  Commit- 
tee on  Economic  and  Financial  Affairs  for  consid- 
eration. 

"I  have  observed,  and  members  of  the  Commis- 
sion will  have  observed,  press  reports  of  a  state- 
ment by  the  United  States  Secretary  of  Agricul- 
ture that  over  500,000  tons  of  foodstuffs  are  to  be 
sent  to  Japan  in  the  first  six  months  of  1946.  I  feel 
it  necessary  to  make  some  comments  on  this  mat- 
ter to  the  Commission,  and  in  doing  so,  I  wish  to 
make  it  perfectly  clear  that  I  am  making  no  criti- 
cism and  no  jsrotest,  indeed  I  am  not  possessed,  nor 
is  the  Commission  possessed,  of  all  the  facts  nec- 
essary to  form  a  considered  judgment  on  what  is 
admittedly  a  most  difficult  question. 

"But  those  members  of  the  Commission  who  I'e- 
cently  visited  Japan  will  be  aware  of  the  food  sit- 
uation there,  as  it  existed  then  and,  I  understand, 
as  it  has  continued  to  date.  No  one  could  suggest 
that  the  Japanese  were  then  short  of  food — indeed 
they  were  fat — and  we  learned  on  the  best  author- 
ity— from  the  Occupation  Authorities  them- 
selves— that  at  that  time  the  Japanese  were  eating 
not  only  more  food  than  during  the  war,  but  actu- 
ally more  food  than  before  the  war,  this  as  a  re- 
sult of  the  operation  of  a  vast  and  extensive  black 
market  in  food  which  was  then,  and  I  believe  has 
continued  to  be,  largely  uncontrolled.  It  may  well 
be  that  the  Japanese  authorities  were  acting  on  the 
assumption  that  if  they  did,  as  it  was  anticipated 
they  would,  succeed  in  eating  themselves  out  of  all 
reserves  of  food,  then  in  the  last  resort,  the  United 
States  would  see  them  through. 

"Now  I  fully  realise  the  comijlexities  of  the  situ- 

'  Released  to  the  press  Apr.  19. 


ation.  I  fully  appreciate,  indeed  I  share  the  legiti- 
mate pride  that  the  Occupation  Authorities  take 
in  the  admirable  commencement  they  have  made 
in  their  task,  and  I  fully  appreciate  also,  and 
indeed  share,  their  natural  apprehension  lest  the 
progress  they  have  made  may  be  impeded  by  dis- 
contents, and  perhaps  disturbances  due  to  short- 
ages of  food.  But  I  also  know,  and  every  member 
of  the  Commission  will  know,  that  there  is  at  this 
time  a  world-wide  and  most  tragic  inadequacy 
of  food  supplies.  I  also  know,  and  members  of 
the  Commission  will  know,  that  this  has,  in  very 
substantial  measure,  been  brought  about  by  the 
criminal  attack  on  civilization  made  by  the  Axis 
Powers,  including  Japan,  an  attack  which  has  just 
been  beaten  back  with  such  anguish  and  misery  to 
many  millions  of  innocent  sufferers.  The  Japa- 
nese are  themselves,  in  substantial  part,  the  cause 
of  the  famine  that  menaces  the  world.  I  most 
sincerely  trust  that  this  fact  will  be  borne  in  mind 
by  those  who  at  present  carry  the  A'ery  heavy  and 
onerous  responsibility  of  allocating  the  meagre 
supplies  of  food  that  are  available  to  relieve  human 
suffering. 

"I  may  well  be  told  that  this  matter  is  not  the 
concern  of  the  Commission.  If  that  be  the  case 
I  do  not  at  this  stage  intend  to  argue  the  matter, 
though  I  am  myself  convinced  that  if  anything 
is  a  matter  of  policy  in  the  administration  of  Japan 
it  is  surely  the  fundamental  question  of  the  sup- 
ply of  foodstuffs  to  that  country. 

"But  if  it  is  a  matter  that  concerns  the  Commis- 
sion, and  if — and  I  repeat  if — it  be  the  case  that 
any  preference  at  all  is  to  be  shown  in  this  connec- 
tion to  Japan  or  any  other  Axis  Power,  whose  re- 
sponsibility for  the  present  situation  is  so  heavy, 
and  if — and  I  repeat  if — the  aggressor  is  to  be 
given  any  preference  over  the  innocent  victim,  then 
I  wish  to  say  at  once  that  I  will  take  no  part  in  such 
a  policy,  and  that  I  think  the  Conunission  as  a 
whole  should  take  no  f)art  also. 

"I  do  not  intend  to  say  more  at  present,  but  if 
I  said  less  I  should  be  betraying  my  manhood  and 
betraying  my  every  conception  of  all  that  is  decent 
and  proper  and  just  in  the  relationship  of  man  to 
man." 

The  United  States  Delegation  to  the  First  Meet- 
ing of  the  International  Labor  Organization 
Industrial  Committee  on  Iron  and  Steel,  which 
was  approved  by  the  President,  was  announced 
by  the  Secretarj'  of  State  on  April  19 :  ^ 


APRIL  28,  1946 


713 


Representing  the  Government  of  the  U.   S. 

^[Cll!bCl■s: 

Harry  Donty,  Director  iif  Labor  Economics,  U.S.  De- 
partment of  Labor 

Arthur  Wubnig,  Economist,  (.)fflco  of  World  Trade  Pol- 
icy, U.S.  Department  of  Commerce 

Adci.scr: 

Murray  Ross,  Assistant  Chief,  International  Labor  Or- 
ganizations Branch,  Department  of  State 

Representing    the    Employers    of    the    U.    S. 
John  A.  Stephens,  Vice  I'resident,  United  States  Steel 

Corporation 
C.   H.   Hurray,   Assistant   to   the   President,   American 

Rolling  Mill  Company 

Representing    the    Workers    of    the    U.    S. 
Clinton    Golden,    Assistant    to    the    President,    United 

Steel  Workers 
David    McDonald,    Secretary -Treasurer,    United    Steel 
Workers 

The  President  has  also  approved  the  designation 
of  Nathan  P.  Feinsinger,  professor  of  the  Univer- 
sity of  Wisconsin  Law  Schooh  as  temporary 
United  States  Government  Representative  on  the 
Governing  Body  of  ILO.  The  Governing  Body 
has  determined  that  the  United  States  Govern- 
ment Representative  on  the  Governing  Body  shall 
act  as  chairman  of  the  meeting  of  the  Committee 
on  Iron  and  Steel. 

On  the  basis  of  its  experience  since  1910,  the 
ILO  has  come  to  the  conclnsion  that  the  amonnt  of 
attention  that  could  be  devoted  to  the  social  prob- 
lems of  specific  industries  by  its  annual  confer- 
ence was  necessarily  so  restricted  that  additional 
machinery  to  cope  adequately  with  these  problems 
was  desirable.  As  a  result,  in  January  1945,  the 
Governing  Body  took  the  step  of  establishing 
seven  major  industrial  coramittees  (Inland  Trans- 
port; Coal  Mining;  Petroleum  Production  and 
Refining;  Metal  Trades;  Iron  and  Steel  Produc- 
tion ;  and  Building,  Civil  Engineering  and  Public 
Works)  for  the  ]mrpose  of  paying  closer  atten- 
tion to  particular  industries  and  in  this  way  giving 
practical  effectiveness  to  its  previously  evolved 
general  principles. 

In  line  with  this  newly  inaugurated  policy,  the 
ILO  held  at  London  in  December  1946  two  meet- 
ings of  the  Coal  Mining  and  Inland  Transport 
Committees.  Two  additional  meetings  are 
planned,  the  forthcoming  meeting  of  the  Commit- 
tee on  Iron  and  Steel  on  April  23,  and  a  meeting 
of  the  Metal  Trades  Committee  on  May  2.  Both 
meetings  will  be  held  in  Cleveland,  Ohio. 


The  United  States  Delegation  to  the  European 
and  Mediterranean  Air  Route  Service  Confer- 
ence, which  was  approved  by  the  President,  was 
announced  by  the  Secretary  of  State  on  April  19.^ 

This  conference  is  the  second  in  a  series  of  re- 
gional conferences  called  by  the  Provisional  In- 
ternational Civil  Aviation  Organization  to 
determine  interna t  ion  ai  requirements  for  the 
safety  of  aerial  fiights  and  related  matters,  in- 
cluding aviation  communications,  air-traffic  con- 
trol, search  and  rescue,  airdromes  and  ground 
aids,  and  meteorology.  The  first  conference  was 
Iield  at  Dublin,  Ireland,  in  March  and  covered 
the  North  Atlantic  route.  Later  conferences  will 
be  held  in  Egypt,  India,  and  the  Pacific  area. 

In  addition  to  discussing  questions  of  air-route 
safety  in  the  European  and  Mediterranean  areas, 
the  Paris  conference  will  consider  peacetime  re- 
quirements for  the  utilization  of  route  service 
equipment  constructed  by  the  Allied  air  forces 
during  hostilities. 

The  French  Government,  at  the  request  of 
PICAO,  has  invited  some  30  governments  to  send 
delegations. 

The  membership  of  the  official  Delegation  is  as 
follows:  Delegate,  Paul  A.  Smith,  Assistant  to 
Director,  Coast  and  Geodetic  Survey,  U.S.C.G.S., 
and  U.S.  Air  Navigation  Repi-esentative  to 
PICAO;  Alternate,  Charles  I.  Stanton,  Deputy 
Administrator,  Civil  Aeronautics  Administration ; 
Chief  Technical  Adviser,  Glen  A.  Gilbert,  Con- 
sultant to  the  Administrator,  Civil  Aeronautics  Ad- 
ministration; Deputy  Chief  Technical  Adviser, 
Robert  D.  Hoyt,  Coordinator  of  International 
Regulations,  Civil  Aeronautics  Board.  Advisers: 
James  F.  Angier,  Airways  Engineer,  Office  of 
Federal  Airways,  Civil  Aeronautics  Administra- 
tion; B.  J.  Bergeson,  Director  of  Flight  Opera- 
tions, American  Overeeas  Airways ;  C.  P.  Burton, 
Assistant  Chief,  Air  Traffic  Control  Division,  Of- 
fice of  Federal  Airways,  Civil  Aeronautics  Admin- 
istration; L.  Ross  Hayes,  Assistant  Chief.  Com- 
munications Division,  Office  of  Federal  Airways, 
Civil  Aeronautics  Administration;  Arthur  L. 
Lebel,  Chief,  Aviation  Commimications  Section, 
Aviation  Division,  Department  of  State;  W.  M. 
Masland,  Assistant  Chief  Pilot,  Pan  American 
Airways;  Delbert  M.  Little,  Assistant  Chief  of 
Bureau,  U.  S.  Weather  Bureau;  P.  D.  McKeel, 
Radio  Engineer,  Civil  Aeronautics  Administra- 

'  Released  to  the  press  Apr.  19. 


714 


DEPARTMENT  OF  STATE  BULLETIN 


tion;  Reeder  Nichols,  Assistant  to  the  President, 
Aeronautical  Radio,  Inc. ;  Ray  Nicholson,  Chief, 
Air  Carrier  Branch,  Second  Region,  Civil  Aex'o- 
naiitics  Administration ;  D.  W.  Nyrop,  Official 
PICAO  Representative  for  Air  Transport  Associa- 
tion ;  Capt.  Frank  O'Beirne,  Chief,  Civil  Air  Agen- 
cies Section,  Office  of  Deputy  Chief  Naval  Opera- 
tions (Air),  Navy  Department;  Elmo  O.  Roberts, 
Special  Assistant  to  Superintendent  of  Operations, 
Trans  World  Airline ;  Com.  W.  B.  Scheibel,  Ex- 
ecutive Assistant  to  the  Head,  Air-Sea  Rescue 
Agency,  U.  S.  Coast  Guard;  Col.  Lawi-ence  M. 
Thomas,  Air  Transport  Command,  Army  Air 
Forces;  E.  L.  "White,  Head  Radio  Engineer,  Chief 
of  Aviation  Division,  Federal  Communications 
Commission.  Secretary,  Richard  S.  Wheeler, 
Divisional  Assistant,  Division  of  International 
Conferences,  Department  of  State. 

The  International  Cotton  Advisory  Committee 

will  meet  in  Washington  on  May  7,  according  to  a 
joint  announcement  made  on  Aj)ril  18  by  th© 
United  States  Departments  of  Agriculture  and 
State  on  behalf  of  the  Committee. 

The  Committee,  which  held  its  last  meeting  in 
April  1945  in  Washington,  will,  according  to  its 
custom,  examine  the  world  cotton  situation  and 
hear  reports  from  the  countries  represented.  In 
addition,  it  will  consider  the  report  of  the  Inter- 
national Cotton  Study  Group  which  was  completed 
last  February.^ 

The  International  Cotton  Advisory  Committee 
was  established  following  the  International  Cot- 
ton Meeting  which  representatives  of  10  countries 
concerned  with  the  production  and  marketing  of 

UNESCO.^  On  April  15  Assistant  Secretary 
of  State  Benton  announced  the  appointment  by 
Dr.  Julian  Huxley,  Executive  Secretary  of  the 
Preparatory  Commission  of  the  United  Nations 
Educational,  Scientific  and  Cultural  Organiza- 
tion (UNESCO),  of  Llewellyn  B.  White  as 
senior  counselor  in  mass  communications.  Mr. 
White  will  direct  the  planning  for  the  coopera- 
tive development  of  activities  in  radio,  films,  and 
publications,  in  connection  with  the  UNESCO 
jJi'ogram. 

^  For  details  of  this  report,  see  Department  of  Agricul- 
ture press  release  410-46  of  Feb.  26,  1946. 
'  Released  to  the  press  Apr.  15. 
"  Released  to  the  press  Ajjr.  19. 


cotton  attended  in  Washington  in  1930.  Its  pur- 
pose is  to  observe  and  keep  in  close  touch  with  de- 
velopments in  the  world  cotton  situation,  and  to 
suggest  to  the  governments  represented  on  it  any 
measure  it  considers  suitable  and  practicable  for 
the  achievement  ultimately  of  international  col- 
laboration in  the  solution  of  the  world's  cotton 
problems. 

The  International  Cotton  Advisory  Committee, 
as  originally  constituted,  was  composed  of  repre- 
sentatives of  the  governments  of  countries  produc- 
ing and  exporting  cotton.  At  its  April  19-15  meet- 
ing, however,  it  was  agreed  that  all  other  govern- 
ments of  the  United  Nations  having  a  substantial 
interest  in  the  production,  exportation,  or  impor- 
tation of  cotton  be  invited  to  participate. 

The  governments  originally  represented  on  the 
Committee  were  those  of  Brazil,  Egypt,  India, 
Mexico,  Peru,  the  Soviet  Union,  the  Sudan,  France 
and  the  United  Kingdom  on  behalf  of  their  export- 
ing colonies,  and  the  United  States.  Turkey  sub- 
sequently appointed  a  representative.  Argentina, 
Australia,  Bolivia,  Chile,  China,  Ethiopia,  Greece, 
Haiti,  the  Netherlands,  Paraguay,  and  Venezuela 
have  since  accepted  invitations  to  participate,  as 
have  the  Governments  of  France  and  the  United 
Kingdom  as  importing  countries. 

Bermuda     Telecommunications     Agreement.^ 

The  agreement  signed  at  the  Bermuda  Telecom- 
munications Conference  in  November  1945  became 
effective  for  all  the  governments  concerned,  with 
its  acceptance  this  week  by  the  United  Kingdom 
and  Australia.  The  agreement  is  now  in  force 
between  the  United  States,  the  United  Kingdom 
of  Great  Britain  and  Northern  Ireland,  Canada, 
Australia,  New  Zealand,  the  Union  of  South 
Africa,  India,  and  Southern  Rhodesia.  New 
Zealand  accepted  with  a  reservation  of  article  III, 
section  12,  which  reads  as  follows :  "Private  chan- 
nels for  point  to  point  press  traffic  shall  be  pro- 
vided where  the  available  channels  are  sufficient. 
Charges  may  be  based  on  time,  words,  or  cost, 
whichever  may  be  agreed  upon  by  the  parties 
concerned." 

Two  reservations  were  made  by  the  United 
Kingdom  as  follows : 

( 1 )  The  agreement  cannot  be  applied  to  Anglo- 
French  Condominium  in  the  New  Hebrides  to 
which  the  Empire  Rate  Scheme  does  not  apply. 

(2)  In  order  to  avoid  any  discrimination  con- 
trary to  the  terms  of  the  Mandate,  the  provisions 


APRIL  28,  1946 


715 


of  section  8  of  the  agreement  cannot  be  accepted 
in  respect  of  Palestine  so  far  as  they  relate  to 
transit  charges. 

Aviation  Agreements.'  The  following  action, 
not  previously  announced,  has  been  taken  on  the 
Interim  Agreement  on  International  Civil  Avia- 
tion, the  International  Air  Services  Transit  Agree- 
ment, the  International  Air  Transport  Agi-eement, 
and  the  Convention  on  International  Civil  Avia- 
tion concluded  at  the  International  Civil  Aviation 
Conference  in  Chicago  on  December  7,  1044 : 

Peru 

The  Charge  d' Affaires  ad  interim  of  Peru  de- 
posited with  the  Department  of  State  on  April  8 
the  Peruvian  instrument  of  ratification  of  the 
convention. 

United  Kingdom 

The  British  Ambassador  informed  the  Secretary' 
of  State  on  March  30  that  the  reservation  respect- 
ing Denmark  ^  on  the  interim  agreement  has  been 
withdrawn. 

Venezuela 

The  Charge  d'Affaires  ad  interim  of  Venezuela 
informed  the  Secretary  of  State  by  a  note  received 
in  the  Department  of  State  on  March  28  of  the 
acceptance  of  the  interim,  transit,  and  transport 
agreements  by  the  Government  of  Venezuela  as  an 
obligation  binding  upon  it. 

Philippines 

The  Resident  Commissioner  of  the  Philippines 
to  the  United  States  informed  the  Secretary  of 
State  by  a  note  received  in  the  Department  of  State 
on  March  22  of  the  acceptance  of  the  interim  and 
transit  agreements  by  the  Commonwealth  of  the 
Philippines  with  the  following  reservation  on  the 
transit  agreement : 

"The  above  acceptance  is  based  on  the  under- 
standing .  .  .  that  the  provisions  of  Article  II, 
Section  2  of  the  International  Air  Services  Transit 
Agreement  shall  become  operative  as  to  the  Com- 
monwealth of  the  Philippines  at  such  time  as  the 
Convention  on  International  Civil  Aviation  shall 
be  ratified  in  accordance  with  the  Constitution  and 
laws  of  the  Philippines." 

Greece 

The  Ambassador  of  Greece  informed  the  Secre- 
tary of  State  by  a  note  received  in  the  Department 
of  State  on  February  28  of  the  acceptance  of  the 
transport  agreement  by  the  Government  of  Greece 


as  an  obligation  binding  upon  it  with  the  following 
reservation : 

"In  accepting  this  Agreement  in  accordance  with 
Article  VIII,  paragraph  two  thereof,  I  am  directed 
to  make  a  reservation  with  respect  to  the  rights 
and  obligations  contained  in  Article  I,  Section  1, 
paragraph  (5)  of  the  Agreement,  which,  under 
Article  TV,  Section  1,  Greece  does  not  wish,  for  the 
time  being  to  gi-ant  or  receive." 

Countries  wliich  have  to  date  deposited  instru- 
ments of  ratification  of  the  convention  are :  Canada, 
China,  Dominican  Republic,  Nicaragua,  Paraguay, 
Peru,  Poland,  and  Turkey.  The  following  number 
of  governments  have  accepted  the  agreements :  the 
interim  agreement,  44 ;  the  transit  agi-eement,  27 ; 
and  the  transport  agreement,  15. 

SECURITY  COUNCIL— CoM«inMC(J  from  page  TIO. 
conducting  diplomatic  conversations  for  months 
past  in  an  endeavor  to  aid  in  the  accomplishment 
of  these  two  objectives  to  whicli  I  have  referred. 
On  4  March  of  this  year  we  joined  with  the  British 
and  French  Governments  in  making  a  statement 
of  our  views  on  the  situation  in  Spain.^  We  are 
glad  now  to  have  a  discussion  of  the  Spanish  sit- 
uation here  at  the  Council  table,  feeling  confident 
that  the  other  members  of  the  Council  share  our 
two  objectives. 

My  Government  believes  that  the  Security 
Council  should  carefully  examine  the  Spanish 
question  and  that  every  opportunity  should  be 
granted  to  the  members  of  this  body  to  bring 
to  attention  the  facts  bearing  on  the  problem 
and  the  interpretation  of  these  facts  made  by 
the  respective  Governments.  We  will  give  sym- 
pathetic consideration  to  actions  in  conformity 
with  the  Charter  or  to  independent  national  action 
which  will  afford  a  reasonable  prospect  of  achiev- 
ing these  two  objectives,  namely,  the  elimination 
of  the  Franco  regime  and  the  restoration  of  a  dem- 
ocratic regime  without  a  resumption  of  a  civil  war. 

'  Released  to  the  press  Apr.  15. 

'  "In  signifying  their  acceptance  of  the  said  agreement, 
the  Government  of  the  United  Kingdom  desire  to  make  it 
clear  that  they  neither  regard  the  Governments  of  Den- 
marlc  and  Siam  as  being  parties  thereto  nor  consider  the 
United  Kingdom  as  being  in  treaty  relations  with  either 
of  those  countries  in  respect  of  the  Agreement."  (May 
31,1945.) 

"  Bulletin  of  Mar.  17,  1946,  p.  412.  See  also  Bulletin 
of  Mar.  24,  1946,  p.  486. 


America's  Solemn  Obligation  in  World  Famine  Crisis 


ADDRESS  BY  THE  PRESmENT' 

Good  Evening  :  It  is  my  duty  to  join  my  voice 
with  the  voices  of  humanity  everywhere  in  behalf 
of  the  starving  millions  of  human  beings  all  over 
the  world.  We  have  a  high  responsibility,  as 
Americans,  to  go  to  their  rescue. 

I  aijpointed  the  Famine  Emergency  Committee 
to  make  sure  that  we  do  all  we  can  to  help  starving 
people.  We  are  particularly  grateful  to  former 
President  Hoover  for  undertaking  a  survey  of  the 
situation  in  Europe.  The  messages  he  has  sent 
back  have  driven  home  again  and  again  the  des- 
perate plight  of  the  people  over  there.  We  cannot 
doubt  that  at  this  moment,  many  people  in  the 
famine-stricken  homes  of  Europe  and  Asia  are 
dying  of  hunger. 

America  is  faced  with  a  solemn  obligation. 
Long  ago  we  promised  to  do  our  full  part.  Now 
we  cannot  ignore  the  cry  of  hungry  children. 
Surely  we  will  not  turn  our  backs  on  the  millions 
of  human  beings  begging  for  just  a  crust  of  bread. 
The  warm  heart  of  America  will  respond  to  the 
greatest  threat  of  mass  starvation  in  the  history 
of  mankind. 

We  would  not  be  Americans  if  we  did  not  wish 
to  share  our  comparative  plenty  with  suffering 
people.  I  am  sure  I  speak  for  every  American 
when  I  say  the  United  States  is  determined  to  do 
everything  in  its  power  to  relieve  the  famine  of 
half  the  world. 

The  United  States  Government  is  taking  strong 
measures  to  export  during  the  first  half  of  this 

'  Radio  address  delivered  from  tlie  Wliite  House  on  Apr. 
19  and  released  to  the  press  by  the  White  House  ou  the 
same  date. 

'  Fiorello  H.  LaGuardia.  This  radio  address  was  deliv- 
ered from  the  White  House  on  Apr.  19,  and  released  to 
the  press  by  the  White  House  on  the  same  date. 


year  a  million  tons  of  wheat  a  month  for  the  starv- 
ing masses  of  Asia  and  Europe.  Our  reserve  stocks 
of  wheat  are  low.  We  are  going  to  whittle  that 
reserve  even  further. 

America  cannot  remain  healthy  and  happy  in 
the  same  world  where  millions  of  human  beings 
are  starving.  A  sound  world  order  can  never  be 
built  upon  a  foundation  of  human  misery. 

I  am  glad  here  and  now  to  renew  an  appeal 
which  I  made  the  other  day.  I  said  then  that  we 
would  all  be  better  off,  physically  and  spiritually, 
if  we  ate  less.  And  then  on  two  days  a  week  let 
us  reduce  our  food  consumption  to  that  of  the  aver- 
age person  in  the  hungry  lands. 

Once  again  I  appeal  to  all  Americans  to  sacrifice 
so  that  others  may  live.  Millions  will  surely  die 
unless  we  eat  less.  Again  I  strongly  urge  all 
Americans  to  save  bread  and  to  conserve  oils  and 
fats.  These  are  the  most  essential  weapons  at  our 
disposal  to  fight  famine  abroad.  Every  slice  of 
bread,  every  ounce  of  fat  and  oil  saved  by  your 
voluntary  sacrifice,  will  help  keep  starving  people 
alive. 

By  our  combined  effort,  we  will  reduce  starva- 
tion and,  with  God's  help,  we  will  avert  the  worst 
of  this  plague  of  famine  that  follows  in  the  wake 
of  war.  I  ask  every  American  now  to  pledge  him- 
self to  share. 

The  time  for  talk  has  passed.  The  time  for  ac- 
tion is  here. 

ADDRESS  BY  THE  DIRECTOR-GENERAL 
OF  UNRRA " 

Thank  you,  Mr.  President.  Your  understanding 
of  the  problem,  your  interest,  and  your  help  are 
making  a  heart-breaking  job  bearable.  The  last 
few  days  were  really  tough. 


716 


APRIL  28,  1946 


717 


The  people  of  the  world  should  know  the  tre- 
mendous efforts  that  are  being  made  and  the  splen- 
did teamwork  on  the  part  of  Mr.  Clinton  Ander- 
son, Secretary  of  Agriculture,  Mr.  Will  Clayton, 
Assistant  Secretary  of  State,  and  Mr.  John  Snyder, 
Director  of  Reconversion,  in  translating  the  Presi- 
dent's determination  to  help  into  a  practical, 
workable  jjlan.  The  United  Nations  Relief  and 
Rehabilitation  Administration  is  the  agency  for 
48  governments.  At  this  moment  thanks  are  due 
to  the  United  Kingdom,  Canada,  and  Argentina. 

It  is  our  responsibility  to  obtain  food  where  we 
can  find  it  and  to  get  it  to  people  where  it  is  needed. 
Our  task  is  difficult  because  at  this  moment  there  is 
just  not  enough  food.  There  is  not  enough  wheat 
today  or  tomorrow,  and  there  will  not  be  for  sev- 
eral weeks  to  come.  True,  the  next  90  days  are  the 
hardest  but  the  distress  will  continue  for  a  long 
time,  and  the  next  90  days  will  mean  eternity  for  a 
great  many  who  are  now  on  the  brink  of  death. 
The  records  of  UNRRA  are  most  distressing.  It 
is  no  longer  news  to  hear  of  increased  needs  of 
moi'e  hungi"y  people,  of  more  dying  people.  It  is 
indeed  news  when  we  hear  of  a  bushel  of  wheat 
here  or  a  bushel  of  wheat  there.  I  cannot  thank 
you  enough,  Mr.  President,  for  the  firm  action  you 
are  taking  in  making  some  more  wheat  available. 

Czechoslovakia,  Poland,  Yugoslavia,  Greece, 
Italy,  Austria,  Albania,  and  China  will  be  without 
bread  in  a  matter  of  a  few  days  unless  we  rush 
boatloads  of  wheat  at  once.  We  are  ready.  We 
have  the  boats.  We  must  have  wheat.  I  appeal 
desperately  to  the  American  farmer. 

You  have  heard  from  your  President.  Bring 
in  the  wheat.  But  bring  it  now.  Bring  it  in  fast. 
People  are  dying.  Your  Government  has  been 
most  considerate.  Deliver  the  wheat  now  and  you 
are  protected  to  the  fullest  extent  in  any  future 
increase  in  the  price  of  wheat. 

Time  does  not  permit  me  to  give  you  some  of  the 
statistics  of  horror,  of  suffering,  and  of  starvation. 
You  will  soon  hear  from  an  expert  on  that,  one  who 
has  seen  with  his  own  eyes.  AAliat  better  corrobo- 
ration of  UNRRA's  facts  could  we  have? 

Now  may  I  for  a  moment  talk,  not  as  a  Director- 
General  of  an  international  organization,  but  as  an 
American.  I  want  to  say  that  we  are  not  doing 
enough.  And  we  must  do  more.  Buy  less  food. 
Help  your  Government.  I  want  to  appeal  to  the 
baking  industry  to  cooperate.  And  the  millers 
too.    It  means  saving  lives.    Bakers,  you  will  see 


that  your  own  customers  want  you  to  do  it.  Don't 
get  the  idea  that  the  American  people  are  against 
nnj  regulation  that  will  conserve  wheat.  We  must 
conserve  fats  and  oils  too.  Evei-y  ounce  counts. 
I  appeal  to  the  soap  industry  not  to  use  edible  fats. 
And  the  same  is  true  of  all  industries. 

Peace  has  come.  It  will  be  a  happy  Easter  to 
130,000,0D0  Americans.  It's  a  very  gloomy  Easter 
to  nearly  500,000,000  people  in  the  UNRRA  coun- 
tries. It's  an  important  Easter.  They  are  waiting. 
Easter  may  have  a  new  significance.  Or  it  may  be 
meaningless.  Have  we  learned  the  lesson  of 
Christ?  And  if  we  have,  we  must  show  it  by  send- 
ing food  to  these  hungry  people  who  are  praying  to 
Him  for  their  daily  bread. 


ADDRESS  BY  HERBERT  HOOVERS 

This  is  our  report  and  our  i-ecommendations 
upon  the  food  crisis. 

We  have  now  surveyed  the  problem  in  17  nations 
to  determine  the  minimum  amounts  required  to 
sustain  life.  We  have  indirectly  established  the 
position  of  four  others.  It  has  been  possible  to 
arrive  quickly  at  sufficiently  accurate  conclusions 
through  the  advance  work  of  my  colleagues,  the 
officials  of  our  government  and  of  the  various 
nations  visited  and  those  of  the  various  relief  or- 
ganizations. Particularly  do  I  mention  the  most 
able  service  of  Dr.  Fitzgerald  of  our  own  Depai't- 
ment  of  Agriculture.  We  have  already  reported 
upon  many  nations. 

The  dimensions  of  the  European  part  of  the 
world  food  crisis  as  a  whole  can  be  quickly  summed 
up.  There  are  about  300  million  people  on  the 
continent  of  Europe  from  the  Russian  frontier  to 
the  English  Channel.  A  few  small  countries  on 
the  continent  comprising  about  40  million  people 
have  enough  food  to  last  until  the  next  harvest. 
Of  the  other  nations  about  one  third  of  the  re- 
mainder are  farmers  who  are  able  largely  to  feed 
themselves.  Thus  there  are  over  170  million  peo- 
ple, largely  in  towns  and  cities,  of  whom  perhaps 
less  than  10  percent  can  support  themselves  from 
black  markets  and  country  relatives.  The  remain- 
der of  150  million,  mostly  the  lower  income  groups, 

'  Mr.  Hoover  is  honorary  chairman  of  the  Famine  Emer- 
gency Committee.  This  radio  address  was  delivered  from 
Cairo  on  Apr.  19  and  released  to  the  iiress  by  the  White 
House  on  the  same  date. 


718 


DEPARTMENT  OF  STATE  BULLETIN 


must  have  overseas  supplies  during  the  next  four 
months  if  wide-spread  famine  is  to  be  prevented. 

Hunger  has  placed  three  words  every  hour  of 
the  day  on  the  tongues  of  these  150  millions  of 
people.  The  first  is  "bread".  Bread  has  a  reality 
as  the  symbol  of  life  as  never  before  in  history. 
To  reduce  the  bread  ration  is  a  symbol  of  calamity. 
It  is  now  the  symbol  of  the  life  of  nations.  The 
second  word  is  "fats",  for  which  there  is  an  insa- 
tiable craving  and  physical  need.  The  third  word 
is  "calories".  That  is  the  common  denominator. 
Calories  are  only  a  partial  yardstick  of  food  but 
that  word  has  become  everywhere  the  grim  meas- 
ure of  the  steps  along  the  road  from  plenty  to 
liunger  and  to  starvation.  Europe  has  become  a 
vast  involuntary  experimental  laboratory  as  to 
different  levels  of  calories  which  the  population 
are  to  have  in  their  rations. 

Do  not  forget  that  the  caloric  level  of  America 
is  an  average  of  about  3,200  per  person  per  day. 
Britain  has  about  2.800.  Experts  say  an  average 
level  of  2,200  calories  is  the  minimum  at  which 
public  health  and  progress  can  be  maintained  in  a 
nation.  There  are  13  countries  where  the  city  pop- 
ulations have  an  average  intake  of  less  than  1,900 
calories.  Of  these,  six  countries  are  at,  or  below, 
the  1,500  caloric  level.  There  are  millions  of  peo- 
ple below  1,000  calories.  Somewhere  down  these 
various  levels  starvation  begins.  And  its  imme- 
diate expression  is  the  disease  rate  in  children  and 
in  death  rates  of  the  infants  and  the  old  people. 

In  making  our  estimates  of  food  which  must 
be  imported  to  the  continental  countries  fi'om 
overseas,  we  have  used  the  grim  and  dangerous 
base  of  about  1,500  calories,  with  less  for  children 
and  more  for  heavy  workers.  In  this  figure  of 
1,500  calories  we  have  included  the  domestic  as 
well  as  the  imported  supplies  and  the  unrationed 
food.  At  this  level  we  believe  most  of  the  adults 
could  come  through  the  short  period  of  four 
months  until  the  next  harvest.  They  will  no 
doubt  be  weakened  morally  and  physically  and 
very  susceptible  to  disease.  It  is  a  sad  job  to  make 
such  a  base  for  under  it  many  of  the  children  and 
the  aged  will  fall  by  the  wayside. 

To  provide  this  minimum  to  the  next  harvest, 
there  must  be  loaded  on  ships  for  the  continent 
during  each  of  the  four  months  from  the  first  of 
April  to  the  end  of  July  a  total  of  at  least  5,300,000 
tons  of  cereals,  300,000  tons  of  fats,  and  an  addi- 
tional 100,000  tons  of  siu'cial  food  is  urgently 
needed  to  restore  subnormal  children. 


A  few  days  ago  I  stated  a  rough  estimate  that 
there  are  20  million  subnormal  or  diseased  chil- 
dren on  the  continent.  My  able  and  experienced 
colleague,  Maurice  Pate,  who  has  gone  to  the  bot- 
tom of  this  sole  problem  throughout  Europe,  in- 
sists that  my  estimate  was  too  low.  He  points  out 
that  there  are  probably  11  millions  of  orphans  and 
half -orphans  alone.  He  also  points  out  that  the 
mortality  among  children  under  two  is  already 
over  25  percent  per  annum  in  many  cities.  The 
reconstruction  of  the  children  is  more  precious 
than  factories  or  bridges.  They  will  determine 
the  good  or  evil  future  of  Europe  if  they  survive. 
The  food  supplied  by  UNERA  to  the  nations 
they  serve  has  been  an  untold  blessing.  For  vari- 
ous reasons  they  do  not  cover  much  over  25  per- 
cent of  the  total  food  problems  of  the  continent. 
They  have  recently  received  wholly  inadequate 
supplies. 

But  Europe  is  not  the  only  claimant  on  the 
woi'ld's  food.  Of  cereals  alone  the  British  want 
1,500,000  tons  shipi^ed  to  them  in  these  four 
months.  And  South  Africa  is  demanding  sup- 
I^lies.  There  are  Latin  American  countries  which 
import  large  amounts  of  breadstuffs.  Although 
we  have  not  yet  examined  the  situation  in  Asia,  we 
know  a  very  large  amount  of  cereals  is  needed 
there. 

After  the  most  drastic  scaling  down,  as  closely 
as  we  can  give  a  tentative  estimate  now,  the  total 
requirements  of  cereals  alone  for  Europe  and  Asia 
during  the  next  four  months  is  a  minimum  of 
about  11,000,000  tons.  And,  in  addition,  as  much 
fats  as  can  be  secured. 

As  against  this  need,  the  grim  fact  is  that,  in 
normal  commercial  supplies,  there  is  not  much 
over  0,000,000  tons  available.  The  problem  before 
us,  if  we  would  preserve  millions  of  lives,  is  to 
make  up  this  gap  of  5,000,000  tons  of  cereals.  I 
believe  this  could  be  done  by  self-denial  and  co- 
operation of  the  people  of  the  better  supplied 
nations  in  the  world.  There  are  seven  substantial 
sources  where  these  supplies  can  possibly  come 
from.  They  are  Canada,  the  United  States,  Brit- 
ain, the  Argentine,  Russia,  Australia,  and  Siam. 

To  narrow  this  5,000,000-ton  gap  between  sup- 
ply and  the  minimum  need  to  save  life,  I  have  six 
suggestions.  Let  me  say  that  these  jDroposals  ai-e 
only  my  personal  views.  It  is  my  duty  to  exhaust 
every  possibility  of  saving  these  people.  If  there 
is  criticism  of  the  proposals,  it  sliould  be  directed 
to  me  alone  and,  with  some  experience  in  these 


APRIL  28,  1946 


719 


matters,  I  shall  bluntly  state  that  they  are  the  only 
way  by  which  millions  of  lives  can  be  saved  at 
this  late  date.    My  suggestions  are : 

First:  Our  Government  has  asked  our  people 
to  voluntarily  reduce  their  consumption  of  wheat 
products  by  40  percent  and  fats  by  20  percent.  My 
projDosal  is  that  our  Government  do  as  they  did 
during  the  war  and  acquire  enough  of  our  wheat 
and  its  products  to  assure  an  export  to  the  famine 
areas  of  an  average  of  1,100,000  tons  per  month 
during  the  months  of  April,  May,  June,  and  July. 
This  will  effectively  back  up  these  consumers  who 
are  supporting  the  starving.  It  will  make  the  con- 
servation campaign  effective  beyond  any  doubt. 
We  need  similar  action  as  to  fats.  In  making 
these  sacrifices  of  bread  and  fats,  the  American 
people  have  a  right  to  expect  other  nations  also 
to  cooperate  to  tlie  full. 

Second:  By  the  American  j^rogram  above,  the 
American  consumption  of  wheat  products  will  be 
reduced  to  an  equivalent  of  about  200  grams  per 
person  per  day  in  European  terms.  European 
nations  need  more  wheat  bread  than  we  do,  because 
they  have  less  substitutes  or  supplemental  food.  I 
propose  that  all  nations  in  Europe  who  now  exceed 
a  cereal  ration  equal  to  300  grams  of  bread  per 
jjerson  per  day  should  reduce  it  to  300  grams. 
This  would,  I  know,  be  a  burden  to  such  countries 
as  Britain,  Holland,  Denmark,  and  Yugoslavia. 

Third:  I  suggest  to  the  British  that  as  they  are 
carrying  about  a  million  tons  of  breadstuffs  in  their 
pipeline  and  stocks  instead  of  one  half  this  amount 
before  the  war,  they  could  release  half  a  million 
tons  to  the  starving. 

Fourth:  My  next  suggestion  is  to  the  Latin 
American  states.  The  largest  part  of  the  Argen- 
tine exports  are  going  to  Chile,  Brazil,  and  other 
neighboring  countries.  Other  Latin  American 
states  such  as  Cuba  and  Mexico  are  drawing  large 
amounts  of  wheat  and  flour  from  the  United 
States  and  Canada.  If  the  United  States,  Canada, 
and  the  Argentine  would  reduce  these  exports  by 
40  percent  during  the  next  four  months,  and  if 
these  Latin  American  states  would  cooperate  by 
accepting  this  reduction,  it  would  furnish  most 
valuable  assistance.  Their  sacrifice  would  be  no 
greater  than  we  are  asking  from  the  United  States. 
It  would  be  a  translation  into  action  of  the  eloquent 
appeal  of  His  Holiness  Pope  Pius  XII  a  few  days 


Fifth:  My  next  proposal  is  in  respect  to  Russia. 
At  the  request  of  the  Soviet  Government,  I  organ- 
ized and  directed  the  relief  of  the  great  Russian 
famine  of  1922  and  1923.  America  made  a  gift  of 
over  3,000,000  tons  of  food  and  overcame  that 
famine.  The  Soviet  Government  expressed  its 
warm  appreciation  to  myself  and  to  the  American 
people.  I  learned  at  that  time  of  the  sacrifice 
which  millions  of  Russians  made  for  their  more 
helpless  neighbors.  I  know  full  well  the  suffering 
of  her  people  during  this  war.  I  am  advised,  how- 
ever, that  their  food  situation  has  somewhat  im- 
proved since  the  war.  Slie  has  been  able  to  make 
available  a  generous  supply  of  about  75,000  tons 
of  grain  per  month  to  France.  If  her  contribu- 
tion could  be  raised  to  300,000  tons  per  month  for 
the  four  months  of  the  crisis  it  would  be  a  great 
human  service. 

By  these  methods,  over  90  percent  of  the  gap 
between  supply  and  minimum  need  of  the  famine 
areas  would  be  met. 

Sixth:  I  suggest  that  priority  in  supplies  be 
given  to  the  smaller  liberated  nations.  They 
have  suffered  most.  Their  domestic  resources  are 
more  limited  than  others.  They  comjirise  only  15 
percent  of  the  whole  European  problem. 

If  these  proposals  were  adopted,  the  United 
States  would  be  furnishing  to  the  famine  areas 
about  44  percent  of  the  total,  Canada  about  20 
percent,  the  United  Kingdom  about  10  percent, 
Australia  and  Siam  about  10  percent,  the  Argen- 
tine, thi'ough  cooperation  of  other  states,  say  6 
percent,  and  Russia  12  percent. 

If  every  source  of  supplies  will  do  its  utmost, 
we  can  pull  the  world  tlirough  this  most  dangerous 
crisis.  The  saving  of  these  human  lives  is  far 
more  than  an  economic  necessity  to  the  recovery 
of  the  world.  The  burden  will  be  heavy  upon  the 
United  States  and  we  cannot  do  more.  Europe 
and  other  countries  must  look  to  the  other  sources 
for  the  balance. 

The  current  world  crisis  is  unique  among  all 
crises  in  history.  This  crisis  has  a  definite  termi- 
nal date.  That  date  is  the  arrival  of  the  next 
harvest.  It  is  more  than  the  only  path  to  order, 
to  stability,  and  to  peace.  Such  action  marks  the 
return  of  the  lamp  of  compassion  to  the  world. 
And  that  is  a  part  of  the  moral  and  spiritual  re- 
construction of  the  world. 


720 


DEPARTMENT  OF  STATE  BULLETIN 


Individual  Liberty — A  Pan-American  Ideal 


BY  PRESIDENT  TRUMAN 


In  tlie  years  that  lie  ahead,  it  will  be  the  task  of 
the  American  republics  to  do  their  part  in  creating 
and  maintaining  a  system  of  world  peace  which 
will  eliminate  the  fear  of  war  and  establish  in  its 
place  a  rule  of  justice  and  world  cooperation. 

To  maintain  a  lasting  peace,  the  peoples  of  the 
world  have  now  shown  their  willingness  to  use 
force,  if  necessary,  to  prevent  aggression  or  the 
threat  of  aggression. 

We  all  realize,  however,  that  the  exercise  of  this 
kind  of  force,  while  it  may  hold  aggressors  in 
check,  will  not  of  itself  eliminate  the  deep  causes 
of  unrest  sucli  as  those  responsible  for  World 
War  II.  Underneath  the  Nazi  madness  were  the 
material  distress  and  spiritual  starvation  born  of 
poverty  and  despair.  These  evil  forces  were  seized 
upon  by  evil  men  to  launch  their  program  of  tyr- 
anny and  aggression. 

The  danger  of  war  will  never  be  completely 
wiped  out  until  these  economic  ills  which  consti- 
tute the  roots  of  war  are  themselves  eliminated. 
To  do  that  we  must  achieve  the  kind  of  life — 
material,  cultural,  and  spiritual — to  which  the 
peoples  of  this  world  are  entitled.  To  that  objec- 
tive we  must  all  dedicate  our  energies  and  I'e- 
sources. 

I  know  of  no  one  word  which  more  fully  em- 
bodies this  objective  than  the  word  democracy.  It 
was  the  symbol  and  the  hope  of  democracy  which 
liberated  the  world  from  Nazi  and  Japanese  slav- 
ery. Democracy'  was  the  objective  which  gave 
strength  to  the  brave  men  and  women  of  the  Under- 
gi'ound  in  the  enslaved  countries  of  Europe  and 
Asia.  Democracy  is  the  rallying  cry  today  for  free 
men  everywhere  in  their  struggle  for  a  better 
human  life. 

We  all  appreciate  that  this  word  democracy 

Excerpts  from  an  address  delivered  before  the  Gov- 
erning Board  of  the  Pan  American  Union  on  Apr.  15  in 
Washington  and  released  to  the  press  by  the  White 
House  on  the  same  date. 


carries  different  meanings  in  different  languages. 
In  different  parts  of  the  world  it  will  have  different 
connotations.  It  is  fortunate  that  we  of  the  pan- 
American  nations  do  have  certain  common,  fimda- 
mental  under.standings  of  what  the  word  democ- 
racy means.  Despite  our  differences  in  language 
and  cultures,  we  do  have  in  common  a  love  of  lib- 
erty, a  recognition  of  the  dignity  of  man,  and  a 
desire  to  improve  the  material  and  spiritual  well- 
being  of  our  citizens. 

Time  and  again  the  American  republics  have 
met  to  reaffirm  their  devotion  to  those  ideals  of 
democracy.  They  have  done  this  in  the  face  of 
constant  propaganda  for  Nazi  and  Fascist  doc- 
trines. And  in  the  post-war  world  I  am  sure 
these  American  republics  will  reaffirm  the  bold 
stand  for  democracy  with  which  they  have  resisted 
the  forces  of  reaction  from  abroad  during  the  last 
decade. 

It  is  obvious  that  these  goals  require  first  of 
all  the  efforts  of  each  nation  within  itself.  But 
if  we  have  learned  anything  in  the  last  decade 
it  is  that  no  nation  can  stand  alone.  Only 
through  a  genuine  cooperative  effort  can  these 
goals  be  achieved  in  the  world  at  large.  They 
require  international  cooperation  toward  expand- 
ing j^roduction,  increasing  world  trade,  and  de- 
velojjing  natural  resources  so  that  all  efforts  to 
improve  living  standards  may  rest  upon  a  solid 
basis. 

That  kind  of  cooperation  is  inherent  in  the 
principles  which  have  guided  the  pan-American 
program  in  the  past.  We  must  translate  those 
principles  into  effective  action  and  tangible  re- 
sults in  the  future. 

Our  American  tradition  rests  on  the  belief  that 
the  state  exists  for  the  benefit  of  man.  The 
American  republics  have  overwhelmingly  re- 
jected the  false  doctrine  that  man  exists  for  the 
benefit  of  the  state.    We  must  now  in-ove  that 


AI'RIL  28,  1946 


721 


inteiiuitioiial  cooperation,  too,  exists  only  for  the 
lieiiefit  of  man.  The  peoples  of  the  Americas 
have  a  right  to  exjiect  of  the  pan-American  sys- 
tem that  it  show  its  validity  by  promoting  those 
liberties  and  principles  which  the  word  democ- 
racy imijlies  to  them.  Pan-American  solidarity 
must  prove  itself  to  be  in  fact  a  bulwai-k  of  demo- 
cratic peace. 

If  we  dedicate  ourselves  to  this  objective,  we 


shall  make  the  fullest  contribution  to  the  wel- 
fare of  our  own  people  and  of  the  world  at  large. 
By  giving  tangible  expression  to  the  meaning  of 
democracy,  Ave  shall  widen  and  strengthen  its 
hold  upon  the  imagination  of  the  world.  In  that 
way  we  can  revitalize,  through  our  pan- American 
cooperation,  the  faith  of  peoples  everywhere  in 
their  ability  to  build  a  peaceful  world  upon  a 
firm  foundation. 


GERMAN  DOCUMENTS— ConthniPd  from  par/e  703. 

had  only  gone  in  ahead  of  the  English  and  had  an- 
ticipated them  only,  as  it  now  appeared,  by  about 
ten  hours.  To  the  remark  of  Scheel  that  the  Eng- 
lish through  their  mine  fields  had  violated  Nor- 
wegian sovereignty,  the  Fiihrer  declared  that  that 
was  only  the  beginning.  He  had  in  the  meantime 
discovered  that  the  English  had  already  planned 
their  first  landing  on  February  12.  To  the  ques- 
tion of  the  Fiihrer  as  to  whether  Herr  Scheel 
had  received  any  instructions  from  his  Govern- 
ment, the  Minister  replied  in  the  negative.  The 
Fiihrer  advised  him  to  get  into  communication 
with  his  Government.  He  would  permit  the  Min- 
ister to  fly  up  there.  He  could  do  whatever  he 
liked.  He  would  help  him  in  every  way.  The 
Fiihrer  continued  that  it  made  no  difference  who 
was  in  control  in  Norway,  he  would  deal  with 
those  who  were  there  and  if  it  turned  out  there 
was  no  one,  he  would  appoint  a  military  governor. 
He  could  do  that  and  it  would  be  no  problem  for 
him.  Herr  Scheel  referred  to  the  request  that 
Sweden  should  take  over  protection  of  Norwe- 
gian interests.  To  this  the  Fiihrer  replied  that  it 
was  entirely  impossible,  for  in  the  meantime  an- 
other Government  had  been  formed  in  Norway. 
In  any  case  he  believed  that  some  sort  of  civilian 
authority  had  already  been  established.  To 
Scheel's  objection  that  this  would  have  to  be  es- 
tablished constitutionall}',  the  Fiihrer  answered 
that  he  could  establish  it;  for  whoever  had  the 
power  and  the  responsibility  could  name  Govern- 
ments and  he  who  had  no  power  could  not  estab- 
lish a  Government.  To  this  Herr  Scheel  agreed. 
The  Fiihrer  requested  the  Minister  to  express  his 
opinion,  for  something  must  now  be  done.  To  this 
Herr  Scheel  answered  that  in  his  opinion,  a  head  of 
a  state  who  had  once  fled  from  his  countrj?  had  no 
further  connection  with  his  people  and  he  referred 
to  tlie  example  of  Poland.     The  Fiihrer  once  more 


outlined  the  danger  into  which  Norway  was  being 
swept  and  compared  the  more  favorable  position 
which  Dennuirk  had  chosen  for  itself  with  the 
chaos  and  destruction  which  confronted  Norway. 
Herr  Scheel  asked  the  Fiihrer  whether  he  might 
travel  and  was  under  the  impression  that  this  was 
a  matter  which  concerned  the  Fiihrer.  The 
Fiihrer  replied  that  if  we  were  in  a  state  of  war 
with  Norway,  the  Norwegian  Minister  could  not 
possibly  carry  on  his  duties  here  any  longer.  The 
Minister  replied  that  Germany  hacl  certainly  not 
declared  war  on  Norway,  and  when  the  Fiihrer 
answered  that  Koht  in  his  speech  had  declared  that 
Norway  was  in  a  state  of  war  with  Germany,  the 
Minister  said  that  he  had  also  heard  that,  but  he 
added  that  if  he  remained  here  and  the  old  Gov- 
ernment disappeared  and  a  new  one  was  formed, 
he  could  continue  to  work  for  the  new  Govern- 
ment. His  pei-sonal  relationship  with  the  Ger- 
man Government  had  always  been  a  vei-y  good 
one.  The  Reich  Foreign  Minister  projaosed  to  the 
Minister  that  he  fly  to  Norway  to  speak  with  the 
King.  He  could  make  clear  to  the  King  that  it  was 
a  question,  not  only  of  his  crown  and  the  future 
of  his  children  but  also  of  the  fate  of  his  country. 
To  the  question  of  the  Fiihrer  as  to  whether  he 
knew  the  King  well,  the  Minister  replied  that  he 
had  often  been  received  by  the  King  and  had  met 
him  on  ceremonial  occasions.  The  Fiihrer  jaro- 
posed  that  the  Minister  should  communicate  by 
telegraph  to  which  the  latter  agi'eed. 

To  the  Minister's  question  as  to  whether  he  had 
to  leave  Berlin  at  once  the  Fiihrer  said  that  he  was 
under  no  compulsion.  He  could  first  put  his  affairs 
in  order  calmly.  The  Minister  requested  an  inter- 
val for  consideration  and  the  Fiihrer  bade  him 
farewell. 

Berlh),  April  13,  WJiO 

Hewell 


722 


DEPARTMENT  OF  STATE  BULLETIN 


American  News  Abroad 


BY  ASSISTANT  SECKETARY  BENTON 


I  AM  GRATEFUL  to  jour  president,  Mr.  John 
Knight,  and  to  the  American  Society  of  News- 
paper Editors  for  giving  me  tliis  opportunity  to 
discuss  with  you  some  of  the  problems  of  the  pro- 
posed State  Department  information  program. 

Tlie  problems  I  want  to  lay  before  you  are  not 
the  routine  administrative  headaches  of  a  govern- 
ment bureaucracy.  They  are,  in  their  largest  con- 
text, the  problems  and  opportunities  of  achieving 
and  maintaining  peace  through  the  growth  of 
understanding  among  the  peoples  of  the  world. 

As  such,  they  concern  every  citizen  and  every 
human  being.  To  you,  as  editors — as  specialists 
in  handling  information — they  are  of  special  con- 
cern. If  there  is  any  group  in  the  United  States 
which  I  hope  will  face  up  to  them,  it  is  this  one. 
Witliout  your  understanding  and  help,  the  liope 
of  solving  these  problems  is  dim  indeed.  And  my 
appearance  here  today  is  not  for  the  purpose  of 
making  what  the  diplomats  call  a  general  settle- 
ment. It  is  one  of  many  appearances  which  I  and 
my  successors  should  make  before  you  and  other 
groups  over  the  years.  The  need  and  the  oppor- 
tunity for  increasing  the  volume  and  quality  of 
international  information  are  perennial.  They 
become  more  critical  with  every  new  development 
in  science  that  makes  the  world  smaller  and  more 
dangerous — not  only  every  new  development  in 
communications,  but  in  nuclear  physics. 

Under  the  leadership  of  Mr.  Knight,  your  so- 
ciety has  recently  made  notable  contributions  to 
the  cause  of  peace  through  world  freedom  of 
information.  Your  influence  in  persuading  both 
the  Republican  and  Democratic  National  Commit- 
tees in  11)44 — and  later  the  Congress — to  adopt 
resolutions  which  advocated  equality  of  oppor- 
tunity and  treatment  in  collecting,  transmitting, 
and  publishing  news,  without  governmental  or 

An  address  delivered  befurc  the  American  Society  of 
Newspapei-  Editors,  Washington,  D.C.,,  Apr.  18,  1946,  and 
released  to  the  press  on  the  same  date. 


private  restriction,  helped  crystallize  national 
policy.  Even  more  valuable  was  the  appointment 
of  the  special  committee  of  Wilbur  Forrest,  Ralph 
McGill,  and  Carl  Ackerman,  and  the  round-the- 
world  trip  they  made  to  advance  the  cause  of  free- 
dom of  information  everywhere. 

There  is  no  need  for  me  to  reemphasize  to  this 
group  the  importance  of  removing  political  re- 
strictions on  the  free  flow  of  information.  Mr. 
Knight  dealt  with  this  theme  in  a  speech  last  Fri- 
day in  Syracuse,  and  I  want  to  take  as  one  theme 
today  some  of  Mr.  Knight's  observations  in  that 
speech,  because  they  tyjDify  many  legitimate  ap- 
prehensions as  well  as  the  misapprehensions  about 
the  Government's  information  program.  His 
speech  is  an  excellent  springboard  for  me  to  try 
to  make  some  points  of  my  own. 

He  spoke,  for  one  thing,  about  the  refusal  of  the 
Associated  Press  to  continue  its  service  to  the  Gov- 
ernment for  use  in  short-wave  broadcasting  and 
took  exception  to  the  State  Department's  attitude. 
The  AP  issue  is  a  minor  symj^tom  of  the  bigger 
problems  that  face  us.  The  Department's  inability 
to  use  AP  and  UP  files  has  caused  us  inconveni- 
ence; it  has  made  the  job  of  our  broadcasters 
harder;  we  don't  like  it;  but  spot  news  is  only  a 
small  fraction  of  the  material  in  our  broadcasts, 
and  there  are  other  sources  of  news.  We  are  get- 
ting on  without  AP  and  UP  far  better  than  I 
M'ould  have  supposed.  Further,  the  action  of  the 
Board  of  the  Associated  Press  relates  to  only  one 
part  of  one  of  the  nine  points  of  the  State  Depart- 
ment program.  Speaking  to  the  North  Carolina 
Press  Association  on  January  2.5,  Robert  McLean, 
President  of  the  Associated  Press,  gave  the  fastest 
and  best  summary  of  the  program  that  I  have  seen 
anywhere.  He  said :  "The  whole  information  pi'o- 
gram,  consisting  of  nine  points,  includes  exchange 
of  persons  engaged  in  intellectual  activities;  the 
maintenance  of  libi'aries  of  information  abroad; 
the  disd'ihution  to  diplomatic  missions  of  texts 


APRIL  28,  1946 


723 


of  official  announcements;  documentary  material, 
biographical  sketches  and  information  about  life 
in  Amei-ica;  photographs  and  fihn  (strips)  for 
non-commercial  showing  to  foreign  audiences;  the 
development  of  small  staffs  in  our  missions  in  62 
countries  to  provide  tactful,  well-informed,  and 
capable  personnel  to  carry  out  the  program;  and 
finally  the  operation,  during  (fiscal  year)  1947  at 
least,  of  short-wave  broadcasting  covering  virtu- 
ally the  whole  world. 

"Almost  the  whole  program",  said  Mr.  McLean, 
"has  received  generous  and  merited  approval  and 
support,  as  have  also  efforts  to  advance  the  free 
excliange  of  news  and  information  through  nor- 
mal channels.  It  is  only  in  the  field  of  news  broad- 
casting by  the  Government  that  the  program  has 
been  seriously  questioned." 

However,  the  action  of  the  AP  Board  to  which 
Mr.  McLean  refers  is  important.  It  has  even 
greater  importance  as  a  symptom  and  a  symbol. 
I  sliall  welcome  the  interest  of  the  members  of 
this  society  in  it. 

One  of  the  bigger  problems  pointed  out  in  Mr. 
Knight's  speech  is  the  danger  of  a  propaganda 
race.  He  said :  "I  cannot  refrain  from  putting  up 
a  red  light  as  a  warning  against  a  propaganda  race 
between  nations.  In  many  ways,  it  could  be  quite 
as  ominous  as  an  armament  race  in  wliicli  each 
major  power  attempted  to  outdo  the  other."  I 
share  Mr.  Knight's  fears.  I  liope  and  pray  that 
we  don't  have  a  propaganda  race.  I  feel  the  same 
way  about  the  danger  in  an  armament  race.  Wlren 
General  Groves  asks  Congress  for  500  million  dol- 
lars for  further  development  of  the  atomic  bomb, 
when  Geijeral  Spaatz  asks  for  2  billion  dollars 
for  our  air  forces  next  year,  we  face  the  issue  of 
an  arms  race,  and  before  our  eyes  is  the  danger 
in  such  a  race. 

If  the  United  States  controlled  the  world — if 
we  were  tlie  only  nation  to  decide  what  the  world 
is  going  to  do — there  would  be  no  danger  of  arma- 
ment or  propaganda  races.  But  it  happens  that 
we  aren't  the  only  ones  to  make  the  decisions.  We 
don't  control  the  world.  "We  don't  want  to  control 
it.  And  nuich  that  we  do  is  determined  by  what 
other  nations  do,  unless  we  choose  to  go  in  for 
unilateral  disarmament. 

The  action  of  the  Board  of  the  Associated  Press 
is  like  that  of  a  munitions  manufacturer — to  con- 
tinue Mr.  Knight's  analogy — who  will  sell  to  every 
government  in  the  world  but  refuses  to  sell  to  his 
own  on  the  tlieorv  that  he  is  against  war. 


The  practical  question  is  not  if  a  propaganda 
race  is  undesirable.  Of  course  it  isn't,  and  we  shall 
not  engage  in  it.  This  is  the  question:  Can  we 
solve  the  problem  of  providing  the  world  with 
adequate  infoi-mation  without  engaging  in  propa- 
ganda ? 

TIuis  the  fact  that  the  British  and  the  Russian 
Governments  spend  more  money  and  energy  on 
international  infonnation  activities  than  we  pro- 
pose is  not  our  criterion.  Nor  is  our  stimulus  the 
fact  that  they  or  many  other  nations  have  been  in 
the  field  for  decades  and  do  not  propose  to  leave 
it.  Nor  are  we  motivated  by  the  fact  that  some 
50  governments  now  engage  in  international  short- 
wave broadcasting.  I  would  favor  an  American 
program  of  international  information  even  if  no 
other  government  had  such  a  program.  I  would 
recommend  such  an  honest  program  to  any  coun- 
try. I  believe  that  the  surest  road  to  peace  is 
through  understanding  among  peoples.  Private 
agencies  cannot  do  the  whole  job  of  providing  the 
information  necessary  to  such  understanding. 
America  as  a  nation  can  help  set  world-wide  stand- 
ards of  honesty  and  impartiality  in  the  dissemina- 
tion of  information  by  governments. 

If  there  be  a  propaganda  race,  the  United  States 
Government  does  not  choose  to  run  in  it. 

In  the  same  speech  Mr.  Knight  also  said,  "I 
applaud  Mr.  Benton's  ardent  desire  to  give  the 
world  more  information  about  our  country,  but 
as  yet  I  remain  unconvinced  that  it  can  be  accom- 
plished through  Government  publicity  agencies". 
I  too  remain  unconvinced.  I  am  against  relying 
on  Government  publicity  agencies  to  provide  the 
world  with  information.  The  State  Department's 
entire  program  is  designed  only  to  fill  in  the  gaps 
where  private  agencies  don't  do  the  job.  If  the 
.Government  doesn't  fill  these  gaps,  who  does? 

Incidentally,  your  president  gave  me  too  much 
credit  in  calling  it  7)11/  ardent  desire  to  give  the 
world  more  information  about  the  United  States. 
It  isn't  mine  alone.  It  is  his.  It  is  yours.  It  was 
Thomas  Jefferson's  when  he  wrote  in  the  first 
sentence  of  the  Declaration  of  Independence  that 
"a  decent  respect  for  the  opinions  of  mankind  re- 
quires" that  the  American  people  "should  declare 
the  causes  which  impel  them  to  the  separation" 
from  Great  Britain.  It  is  the  ardent  desire  of 
everyone  who  has  studied  the  program.  It  is  the 
desire  of  the  administration,  of  Congressmen,  both 
Republican  and  Democratic,  who  have  been  abroad 


724 


DEPARTMENT  OF  STATE  BULLETIN 


and  seen  at  first  hand  how  America  is  misunder- 
stood. 

But  in  this  problem  of  a  so-called  Government 
publicity  agency,  the  practical  question  is  not 
whether  Government  participation  seems  inefTec- 
tive  or  dangerous.  This  is  the  question  :  How  can 
we  make  the  program  effective  and  how  can  we 
avoid  the  dangers?  We  can't  solve  the  problem 
by  saying,  ''Let's  not  do  anything.  Kill  the  Gov- 
ernment activities"',  because  the  gaps  that  need 
filling  will  still  be  there,  crying  to  be  filled. 

I  shall  put  the  question  in  still  another  way; 
How  can  we  operate  the  State  Department  pro- 
gram so  that  it  will  win  confidence  at  home  and 
abroad,  and  so  that  it  won't  in  fact  interfere  with 
private  agencies  or  even  seem  to  control  the  flow 
of  information? 

I  shall  now  quote  again  from  Mr.  Knight's 
speech.  Here  he  expresses  still  another  danger 
whicli  he  and  I  both  fear.  Indeed,  what  he  said 
was  so  similar  to  what  I  said  in  iny  recent  speech 
on  the  Associated  Press  that  I  am  going  to  quote 
us  both. 

He  said :  'Had  not  Nazi  and  Fascist  forces  in 
Germany  and  Italy  seized  and  dominated  the  press 
and  all  communication  facilities  at  the  start,  the 
growth  of  these  poisonous  dictatorships  might  well 
have  been  prevented  and  the  indoctrination  of  na- 
tional thought  in  the  direction  of  hatred  and  mis- 
trust might  have  been  impossible.  .  .  .  the 
ability  of  political  leaders  to  seize  power  and  black 
out  the  minds  of  whole  peoples  must  be  prevented 
in  the  future  if  peace  is  to  be  maintained  with  the 
aid  of  international  tolerance  and  understanding.'' 

The  text  of  my  speech  ^  contained  this:  "Today 
at  Ni'irnberg  and  elsewhere  war  criminals  are 
being  tried.  They  are  the  former  rulers  who 
plunged  the  world  into  war.  But  they  might  well 
have  been  powerless  if  their  peoples  had  known 
the  truth  about  the  United  States.  The  war  was 
made  certain  by  their  lack  of  knowledge,  just  as  a 
new  war  is  possible  if  the  same  lack  of  knowledge 
continues — if  the  same  distortions  are  not  com- 
bated with  the  truth. 

''The  peoples  of  the  world  did  not  know  we  were 
powerful — powerful  beyond  their  wildest  dreams 
of  their  own  power.  They  were  told  we  wei'e  weak 
and  divided,  our  economy  out  of  Kilrer,  our  people 
starving — and  they  believed  it. 

"They  were  told  we  were  soft  and  flabby,  wishy- 
washy  and  scared — and  they  believed  it. 

'  Itui.LKTlN  (if  Apr.  7,  ]!»40,  p.  .'574. 


''They  were  told,  above  all,  that  the  American 
system  is  no  good,  that  it  doesn't  work,  that  democ- 
racy is  hypocrisj'  and  so-called  freedom  a  joke. 
They  were  told  that  our  leaders — Government,  in- 
dustrial, labor,  and  press — were  scoundrels,  that 
our  culture  was  semi-barbaric,  our  ideas  tainted, 
our  morals  base.    And  they  believed  all  this." 

NoM',  the  danger  Mr.  Knight  and  I  agree  on  did 
not  die  with  the  surrender  of  the  Axis  armies.  We 
know  that  another  war  is  in  the  making  if  thu 
j)eoj)les  of  other  lands  again  misunderstand  us — 
either  through  our  own  negligence  or  through  de- 
liberate distortions  abroad. 

And  the  practical  question  is:  How  can  the 
American  people  best  go  about  the  urgent  task  of 
developing  understanding  throughout  the  world? 

AVhat  is  needed  is  the  same  frank  recognition  of 
the  pi'oblem,  and  the  same  courageous,  construc- 
tive, cooperative  attack  on  it  that  the  American 
Society  of  Newspaper  Editors  has  made  in  the  re- 
lated field  of  assuring  freedom  fi'om  restrictions 
on  the  flow  of  information. 

It  took  the  war  to  make  all  of  us  aware  of  the 
enormous  gaps  in  United  States  information 
reaching  other  peoples  and  of  the  potential  dan- 
gers inherent  in  those  gaps.  One  of  the  most  un- 
expected discoveries  of  our  millions  of  men  and 
M'omen  who  served  abroad  during  the  war  is  the 
extent  of  distortion  existing  in  the  minds  of  other 
jieoples  about  the  United  States.  Serving  in 
Allied,  neutral,  and  liberated  countries,  in  coun- 
tries with  and  without  American  press  services, 
in  advanced  and  primitive  countries,  they  were 
faced  with  a  distressing  situation. 

Mr.  Knight  reports  his  observations  while  he 
was  director  of  censorship  in  London.  He  said : 
"While  in  England,  I  was  constantly  disturbed 
over  the  manner  in  which  the  British  press  mis- 
interpreted the  America  scene.  The  trivialities 
of  Hollywood  were  invariably  given  prominent 
display  and  it  was  not  uncommon  to  meet  the  pro- 
prietors of  British  provincial  newspapers  whose 
interest  in  America  seemed  to  begin  and  end  with 
legends  of  Al  Capone  and  the  bright  lights  of 
filmland. 

"AVe  have  had  a  free  and  uncensored  exchange 
(if  news  M-ith  England  for  generations,"  Mr. 
Knight  continued,  "but  evidently  we  have  never 
succeeded  in  convincing  the  English  people  that 
America  is  anything  but  a  land  of  milk  and  honey. 

"Like  many  portions  of  the  American  press,  a 
London  newspaper  editor  is  always  looking  for 


AFRIL  28,  1946 


725 


the  sensational,  and  liis  readers  evidently  enjoy 
the  juicy  tidbits  from  this  side  of  the  Atlantic. 

''American  films,  too,  have  piven  the  Britisli 
])ublic  a  fanciful  conception  of  life  in  America 
and  a  false  evaluation  of  our  hlessinjis  and  short- 
comings."' 

Let  me  emphasize  Mr.  Knight's  observations. 
If  such  misinterpretations  are  true  of  the  English, 
with  whom  we  share  a  common  language,  and  with 
whom  we  share  so  many  common  institutions  and 
traditions,  including  freedom  of  the  press,  what 
is  the  situation  in  countries  with  different  lan- 
guages, religions,  customs,  and  aspirations,  and 
with  far  fewer  facilities  for  communication? 

It  is  hard  for  me  to  square  Mr.  Knight's  descrip- 
tion of  England,  where,  as  he  says,  we  have  had 
a  free  and  uncensored  exchange  of  news  for  gen- 
erations, with  his  saying  elsewhere  in  the  same 
speech :  "I  am  of  the  firm  opinion  that  the  story 
of  America  can  best  be  told  by  our  own  press  as- 
sociations and  the  correspondents  of  foreign 
newspapers  who  enjoy  complete  freedom  of  ex- 
l^ression  in  the  dispatches  they  file  from  our 
shores.'' 

Because  these  two  quotations  cannot,  in  my 
opinion,  be  squared,  I  want  to  make  four  quali- 
fications to  any  generalization  dealing  with  sole 
reliance  on  jjrivate  media.  I  hope  you  will  agree 
these  qualifications  are  reasonable  and  realistic. 

The  first  is  that  there  are  critical  areas  where 
private  American  services  cannot  operate  for  po- 
litical reasons;  the.se  are  tremendous  and  vital 
areas. 

The  second  is  that  there  are  other  areas,  as  in 
parts  of  southeast  Asia,  where  it  is  not  yet  com- 
mercially profitable  or  practicable  for  American 
private  agencies  to  operate. 

Third,  the  "American  story",  as  Mr.  Knight  calls 
it,  I'equires  certain  media  for  providing  infor- 
mation which  are  not  practicable  or  profitable  for 
private  agencies  to  operate  anywheie.  Among 
these  are  short-wa\e  voice  broadcasting,  American 
libraries  and  exhibits,  documentary  films  and  film- 
strips,  and  the  provision  of  full  texts  of  official 
documents.  In  all  of  these  media,  I  would  wel- 
come offers  from  private  agencies  to  take  them 
over,  if  given  assurance  that  private  agencies 
would  do  any  kind  of  an  adequate  job.  Particu- 
larly in  the  field  of  short-wave  broadcasting.  I 
would  be  delighted  if  it  were  adequately  financed 
either  liy  the  press  associations  or  the  domestic 


radio  interests;  but  the  commercial  loss  involved 
seems  to  pose  an  insuperable  financial  hurdle. 

Fourth,  even  the  spot  news  can  only  bf  under- 
stood by  people  in  other  co*mtries  in  the  context 
of  background  material  adapted  to  their  compre- 
hension. The  wire  services  today  provide  but  lit- 
tle background  material.  A  high  percentage  of 
their  news  stories  are  identical  with  those  written 
for  Americans. 

All  who  study  this  field  discover  that  handling 
information  abroad  is  not  a  mere  extension  or  by- 
product of  the  preparation  and  dissemination  of 
news  for  American  readers.    It  is  a  field  in  itself. 

The  OWI  and  the  OIAA  found  this  out  in  the 
hard  school  of  experience.  They  fovmd  it  neces- 
sary to  construct  a  whole  new  pattern  of  news  con- 
cepts and  news  writing,  especialh'  adapted  for 
readers  unfamiliar  with  American  life.  In  this 
process  they  learned  much. 

For  example,  in  the  beginning  the  war  agencies 
took  for  granted  that  columns  and  commentaries 
by  America's  best-known  writers  would  be  a  splen- 
did source  of  material  for  cabling  and  broadcast- 
ing to  other  countries.  But  they  soon  discovered 
that  people  in  other  countries  simply  didn't  know 
what  the  writers  were  talking  about  a  good  part 
of  the  time.  Their  references  to  American  cus- 
toms, ideas,  and  governmental  processes  all  need 
explanation  and  background.  The  OWI  ap- 
proached many  of  these  people  and  explained  the 
problem.  As  a  war  service,  the  writers  prepared 
special  columns  for  people  of  other  countries. 
Weekly  columns  were  written  by  men  like  Maj. 
George  Fielding  Eliot,  Raymond  Swing,  Paul 
Schubert,  Leo  Cherne,  Barnet  Nover,  Walter  Mil- 
lis.  Admiral  Harry  E.  Yaruell,  and  special  pieces 
by  Ray  Clapper  and  scores  of  others,  all  telling 
in  simple,  understandable  language  the  back- 
ground about  the  United  States  and  its  democratic 
processes.  The  reception  was  astonishing.  Let- 
ters and  messages  poured  in  from  all  over  the  east- 
ern half  of  the  world,  saying,  in  effect.  '"Why 
haven't  you  been  doing  this  sort  of  thing  all  along? 
Now  for  the  first  time  I  understand  how  the  Amer- 
ican electoral  system  works;  or  why  the  negro  prob- 
lem can't  be  solved  overnight." 

OWI  outpost  officers  were  in  constant  touch  with 
editors  in  each  country,  finding  what  was  needed 
and  cabling  back  instructions  and  information 
to  the  h(mie  staff.  Tlie  total  daily  cable  file  of 
the  OWI  was  100,000  words,  of  which  40,000  were 
original  writing  b^'  the  OWI  staff. 


726 


DEPARTMENT  OF  STATE  BULLETIN 


When  Ave  listen  to  generalities  about  the  wire 
services  or  other  private  activities  abroad,  let  us 
keep  in  mind  this  experience  of  the  OWI,  which 
demonstrates  the  need  for  background  material 
to  make  the  spot  news  intelligible.  This  need  I 
liope  the  wire  services  will  increasingly  learn  to 
till.  But  let  us  remember  also  my  other  three  qual- 
ifications, which  indicate  the  essential  role  of  gov- 
ernment. 

Let  me  now  review  brieflj'  the  program  the  State 
Department  proposes,  which  is  now  being  consid- 
ered by  Congress.  We  pi'opose  an  operation  at 
about  25  percent  of  the  level  maintained  during 
the  war,  in  terms  of  money  and  people,  by  the  OWI 
and  OIAA.  All  psychological  warfare  has  of 
course  been  abolished.  The  100,000  word  cable- 
wireless  file  I  just  mentioned  has  been  virtually 
eliminated,  and  there  is  no  provision  for  it  in  the 
194:7  budget.  All  magazines  except  one,  for  Russia, 
have  been  discontinued.  All  other  operations  ex- 
cept cultural  exchanges  have  been  drastically 
slashed.  Of  the  nine  activities  that  are  proposed, 
all  but  two  are  concerned  with  background  and 
with  long-term  cultural  exchanges.  Only  two  in 
any  way  involve  the  handling  of  spot  news.  One 
of  these  is  the  State  Department  Radio  Bulletin, 
which  every  day  provides  our  missions  abroad, 
including  our  information  officers,  with  complete 
texts  of  important  Government  documents.  These 
are  made  available  abroad  to  those  interested  in 
them.  The  second  is  short-wave  voice  broadcast- 
ing, which  we  carry  in  24  languages.  About  one 
fifth  of  our  broadcasting  consists  of  spot  news. 

Because  it  is  only  the  spot  news  in  the  short-wave 
broadcasting  that  is  at  issue  with  the  AP,  I  want 
to  quote  Roscoe  Drummond,  chief  of  the  Washing- 
ton bureau  of  the  Christian  Scierwe  Monitor,  and 
one  of  the  capital's  most  respected  correspondents. 
Mr.  Drummond  reported  only  two  weeks  ago  that 
lie  had  just  read  60,000  words  from  the  scrijits  of 
our  voice  broadcasts,  over  a  representative  48-hour 
period  when  important  news  was  breaking.  "The 
State  Department",  Mr.  Drummond  concluded  in 
an  article  on  the  subject,  "is  performing  a  needed, 
intelligent  and  notably  objective  job  in  its  news 
radio-casting  to  foreign  countries.  .  .  .  Its 
purpose,  as  evidenced  by  the  radiocasts  themselves, 
is  not  to  wage  an  aggressive  propaganda  war 
around  the  world,  but  to  present  to  distant  peoples, 
who  often  have  little  access  to  world  news  and  less 
to  American  news,  a  faithful,  factual,  balanced 


day-to-day  report  about  what  they  can't  afford  not 
to  know  about  the  United  States." 

I  hope  it  is  clear  to  all  of  us  by  now  that  the 
over-all  information  task  before  us  is  too  great 
for  any  one  agency,  or  for  any  one  type  of  infor- 
mation medium.  The  task  calls  for  the  efforts  of 
all  groups,  jiublic  and  private,  that  can  make  a 
contribution.  It  is  with  this  in  mind  that  I  wish 
now  to  make  a  proposal  to  the  American  Society 
of  Newspaper  Editors.  The  proposal  is  that  you 
undertake  a  continuing  study  of  the  whole  field 
of  handling  news  abroad,  of  its  needs,  opportuni- 
ties, and  difficulties,  and  of  what  is  actually  being 
done  both  by  private  agencies  and  services  and  by 
Government.  By  trips  abroad  your  membership 
can  get  first-hand  knowledge,  on-the-scene  infor- 
mation, that  will  be  invaluable. 

This  proposal  has  its  origin  in  an  offer  made  by 
President  Knight  last  January.  At  that  time, 
when  the  Associated  Press  and  United  Press  had 
refused  to  continue  their  service  to  the  Govern- 
ment, I  hoped  that  some  independent  and  objective 
group  might  be  acceptable  to  the  press  associa- 
tions as  a  committee  to  investigate  the  matter  and 
make  recommendations  which  they  would  use  as 
guides  in  the  hoped-for  further  consideration  of 
the  issues  at  stake. 

On  January  31  I  telegraphed  to  Mr.  Kjiight, 
saying:  "Have  you  any  advice  on  the  AP  or  UP 
matter?  Would  the  American  Society  of  News- 
I^aper  Editors  be  willing  to  appoint  a  committee  to 
take  an  objective  look  at  the  whole  problem?" 

Shortly  after  this,  I  received  the  following  tele- 
gram from  Mr.  Knight:  "At  various  times  you 
have  indicated  a  willingness  for  an  independent 
review  and  investigation  of  the  State  Department's 
informational  activities  abroad.  In  view  of  the 
current  controversy  between  your  division  of  the 
State  Department  and  two  of  the  major  press  as- 
sociations, the  American  Society  of  Newspaper 
Editors  through  its  standing  committee  on  world 
freedom  of  information  M'ill  be  glad  to  undertake 
such  a  study  if  you  so  desire."  My  mind  and  heart 
were  then  concentrated  on  the  immediate  situation 
regarding  AP  and  UP.  While  I  was  delighted 
with  the  offer,  I  felt  that  such  a  study  would  be  im- 
mediately productive  only  if  the  press  associations 
would  join  me  in  encouraging  it.  They  did  not  in- 
dicate an  interest  in  such  a  study.  Perhaps  I 
erred  at  that  time  in  not  encouraging  the  study. 


APRIL  28,  1946 

even  without  their  interest,  tied  to  the  dissemina- 
tion of  American  news  abroad. 

As  time  lias  jjassed,  it  has  become  increasingly 
clear  that  a  comprehensive  examination  of  the 
whole  field  of  the  handling  of  American  news 
abroad  can  iierform  an  indispensable  service. 

First,  to  studj'  the  foreign  output  of  the  Ameri- 
can press  services  as  to  coverage,  volume,  and  char- 
acter of  content,  and  the  reprocessing  of  this  ma- 
terial abroad  before  it  reaches  the  foreign  public. 
This  helps  to  delineate  the  needs  and  the  gaps. 

SecotuI,  to  study  the  impact  on  foreign  peoples  of 
the  news  they  receive  about  America  from  all 
sources. 

Third,  to  identify  the  nature  of  the  misconcep- 
tions about  America  which  arise  from  inadequate, 
unreiJresentative,  unintelligible,  or  distorted  news, 
and  to  spot  the  gaps  that  need  to  be  filled. 

Fourth,  to  recommend  steps  to  fill  the  gaps, 
either  by  private  or  Government  action,  and  to 
help  appraise  the  efforts  of  the  Government  to  do 
its  part  of  the  job. 

Fifth,  to  advise  the  State  Department  in  its  ef- 
forts to  advance  the  free  flow  of  news  and  infor- 
mation throughout  the  world. 

What  I  have  tried  to  do  this  afternoon  is  to  out- 
line as  briefly  as  possible  the  scope  of  the  field 
newly  recognized  by  the  United  States  of  providing 
information  about  the  United  States  to  tlie  peoples 
of  other  countries.  I  hope  that,  after  my  words  of 
today  are  forgotten,  four  thoughts  will  remain  in 
all  our  minds. 

The  fii-st  is  that  this  field  is  an  integral  and  in- 
dispensable part  of  the  biggest  task  facing  every 
man,  woman,  and  child  in  our  country — building 
an  endui'ing  peace.  This  surpasses  merely  com- 
mercial or  conventional  pre-war  considerations. 

The  second  is  that  there  exist  many  problems, 
many  dangers,  in  carrying  out  an  adequate  pro- 
gram— problems  which  must  be  solved,  dangers 
which  must  be  averted  by  positive  and  realistic 
steps  forward. 

The  third  is  that,  although  private  agencies 
must  cari-y  the  major  load,  they  cannot  do  the 
job  alone.  The  Government  is  needed  to  fill  the 
gaps  in  current  activities. 

The  fourtli  is  that  wliole-hearted  recognition  of 
the  common  nature  of  our  effort  is  tlie  key  to 
achieving  our  mutual  goal.  In  this  field,  as  in  all 
others,  there  will  always  be  disagreements,  both 
on  details  and  on  major  issues.    It  is  the  unique 


727 

characteristic  of  democracy  that  it  makes  possible 
tlie  expression  and  debate  of  those  differences  and 
from  them  builds  a  united  nation.  That  is  why 
we  revere  the  motto,  e  pluribios  imum — from  many, 
one. 

Our  great  hope  for  the  future  is  that  mutual 
understanding  among  the  peoples  of  the  world 
can  be  achieved,  because  those  things  which  men 
hold  in  common  are  stronger  than  those  things 
that  separate  them.  Let  us  make  a  beginning  in 
the  realization  of  this  hope  by  now  achieving 
mutual  understanding  among  ourselves. 


ROSS — Continued  from  page  705. 
Finally,  the  subcommittee  unanimously  agreed  to 
request  the  ILO  to  resume  its  study  of  safety 
provisions  in  coal  mines,  interrupted  by  the  war, 
and  to  make  thorough  inquiries  into  the  health  of 
coal  miners.  The  full  committee  decided  that 
these  principles  are  to  be  acted  upon  by  the  next 
session  of  the  group  in  the  capacity  of  a  technical 
preparatory  conference  for  the  purpose  of  draft- 
ing a  convention  for  consideration  by  the  next 
following  international  labor  conference. 

Not  the  least  important  among  the  committee's 
accomplishments  was  the  opportunity  it  offered  to 
the  i-epresentatives  of  the  various  groups  in  the 
coal-mining  industries  of  the  several  important 
producing  countries  to  get  acquainted  with  each 
other  and  to  exchange  views  on  their  respective 
problems.  In  this  manner  the  group  established  a 
community  of  interests  and  a  sound  basis  for  fur- 
ther practical  operation  in  the  future. 

The  accomplishments  of  a  single  meeting  of  the 
Coal  Mining  Committee  do  not  constitute  an  ade- 
quate basis  for  passing  judgment  on  the  future  use- 
fulness of  the  newly  established  tripartite  indus- 
trial committees.  However,  the  fact  that  this  new 
machinery  has  established  both  a  desirable  spirit 
of  cooperation  and  a  working  arrangement  for  the 
handling  of  social  problems  in  a  vital  and  difficult 
industry  offers  encouragement  to  its  originators, 
and  the  ILO  is  following  up  the  experiment  by 
scheduled  meetings  of  the  Industrial  Committee 
on  Iron  and  Steel  and  the  Metal  Trades  Committee 
in  Cleveland,  Ohio,  on  April  23  and  May  2,  1946, 
respectively.  The  achievements  of  the  Coal  Min- 
ing Committee  are  in  no  small  measure  attributable 
to  the  high  caliber  of  the  participants  and  the 
willingness  on  the  part  of  all  groups  present  to 
cooperate  in  order  to  attain  the  desired  goals. 


728 


DEPARTMENT  OF  STATE  BULLETIN 


Establishment  of  Diplomatic  Relations  With  Yugoslavia 


NOTES  FROM  THE  SECRETARY  OF  STATE  TO  THE  YUGOSLAV  CHARGE   D'AFFAIRES 


[Ri'leasi'il  to  the  press  Aiiril  17] 

The  followin.g  tiro  commumcations  were  delivered 
to  the  Yugloslav  Charge  d^Affaires  ad  interim,  on 
April  16,  me 

"The  Secretary  of  State  presents  his  compli- 
ments to  the  Charge  d'Affaires  ad  interim  of  the 
Federal  People's  Eepublic  of  Yugoslavia  and  ac- 
knowledges receipt  of  the  hitter's  communication 
No.  407  of  April  2,  1946  ^  in  which,  acting  upon 
instructions,  the  Charge  d'Affaires  informed  the 
Secretary  of  State  that  'the  Government  of  the 
Federal  People's  Republic  of  Yugoslavia,  after 
having  studied  all  the  questions  concerning  the  rec- 
ognition of  Yugoslavia's  international  obligations 
in  conformity  with  the  decisions  of  the  Second 
Session  of  the  Anti-Fascist  Council  of  National 
Liberation  in  Jajce  in  November,  1943,  hereby 
gives  an  affirmative  answer  to  the  note  of  the  De- 
partment of  State  of  December  22,  1945  -  con- 
cerning the  international  obligations  of  the  former 
Yugoslav  Governments.' 

1  Not  pi'iuted. 

2  Bulletin  of  Deo.  23,  1945,  p.  1020. 


'"The  Secretary  of  State  is  gratified  to  receive 
this  assurance  that  the  Federal  People's  Republic 
of  Yugoslavia  confirms  its  continued  recognition 
of  the  existing  treaties  and  agreements  between 
the  United  States  and  Yugoslavia  and  accordingly, 
pursuant  to  his  communication  of  December  22. 
1945  referred  to  above,  requests  that  the  Charge 
d'Affaires  inform  the  Yugoslav  Government  that 
the  United  States  Government  is  now  prepared  to 
proceed  with  the  issuance  of  appropriate  letters  of 
credence  accrediting  the  United  States  Ambassa- 
dor to  the  Federal  People's  Republic  of  Yugo- 
slavia." 


"Sir:  I  refer  to  your  note  of  March  1.  194(1  in 
which  you  state  that  the  Yugoslav  Government 
desires  to  appoint  Mr.  Sava  N.  Kosanovic  as  Am- 
bassador Extraordinary  and  Plenipotentiary  of 
Yugoslavia  to  the  United  States. 

"The  appointment  of  Mr.  Kosanovic  in  the 
above-mentioned  capacity  is  agreeable  to  this  Gov- 
ernment. 

"Accept  [etc.]  ,  .^    „  „ 

'■  James  F.  Byrxes 


Addresses  of  the  Week 


The  President 


Assistant  Secretary  Benton 


Charles  A.  Thomson 

Adviser  to  Office  of  International 
Information  and  Cultural  affairs. 
The  President 

I'iorello  LaCuardia 

Director-General  of  UNRRA. 
Herbert  Hoover 
Honorary  Chairman  of  the  Famine 
Emergency  Committee. 
Herbert  S.  Marks 

Secretary,  Secretary  of  State's 
Committee  on  Atomic  Energy 
and  Assistant  to  the  Under  Sec- 
retary of  State. 


Individual  Liberties — A  Pan-American 
Ideal;  excerpt,?  printed  in  this  issue. 

American  News  Abroad;  printed  in  this 
issue. 

The  Role  of  Government  in  UNESCO; 

see  Department  of  State  press  release 

263  of  April  18. 
America's   Solemn   Obligation   in   World 

Famine  Crisis;  printed  in  this  issue. 
Same    subject;    printed    in    this    issue. 

Report  on  the  European  food  problem; 
printed  in  this  issue. 

Foreign  Policy  and  the  Atom:  .\  dis- 
cu.ssion  participated  in  by  Senator 
Brien  McMahon,  Dr.  E.  U.  Condon, 
and  Mr.  Marks.      Not  printed. 


Delivered  before  the  Governing  Board 
of  the  Pan  American  Union, 
Washington,  on  April  15. 

Delivered  before  the  Association  of 
American  Newspaper  Editors  in 
Washington,  on  April  18. 

Delivered  before  the  American  Philo- 
sophical Society  in  Philadelphia, 
April  19. 

Delivered  over  radio  from  the  White 
House,  April  19. 

Delivered  over  radio  from  the  White 
House,  April  19. 

Delivered  over  radio  from  Cairo, 
April  19. 

Remarks  made  on  NBC  University 
of  the  Air  Program,  "Our  Foreign 
Policy,"  on  April  20. 


APRIL  2n,  1946 


729 


Claims  for  American  and 
Other  Foreign  Property 
in  the  Netherlands 

[Helt'ased  to  Ihe  pr«.^s.s  April  17] 

Shortly  after  tlie  occupation  of  the  Netherlands 
by  the  German  Army  in  May  l!>4tl,  the  German 
military  authorities  issued  a  decree  that  all  prop- 
erty of  German  enemies  in  the  Netherlands  should 
be  rejiistered.  In  April  1942.  the  decree  was 
amended  to  include  nationals  of  the  United  States. 

A  German  official,  Generalkommissar  fiir  Fin- 
anz  und  Wirtschaft  (General  Commissioner  for 
Finance  and  Economy),  was  charged  with  the  ex- 
ecution of  the  decree  vesting  German-enemy  prop- 
erty, and  Deutsche  Revisions-  und  Treuhand  A.  G., 
Geschiiftsstelle.  The  Hague,  a  subsidiary  of  a 
company  established  in  Germany,  was  named  as 
the  depository.  This  company,  generally  referred 
to  as  Treuhand,  acted  as  the  principal  custodian 
for  vested  property,  pai'ticularly  commercial  debts, 
but  there  were  also  several  joint  custodians  (Sajji- 
melvenralfer)^  whose  activities  concerned  portions 
of  vested  properties.  The  money  under  the  cus- 
todianship of  these  joint  custodians,  however,  had 
to  be  turned  over  to  Treuhand. 

Prior  to  the  liberation,  the  Netherlands  Gov- 
ernment in  London  issued  a  Royal  Decree,  having 
the  effect  of  law  within  the  country,  published  as 
Staatsblad  No.  E  133,  dated  October  20,  1944, 
which  provided  that  all  enemy  property  within 
the  Netherlands  was  to  be  vested  in  the  name  of 
the  Government.  Accordingly,  the  assets  of  Treu- 
hand, as  well  as  the  property  of  all  other  German 
agencies  and  individuals  which  was  left  in  the 
Netherlands  when  the  Germans  departed,  came  into 
the  hands  of  the  Netherlands  Government. 

The  Netherlands  decree  provided  for  the  crea- 
tion of  a  Government  agency,  Het  Nederlandsch 
Beheersinstituut,  patterned  largely  along  the  lines 
of  our  Alien  Property  Custodian  Office,  and  all 
enemy-held  (German)  property  Avas  placed  under 
its  jurisdiction.  Through  a  system  of  branch  of- 
fices in  the  larger  cities  of  the  Netherlands,  the 
Custodian  Office  has  appointed  custodians  {ie- 
heerders  or  hestuurders)  for  the  properties  of 
practically  all  German  agencies  and  individuals. 

In  the  case  of  Treuhand.  notaries  J.  van  Hasselt 
and  A.  M.  Vroom  of  250  Singel,  Amsterdam,  were 
appointed  custodians,  and  it  is  to  them  that  claims 


should  be  sent  for  American  property  which  the 
German  military  authorities  took  over  through 
Treuhand. 

The  American  Embassy  at  The  Hague  has  been 
informed  by  the  Netherlands  authorities  that, 
under  the  laws  of  that  country,  debtors  who  were 
forced  by  the  Germans  to  pay  Treuhand  money 
owed  to  the  enemies  of  Germany  are  considered 
to  have  paid  off  their  debt,  and  that  such  creditors 
are  to  regard  the  German  agency  to  which  the  debt 
was  paid,  in  this  case  Treuhand,  as  the  debtor, 
rather  than  the  firms  or  individuals  which  con- 
tracted the  debt. 

It  is  suggested  that  Americans  filing  claims  for 
bank  accounts,  or  other  sums  owing  them  which 
were  turned  over  to  Treuhand,  write  promptly  to 
the  custodians  mentioned  above,  stating  in  their 
letter  all  of  the  details  of  which  they  are  aware 
regarding  the  transaction  between  their  debtor  and 
Treuhand,  such  as  amount,  date,  place  of  payment, 
etc.  It  would  be  well  to  send  a  copy  of  the  letter 
registering  the  claim  to  the  former  debtor  in  the 
Netherlands  with  the  request  that  he  communicate 
with  Treuhand  and  provide  any  additional  perti- 
nent details  regarding  the  transfer  of  the  funds  to 
Treuhand  which  may  have  been  omitted  in  the 
claim. 

The  final  date  for  registering  claims  for  Amer- 
ican property  which  was  seized  by  the  Germans 
and  is  now  in  the  custody  of  the  Netherlands  Gov- 
ernment was  originally  set  for  January  1,  1946. 
However,  it  has  now  been  postponed  to  May  1, 
1 946.  While  the  Department  will  endeavor  to  have 
consideration  given  to  claims  which,  for  good  rea- 
son shown,  cannot  be  filed  by  that  thite,  it  is  sug- 
gested that  every  effort  be  made  to  register  claims 
by  the  date  indicated. 

The  liquidation  of  Treuhand  and  settlement 
with  claimants  is  likely  to  be  a  protracted  affair. 
Late  reports  from  the  Netherlands  indicate  that 
the  bulk  of  Treuhand's  assets  and  i-ecords  were 
taken  into  Germany,  and  although  the  Netherlands 
authorities  believe  they  are  aware  of  the  where- 
abouts of  these  assets  and  records,  they  have  not, 
as  yet,  gotten  possession  of  them  from  the  military 
authorities  in  the  respective  zones  of  occupancy. 
Dollars  owed  Americans  were  taken  over  by  the 
German  agency  at  the  rate  of  $1.00  =  Netherlands 
florins  1.885.  The  exchange  rate  at  which  the 
eventual  settlement  with  creditors  will  be  made 
has  not  been  determined  at  this  time. 


730 


DEPARTMENT  OF  STATE  BULLETIN 


Czeclioslovakia-Siam  Status 
in  Relation  to  the  War 

In  the  tabulation  entitled  "Status  of  Countries 
in  Relation  to  the  War,  August  12,  1945",  printed 
in  the  August  12,  1945  issue  of  the  Bulletin  and 
reprinted  as  Department  of  State  publication 
2389,  Czechoslovakia  was  listed  as  being  at  war 
with  various  countries  including  Thailand 
(Siam).  This  listing  was  based  on  (1)  various 
statements  of  the  Czechoslovak  Government  indi- 
cating a  state  of  war  between  Czechoslovakia  and 
countries  which  were  at  war  with  the  United 
States,  the  United  Kingdom,  and  the  Union  of 
Soviet  Socialist  Republics,  and  (2)  the  fact  that 
Thailand  was  a  country  which  fell  into  that 
category. 

In  this  connection  the  Ambassador  of  Czecho- 
slovakia has  been  kind  enough  to  write  as 
follows : 

"In  accordance  with  instructions  received  from 
the  Czechoslovak  Ministry  for  Foreign  Aifairs, 
the  Czechoslovak  Ambassador  has  the  honor  to 
state  that  the  note  of  February  28,  1944  from  the 
Acting  Czechoslovak  Minister  for  Foreign  Af- 
fairs to  the  American  Embassy  near  the  Czecho- 
slovak Government  in  London^ — the  text  of  which 
is  reproduced  on  page  4  of  the  publication — should 
be  understood  as  meaning  that  the  Czechoslovak 
Republic  has  not  considered  itself  as  in  a  state  of 
war  with  Thailand." 


U.S.  Liberty  Ships  Load 
Russian  Grain  for  France 

[Released  to  the  press  April  15] 

The  Department  of  State  and  the  War  Ship- 
ping Administration  announced  on  April  15  that 
the  first  three  United  States  liberty  ships  to  load 
Russian  grain  for  France,  the  Henry  V.  Alva- 
nulo,  the  R.  M.  Williamson,  and  the  Fisher  Ames, 
sailed  from  Odessa  April  10  carrying  25,531  tons 
of  wheat  and  barley.  The  Alvarado  will  go  di- 
rectly to  France  and  is  expected  at  Marseille  on 
April  16.  The  Williamson  and  Ames  will  stop 
at  Constanta  for  fuel  oil  before  proceeding  to 
Marseille. 


Six  other  WSA  vessels  arriving  at  Odessa  with 
relief  cargoes  for  the  Union  of  Soviet  Socialist 
Republics  are  scheduled  to  load  grain  during  the 
next  few  days,  and  all  of  them  should  sail  in 
April.  Three  more  steamers  are  expected  to  be 
available  for  loading  during  the  latter  part  of 
April;  these  can  be  supplemented  on  short  notice 
if  additional  grain  is  available.  Arrangements 
will  be  made  to  furnish  additional  ships  as  re- 
quired for  May  and  June.  The  46  vessels  WSA 
is  now  prepared  to  assign  in  April,  May,  and 
June  can  lift  a  total  of  375,000  tons.  Other  WSA 
vessels  from  eastern  Mediterranean  operations 
will  be  added  if  additional  grain  arrives  at 
Odessa.  WSA  has  offered  France  sufficient  ton- 
nage to  move  any  or  all  of  the  500,000  tons  of- 
fered by  the  Soviet  Union. 

As  fast  as  ships  discharge  their  UNRRA  car- 
goes at  Odessa,  they  are  being  fitted  to  handle 
grain  and  placed  on  the  loading  berth.  The 
United  States  vessels  are  being  loaded  at  Odessa. 
The  two  Soviet  shijjs  assigned  to  this  service  are 
understood  to  have  loaded  at  Nikolaev,  a  port  too 
shallow  for  fully  loaded  liberty  ships. 


Letters  of  Credence 

AMBASSADOR  OF  PARAGUAY 

The  newly  appointed  Ambassador  of  Paraguay. 
Juan  B.  Ayala,  presented  his  letters  of  credence 
to  the  President  on  April  9.  For  text  of  his  re- 
marks on  the  occasion  of  the  presentation  of 
his  credentials  and  reply  by  the  President  see 
Department  of  State  press  release  234. 


AMBASSADOR  OF  VENEZUELA 

The  newly  appointed  Ambassador  of  Venezuela, 
Alfredo  IMachado  Hernandez,  presented  his  letters 
of  credence  to  the  President  on  April  10.  For  text 
of  his  remarks  on  the  occasion  of  the  presentation 
of  his  credentials  and  reply  by  the  President  see 
Department  of  State  press  release  238. 


APRIL  28,  1946 


731 


Visit  to  Greece  of  the 
U.S.S.  "Missouri" 

[Released  to  the  luess  April  16] 

Text  of  telegram  received  hy  the  Secretary  of  State  • 
from  the  Greek  Minister  of  Foreign  Affairs  con- 
cerning the  -visit  of  the  U.S.S.  Missouri 

Please  accept  and  convey  to  the  Government  of 
the  United  States  the  lieartfelt  thanks  of  the  Hel- 
lenic Government  and  people  for  the  visit  of  the 
United  States  ship  Missouri  which  is  deeply  ap- 
preciated here  in  its  significance  of  goodwill  and 
solicitude  of  your  great  country  towards  Greece. 
The  Gi'eelc  people  have  welcomed  with  pride  and 
gratitude  by  the  shores  that  witnessed  the  Battle  of 
Salamis  the  glorious  ship  who  carried  the  victory 
of  freedom  to  the  far  end  of  the  world  and  who 
brings  to  them  now  the  message  of  faith  and  hope 
in  the  ideals  for  which  our  peoples  fought. 

C.  TSALDARIS, 

Minister  of  Foreign  Affairs. 

Text  of  the  reply  made  by  the  Secretary  of  State 
on  April  15 

On  behalf  of  the  Government  and  people  of  the 
United  States,  I  thank  Your  Excellency  for  your 
message  concerning  the  visit  of  the  U.S.S.  Mis- 
souri. It  is  most  gratifying  to  learn  of  the  warm 
welcome  extended  to  the  Missowl  by  the  people  of 
Greece. 

Byrnes 


Censorship  Procedure  for 
American  Correspondents 
in  Moscow 

[Released  to  the  press  April  17] 

Asked  concerning  the  censorship  procedure  as 
applied  to  American  correspondents  in  Moscow 
and  whether  there  is  a  blind  censorship,  a  spokes- 
man of  the  Department  of  State  said  that  it  is 
the  Department "s  understanding  that  about  March 
1  censorship  functions  were  transferred  from  the 
Press  Department  at  the  Foreign  Office  to  Glavlit 
(Chief  Literary  Administration).  Correspondents 


were  required  to  file  their  stories  at  the  post  office 
but  were  not  informed  of  deletions  or  changes. 
This  blind  censorship  was  i-elaxcd  March  29,  and 
since  that  time  not  only  are  correspondents  told  by 
telephone  from  the  Censorship  Bureau  when  sto- 
ries are  killed  in  toto  or  censored  in  part  but  they 
may  request  to  see  a  copy  of  the  censored  dis- 
patch before  it  is  telegraphed. 

The  one  remaining  diffei'ence  which  now  exists 
between  the  procedure  followed  today  and  the  pro- 
cedure followed  when  dispatches  wei'e  censored 
by  the  Press  Department  of  the  Foreign  Office  is 
that  now  correspondents  have  no  means  of  com- 
munication with  the  censor  and  thus  no  opportu- 
nitv  to  discuss  changes  made  with  him. 


Dispatches  of  Foreign  Corre- 
spondents To  Be  Censored  in 
Tehran 

[Released  to  tlie  press  Apiil  17] 

The  American  Embassy  in  Tehran  has  informed 
the  Department  of  State  that  foreign  correspon- 
dents in  Iran  have  been  notified  officially  by  the 
Iranian  Ministry  of  Posts  and  Telegraphs  that  it 
henceforth  will  exercise  censorship  of  dispatches 
filed  by  foreign  correspondents  there.  The  Minis- 
try stated  that  it  will  exercise  censorship  on  the 
basis  of  article  2G  of  the  International  Communi- 
cations Convention  which  was  signed  in  1932  in 
Madrid. 

Notification  will  not  be  given  to  foreign  corre- 
spondents when  their  dispatches  are  suspended  nor 
will  they  be  given  an  opportunity  by  the  Ministry 
to  make  changes  or  discuss  such  suspensions  of 
their  dispatches,  according  to  this  information. 

The  Embassy  has  reported  that  foreign  corre- 
spondents thus  far  have  not  been  accorded  per- 
mission to  inform  the  organizations  which  they 
represent  concerning  the  censorship  order. 

American  press  organizations  which  have  repre- 
sentatives in  Tehran  at  present  include  the  Asso- 
ciated Press,  New  York  Times,  Chicago  Tribune., 
United  Press,  Chicago  Daily  Neu-s  and  Time. 


732 


DEPARTMENT  OF  STATE  BULLETIN 


PAU  Committee  To  Draft  Treaty  Proposals  for  Rio  Conference 


ADOPTION  OF  RESOLUTION  OF  ASSISTANT  SECRETARY  BRADEN 


[Released  to  the  press  by  the  Pan  American  Union  April  11] 

At  the  meeting  of  the  Governino-  Board  of  the 
Pan  American  Union  held  on  April  10,  the  Board 
approved  a  motion  of  the  representative  of  the 
United  States,  Mr.  Spruille  Braden,  reading  as 
follows : 

"In  order  that  the  work  on  the  permanent  treaty 
of  mutual  assistance  to  be  drawn  up  at  the  con- 
templated conference  of  Rio  de  Janeiro  may  go 
forward  with  the  greatest  possible  dispatch,  I  move 
that  the  Chairman  appoint  a  committee  to  coordi- 
nate the  draft  treaty  proposals,  together  with  such 
other  suggestions  as  have  been  received,  into  a 
single  working  document  for  consideration  by  the 
conference." 

Pursuant  to  this  authorization  the  chairman  of 
the  Governing  Board,  Dr.  Guillermo  Sevilla 
Sacasa,  Ambassador  of  Nicaragua,  has  appointed 
tlie  following  members  to  serve  on  the  committee: 


Victor  Andrade,  Ambassador  of  Bolivia 
Joao  Carlos  Muniz,  Ambassador  of  Brazil  to 

the  PAU 
Marcial  Mora,  Ambassador  of  Chile 
Guillermo  Belt,  Ambassador  of  Cuba 
Galo  Plaza,  Ambassador  of  Ecuador 
Julian  R.  Caceres,  Ambassador  of  Honduras 
I-uis  Quintanilla,  Ambassador  of  Mexico  to 

the  PAU 
J.  J.  Vallarino,  Ambassador  of  Panama 
Spruille  Braden,  Assistant  Secretary  of  State 

of  the  U.  S. 

In  making  the  appointments  the  chairman  of  the 
board  announced  that,  because  of  his  deep  interest 
in  the  matter,  he  also  will  attend  the  meetings  of 
the  committee. 

The  foregoing  committee  will  examine  proposals 
submitted  by  the  Governments  of  Bolivia,  Brazil, 
Ecuador,  Mexico,  Panama,  and  the  United  States. 


Removal  of  Alien  Enemies 

In  Proclamation  2685  of  April  10,  1946^  the 
President  prescribed  and  proclaimed  the  follow- 
ing regulations,  additional  and  supplemental  to  all 
other  regulations  affecting  the  restraint  and  re- 
moval of  alien  enemies : 

"1.  All  alien  enemies  within  the  continental  lim- 
its of  the  United  States  brouglit  here  from  other 
American  republics  after  December  7,  1941,  who 
are  within  the  territory  of  the  United  States  witli- 
<jut  admission  under  the  immigration  laws,  shall,  if 
their  continued  residence  in  the  Western  Hemi- 
s^jhere  is  deemed  by  the  Secretaiy  of  State  to  be 
prejudicial  to  the  future  security  or  welfare  of  the 

'  11  Federal  Register  4079. 

■  BiTUjsTiN  of  July  22,  liM.J,  p.  107. 

'  Bulletin  of  Sept.  9,  194.5,  p.  361. 


Americas,  be  subject  upon  the  order  of  the  Secre- 
tary of  State  to  removal  from  the  United  States 
and  may  be  required  to  depart  therefrom  in  accord- 
ance with  such  regulations  as  the  Secretary  of 
State  may  prescribe. 

"2.  In  all  cases  in  which  the  Secretary  of  State 
shall  have  ordered  the  removal  of  an  alien  enemy 
under  the  authority  of  this  proclamation  or  in 
which  the  Attorney  General  .shall  have  ordered  the 
removal  of  an  alien  enemy  under  the  authority  of 
Proclamation  No.  2655  of  July  14,  1945,=  thirty 
days  shall  be  considered,  and  is  hereby  declared 
to  be,  a  reasonable  time  for  such  alien  enemy  to 
effect  the  recovery,  disposal,  and  removal  of  his 
goods  and  effects,  and  for  his  departure. 

"3.  This  proclamation  supersedes  Proclamation 
No.  2662  of  September  8,  1945.  entitled  •Removal 
(if  Alien  Pjuemies.'  "  '^ 


AI'RIL  28,  1946 


733 


Leiid-Lease  and  Surplus  Property  Settlement  With  India 


[Released  to  the  press  March  30) 

Representatives  of  the  Government  of  India 
will  shortly  arrive  in  Washington  to  begin  dis- 
cussions with  United  States  officials  regarding  an 
over-all  settlement  of  lend-lease,  reciprocal-aid. 
and  surphis-property  questions  now  pending  be- 
tween the  two  countries. 

Heading  the  Government  of  India  Delegation 
will  he  A.  A.  Waugh,  Acting  Member  for  Supply 
in  the  Viceroy's  Executive  Council.  He  will  be 
accomi)anied  by  Mohammed  Ali,  Financial  Ad- 
viser, Military  Finance,  General  Headquarters, 
India  Command;  Sir  Eobert  Targett,  retiring  Di- 
rector General  of  Disposals.  Govermnent  of  In- 
dia; and  A.  K.  Chanda,  Additional  Financial 
Adviser.  Industry  and  Supply  Department.  Gov- 
ernment of  India. 

Participating  in  the  talks  foi-  the  United  States, 
under  the  general  guidance  of  the  Assistant  Sec- 
retary of  State  for  Economic  Affairs.  Mr.  Clay- 
ton, will  be  Thomas  McCabe,  Foreign  Liquidation 
Commissioner,  and  Emilio  G.  Collado,  Deputy  on 
Financial  Affairs  to  Mr.  Clayton.  Other  State 
Department  experts  and  advisers  will  be  Cliester 
Lane,  Deputy  Foi'eign  Liquidation  Commis- 
sioner; Hubert  Havlik.  Chief,  Division  of  Lend- 
Lease  and  Surplus  War  Property  Affairs;  and 
Ambrose  Cramer.  Office  of  Foreign  Liquidation. 

During  the  war  the  United  States  shipped  to 
India  under  lend-lease  arrangements  considerable 
quantities  of  military  articles  required  for  the 
defense  of  India  for  war  production.  The  Gov- 
ernment of  India  extended  reciprocal  aid  to  the 
United  States  by  furnishing  large  amounts  of 
materials  to  the  American  forces  in  India  and  by 
shipping  to  this  country  raw  materials  needed 
here  for  war  production. 

AVith  the  defeat  of  Japan  the  evacuation  of  the 
United  States  Army  from  India  began.  It  be- 
came necessary  to  arrange  for  the  disposal  of 
Army  property  and  supplies  no  longer  needed  by 
the  AVur  Department.  By  agreement  with  the 
local  authorities,  sales  of  the  Army  surplus  were 
initiated  last  fall  on  the  basis  of  a  priority  scheme 
in  which  United  States  Government  agencies, 
UNRRA.  religious,  charitable,  educational  and 
medical  institutions,  and  American  manufacturers 


of  branded  goods  or  their  agents  were  given  pref- 
erence, in  that  order,  over  the  Government  of 
India  and  the  general  public.  After  these  prior- 
ity groups  had  had  an  ample  opportunity  to  sat- 
isfy their  needs,  it  was  decided  that  in  order  to 
speed  and  complete  the  repatiiation  of  our  troops 
tiie  most  practical  means  of  disposing  of  the  re- 
maining surpluses  was  to  sell  them  in  bulk  to  the 
Government  of  India.  Our  representatives  in 
India  have  recently  concluded  a  preliminary  Indk- 
sale  agreement  with  the  Government  of  India, 
which  is  subject  to  review  in  the  forthcoming  over- 
all settlement. 

The  joint  war  effort  of  the  Governments  of  the 
United  States  and  India  has  given  new  importance 
to  the  long-standing  friendly  relations  between  the 
two  countries.  The  United  States  Government 
is  confident  that  a  mutually  satisfactory  agree- 
ment, liquidating  lend-lease  and  related  problems 
arising  from  the  war,  will  be  reached  in  the  forth- 
coming discussions.  An  added  significance  is 
given  to  these  talks  by  the  increasing  international 
importance  of  India  as  one  of  the  United  Nations. 
India's  representatives  are  playing  a  prominent 
role  in  the  activities  of  the  Economic  and  Social 
Council,  the  Food  and  Agriculture  Organization, 
and  the  International  Bank  for  Reconstruction 
and  Development  and  tlie  International  INIonetary 
Fund.  India  has  recently  accepted  this  Govern- 
ment's invitation  to  attend  a  preliminary  interna- 
tional conference  of  the  principal  trading  coun- 
tries of  the  world,  to  be  convened  this  j'ear,  to  lay 
the  groundwork  for  expansion  of  multilateral 
trade  through  a  permanent  international  trade 
organization. 

This  Government  sincerely  hopes  that  the  con- 
clusion of  an  over-all  lend-lease  and  surplus-prop- 
erty settlement,  which  represents  a  necessarj'  post- 
script to  the  joint  war  effort  of  the  two  countries, 
\\]\\  be  a  prelude  to  increasingly  cooperative  and 
cordial  peacetime  relations  between  the  United 
States  and  India.  The  comprehensive  programs 
of  industrial  and  agricultural  advancement  now 
being  formulated  in  that  great  Asiatic  country  are 
viewed  sympathetically  by  this  Government.  The 
United  States  stands  ready  to  assist  the  carrying 
out  of  these  programs  in  the  various  ways  which 
would  prove  of  mutual  benefit  to  the  two  countries. 


734 


DEPARTMENT  OF  STATE  BULLETIN 


The  Department 


Development  and  Promulgation  of 
U.S.  Policy  in  Occupied  Areas 

[Released  to  the  press  April  17] 

Directive  on  Organization  and  Procedure  for  the 
Development  and  Promulgation  of  United  States 
Policy  with  Respect  to  Occupied  Areas  ^ 

1.  Jtjrisdiction 

(a)  Consistent  with  existing  international 
agreements  and  within  the  scope  of  its  charter  of 
organization,  tlie  State-War-Navy  Coordinating 
Cominittee  (hereinafter  referred  to  as  SWNCC) 
shall  coordinate  United  States  policy  with  respect 
to  occupied  areas.  The  term  "occupied  areas" 
shall  include  Germany,  Austria,  Japan  and  Korea. 
The  term  "United  States  Policy"  for  the  purjDOses 
of  this  directive  shall  mean  all  policy  which  re- 
quires concerted  study,  consideration  or  coordina- 
tion by  the  State,  War  and  Navy  Departments. 

(5)  The  War  Department  shall  continue  to  be 
responsible  for  the  execution  and  administration 
of  policy  with  respect  to  United  States  jiarticipa- 
tion  in  the  occupation  or  government  of  the  occu- 
pied areas. 

(c)  The  Assistant  Secretary  of  State  for  Occu- 
pied Areas  shall  be  directly  responsible  to  the  Sec- 
i-etary  of  State  for  the  coordination  of  State 
Department  policy  with  respect  to  all  occupation 
matters.  He  shall  be  the  State  Department  mem- 
ber of  SWNCC  on  all  matters  of  occupation  policy. 

(<Z)  The  Assistant  Secretary  of  State  for  Oc- 
cupied Areas  shall  take  the  initiative  in  submit- 
ting to  SWNCC,  or  to  any  appropriate  sub-com- 
mittee thereof,  such  policy  matters  as  may  require 
concerted  study,  consideration  or  action.  All  oc- 
cupation policy  matters  or  decisions  shall  be 
presented  by  the  State  Depai-tment  to  SWNCC 
or  communicated  outside  the  State  Department 
through  him  or  with  his  concurrence. 

2.  Departmental  Secretariat 

The  coordination  of  Departmental  policy, 
whether  political,  cultural  or  economic,  provided 

'  The  substance  of  this  release  appears  in  Departmental 
KcKiiliitions  182.3  and  134.1,  copies  of  which  may  be 
obtained  from  the  Division  of  Research  and  Publication. 


for  in  1  (c)  above,  shall  be  accomplished  by  the 
Assistant  Secretary  of  State  for  Occupied  Areas, 
and  under  his  direction  and  control,  through  the 
mechanism  of  the  Secretariats  herein  provided  for, 
to  wit : 

(ff)  Germany-Austria  Secretariat :  The  Depart- 
mental position  with  respect  to  any  and  all  mat- 
ters of  United  States  policy  in  respect  of  Germany 
and/or  Austria  shall  be  developed  by  a  Secre- 
tariat organized  and  maintained  for  the  purpose 
under  the  Chairmanship  and  administration  of  the 
Chief,  Division  of  Central  European  Affairs. 

(h)  Japan-Korea  Secretariat:  The  Depart- 
mental position  with  respect  to  any  and  all  matters 
of  United  States  policy  in  respect  of  Japan  and 
Korea  shall  be  developed  by  a  Secretariat  organ- 
ized and  maintained  for  the  purpose  under  the 
Chairmanship  and  administration  of  the  Direc- 
tor, Office  of  Far  Eastern  Affairs,  or  his  designee. 

(r)  Each  Secretariat  shall  include  appropriate 
membership  from  ORI,  OIC,  EUR,  FE,  ESP, 
OFD,  Le  and  such  other  offices  of  the  Department 
as  the  Chairman  may  determine. 

(fZ)  Each  Secretariat  shall  hold  stated  meetings 
and  a  record  of  its  proceedings  shall  be  main- 
tained. Each  Chairman  shall  compile  a  list  of 
projects  and  studies  in  respect  of  occupational  af- 
fairs, as  suggested  by  the  members  of  the  Secre- 
tariat. These  projects  shall  be  assigned  for  study 
and  preparation  and  submission  to  SWNCC  on 
the  basis  of  relative  urgency  as  determined  by  the 
Assistant  Secretary  for  Occupied  Areas. 

(e)  Subject  to  the  approval  of  the  Assistant  Sec- 
retary for  Occupied  Areas,  each  Chairman  shall 
prescribe  the  rules  of  conduct  of  his  Secretariat, 
the  time  and  place  of  its  meetings,  and  the  func- 
tional relationship  thereof  to  the  Central  Secre- 
tariat of  the  Department.  All  inter-departmental 
liaison  by  members  of  the  Secretariat  with  respect 
to  matters  within  its  cognizance  shall  be  accom- 
plished as  the  Assistant  Secretary  of  State  for 
Occupied  Areas  may  determine. 

(/)  Subject  to  the  approval  of  the  Assistant 
Secretary  for  Occupied  Areas,  or  by  his  direction, 
the  Chairman  of  each  Secretariat  shall  place  mat- 
ters on  the  SWNCC  agenda  for  consideration. 
He  shall  recommend  to  the  Assistant  Secretary 
for  Occupied  Areas  duly  qualified  candidates  for 
State  Department  membership  on  any  SWNCC 
sub-committee  appointed  to  consider  any  matter 
in  respect  of  occupation  affairs,  and  no  one  shall 


APRIL  28,  1946 


735 


be  appointed  as  the  State  Department  member  of 
any  sucli  sub-committee  of  SWNCC  without  the 
approval  of,  or  clearance  by,  the  Assistant  Secre- 
tary for  Occupied  Areas. 

(ff)  The  Chairman  of  each  Secretariat  shall  re- 
jjort  and  be  responsible  to  the  Assistant  Secretary 
for  Occupied  Areas  with  respect  to  the  operation 
of  his  Secretariat. 

3.  Utilization  of  Departmental  Resources 
The  Directors  of  all  Offices  of  the  Department 

are  hereby  severally  directed  to  take  any  and  all 
action  as  may  be  necessary  or  appropriate  fully  to 
implement  the  foregoing.  Upon  the  approval  of 
the  Assistant  Seqretary  of  State  for  Occupied 
Areas,  the  Chairman  of  each  Secretariat  estab- 
lished in  2  above  may  apply  from  time  to  time, 
or  at  any  time,  to  the  Assistant  Secretary  for  Ad- 
ministration for  such  personnel  and  facilities  as, 
in  his  opinion,  may  be  necessary  or  appropriate 
for  the  proper  execution  of  the  mission  hereby 
assigned  to  such  Secretariat.  The  Assistant  Secre- 
tary for  Administration  shall,  to  the  extent  neces- 
sary, in  his  opinion,  levy  on  any  Office  or  Division 
of  the  Department  for  such  personnel  and  facili- 
ties as  the  Secretariats  may  require. 

4.  Policy  Directives 

Policy  Directives  of  SWNCC  shall  be  trans- 
mitted as  follows : 

(a)  With  respect  to  German  and  Austrian  mat- 
ters, to  the  United  States  Military  Governor  or 
to  the  United  States  Representative  on  the  appro- 
priate Allied  Control  Coimcil,  as  the  case  may  be, 
through  War  Department  channels. 

(h)  With  respect  to  Japanese  and  Korean  mat- 
ters, to  the  United  States  Representative  on  the  Far 
Eastern  Commission  or,  where  appropriate,  to  the 
Supi-eme  Commander,  Allied  Powers,  through 
War  DeiDartment  channels. 

5.  Effective  Date 

The  effective  date  of  this  directive  shall  be  April 
8, 1946. 

James  F.  Byrnes 


has  agreed  that  on  May  15  he  will  come  to  the 
State  Department  as  Legal  Adviser  succeeding 
Green  H.  Hackworth,  who  was  elected  a  member 
of  the  International  Court  of  Justice. 

Mr.  Fahy  is  now  in  Berlin  serving  as  Director 
of  the  Legal  Division  of  tlie  Office  of  the  Military 
Governor  for  Germany  (United  States) .  General 
Clay  advised  Secretarj^  Byrnes  that,  in  the  prep- 
aration of  the  cases  now  being  tried  at  Niirnberg, 
Mr.  Fahy  has  rendered  outstanding  service  and  as 
adviser  and  counsel  to  the  military  government  of 
Gei'many  had  been  of  great  assistance.  Because 
of  the  valuable  service  he  is  rendering.  General 
Clay  asked  that  Mr.  Fahy  not  assume  his  duties  as 
Legal  Adviser  until  May  1^. 

Before  going  to  Germany  Mr.  Fahy  was,  for 
nearly  four  years.  Solicitor  General  of  the  United 
States,  to  which  post  he  was  nominated  on  October 
29,  1911.  Mr.  Fahy  is  a  graduate  of  the  Univer- 
sity of  Notre  Dame  and  of  Georgetown  University. 

Secretary  Byrnes  stated : 

"I  am  deeply  gratified  that  Mr.  Fahy  has  agreed 
to  become  the  Legal  Adviser  of  the  Department. 
His  stature  and  his  abilities  are  in  keeping  with 
the  heavy  responsibilities  of  the  office,  which,  in 
the  immediate  post-war  period,  will  be  greatly 
increased  by  the  work  involved  in  the  drafting  of 
treaties  and  the  handling  of  claims  arising  from 
the  war.  The  decisions  in  international  law  taken 
by  the  United  States  as  a  leading  democratic  power 
in  this  critical  period  may  set  a  new  pattern  for 
tlie  whole  body  of  international  law.  It  is  my  hope 
and  my  belief  that,  under  Mr.  Fahy,  the  legal  staff 
of  the  Department  will  come  to  be  regarded,  by 
popular  and  by  professional  opinion,  as  having 
unquestioned  competency  in  all  matters  touching 
international  law. 

"Mr.  Fahy  enjoys  an  enviable  position  of  respect 
at  the  American  bar,  and  he  brings  to  his  new 
duties  in  the  State  Department  a  broad  back- 
ground of  administrative  and  legal  experience." 


Appointment  of  Charles  Fahy  as 
Legal  Adviser 

[Released  to  the  press  April  2] 

The  Secretary  of  State  announced  on  April  2 
that  Charles  Fahy,  formerly   Solicitor  General, 


Establishment  of  Fisheries  and  Wildlife 
Branch 

[Released  to  the  press  April  16] 

In  view  of  the  increasing  obligations  of  the 
United  States  Government  concerning  the  inter- 
national aspects  of  fisheries  and  wildlife  matters. 


736 

iiiehuling  ti'eaties  to  which  the  United  States  is 
a  party,  a  branch  devoted  to  this  subject  has 
been  established  by  the  Department  of  State 
within  its  International  Resources  Division. 

The  functions  of  the  Fisheries  and  Wildlife 
Branch  will  consist  of  formulation  and  coordi- 
nation of  policy  and  action  in  international  fish- 
eries and  wildlife  matters  and  agreements. 

In  the  fulfilment  of  its  functions  the  Fisheries 
and  Wildlife  Branch  will  coordinate  the  interests 
and  responsibilities  of  the   various  Federal  de 
partments  and  agencies  in  connection  with  the 
international  aspects  of  fisheries  and  wildlife. 


Resignation  of  Thomas  D.  Blake 

Thomas  D.  Blake  resigned  as  Assistant  to  the 
Special  Assistant  to  the  Secretary  of  State  in 
charge  of  press  relations,  effective  April  12.  For 
the  texts  of  Mr.  Blake's  letter  of  April  4,  the  Secre- 
tary of  State's  letter  of  April  9,  Acting  Secretary 
of  State  Acheson's  letter  of  April  5,  and  Mr.  M.  J. 
McDermott's  letter  of  April  12  accepting  the  resig- 
nation, see  Department  of  State  press  release  245  of 
April  12,  1946. 


DEPARTMENT  OF  STATE  BLLLETIN 

Confirmation 

The  St'tialc  miifiniieil  cm  .\pi-il  11.  1'.I4U  the  nomina- 
tion of  Maj,  Gen.  .lolm  H.  Hilldring,  tT.S..\..  to  be  an 
Assistant  Secretary  of  State. 


The  Foreign  Service 


Consular  Offices 

The  American  Consulate  at  Saigon,  Frencli  Indochina, 
was  reestablished  February  19,  1916. 

The  American  Consulate  at  Strasbourn,  I'raiice.  wii.< 
reestablished  on  March  2.3,  1946. 

The  American  Cnnsulate  at  Daireii,  Jlancliuria,  was 
reestablished  on  April  7,  1946. 

The  .\merican  Consulate  at  Taipei  (Taihoku),  Taiwan 
(Formosa),  was  reestablished  on  April  11,  1946. 


Contents— Continued 


Tlie  Dei^artment: 

Development  ami  Promulgation  of  U.S.  Policy  in  Occupied  Page 

Areas      734 

Appointment  of  Charles  Fahy  as  Legal  Adviser 73-5 

Estaljli.shment  of  Fisheries  and  Wildlife  Branch 735 

Resignation  of  Thomas  D.  Blake 736 

Confirmation 736 

Tlie  Foreign  Service:   Consular  Offices 736 


PUBLISHED    WITH    APPROVAL    OF    DlflECTOR    OF    BUREAU    OF    THE    BUDGET 
U     S    GOVERNMENT  PRINTING    OFFICE:   1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  357 


MAY  5,  1946 


The  British  Loan  and  Foreign  Trade 

Bj  UNDER  SECRETARY  ACHESON     .... 


page  758 


Transition  From  League  of  Nations  to  United  Nations  (Part  II) 

By  HENRY  REIFF page  739 


^©NT    o^ 


For  complete  contents 
see  inside  cover 


.a-  S<  IWPIfilWTENCENT  OF  DOCUMENTS 

JUN  19  1946 


THE   DEPARTMENT  OF  STATE 


BULLETIN 


Vol.  XIV-No.  357» 


Publication  2524 


May  5,  1946 


For  eale  by  the  Superintendent  of  DocuoiPnte 

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Subscription: 

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The  Department  of  State  BVLLETIN, 
a  ueekly  publication  compiled  and 
edited  in  the  Division  of  Research  and 
Publication,  Office  of  Public  Affairs, 
provides  the  public  and  interested 
agencies  of  the  Government  ivith 
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the  Foreign  Service.  The  BVLLLIJIS 
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.  Injormation  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 
legisla  live  material  in  the  field  of  in  ter- 
national  relations,  are  listed  currently. 


Contents 


Transition  From  League  of  Nations  to  United  Nations.  page 

Article  by  Henry  Reiff 739 

Appendix:  Texts  of  Documents 743 

Non-Military  Activities  in  Japan  and  Korea:  Political  Activ- 
ities in  Japan 749 

Addresses  of  the  Week 751 

The  United  Nations 

Security  Council: 

Discussion    of   Soviet-Iranian    flatter:    Remarks   by    U.S. 

Representatives 752 

Summary  Statement  by  the  Secretary-General 753 

Confirmation  of  Herschel  V.  Johnson 754 

International  Organizations  and  Conferences 

Calendar  of  Meetings 755 

Activities  and  Developments: 

Food  Supplies  for  Japan 756 

UNRRA  Operations:  Sixth  Quarterly  Report 757 

Inaugural  Sitting  of  the  International  Court  of  Justice    .    .  757 

The  Record  of  the  Week 

U.S.    Policy    in    Maintaining   and    Developing    International 

Law 758 

The  British  Loan  and  Foreign  Trade.     By  Acting  Secretary 

Acheson 759 

Interdependence  of  Political  and  pjConomic  Freedom  in  Po- 
land             761 

.$40,000,000  Loan  to  Polish  Provisional  Government     ...        761 

Proposed  Polish  Elections 762 

Economic  Affairs  With  the  Philippines 762 

Proposed  Limitation  on  Importation  of  Swiss  Watches:  Ex- 
change of  Memoranda  Between  U.S.  and  Swiss  Govern- 
ments         763 

Closing  of  Displaced-Persons  Camps  Postponed 764 

U.S.  Position  on  Recognition  of  Trans-Jordan:  Letter  From 

the  Secretary  of  State  to  Senator  Myers 765 

Report  of  U.S.  Education  Mi-ssion  to  Japan: 

Transmittal  of  Report  to  the  Secretary  of  State 767 

Transmittal  of  Report  to  General  MacArthur 768 

General  MacArthur's  Statement 769 

Digest  of  the  Report 769 

Views  on  Reported  Press  Censorship  in  Iran 772 

Negotiations  Regarding  Military  Facilities  in  Iceland  ....        773 
International  Control  of  Atomic  Energy.     A  Radio  Broad- 
cast         774 

Visit  of  Peruvian  Dentist 777 

Senate  Approves  Commodity  Protocols:  Inter-American  Coffee 
Agreement;  Regulation  of  Production  and  Marketing  of 

Sugar 778 

The  Department: 

Alfred    McCormack    Resigns   as   Special   Assistant   to   the 

Secretary 778 

Departmental  Regulation 779 

Publications  of  the  Department  of  State 780 


Transition  From  League  of  Nations 
to  United  Nations 


Article  by  HENRY  REIFF ' 


PART  II 


Committee  on  Transfer  of  League  Assets 

The  Pi-eparatory  Commission,  in  pursuance  of 
a  recommendation  of  Committee  7,^  on  December 
18, 19J.5  "set  up  a  committee  to  enter,  on  its  behalf, 
into  discussion  with  the  League  of  Nations  Super- 
visory Commission,  .  .  .  for  the  purpose  of 
establishing  a  common  plan  for  the  transfer  of 
the  assets  of  the  League  of  Nations  on  such 
terms  as  are  considered  just  and  convenient."^ 
This  plan  was  to  be  subject,  so  far  as  the  United 
Nations  was  concerned,  to  approval  by  the  General 
Assembly.  The  Committee  consisted  of  one  rep- 
resentative each  designated  by  the  Delegations  of 
Chile,  China,  France,  Poland,  South  Africa,  the 
Soviet  Union,  the  United  Kingdom,  and  the  United 
States.  The  Committee  was  instructed  to  consult 
the  duly  authorized  representatives  of  the  Inter- 
national Labor  Organization  on  questions  con- 
nected with  the  transfer  which  affected  that  or- 
ganization; to  have  regard  to  the  views  of  the 
Executive  Committee  as  expressed  in  certain  parts 
of  its  Report ;  and  to  submit  its  plan  to  the  General 


Assembly,  if  possible  during  tlie  first  part  of  the 
first  session. 

All  of  these  instructions  the  Committee  on 
Transfer  of  League  Assets  carried  out.  Beginning 
on  January  4,  19-16,  in  a  series  of  seven  meetings 
by  itself  and  of  four  jointly  witli  the  Supervisory 
Commission,  and  after  informal  consultations  by 
the  chairman  with  representatives  of  the  ILO,  the 
Committee  performed  its  task  and  reported  on 
February  1  to  the  full  ad  hoc  Committee  on  the 
League  of  Nations  set  up  by  the  General  As- 
sembly.'' 

Elaboration  of  the  Common  Plan  and 
Accompanying  Report 

The  Committee,  after  discussion  of  principles 
upon  which  a  transfer  of  assets  could  be  arranged 
aiul  which  would  be  consistent  with  the  instruc- 
tions of  the  Preparatory  Commission,  invited  the 
Supervisoiy  Commission  to  propose  a  draft  plan 
for  joint  discussion.^  Agreement  was  relatively 
speedily  reached  along  certain  lines  consistent  with 
tliese  principles : 


"  Dr.  Reiff  is  an  officer  in  the  Division  of  International 
Organization  Affairs,  Office  of  Special  Political  Affairs, 
Department  of  State.  He  served  as  a  Technical  Expert 
with  the  Delegation  of  the  United  States  to  the  United 
Nations  Conference  on  International  Organization  at  San 
Francisco. 

In  the  first  part  of  the  discussion  on  the  transition  from 
League  of  Nations  to  United  Nations  that  appeared  in  the 
BmxETiN  of  Apr.  28,  Dr.  Reiff  commented  on  the  five  United 
Nations  committees  that  have  dealt  successively  with  the 
problem  of  the  transfer  of  certain  functions,  activities,  and 
assets  of  the  League  of  Nations  and  on  the  development 
of  a  solution  to  devise  a  means  of  effecting  a  transition  of 
limited  scope  between  a  general  international  organiza- 
tion about  to  be  liquidated  and  a  general  international  or- 
ganization  in   the   process   of   being   constituted.     Other 


phases  of  the  di-scussion  dealt  with  the  Executive  Com- 
mittee of  tile  Preparatory  Commission  and  its  Committee 
0;  with  the  en  Hoc  and  selective  formulas;  with  the  adop- 
tion of  the  so-called  en  hloo  formula ;  with  the  revision  by 
the  Preparatory  Commission ;  with  the  assumption  of 
functions,  powers,  and  activities  of  the  League ;  with  the 
new  formula  of  transfer ;  and  with  the  League-sponsored 
loans. 

'  PC/11,  Dec.  17,  1945. 

'  Report  of  the  Preparatory  Commission,  ch.  XI,  sec.  3, 

'  Journal  no.  22,  supp.  no.  7-A/LN/2. 

"The  documents  recording  the  negotiations  of  this  com- 
mittee are  of  a  "restricted"  character  and  are  on  file  in 
the  Department.  The  final  report  and  Common  Plan, 
A/IS,  Jan.  2S,  1916,  have,  ho\\ever,  been  published.  See 
appendix  to  this  article. 


739 


740 


DEPARTMENT  OF  STATE  BULLETIN 


1.  That  the  nuiterial  assets,  fixed  and  movable 
(i.e.  buildings,  equipment,  furnishings,  supplies 
and  stocks  on  hand,  books,  archives,  etc.),  be  sep- 
arated from  the  liquid  as.sets  and  the  correspond- 
ing liabilities; 

2.  That,  on  transfer  of  the  material  assets,  some 
form  of  total  credit  covering  them  be  placed  on 
the  books  of  the  United  Nations  in  favor  of  those 
members  of  the  United  Nations  which  were  still 
members  of  the  League  of  Nations  and  which  had 
contributed  to  the  creation  of  those  assets,  the  total 
credit  depending,  of  course,  upon  the  value  which 
could  ultimately  be  placed  upon  those  assets  after 
their  final  disposition  had  been  determined; 

.3.  That  the  League  itself  bear  the  responsibility 
(a)  of  fixing  the  percentages  of  the  total  credit  to 
be  accorded  to  its  own  members  as  well  as  [h)  of 
satisfying  the  claims  to  shares  in  the  material  as- 
sets of  those  members  of  the  League  which  at  the 
time  of  transfer  should  not  be  members  of  the 
United  Nations;  and 

4.  That  the  above  credit  established  on  the  books 
of  the  United  Nations  take  a  form  consistent  with 
the  fiscal  policies  and  needs  of  the  new  organiza- 
tion. 

With  respect  to  the  liquid  assets  and  correspond- 
ing liabilities  and  related  fiscal  matters  it  was 
agreed : 

5.  That  the  League  itself  should  bear  exclusively 
the  responsibility  for  a  proper  liquidation  or  set- 
tlement of  these  intricate  matters.  They  would 
include  {a)  the  discharge  of  all  League  obligations 
as  soon  as  possible,  including  the  claims  of  the 
judges  of  the  Permanent  Court  of  International 
Justice  for  salary  arrears ;  {b)  the  settlement  of  the 
question  of  arrears  in  contributions  of  its  member 
states;  (c)  the  separation  of  the  interests  of  the 
ILO  in  the  assets  of  the  League  before  transfer 
of  the  material  assets  to  the  United  Nations;  {d) 
the  making  of  provision  for  the  continued  admin- 
istration of  the  Staif  Pensions  Fund  for  League 
employees;  (e)  the  making  of  arrangements  for 
the  continued  administration  of  the  pensions  due 
the  judges  of  the  Permanent  Court  of  Interna- 
tional Justice;  and  (/)  the  making  of  arrange- 
ments for  the  crediting  or  distributing  of  the  re- 

°  Report  of  the  Preparatory  Commission,  ch.  V,  sec.  3. 
'  Report  of  the  Committee  on  Transfer  of  League  Assets, 
A/18,  par.  11. 
'Report  of  the  Preparatory  Commission,  fh.  V,  sec.  3. 


maining  liquid  assets  to  members  of  the  League 
under  some  scheme  to  be  determined  by  it. 

In  view  of  the  desire  of  the  members  of  the  ILO 
to  continue  that  organization  and  of  the  United 
Nations  to  utilize  •*  for  the  new  Court  the  premises 
at  The  Hague  occupied  by  the  old  Permanent 
Court  of  International  Justice,  it  would  be  neces- 
sary for  any  common  plan  for  the  transfer  of 
League  assets  to  make  provision  with  respect  to 
these  matters  so  far  as  tliey  were  affected  by  the 
contemplated  transfer.  This  provision  was  ef- 
fected in  the  following  manner: 

With  respect  to  the  Court  premises,  it  was 
readily  agreed  that  the  furniture,  fittings,  eqtiip- 
ment,  library,  archives,  and  other  similar  prop- 
erties used  by  the  Permanent  Court  of  Interna- 
tional Justice  at  The  Hague  should  go  over  to 
the  United  Nations  as  part  of  the  transaction 
relating  to  the  transfer  of  material  assets  of  the 
League.  Alterations  had,  however,  been  made  in 
the  Peace  Palace  at  The  Hague  to  house  the  old 
Court.  .  Several  instalments  on  two  loans  obtained 
from  the  Carnegie  Endowment  for  the  purpose 
A\ere  still  due.  Since  the  LTnited  Nations  would 
have  the  advantage  of  the  improved  arrange- 
ments at  the  Palace,  it  was  agreed  to  assume  the 
obligation  of  the  unpaid  instalments.' 

Although  it  was  well  known  that  the  burden  of 
severing  the  interests  of  the  ILO  from  the  assets 
of  the  League  would  fall  upon  the  League,  the 
Preparatory  Commission  had  enjoined  the  Com- 
mittee to  "consult  the  duly  authorized  representa- 
tives of  the  International  Labor  Organization  on 
questions  connected  with  the  transfer  which  afl'ect 
that  Organization."  ^  This  was  done  through  the 
medium  of  tJie  chairman  of  the  Committee  on 
Transfer  of  League  Assets,  M.  Moderow  (Poland) . 
The  Coimnittee  could  accordingly  in  its  discus- 
sions witli  the  Supervisoi'y  Commission  dispose  of 
certain  of  the  "connected"  questions.  Thus  it  was 
understood  that  the  ILO  building  at  Geneva,  in 
the  final  settlement  of  the  transition  problem, 
should  be  transferred  to  that  organization.  It 
was  fiu'ther  agreed  that  the  ILO  might  "use  the 
Assembly  Hall  [in  Geneva],  together  with  the 
necessary  committee  rooms,  office  accommodation 
and  other  facilities  connected  therewith  at  times 
and  on  financial  terms  to  be  agreed  from  time  to 
time  between  the  United  Nations  and  the  Inter- 
national Labour  Organization ;"  and  that  the  ILO 


MAY  5,  1946 


741 


miglit   "use   tlie    library   under   the   same   condi- 
tions as  other  oiScial  users  thereof."  ° 

On  details  to  implement  a  successful  transfer  of 
the  material  assets  there  was  also  ready  concur- 
rence, for  example,  fixing  a  date  for  the  legal  trans- 
fer of  the  assets  involved  (i.e.  on  or  about  Aug.  1, 
1946,  "the  precise  date  to  be  determined  by  the 
administrative  authorities  of  the  two  Organiza- 
tions") ;  providing  for  the  setting  up  of  properly 
authorized  committees  or  other  agents  of  the 
United  Nations  and  the  League  to  make  the  de- 
tailed arrangements  attendant  upon  transfer  of 
the  assets  with  the  Swiss  and  Netherlands  Govern- 
ments respectively  and  with  the  Carnegie  Founda- 
tion at  The  Hague;  and  providing  for  mutual  use 
of  the  plant  and  equipment  involved  by  the  admin- 
istrations of  the  two  organizations  before  and 
after  the  date  of  legal  transfer  until  the  business 
in  hand  should  have  been  consummated. 

Problem  of  Evaluation  of  the  Material  Assets 

But  the  most  persistent  of  the  problems  facing 
the  Committee  and  the  Supervisory  Conunission 
was  the  value  to  be  placed  upon  the  material  assets 
contemplated  for  transfer.  That  problem  lay  in 
the  background  of  all  the  deliberations  of  Com- 
mittee 9  of  the  Executive  Committee  and  Commit- 
tee 7  of  the  Preparatory  Commission.  Upon  its 
solution  depended  the  transfer  of  those  assets — in- 
deed, quite  likely,  the  speedy  and  satisfactory  liqui- 
dation of  the  League  itself. 

Obviously,  value  depended  upon  the  use  to  which 
the  plant  and  equipment  could  be  put,  and  use  de- 
pended upon  political  decisions  of  an  intricate  and 
subtle  character  relating  to  the  position  of  a  Euro- 
pean center,  particularly  one  located  in  Geneva, 
in  the  plans  for  the  future  of  the  United  Nations. 
The  United  Nations  Committee  sought  to  make  the 
determination  of  the  value  contingent  upon  deci- 
sions to  be  taken  by  the  United  Nations  with  re- 
spect to  future  use.  Hence  they  offered  a  formula 
under  which  the  material  assets  would  be  trans- 
ferred at  a  provisional  value  subject  to  an  ad- 
justed valuation  to  be  made  by  the  United  Nations 
not  later  than  December  31,  1948. 

This  formula,  however,  was  unacceptable  to  the 
League    Supervisory    Commission.     Aside    from 
placing  the  power  in  the  hands  of  the  United  Na- 
tions unilaterally  to  write  down  the  values  to. 
virtually  any  sum,  it  would  meanwhile  place  the 


League  in  an  exceedingly  difficult  position  regard- 
ing League  members  not  members  of  the  United 
Nations.  Their  claims  to  moieties  could  be  settled 
somehow  by  the  League,  but  the  basis  of  settlement 
might  be  widely  different  from  that  adopted  in 
determining  the  credits  to  be  accorded  to  members 
of  the  League  who  were  members  of  the  United 
Nations.  The  unpredictable  factor  of  currency 
fluctuations  also  had  to  be  considered.  A  contin- 
gent valuation  would  require  at  least  the  Finan- 
cial Department  of  the  League  to  stay  in  being  for 
another  two  or  three  years. 

Other  complications  in  winding  up  the  affairs  of 
the  League  could  be  visualized.  The  risk  involved 
for  the  United  Nations,  particularly  for  those 
members  which  were  not  also  League  members, 
was,  however,  forcefully  presented  in  and  by  the 
Committee.  Possibilities  of  sale  or  other  dispo- 
sition of  the  buildings  were  explored.  Reproduc- 
tion costs  as  well  as  appreciation  and  depreciation 
in  relation  to  present  book  values  under  various 
conceivable  uses  of  the  property  were  discussed. 
At  all  times,  however,  the  Committee  bore  in  mind 
the  insti'uction  of  the  Preparatory  Commission 
that  it  should  find  a  value  which  should  "in  prin- 
ciple imply  neither  profit  nor  loss  for  the  United 
Nations"  and  that  the  transfer  should  be  consum- 
mated on  such  terms  as  were  "considered  just  and 
convenient".^" 

In  the  end,  after  the  Connnittee  and  the  Super- 
visory Commission  had  in  several  separate  and 
joint  sessions  discussed  the  problem  further  and 
aftei'  representatives  on  the  United  Nations  Com- 
mittee had  consulted  their  resjaective  delegations 
to  the  General  Assembly,  agreement  was  reached 
on  the  basis  of  a  formula  which  the  Supervisory 
Conunission  had  been  invited  by  the  Committee  to 
submit. 

Formula  for  Transfer  of  Material  Assets 

In  brief  the  formula  agreed  upon,  subject  of 
course  to  approval  of  the  General  Assembly,  as 
was  all  the  work  of  the  Committee,  provided  for 
the  taking  over  by  the  United  Nations  of  all  the 
material  assets  of  the  League  at  the  price  they 
had  cost  the  League.  All  gifts,  many  of  which 
have  a  high  artistic  and  monetary  value,  would 
therefore  be  transferred  without  any  pecuniary 

"A/lS,  par.  10. 

''Report  of  the  Preparatory  Commission,  cli.  V,  sec.  3. 


742 

consideration.  A  schedule  of  fixed  and  movable 
assets,  together  with  their  valuations,  to  be  ap- 
pended to  the  Common  Plan,  would,  with  re- 
spect to  the  inventory  of  the  movable  assets  and 
their  valuations,  be  subject  to  revision  as  of  the 
date  of  legal  transfer.  Finally,  with  respect  to 
the  credits  to  be  entered  on  the  books  of  the 
United  Nations  in  favor  of  the  members  of  the 
United  Nations  which  were  also  members  of  the 
League  of  Nations  at  the  time  of  the  transfer,  it 
was  agreed  that  the  General  Assembly  of  the 
United  Nations  should  decide  upon  the  purposes, 
i.e.  to  which  financial  account — building  fund,  ad- 
ministrative expenses,  etc. — these  credits  should  be 
applied,  and  on  which  dates  they  should  be  so 
applied,  provided,  however,  that  the  credits  should 
begin  to  be  available  not  later  than  December  31, 
1948. 

The  General  Assembly  ad  hoc  Committee  on 
the  League  of  Nations 

In  addition  to  the  six  main  committees  of  the 
General  Assembly  two  ad  hoc  committees  com- 
posed of  representatives  of  all  the  members  of  the 
United  Nations  were  set  up,  one  of  them  for  the 
purpose  of  considering  "the  possible  transfer  of 
certain  functions,  activities  and  assets  of  the 
League  of  Nations.""  In  one  meeting,  its  sec- 
ond,'^ this  committee  discharged  its  task: 

"  Journal  no.  16,  Jan.  26,  1046,  p.  S16. 

"Feb.  1,  1946,  Journal  no.  22:  supp.  no.  7-A/LN/2. 

"  IhUl.,  p.  5. 

"  A/28,  Feb.  4,  1946,  sec.  4. 

'^Journal  no.  30,  p.  526;  text  of  rapporteur's  rei»rt. 
Journal  no.  34,  pp.  706-9.  lu  pursuance  of  the  resolution 
of  the  General  Assembly  thus  adopted,  the  Economic  and 
Social  Council  at  its  twelfth  meeting,  Feb.  16,  1946  (Journal 
of  the  Economic  and  Social  Council,  no.  11,  p.  110) ,  adopted 
a  resolution,  E/19,  Feb.  15, 1946,  requesting  "the  Secretary- 
General  to  undertake  the  survey  called  for  by  the  Gen- 
eral Assembly  and  to  report  at  an  early  date  to  the  Eco- 
nomic and  Social  Council"  and  directing  hini  "to  take 
the  steps  necessary  to  the  provisional  assumption  and  con- 
tinuance of  the  work  hitherto  done  by  the  League  depart- 
ments named"  in  the  resolution  adopted  by  the  General 
Assembly.  (For  text  of  E/19,  see  appendix  to  this  article.) 
Furthermore,  the  Council  in  setting  up  its  commissions  and 
committees  specifically  authorized  certain  of  them  to  take 
the  action  within  their  fields  necessary  under  the  General 
Assembly  resolution  A/28  and  under  E/19  cited  above ; 
B/29,  Feb.  22,  1946,  Temporary  Social  Conunission ;  E/31, 
r  '1).  22,  1946,  Temporary  Transport  and  ("onununications 
Conunl.:'!ion  ;  and  E/34,  Feb.  27,  1946,  Commission  on  Nar- 
cotic Drugs. 


DEPARTMENT  OF  STATE  BULLETm 

1.  It  examined  and,  after  making  certain  styl- 
istic changes,  approved  sections  1  and  2  of  chapter 
XI  of  the  Report  of  the  Preparatoiy  Commission, 
which  dealt,  respectively,  with  the  assumption  of 
functions  and  powers  entrusted  under  separate 
treaties  to  the  League  and  the  assumption  of  non- 
IJolitical  functions  and  activities  of  the  League 
other  than  those  mentioned  in  section  1. 

2.  It  examined,  discussed,  and  approved  without 
any  changes  the  Report  of  the  Committee  on  the 
Transfer  of  League  Assets  together  with  the  Com- 
mon Plan  agreed  to  by  the  League  Supervisory 
Commission. 

In  the  course  of  the  consideration  by  the  ad  hoc 
Committee,  various  members  solicited  and  received 
ex^slanations  by  Mr.  Moderow  of  parts  of  the  two 
documents.  The  Delegate  of  the  LTnited  States, 
Frank  Walker,  for  example,  "asked  whether  in 
connection  with  the  use  by  the  ILO  of  tlie  League 
Assembly  Hall  and  committee  rooms  it  was  clear 
that  the  ILO  had  no  vested  or  legal  right  in  the 
buildings  other  than  that  of  right  of  user  during 
the  time  that  the  United  Nations  owned  them." 
Mr.  Moderow  assured  him  that  "this  is  tlie  case. 
To  emphasize  this  the  words  'entitled  to  use'  in  the 
first  draft  had  been  changed  to  'maj'  use'.  This 
point  of  view  had  been  finally  accepted  by  the 
ILO." '' 

3.  Finally,  the  ad  hoc  Committee  agreed  to 
leave  to  the  General  Committee  and  the  General 
Assembly  the  nomination  of  the  small  committee 
to  negotiate  with  the  Swiss  Government  and  the 
Carnegie  Foundation  in  relation  to  the  assets  lo- 
cated in  Geneva  and  at  The  Hague  respectively. 
In  the  absence  of  objection,  however,  the  final  re- 
port of  the  rapporteur  of  the  ad.  hoc  Committee 
provided  that  this  Negotiating  Committee  should 
"consist  of  one  representative  designated  by  the 
delegations,  if  they  so  desire,  of  each  of  the  same 
eight  Members  as  previously  constituted  the  Com- 
mittee [on  the  Transfer  of  League  Assets]  created 
by  the  Preparatory  Commission." " 

Approval  by  the  General  Assembly 

Without  debate  and  with  no  objections  the  Gen- 
eral Assembly  on  February  12,  1946  adopted  the 
report  of  its  ad  hoc  Committee  as  presented  by  the 
rapporteur,  H.  T.  Andrews  of  South  Africa.^^ 
(Article  continued  on  page  748) 


MAY  5,  1946 


743 


APPENDIX:   TEXTS  OF  DOCUMENTS 

I.  A/28,  February  4,  1946 ' 

REPORT  OF  THE  LEAGUE  OF  NATIONS  COMMITTEE  TO  THE  GENERAL  ASSEMBLY 

Transfer  of  Certain  Functions,  Activities  and  Assets  of  the  League  of  Nations  = 

Rapporteur:  Mr.  H.  T.  Andrews  (Union  of  South  Africa) 


The  General  Assembly  in  its  Eigbteentli  Plenary  Meet- 
ing held  on  26  January  1946,  referred  to  the  League  of 
Nations  Committee  the  question  of  the  possible  transfer 
of  certain  functions,  activities  and  assets  of  the  League  of 
Nations. 

After  having  considered  these  questions  on  the  basis  of 
Cliapter  XI  of  the  Report  of  the  Preparatory  Commission 
of  the  United  Nations  and  of  tlie  Report  of  the  Committee 
set  up  by  the  Preparatory  Commission  to  discuss  and 
establish  with  the  Supervisory  Commission  of  the  League 
of  Nations  a  Common  Plan  for  the  transfer  of  the  assets 
of  the  League  of  Nations,  (see  Documents  A/18;  A/18/ 
Add/1;  A/18/Add/2),  the  League  of  Nations  Committee 
has  approved  the  following  resolutions,  the  adoption  of 
which  I  have  the  honour  to  propose : 

I 

FCNCTIOKS  AND  POWERS  BELONGING  TO  THE  LEAGUE  OF  NA- 
TIONS Under  International  Agreements 

Under  various  treaties  and  international  conventions, 
agreements  and  other  instruments,  the  League  of  Nations 
and  its  organs  exercise,  or  may  be  requested  to  exercise, 
numerous  functions  or  powers  for  the  continuance  of 
which  after  the  dissolution  of  the  League,  it  is,  or  may  be, 
desirable  that  the  United  Nations  should  provide. 

Certain  Members  of  the  United  Nations,  which  ai'e  par- 
ties to  some  of  these  instruments  and  are  Members  of 
the  League  of  Nations,  have  informed  the  General  Assem- 
bly that  at  the  forthcoming  session  of  the  Assembly  of  the 
League  they  intend  to  move  a  resolution  whereby  the 
Members  of  the  League  would,  so  far  as  this  is  necessary, 
assent  and  give  effect  to  the  steps  contemplated  below. 

Therefore 

1.  The  General  Assembly  reserves  the  right  to  decide, 
after  due  examination,  not  to  assume  any  particular  func- 
tion or  power,  and  to  determine  which  organ  of  the 
United  Nations  or  which  specialized  agency  brought  into 
relationship  with  the  United  Nations  should  exercise  each 
particular  function  or  power  assumed. 

2.  The  General  Assembly  records  that  those  Membere 
of  the  United  Nations  which  are  parties  to  the  instru- 
ments referred  to  above  assent  by  this  Resolution  to  the 
steps  contemplated  below  and  express  their  resolve  to  use 
their  good  ofinces  to  secure  the  co-operation  of  the  other 
parties  to  the  instruments  so  far  as  this  may  be  necessary. 

3.  The  General  Assembly  declares  that  the  United  Na- 
tions is  willing,  in  principle  and  subject  to  the  provisions 
of  this  Resolution  and  of  the  Charter  of  the  United  Na- 
tions, to  assume  the  exercise  of  certain  functions  and 
powers  previously  entrusted  to   the  League  of  Nations, 


and  adopts  the  following  decisions,  set  forth  in  A,  B,  and 
C  below. 

A.  Functions  Pertaining  to  a  Secretariat 

Under  certain  of  the  instruments  referred  to  at  the 
beginning  of  this  Resolution,  the  League  of  Nations  has, 
for  the  general  convenience  of  the  parties,  undertaken  to 
act  as  custodian  of  the  original  signed  texts  of  the  instru- 
ments, and  to  perform  certain  functions,  pertaining  to  a 
secretariat,  which  do  not  affect  the  operation  of  the 
instruments  and  do  not  relate  to  the  substantive  rights 
and  obligations  of  the  parties.  These  functions  include: 
the  receipt  of  additional  signatures  and  of  Instruments  of 
ratification,  accession  and  denunciation ;  receipt  of  notice 
of  extension  of  the  instruments  to  colonies  or  possessions 
of  a  party  or  to  protectorates  or  territories  for  which  it 
holds  a  mandate ;  notification  of  such  acts  to  other  parties 
and  other  interested  states ;  the  issue  of  certified  copies ; 
and  the  circulation  of  information  or  documents  which 
the  parties  have  undertaken  to  communicate  to  each  other. 
Any  interruption  in  the  performance  of  these  functions 
would  be  contrary  to  the  interests  of  all  the  parties.  It 
would  be  convenient  for  the  United  Nations  to  have  the 
custody  of  those  instruments  which  are  connected  with 
activities  of  the  League  of  Nations  and  which  the  United 
Nations  is  likely  to  continue. 

Therefore 

Tbe  General  Assembly  declares  that  the  United  Nations 
is  willing  to  accept  the  custody  of  the  instruments  and 
to  charge  the  Secretariat  of  the  United  Nations  with  the 
task  of  performing  for  the  parties  the  functions,  pertain- 
ing to  a  secretariat,  formerly  entrusted  to  the  League  of 
Nations. 

B.  Functions  and  Powers  of  a  Technical  and  Non-Political 
Character 

Among  the  instruments  referred  to  at  the  beginning  of 
this  Resolution  are  some  of  a  technical  and  non-political 
character  which  contain  provisions,  relating  to  the  sub- 
stance of  the  instruments,  whose  due  execution  is  depend- 
ent on  the  exercise,  by  the  League  of  Nations  or  particular 
organs  of  the  League,  of  functions  or  powers  conferred 
by  the  instruments.  Certain  of  these  instruments  are  in- 
timately connected  with  activities  which  the  United  Na- 
tions will  or  may  continue. 

'  Key  ;  A  stands  for  General  Assembly 

E  stands  for  Economic  and  Social  Council 
"  Adopted  Feb.  12,  1946.    Journal  no.  30,  pp.  526-7 ;  ibid., 
no.  34,  pp.  706-9. 


744 


DEPARTMENT  OF  STATE  BULLETIN 


It  is  necessary,  however,  to  examine  carefnlly  which  of 
the  organs  of  the  United  Nations  or  wliich  of  the  special- 
ized agencies  brouglit  into  relationship  with  the  United 
Nations  should,  in  the  future,  exercise  the  functions  and 
powers  in  question,  in  so  far  as  they  are  maintained. 
Therefore 

The  General  Assembly  is  willing,  subject  to  these  reser- 
vations, to  take  the  necessary  measures  to  ensure  the  con- 
tinued exercise  of  these  functions  and  powers,  and  refers 
the  matter  to  the  Economic  and  Social  Council. 

0.  Functions  and  Powers  Under  Treaties,  Iiiteniatinnal 
Convent ioiis,  Af/reements  and  Other  Instriunents  Having 
a  Political  Character 

The  General  Assembly  will  itself  examine,  or  will  submit 
to  the  apijropriate  organ  of  the  United  Nations,  any  request 
from  the  parties  that  the  United  Nations  should  assume  the 
exercise  of  functions  or  powers  entrusted  to  the  Lrcagiie  of 
Nations  by  treaties,  international  conventions,  agreements 
and  other  instruments  having  a  political  character. 

II 

NoN-Poi,iTicAL  Functions  and  Activities  of  the  League  of 
Nations  Other  Than  Those  Mentioned  in  I 

1.  The  General  Assembly  requests  the  Economic  and  So- 
cial Council  to  survey  the  functions  and  activities  of  a 
non-political  character  which  have  hitherto  been  performed 
by  the  League  of  Nations  in  order  to  determine  which  of 
them  should,  with  such  modifications  as  are  desirable,  be 
assumed  by  organs  of  the  United  Nations  or  he  entrusted 
to  specialized  agencies  whicli  have  been  brought  into  rela- 
tionship with  the  United  Nations.  Pending  the  adoption 
of  the  measures  decided  upon  as  the  result  of  this  exam- 
ination, the  Council  should,  on  or  before  the  dissolution 
of  the  League,  asunie  and  continue  provisionally  the  work 
hitherto  done  by  the  following  League  departments:  The 
Economic.  Financial  and  Transit  Department,  particularly 
the  research  and  statistical  work;  the  Health  Section,  par- 
ticularly the  epidemiological  service ;  the  Opium  Section 


and   the   secretariats   of  the   Permanent  Central   Opium 
Board  and  Supervisory  Body. 

2.  The  General  Assembly  requests  the  Secretary-General 
to  make  provision  for  taking  over  and  maintaining  in  op- 
eration the  Library  and  Archives  and  for  completing  the 
League  of  Nations  Treaty  Series. 

3.  The  General  Assembly  considers  that  it  would  also 
be  desirable  for  the  Secretary-General  to  engage  for  the 
work,  referred  to  in  paragraphs  1  and  2  a\)ove,  on  appro- 
priate terms,  such  members  of  the  experienced  personnel 
liy  whom  it  is  at  present  being  performed  as  the  Secretary- 
General  may  select. 

Ill 

Transfer  of  the  As.sets  of  the  League  of  Nations  to 
the  United  Nations 

The  General  Assembly  having  considered  the  Report 
of  the  Committee  set  up  by  the  Preparatory  Commission 
to  discuss  and  establish  with  the  Supervisory  Commis- 
sion of  the  League  of  Nations  a  Common  Plan  for  the 
transfer  of  the  assets  of  the  League  of  Nations,  approves 
of  both  the  Report  of  the  Committee  set  up  by  the  Pre- 
paratory Commission  and  of  the  Common  Plan  submitted 
by  it. 

IV 
Appointment  of  a  Negotiating  Committee 

The  General  Assembly  approves  of  the  setting  up  of 
a  small  negotiating  committee  to  assist  the  Secretary- 
General  in  negotiating  further  agreements  in  connection 
with  the  transfer  of  certain  as.sets  in  Geneva,  and  in 
connection  with  the  premises  in  the  Peace  Palace  in  the 
Hague.  This  Committee  shall  consist  of  one  representa- 
tive designated  by  the  delegations,  if  they  so  desire,  of 
each  of  the  same  eight  IVIeinbers  as  previously  constituted 
the  Committee  created  by  the  Preparatory  Commission: 
Chile,  China,  France.  Poland,  South  Africa,  the  Soviet 
Union,  the  United  Kingdom  and  the  United  States  of 
America. 


IL  A/18,  January  28,  1946 

REPORT  OF  THE  COMMITTEE  SET  UP  BY  THE  PREPARATORY  COMMISSION  TO  DISCUSS  AND  ESTAB- 
LISH WITH  THE  SUPERVISORY  COMMISSION  OF  THE  LEAGUE  OF  NATIONS  A  COMMON  PLAN  FOR 
THE  TRANSFER  OF  THE  ASSETS  OF  THE  LEAGUE  OF  NATIONS 


1.  The  Committee  was  set  up  by  the  Preparatory  Com- 
mission on  18  December  1!M5  and  consists  of  one  repre- 
sentative designated  by  the  Delegations  of  each  of  the  fol- 
lowing eight  Members :  Chile.  China,  France,  Poland, 
South  Africa,  the  Soviet  Union,  the  United  Kingdom  and 
the  United  States  of  America. 

The  Committee's  terms  of  reference  were  to  enter  on 
behalf  of  the  Preparatory  ("ommission,  into  discussions 
with  the  League  Supervisoiy  Commission,  for  the  purpose 
of  establishing  a  common  plan  for  the  transfer  of  the 
as.sets  of  the  League  to  the  United  Nations  on  such  terms 
as  are  considered  ju.st  and  convenient.  The  duly  author- 
ized representative  of  the   International   Labour  Organi- 


zation were  to  be  consulted  on  questions  connected  with 
the  transfer  which  affected  that  Organization. 

The  Committee  was  instructed  to  have  regard  to  the 
views  expressed  by  the  Executive  Committee  in  paragraphs 
24,  25,  28-31  of  the  "Report  on  the  Transfer  of  Certain 
Functions,  Activities  and  Assets  of  the  League  of  Nations" 
(Report  by  the  Executive  Committee,  pages  112-114). 

The  Committee  was  not  called  on  to  make  recommenda- 
tions on  the  transfer  of  functions  and  activities  of  the 
League  which  is  the  subject  of  a  separate  recommendation 
of  the  Preparatoiw  Commission.  The  Committee,  liowever, 
calls  attention  to  the  desirabilit.v  of  acting  on  this  matter 
promptly  in  order  to  facilitate  the  termination  of  the 
League  as  soon  as  possible. 


MAY  5,  1946 


745 


The  I'rcparatory  Commission  rerdmiiu'iided  tliat  the 
phiii  tlcvchiped  l)y  the  Committee  should  be  submitted 
for  approval  to  the  General  Assembly,  if  possible  duriug 
the  First  I'art  of  the  First  Session. 

2.  The  (,'ommitteo  held  conversations  with  the  Super- 
visory Commission  of  the  League  of  Nations  and  con- 
sulted duly  authorized  representatives  of  the  Governing 
Body  of  the  International  Labour  Organization.  The 
Committee  has  received  all  possible  assistance  from  these 
bodies  who  .share  the  Committee's  desire  that  the  necessary 
steps  should  be  taken  with  tlie  greatest  possible  .speed. 

3.  The  main  concern  of  the  United  Nations  Committee 
was  to  sui'vey  the  present  .position  of  the  assets  of  the 
League  and  to  determine  how  the  assets  taken  over  should 
be  evaluated  and  how  any  financial  settlement  should  be 
effected. 

The  Supervisory  Commission  was,  however,  concerned 
with  a  number  of  other  tiuestiinis  connected  with  the  liqui- 
dation of  tlie  League,  and  indirectly  affecting  the  transfer 
of  assets.  Therefore,  the  Common  I'lan  established  con- 
tains several  points  not  immediately  of  interest  to  the 
United  Nations. 

4.  The  Connnittee  recommends  that  the  United  Nations 
should,  in  order  to  facilitate  the  early  dissolution  of  the 
Leagtie  of  Nations  in  definite  and  proper  conditions,  take 
over  all  material  as.sets  of  the  League  of  Nations.  These 
material  assets  include: 

(a)  the  buildings  in  Geneva  holding  the  offlces  of  the 
Secretariat,  the  Assembly  Hall  with  the  committee  rooms 
and  the  library,  together  with  the  transferable  rights  of 
the  League  of  Nations  to  use  the  land  on  which  the  building 
stands,  the  land  within  one  huudretl  metres  of  the  buildings 
and  the  roads  leading  to  the  buildings; 

(&)  the  surrounding  groiuuls  belonging  to  the  League  of 
Nations  including  fields,  woodlands  and  four  villas  ptir- 
chased  to  maintain  the  amenities  of  the  immediate  sur- 
roundings ; 

(c)  the  furniture  fittings  and  equipment  belonging  to 
the  League ; 

(d)  the  stocks  of  stationery,  printing  paper  and  publi- 
cations, office  supplies  and  equipment  of  the  League ; 

(e)  the  books  belonging  to  the  League; 

(f)  tlie  League  archives. 

A  more  precise  specification  is  set  out  in  cohmni  I  of 
the  Schedule  attached  to  the  Common  Plan. 

The  Committee  is  of  the  opinion  that  the  cost  of  main- 
tenance of  the  fixed  assets  mentioned  under  (a)  and  (h) 
should  not  be  excessive  in  relation  to  their  value.' 

The  question  of  the  premises  of  the  Court  of  Justice  in 
the  Hague  is  referred  to  in  paragraph  11. 

5.  In  accordance  with  its  terms  of  reference  the  Com- 
mittee was  to  find  a  value  which  should  "in  principle  imply 
neither  profit  nor  loss  for  the  LTnited  Nations".  The  Com- 
mittee and  the  Supervisory  Commission  agreed  that  in 
general  a  "just  and  convenient"  evaluation  of  these  assets 
today  would  be  the  price  they  had  cost  the  League  of 
Nation.?. 

For  the  movable  assets  the  cost  price  is  certainly  on  bal- 
ance favourable  to  the  United  Nations.  It  should  be  noted 
that  the  Inventory  of  movable  assets  is  sub.iect  to  minor 

692417—46 2 


changes,  since  the  figures  given  are  based  on  a  survey  made 
in  .Inly  1945.  It  is  understood  that  all  gifts,  many  of  which 
have  a  high  artistic  and  monetary  value,  will  be  trans- 
ferred without  any  pecuniary  consideration. 

As  regards  the  fixed  assets  a  method  of  evaluation  on 
any  basis  other  than  that  recommended  by  the  Committee 
was  found  to  be  extremely  difiicult  in  view,  amongst  other 
things,  of  the  uncertainty  of  the  future  use  of  the  build- 
ings. Postponement  of  valuation  until  a  later  date  was 
considered  b.v  the  Conmiittee,  but  this  plan  was  regarded 
by  the  Supervisory  Commission  as  impracticable  due  to  the 
uncertainties  involved  and  to  the  need  for  a  mure  definite 
and  clear  cut  arrangement  if  the  League  is  to  be  terminated 
at  an  early  date.  Further  this  procedure  might  involve 
the  United  Nations  in  financial  dealings  with  States  non- 
Members. 

The  Committee  recommends  that  the  valuation  at  cost 
price  set  out  in  column  II  of  the  Schedule  attached  to  the 
Common  Plan,  with  the  reservations  as  to  revision  set  out 
in  the  notes  appended,  be  accepted. 

6.  The  Common  Plan  agreed  with  the  Supervisory  Com- 
mission proposes  the  following  procedure  for  a  financial 
settlement. 

The  shares  in  the  total  credit  established  in  settlement 
of  the  transfer  should  be  distributed  between  the  States 
entitled  to  participate,  in  accordance  with  percentages  to 
he  laid  down  by  the  League  at  its  next  Assembly.  The 
fixing  of  these  percentages  is  a  matter  to  be  decided  ex- 
clusively by  the  League  of  Nations  Assembly.  The  shares, 
thus  established,  of  such  of  those  States  as  are  Members 
of  the  United  Nations  shall  be  credited  to  them  respectively 
in  the  hooks  of  the  United  Nations.  These  credits  should 
be  tran-slated  into  dollar  currency  at  the  rate  effective  on 
the  day  of  transfer  of  the  material  assets.  The  claims  of 
States  non-Members  of  the  United  Nations  should  be  dealt 
with  (itherwise  by  the  League  of  Nations. 

As  regards  the  credits  booked  to  the  Members  of  the 
United  Nations,  the  General  Assembly  should  decide  on 
the  purposes  to  which  these  credits  shall  be  applied  and 
on  the  dates  on  which  they  shall  be  so  applied.  It  is,  how- 
ever, agreed  that  these  credits  should,  in  any  event,  begin 
to  be  available  not  later  than  31  December  1948.  This 
provision  preserves  the  budgetary  freedom  of  the  General 
Assembly,  but  it  gives  some  guarantee  to  the  recipient 
states  that  the  settlement  of  their  claims  will  not  indefi- 
nitel.v  be  postponed. 

This  procedure  provides  for  a  financial  settlement 
within  the  United  Nations  and  avoids  all  payments  or 
transfers  of  credit  to  non-Members  of  the  United  Nations 
or  to  the  League.  The  Committee,  therefore,  recom- 
mends that  it  be  accepted. 

7.  In  view  of  the  legal,  financial  and  administrative 
arrangements  to  be  made,  1  August  1946  appears  to  be 
the  earliest  date  that  can  be  fixed  for  the  legal  transfer 

'Editor's  Note:  This  sentence  originally  read  "The 
C^ommittee  is  of  the  opinion  that  the  cost  of  maintenance 
of  the  fixed  assets  mentioned  under  (o)  and  (6)  should  be 
excessive  in  relation  to  their  value",  but  was  changed  by 
the  General  Assembly  in  document  A/18/Corr/l  of  Jan. 
31,  1946  to  read  as  printed  here. 


746 


DEPARTMENT  OF  STATE  BULLETIN 


of  the  material  assets.  It  is,  however,  prudent  to  provide 
for  some  degree  of  elasticity  to  prevent  embarrassment 
for  the  administrations  concerned.  Therefore,  the  Com- 
mittee recommends  that  the  transfer  be  effected  on  or 
about  1  August  1946,  the  precise  date  to  be  determined 
by  the  administrative  authorities  of  the  two  organizations. 

8.  It  may  not  be  convenient  for  the  League  of  Nations 
to  set  free  certain  premises  or  equipment  on  the  date 
selected  for  the  legal  transfer.  On  the  other  hand  the 
United  Nations  may  wish  to  use  the  premises  or  equip- 
ment of  the  League  before  that  date.  It  is  understood 
that  in  either  case  the  Administration  of  the  Organiza- 
tion legally  entitled  to  the  ownership  will  make  all  reason- 
able arrangements  to  accommodate  the  other  Adminis- 
tration without  any  charge. 

9.  The  Supervisory  Commission  of  the  League  of  Na- 
tions has  agreed  to  recommend  to  the  League  Assembly 
that  the  assets  mentioned  in  paragraph  4  be  transferred 
to  the  United  Nations.  The  Supervisory  Commission  will 
also  recommend  that  all  other  questions  relating  to  the 
liquidation  of  the  League  of  Nations  shall  be  handled 
exclusively  by  the  League  of  Nations,  the  United  Nations 
having  no  voice  in  these  matters  nor  responsibility  for 
them.  The  League  of  Nations  would,  therefore,  make 
arrangements : 

(a)  to  discharge  all  its  obligations  as  soon  as  prac- 
ticable ; 

(6)  to  settle  the  question  of  contributions  of  Member 
States  in  arrears ; 

(o)  to  separate  the  interests  of  the  International  Labour 
Organization  in  the  assets  of  the  League  before  transfer 
to  the  United  Nations;  (It  is  understood  that  the  Inter- 
national Labour  Organization  building  at  Geneva  will  be 
tran.sferred  to  that  Organization.) 

(d)  for  the  continued  administration  of  the  Staff  Pen- 
sions Fund,  and  with  regard  to  the  pensions  of  the  Judges 
of  the  Permanent  Court  of  International  Justice; 

(e)  when  it  has  discharged  all  its  obligations  and  made 
the  necessary  dispositions  concerning  the  Working  Capital 
Fund  and  regarding  outstanding  contributions,  for  credit- 
ing or  distributing  the  remaining  liquid  assets  to  Members 
of  the  League  under  a  scheme  to  be  determined  by  it. 

Though  the  question  of  contributions  in  arrears  of  Mem- 
bers of  the  League  of  Nations  does  not  directly  concei'n 
the  United  Nations,  the  Supervisory  Commission  stated 
that  a  satisfactory  solution  of  the  question  would  be  of 
considerable  assistance  in  expediting  the  final  settlement 
and  liquidation  of  the  League. 

10.  Tlie  Supervisory  Commission  has  done  all  that  is 
possible  to  separate  the  interests  of  the  International 
Labour  Organization  in  the  assets  of  the  League.  Tlie 
International  Labour  Organization  has,  however,  some  in- 
terests in  the  material  assets  that  are  to  be  transferred 
to  the  United  Nations  that  could  not  be  separated.  These 
interests  had  to  be  discussed. 

The  International  Labour  Organization  is  interested  in 
the  continued  use  of  the  Assembly  Hall  at  Geneva  for  its 
conferences  and  in  the  continued  use  of  the  League  library. 
The  Committee  recommends  that  the  United  Nations  should 
agree  that  the  International  Labour  Orgairization  may 
use  the  Assembly  Hall,  together  with  the  necessary  com- 


mittee rooms,  office  accommodation  and  other  facilities 
connected  therewith  at  times  and  on  financial  terms  to 
be  agreed  from  time  to  time  between  the  United  Nations 
and  the  International  Labour  Organization ;  and  further 
that  the  International  Labour  Organization  may  use  the 
library  under  the  same  conditions  as  other  official  users 
thereof. 

The  Committee  is  of  the  opinion  that  the  detailed  ar- 
rangements necessary  in  this  connection  should  be  made 
by  the  competent  authorities  of  the  two  organizations. 

The  following  suggestions,  which  have  been  tentatively 
put  forward  by  the  International  Labour  Organization, 
might  afford  an  appropriate  basis  for  these  negotiations. 

A  share  of  the  cost  of  maintaining  the  Assembly  Hall 
corresponding  to  its  period  of  use  in  the  course  of  the  year, 
together  with  any  additional  charges  incurred  in  respect 
of  meetings  held  under  the  auspices  of  the  International 
Labour  Organization  should  be  borne  by  that  Organization. 

The  International  Labour  Organization  should  notify 
the  United  Nations  at  least  three  months  in  advance  of 
the  date  on  which  the  International  Labour  Organization 
wishes  to  make  use  of  the  Hall  and  the  initial  and  ter- 
minal dates  for  such  use  shall  be  agreed  between  the  com- 
petent authorities  of  the  International  Labour  Organiza- 
tion and  of  the  United  Nations. 

The  United  Nations  and  the  International  Labour  Or- 
ganization should  agree  upon  the  most  convenient  period 
of  the  year  at  which  the  Assembly  Hall  shall  normally 
be  available  for  meetings  of  the  International  Labour 
Conference. 

11.  In  connection  with  the  transfer  of  certain  assets  in 
Geneva  agreements  must  be  made  with  the  Swiss  author- 
ities. A  small  negotiating  committee  to  assist  the  Secre- 
tary-General should  be  appointed  to  make  these  agree- 
ments. 

As  to  the  premises  for  the  use  of  the  new  Court  in  the 
Hague,  arrangements  must  be  made  with  the  Carnegie 
Foundation. 

In  this  context  it  should  be  noted  that  the  premises  in 
the  Peace  Palace  in  the  Hague  were  considerably  altered 
to  house  the  Permanent  Court  of  International  Justice. 
The  United  Nations  will  have  the  advantage  of  this  ar- 
rangement for  which  several  instalments  on  two  loans 
obtained  from  the  Carnegie  Foundation  are  still  due. 

The  Committee  recommends  that  the  small  committee 
mentioned  above  should  be  sent  to  the  Hague  to  make  the 
necessary  arrangements. 

12.  The  League  of  Nations  will,  during  the  liquidation 
and  the  transfer  of  assets  take  all  steps  necessary  to  assist 
in  the  assumption  and  continuance,  under  the  auspices 
of  the  Economic  and  Social  Council  of  the  United  Nations, 
of  those  League  activities  which  the  United  Nations  de- 
cides to  assume  and  continue.  Any  ex-official  of  the 
League  of  Nations  subsequently  engaged  temporarily  or 
otherwise  by  the  United  Nations  should  enter  service  under 
conditions  of  employment  established  by  the  United 
Nations. 

The  League  agrees  to  transfer  the  archives,  particularly 
those  dealing  with  current  matters,  as  soon  as  desired. 
The  two  Secretaries-General  should  be  empowered  to  make 
detailed  arrangements.  The  archives  should  be  located 
where  they  could  best  serve  the  work  of  the  United  Nations. 


MAY  5,  1946 


747 


II  a.  A/18/Add/l,  January  28,  1946 

ANNEX  TO  THE  REPORT  OF  THE  UNITED  NATIONS  COMMITTEE  ON  LEAGUE  OF  NATIONS  ASSETS 
Common  Plan  for  the  Transfer  of  League  of  Nations  Assets  Established  by  the  United  Nations 
Committee  and  the  Supervisory  Commission  of  the  League  of  Nations 


1.  The  League  of  Nations  agrees  to  transfer  to  the 
United  Nations,  and  the  United  Nations  agrees  to  receive 
on  or  about  1  August  19-16,  tlie  precise  date  to  be  deter- 
mined by  tlie  administrative  authorities  of  the  two  Organi- 
zations, all  material  assets  of  the  League  of  Nations  shown 
in  column  I  of  the  attached  Schedule  at  the  valuation 
shown  in  column  II. 

The  League  of  Nations  agrees  that  the  shares  in  the 
total  credit  thus  established  shall  be  distributed  between 
States  entitled  to  participate,  in  accordance  with  percent- 
ages to  be  laid  down  by  tlie  League  at  its  next  Assembly. 

The  United  Nations  agrees : 

(a)  that  the  shares,  thus  established,  of  such  of  these 
States  as  are  Members  of  the  United  Nations  shall  be 
credited  ^  to  them  respectively  in  the  books  of  the  United 
Nations :  and 

(6)  that  the  General  Assensbly  shall  decide  on  the  pur- 
poses to  which  these  credits  shall  be  applied  and  on  the 
dates  on  which  they  shall  be  so  applied ;  and  further  that 
these  credits  shall  in  any  event,  begin  to  be  available  not 
later  than  31  December  1&48. 

The  United  Nations  further  agrees : 

(a)  that  the  International  Labour  Organization  may 
use  the  Assembly  Hall,  together  with  the  necessary  com- 
mittee rooms,  office  accommodation  and  other  facilities 
connected  therewith  at  times  and  on  financial  terms  to 
be  agreed  from  time  to  time  between  the  United  Nations 
and  the  International  Labour  Organization  ; 

(6)  that  the  International  Labour  Organization  may 
use  the  library  under  tlie  same  conditions  as  other  official 
users  thereof. 


2.  The  League  of  Nations  shall  take  steps  to  discharge 
all  its  obligations  as  soon  as  practicable. 

3.  The  League  of  Nations  shall  take  steps  to  settle 
the  question  of  contributions  of  Member  States  in  arrears. 

4.  The  League  of  Nations  shall  take  steps  to  separate 
the  interests  of  the  International  Labour  Organization  in 
the  assets  of  the  League,  before  transfer  to  the  United 
Nations.  It  is  understood  that  the  International  Labour 
Organization  building  at  Geneva  will  be  transferred  to 
that  Organization. 

5.  Any  ex-officials  of  the  League  of  Nations  subseciuently 
engaged  by  the  United  Nations  shall  enter  service  under 
conditions  of  employment  established  by  the  United  Na- 
tions, and  it  will  be  for  the  League  of  Nations  to  take 
the  necessary  steps  to  make  this  possible. 

6.  It  is  understood  that  the  League  of  Nations  shall 
make  arrangements,  independently  of  the  United  Nations, 
with  regard  to  the  continued  administration  of  the  Staff 
Pension  Fund  and  with  regard  to  the  pensions  of  the 
Judges  of  the  Permanent  Court  of  International  Justice. 

7.  When  the  League  has  discharged  all  its  obligations 
and  made  the  necessary  dispositions  concerning  the  Work- 
ing Capital  Fund  and  regarding  outstanding  contributions, 
the  remaining  liquid  assets  shall  be  credited  or  distributed 
to  Members  of  the  League  under  a  scheme  to  be  deter- 
mined by  it. 

8.  Both  the  United  Nations  and  the  League  of  Nations 
shall  authorize  competent  authorities  to  make  any  neces- 
sary agreements  with  the  Swiss  Authorities  on  all  matters 
connected  with  the  transfer  of  assets  of  the  League  of 
Nations  to  the  United  Nations. 


II  b.  A/18/Add/2,  January  28,  1946 

APPENDIX  TO  THE  COMMON  PLAN  FOR  THE  TRANSFER  OF  LEAGUE  OF  NATIONS  ASSETS  ESTABLISHED 
BY  THE  UNITED  NATIONS  COMMITTEE  AND  THE  SUPERVISORY  COMMISSION  OF  THE  LEAGUE  OF 
NATIONS 


Schedule 


Secretariat  building  and 
Assembly     Hall 

Library  building 

Real  estate  belonging  to 
the  League  of  Na- 
tions having  an  area 
of  203,446  square 
meters   and  compris- 


II 


38,  553,  914.  03  - 


iug    four    villas 
other  buildings- 


and 


II 


2,  889,  453.  45 


'These  creilits  shall  be  translated  into  dollar  currency  at 
the  rate  effective  on  the  day  of  transfer  of  the  material  assets 
referred  to  in  par.  1. 

2  Cost  of  building  and  equipment  of  the  Secretariat  and  the 
Assembly  Hall.  The  League  has  a  transferable  right  to  use  the 
land  on  which  the  buildings  stand,  the  land  100  meters  around  it 
and  the  two  roads  leading  to  the  buildings.  The  League  further 
has  a  non-transferable  right  to  use  the  remainder  of  the  plot  of 
land  in  Ariana  Park  in  which  the  buildings  stand.  No  value  is 
placed  on  these  rights  in  the  schedule. 

2  The  cost  of  this  building  given  by  Mr.  Rockefeller  was 
5,564,206.22  Swiss  francs. 


748 


DEPARTMENT  OF  STATE  BULLETIN 


11 


Furniture,  fittings,  type- 
writers, etc.  for  the 
use  of  the  Secreta- 
riat, including  tlie 
Ijraueh  otflces,  and 
for  the  other  build- 
ings in  Geneva 

Total  according  to  the  an- 
nexed  inventories 


.S.  320,  '.t78.  70 


Total  included  under  Sec- 
retariat building  and 
Assembly  Hall  to  be 
deducted    1,429,18.5.02 

Furniture,  fittings,  type- 
writers, etc.  for  the 
use  of  the  Court  of 
Justice  in  the  Hague. 

Stocks  of  stationery, 
printing  paper  and 
publications,  office 
supplies  and  equip- 
ment, in  Geneva  and 
branch  offices 

Books,  stocks  of  station- 
ery,   printing    paper 


1,  900,  793.  ftS  ' 


278,  61.5.  20 ' 


and  publications,  of- 
fice supplies  and 
equipment  for  the 
Court  in  the  Hague- 
Gifts   

Library :  Books  etc.  in 
Geneva  according  to 
the  annexed  inven- 
tory   

Archives  of  the  League 
of  Nations  and  of 
the  Permanent  Court 
of  International  Jus- 
tice   


II 


291,  596.  00 ' 


3,  518,  089.  00  ' 


Total 47,  631,  518.  61 


109,  657.  25  = 


*  Owing  to  possible  changes  before  the  date  of  transfer  these 
figures  are  provisional  and  subject  to  revision. 

^  Owing  to  possible  changes  before  the  date  of  transfer  these 
figures  are  provisional  and  subject  to  revision.  Deduction  might 
also  be  made  for  gifts  included  in  this  figure. 

»  The  nominal  value  of  the  gifts  should  be  put  at  1,234,640 
Swiss  francs. 

'  This  figure  includes  gifts  and  will  therefore  he  revised,  a 
deduction  being  made  for  gifts. 

,    Editor's    Notk  :   The    figures    in    this    schedule    are    given    in 
Swiss  francs. 


III.  E/19,  February  15,  1946 

NON-POLITICAL  FUNCTIONS  AND  ACTIVITliES  OF  THE  LEAGUE  OF  NATIONS 

(Draft  submitted  by  the  S-ecretariat) 


1.  In  its  resolution  of  12  February  1946,  on  the  Trans- 
fer of  Certain  Functions,  Activities  and  Assets  of  the 
League  of  Nations,  the  General  Assembly  has  requested 
that: 

(a)  the  Economic  and  Social  Council  survey  the  func- 
tions and  activities  of  a  non-political  character  which 
have  hitherto  been  performed  by  the  League  of  Nations 
in  order  to  determine  which  of  them  should,  with  such 
modifications  as  are  desirable,  be  assumed  by  organs  of 
the  United  Nations  or  be  entrusted  to  specialized  agencies 
which  have  been  brought  into  relationship  with  the  United 
Nations ;  and 

(6)  the  Council,  pending  the  adoption  of  the  measures 
decided  upon  as  the  result  of  this  examination,  assume  and 
continue  provisionally  the  work  hitherto  done  by  the  fol- 


lowing League  departments:  The  Economic,  Financial  and 
Transit  Departjuent,  particularly  the  research  and  sta- 
tistical work ;  the  Health  Section,  particularly  the  epi- 
demiological service;  the  Opium  Section,  and  the  Sec- 
retariats of  the  Permanent  Central  Opium  Board  and 
Supervisory  Body. 
2.  The  Economic  and  Social  Council  accordingly, 
(«)  Requests  the  Secretary-General  to  undertake  the 
survey  called  for  by  the  General  Assembly  and  to  report 
at  an  early  date  to  the  Economic  and  Social  Council. 

Ih)  Directs  the  Secretary-General  acting  in  accordance 
with  the  Uesolution  of  the  General  Assembly,  to  take  the 
steps  necessary  to  the  provisional  assumption  and  continu- 
ance of  the  work  hitherto  done  by  the  League  departments 
named  above. 


REIFF — Continued  from  par/e  llt2. 

Work  of  the  Negotiating  Committee 

The  small  Negotiating  Committee  set  up  by  this 
action  of  the  General  Assembly  immediately  held 
several  informal  meetings  in  London  ^'^  and,  after 
adjournment  of  the  General  Assembly,  proceeded 
to  The  Hague,  where  it  discussed  with  the  repre- 
sentatives of  the  Dutch  Government  and  the  Car- 
negie Foundation  details  relating  to  the  transfer 
of  the  use  of  the  Court  premises. 


Subsequently,  the  Negotiating  Committee  made 
the  necessary  arrangements  with  the  Swiss  authori- 
ties in  relation  to  the  transfer  of  the  material  as- 
sets located  in  Geneva.'^ 

'"Journal  no.  30,  p.  524 ;  nkl.,  no.  31,  p.  544 ;  ihid..  no.  32, 
p.  584. 

"At  this  stage  of  the  negotiations,  Howard  Elting,  Jr., 
American  Consul  at  Geneva,  substituted  for  Benjamin 
Gerig  as  the  representative  of  the  United  States  on  the 
Negotiating  Committee. 


MAY  5,  1946 


749 


Non-Military  Activities  in  Japan  and  Korea 


POLITICAL  ACTIVITIES  IN  JAPAN 


Political  Affairs 

1.  The,  interest  of  the  people,  the  press  and  the 
political  parties  in  politics  and  government  was 
greater  than  at  any  time  since  the  surrender  of 
Japan.  Evidence  points  to  a  clarification  in  the 
thinking  of  the  Japanese  and  the  development  of 
a  sense  of  political  responsibility. 

Purge  Directives 

2.  The  government's  action  in  comj^liance  with 
the  purge  directives  of  4  January  was  unequivocal, 
firm  and  extensive.  It  ruled  about  90  percent  of 
the  Diet  members  ineligible  for  re-election  and 
ordered  the  dissolution  of  120  political  organiza- 
tions. The  press  estimated  that  about  1.50,000  per- 
sons would  be  affected. 

National  Election 

3.  The  national  election  was  postponed  from  31 
Mai-ch  to  10  April  to  give  the  Home  Ministry  more 
time  to  screen  prospective  candidates.  The  gov- 
ernment took  measures  to  restiict  campaign  costs 
and  to  assure  a  free  election.  More  tlian  3,000  per- 
sons requested  certification  as  candidates  for  the 
Diet. 

Political  Parties 
The  Progressive  Party 

4.  The  Progressive  Party  lost  its  president  and 
other  important  leaders  as  a  result  of  the  political 
purge.  The  group  is  at  present  under  the  guid- 
ance of  Takao  Saito.  The  party  approaches  the 
coming  election  with  confidence  because  it  is  well 
organized  and  has  great  strength  in  the  rural 
districts. 

The  Liberal  Party 

5.  The  question  whether  Ichiro  Hatoyama,  pres- 
ident of  the  Liberal  Party,  will  survive  the  purge 
has  not  been  settled.  The  leadership  of  Hatoyama 
and  his  conservative  associates  has  been  strongly 


criticized  by  several  provincial  branches  of  the 
party. 

The  Social  Democratic  Party 

6.  The  loss  of  many  prominent  right-wing  lead- 
ers will  not  disqualify  the  Social  Democrats  in  the 
coming  election.  They  have  won  popular  support 
among  the  workers  and  farmers. 

The  Cormnunist  Party 

7.  The  Communists  have  been  the  most  active 
of  all  political  parties.  Nosaka  continues  to  en- 
hance his  position  and  to  point  the  way  for  the 
group  to  follow.  The  party  published  its  "su- 
preme platform"  during  the  Fifth  National  Con- 
gress in  Tokyo  24r-2(j  February.  The  Communists 
had  more  press  coverage  than  all  other  groups 
combined. 

The  Coo-perative  Party 

8.  The  purge  directive  virtually  destroyed  the 
leadership  of  the  Cooperative  Party.  The  group 
has  only  three  members  left  in  the  Diet.  Unless 
it  can  rehabilitate  itself  it  cannot  be  considered  a 
major  party. 

Mitwr  Parties 

9.  Minor  political  parties  continue  to  spring  up 
throughout  Japan. 

Women  in  Politics 

10.  Every  effoit  is  made  to  interest  Japanese 
women  in  politics.  Most  major  parties  have  women 
candidates  for  the  Diet  and  many  have  drafted 
special  platforms  for  women.  The  New  Japan 
Women's  Party  and  the  New  Japan  Women's 
League  are  the  most  prominent  women's  organiza- 
tions. 

Excerpts  from  Summation  no.  5  for  the  month  of  Feb- 
ruary 1946,  prepared  by  General  Headquarters,  Supreme 
Conmiander  for  the  Allied  Powers,  released  to  the  press 
simultaneously  by  the  War  Department  in  Washington  and 
by  SC.^P  in  Tokyo  on  Apr.  2.5,  1940.  Further  portions  of 
the  report  will  appear  in  future  issues  of  the  Eulletin. 


750 


DEPARTMENT  OF  STATE  BVLLETllS 


United  Fronts 

11.  The  attempt  of  the  Communists  to  create  a 
united  front  remains  unsuccessful.  The  Social 
Democrats  do  not  wish  to  jeopardize  their  political 
future  by  premature  cooperation  with  a  party  that 
may  not  secure  many  seats  in  the  Diet. 

The  efforts  of  Hatoyama,  president  of  the  Lib- 
eral Party,  to  launch  an  anti-communist  front  was 
generally  considered  an  unwise  move. 

C onMitutional  Revision 

12.  Most  of  the  constitutional  drafts  prepared 
by  the  major  parties  differ  only  in  minor  respects. 
There  is  general  unanimity  on  the  Emperor,  the 
Diet  and  constitutional  amendment. 

Food  and  Labor 

13.  Practically  all  political  grouiss  oppose  the 
government's  proposals  to  collect  essential  food 
stuffs  by  forcible  means.  The  question  of  labor 
disputes  is  beginning  to  occupy  a  more  important 
place  in  political  thinking. 

National  and  Local  Government 

The  Cabinet 

14.  The  Cabinet,  still  under  heavy  criticism, 
took  a  strong  stand  on  the  application  of  the  purge 
directives.  Wataru  Narahashi  and  Takeshige 
Ishiguro  were  named  Ministers  without  Portfolio. 

Civil  Service 

15.  The  government  adopted  a  reform  program 
for  the  civil  service.  It  divides  the  bureaucracy 
into  administrative,  technical  and  educational 
branches,  modifies  the  system  of  personal  rank, 
simplifies  the  salary  system  and  eliminates  dis- 
criminations against  women. 

The  Emiperor 

16.  The  Emperor  spoke  to  the  Japanese  people 
by  radio  for  the  second  time  on  22  February  and 
made  a  number  of  inspection  tours  in  and  around 
the  Tokyo  area. 

Personnel  and  Structural  Changes 

17.  There  were  five  nominations  to  the  House  of 
Peers  and  28  resignations.  Twenty-nine  Japanese 
educators  were  appointed  to  confer  with  the 
American  Education  Mission.  A  Food  Policy 
Investigation  Commission  was  created  on  27  Feb- 
ruary to  advise  the  Cabinet  on  food  policies. 

TJie  Prefectures 

18.  An  increased  interest  in  local  politics  and 
administration  was  manifested  in  the  prefectures. 


The  democratization  of  local  government  is  pres- 
aged in  the  draft  of  a  new  law  which  will  provide 
for  the  popular  election  of  prefectural  governors. 

Public  Safety 

19.  There  was  some  civil  uni'est  occasioned  by 
demonstrations  and  protests  over  the  shortage  of 
food.  Police  investigation  in  some  cases  disclosed 
food,  clothing  and  supplies  held  in  excess  of  stipu- 
lated amounts  permitted  the  head  of  each  family. 

20.  Black-market  activities  were  at  a  low  ebb 
and  operators  began  to  seek  regular  employment. 
Military  occupation  courts  were  established  to  try 
cases  involving  possession  of  property  belonging 
to  the  Occupation  Forces  or  its  members. 

21.  A  Japanese  civilian  body  will  be  formed  to 
improve  the  observance  of  traffic  regulations  and 
i-educe  the  number  of  traffic  deaths. 

Police 

22.  Lewis  J.  Valentine  and  Oscar  Oleander,  pub- 
lic safety  experts,  accepted  invitations  of  SCAP 
to  make  studies  of  the  Japanese  police  system. 
The  Tokyo  Metropolitan  Police  Board  announced 
new  regulations  to  improve  conditions  of  police 
employment  and  to  place  them  on  a  par  with  other 
civil  servants  within  comparable  categories. 

23.  The  Japanese  police  were  issued  instructions 
governing  the  official  use  of  sidearms.  They  were 
cautioned  to  exercise  care  to  avoid  the  use  of  vio- 
lence in  dealing  with  any  disorders  occasioned  by 
labor  sti'ikes. 

Fire 

24.  Two  metropolitan  areas  were  added  to  the  11 
fire  areas  nationally  administered  under  police 
jurisdiction.  Fire  guilds  manned  by  volunteers 
and  maintained  at  local  expense  continue  to  be 
used  in  towns  and  villages. 

Prisons 

25.  The  Federation  of  Christian  Churches  in 
Japan  at  the  request  of  the  Japanese  Government 
agreed  to  provide  ministers  to  act  as  prison  chap- 
lains in  22  prisons. 

Intelligence 

26.  Appropriate  action  is  being  taken  to  assure 
compliance  by  the  Japanese  Government  with  the 
terms  of  all  SCAP  directives. 

27.  Japanese  respect  for  the  Occupation  Forces 
has  increased  and  suspicion  and  mistrust  are  giv- 
ing way  to  cooperation. 


MAY  5,  1946 


751 


Foreign  Nationals 

28.  Members  of  the  United  Nations'  and  neu- 
tral diplomatic  staffs  were  repatriated  with  their 
families.     Action  was  begun  to  repatriate  other 

.  European  nationals  and  to  register  Orientals  in 
Japan  for  the  purpose  of  determining  the  number 
who  wish  to  remain. 

Oetisorship 

29.  There  was  a  decrease  in  the  violation  of  cen- 
sorship codes.  After  an  examination  of  pre-war 
publications  is  completed,  the  Japanese  Govern- 
ment will  be  furnished  a  list  of  those  whose  sale 
will  be  prohibited. 

30.  For  the  first  time  broadcasting  of  local  pro- 
grams in  Osaka,  Fukuoka  and  Nagoya  was  ap- 
proved. 

Legal  and  Judicial  Affaiks 

31.  Japanese  courts  were  prohibited  from  exer- 
cising criminal  jurisdiction  over  nationals  of  the 
United  Nations.  The  Japanese  people  were  in- 
formed that  certain  specified  acts  against  the  Oc- 


cupation Forces  or  its  members  would  be  tried 
only  by  military  occupation  courts  established  for 
that  purpose. 

Measures  were  taken  to  assure  fair  trials  to 
Koreans  or  other  nationals  formerly  under  the 
domination  of  Japan. 

32.  Japanese  courts  were  deprived  of  civil  juris- 
diction over  nationals  of  the  United  Nations  at- 
tached to  or  accompanying  Occupation  Forces. 
The  trial  of  civil  cases  in  Japanese  courts  against 
other  nationals  of  the  United  Nations  was  made 
subject  to  supervision  and  review  by  SCAP  Head- 
quarters. 

War  Crimes 

33.  Directives  were  issued  for  the  arrest  of  51 
additional  persons  suspected  of  war  crimes.  Some 
80  investigations  were  completed  and  seven  war 
crime  cases  were  tried  during  the  month. 

34.  Nine  members  of  the  International  Military 
Tribunal  for  the  Far  East  were  appointed  by  the 
Supreme  Commander.  Five  members  of  the  Tri- 
bunal and  five  associate  counsel  arrived  in  Tokyo. 


Addresses  of  the  Week 


Acting  Secretary  Acheson 


Assistant  Secretary  Benton 


The  British  Loan  and  Foreign  Trade; 
summary  printed  in  this  issue 


International  Understanding — A  Mis- 
sion for  All  of  Us.  Issued  as  press 
release  276 


Delivered  before  the  National  Conven- 
tion of  tlie  Women's  Action  Com- 
mittee in  Louisville,  Ky.,  on  April 
25 

Delivered  before  tlie  Associated 
Church  Press  in  Washington  on 
April  24 


The  United  Nations 


Security  Council:^  Discussion  of  Soviet-Iranian  Matter 

REMARKS  BY  U.S.   REPRESENTATIVE  = 


Mr.  President,  I  shall  be  brief  for  I  do  not  wish 
to  iDrolong  the  discussion. 

As  the  Council  is  fully  aware,  the  United  States 
Government  has  consistently  thought  that  there 
was  no  reason  for  this  question  being  brought  be- 
fore the  Council  again  at  this  time.  The  Council 
resolved  on  April  4  to  let  the  matter  rest  until 
May  6.^  I  fail  to  understand  why  the  matter  was 
not  allowed  to  stand  on  the  resolution  that  was 
passed  at  that  time.  The  United  States  is  unable 
to  agree  with  the  conclusions  reached  by  the  Sec- 
retai'y-General  in  his  memorandum  of  April  16 

'  In  session  since  Mar.  25,  194(5  at  Hunter  College  in 
New  York,  N.  Y. 

"  Edward  R.  Stettinius,  Jr.  Tliese  remarks  were  made 
at  the  thirt.v-sixth  meeting  on  Apr.  2.3,  1946. 

=  Bulletin  of  Apr.  14,  1940,  p.  621. 

'  Bulletin  of  Apr.  28,  1946,  p.  707. 

'The  French  resolution  reads  as  follows: 

"The  Sbcuritt  Council, 

"Having  again  considered,  at  its  meeting  of  the  15  and 
16  April,  the  ciuestioii  which  it  had  placed  on  its  agenda 
on  26  March  1946  at  the  request  of  the  Government  of  Iran, 
and  which  formed  the  subject  of  its  resolution  of  4  April : 

"takes  note  of  the  letter  dated  14  April  addressed  to  it 
by  the  representative  of  the  Government  of  Iran  in  wliich 
the  latter  informs  the  Secnrit.v  ("ouncil  of  the  witlulrnwal 
of  his  complaint ; 

"notes  that  an  agreement  has  been  reached  between  the 
two  Governments  concerned ; 

"requests  the  Secretary-General  to  collect  the  necessary 
information  in  order  to  complete  the  Security  Councils 
report  to  the  Assembly,  in  accordance  witli  article  24  of 
the  Charter,  on  the  manner  in  which  it  dealt  with  the  case 
placed  on  its  agenda  on  26  March  last  at  the  request,  now 
withdrawn,  of  the  Government  of  Iran." 

The  French  resolution  was  rejected  by  the  Security 
Council  at  Its  thirty-sixth  meeting  on  Apr.  23,  1946.  If 
received  three  afiirmative  votes. 

"  Bulletin  of  Apr.  21,  1946,  p.  658. 


10  the  President.*  Although  I  do  not  wish  to  re- 
iterate the  arguments  made  by  the  majority  of  the 
members  of  the  Committee  of  Experts  in  that  re- 
gard, I  wish  to  emphasize  the  strong  support  which 
the  United  States  gives  to  the  views  expressed  by 
the  majority  of  the  Committee  of  Experts  regard- 
ing the  fimctions  of  the  Security  Council.  We 
believe  that  the  argument  in  the  Secretary-Gen- 
eral's memorandum  discloses  a  concept  of  the  func- 
tions of  the  Security  Council  which  is  far  too 
limited  and  which,  if  accepted,  would  have  sei'ious 
consequences  for  the  future  of  this  body.  In  rati- 
fying the  Charter,  the  United  Nations  placed  upon 
the  Security  Council  itself  very  great  responsibil- 
ities for  the  maintenance  of  peace  and  security. 
The  Charter  also  gives  it  powers  commensurate 
with  these  responsibilities.  Mr.  President,  I  re- 
peat that  I  am  unable  to  concur  in  the  proposal 
that  the  Iranian  question  should  at  this  time  be 
dropped  from  the  list  of  matters  of  which  the 
Council  is  seized. 

I  shoidd  like  to  say  one  word  in  this  connection 
about  the  resolution  which  the  representative  of 
France  submitted  a  week  ago  today  which,  I  under- 
stand, he  desires  to  have  voted  upon.''  As  I  read 
that  resolution  which,  like  the  resolution  of  April 
4,  deals  with  procedural  aspects  of  the  question, 
it  would,  if  passed,  in  effect  reverse  the  resolution 
of  April  4  and  remove  the  Iranian  question  from 
the  list  of  matters  which  the  Council  has  before  it 
and  has  not  ftdly  disposed  of.  We  believe  that 
the  procedure  already  decided  upon  by  the  Council 
is  preferable  to  that  proposed  by  M.  Bonnet,  and 
M'e  see  no  need  nor  any  valid  basis  for  reversing 
our  decision  of  April  4. 

In  any  case,  Mr.  President,  I  hope  that  we  can 
dis]Kise  today  of  this  particular  question  raised 
by  Mr.  Groniyko's  letter  of  April  6." 


752 


MAY  5,  1946 


753 


Summary  Statement  by  the  Secretary- General 


Matters  of  AVluch  the  Security  Coune'd  Is  Seized 
find  the  ■  Stage  Reached  in   Their  fonsi/ferations 

I'ur.siuiiit  lo  Kiile  11  of  the  Provisional  Rules  of 
Procedure  of  the  Security  Council,  I  submit  the 
following  Summary  Statement  of  matters  of 
which  the  Security  Council  is  seized  and  of  the 
stage  reached  in  their  consideration  on  22  April 
1946. 

1.  77/1;'  Iranian  Question. 

'riif  Iranian  application  dated  19  January  1940, 
was  considered  at  the  tliird  and  fifth  meetings  of 
the  Security  Council  in  London.  At  the  fifth  meet- 
ing, a  resolution  was  nnanimously  adopted  re- 
questing the  i^arties  to  inform  the  Council  of  any 
results  achieved  in  negotiations  between  them. 
The  SeciU'ity  Council  in  tlie  meanwhile  retained 
the  right  at  any  time  to  request  information  on  the 
progress  of  the  negotiations. 

The  Iranian  question  was  further  considered  at 
the  twenty-fifth,  twenty-sixth,  twenty-seventh, 
twenty-eighth,  twenty-ninth  and  thirtieth  meet- 
ings, and  after  various  procedural  decisions,  it  was 
resolved  by  nine  votes  (the  representatives  of  the 
U.S.S.R.  being  absent  and  the  representative  of 
Australia  abstaining)  that  ".  .  .  the  Council 
defer  further  proceedings  on  the  Iranian  applica- 
tion until  6  May,  at  which  time  the  Soviet  Govern- 
ment and  the  Iranian  Government  are  requested  to 
report  to  the  Council  whether  the  withdrawal  of 
all  Soviet  troojDS  from  the  whole  of  Iran  has  been 
completed  and  at  which  time  the  Council  shall  con- 
sider what,  if  any,  further  proceedings  on  the 
Iranian  appeal  are  required ; 

"Provided,  however,  that  if  in  tlie  meantime 
either  the  Soviet  Government  or  the  Iranian  Gov- 
ermnent  or  any  member  of  the  Security  Council 
reports  to  the  Secretary-General  any  developments 
which  may  retard  or  threaten  to  retard  the  prompt 
withdrawal  of  Soviet  troojts  from  Iran,  in  accord- 
ance with  the  assurances  of  the  Soviet  Union  to  the 
Council,  the  Secretary-General  shall  immediately 
call  to  the  attention  of  the  Council  such  reports 
Avhich  shall  be  considered  as  the  first  item  on  the 
agenda"  (thirtieth  meeting,  4  April  1946). 

6924  IT— 46 3 


By  letter  dated  6  April  194G  and  addressed  to 
the  I'resident  of  the  Security  Council,  Ambassa- 
dor A.  A.  Gromyko  proposed  that  the  Iranian 
(luestion  be  removed  from  the  agenda  of  the  Se- 
curity Council. 

By  letter  dated  9  April  1946  and  addressed  to  the 
Secretary-General,  the  Iranian  Ambassador  op- 
posed this  proposal. 

I?y  letter  dated  15  April  1946  and  addressed  to 
the  President  of  the  Security  Council,  the  Iranian 
Ambassador  communicated  the  text  of  a  telegram 
from  his  Government  stating  that  it  withdrew  its 
complaint  from  the  Security  Council. 

At  the  thirty-third  meeting  on  16  April  1946  the 
Secretary-General  submitted  a  memorandum  to  the 
President  of  the  Security  Council  concerning  the 
legal  effect  of  the  above  letters  from  Ambassador 
A.  A.  Gromyko  and  the  Iranian  Ambassador. 
The  Security  Council  decided  to  refer  this  memo- 
randum to  the  Committee  on  Experts. 

On  18  April  1946  Ur.  H.  Saba,  Chairman  of  the 
Connnittee  of  Exj^erts,  circulated  his  report  setting 
out  the  conclusions  of  the  Committee  of  E.xperts 
after  consideration  of  the  Secretai'y-General's 
memorandum. 

2.  The  Spanish  Situation. 

By  letters  dated  8  April  1946  and  10  April 
1946  addressed  to  the  Secretary-General,  the 
Polish  Ambassador,  under  Articles  34  and  35  of 
the  Charter,  requested  the  Security  Council  to 
jilace  on  its  agenda  the  situation  arising  from  the 
existence  and  activities  of  the  Franco  regime  in 
Spain  for  consideration  and  for  adoption  of  such 
measures  as  are  provided  for  in  the  Charter. 

The  Security  Council  considered  this  application 
at  its  thirty-fourth  and  thirty-fifth  meetings  and 
has  before  it  resolutions  submitted  by  the  Polish 
and  Australian  representatives. 

3,  Special  Agreements  vnder  Article  4-3  of  the 

Charter. 
At  its  second  meeting  the  Security  Council 
adopted  the  provisional  agenda  for  its  first  meet- 
ing recommended  by  the  Preparatory  Commis- 
sion. It  deferred  consideration  of  Item  10  of 
that  provisional  agenda : 


754 


DEPARTMENT  OF  STATE  BULLETIN 


"discussion  of  the  best  means  of  arriving  at 
the  conclusion  of  the  special  agi'eements  referred 
to  in  Article  43  of  the  Charter." 

The  question  is  being  examined  by  the  Military 
Staff  Committee. 

4.  Rules  of  Procedure  of  the  Security  Council. 

As  instructed  by  the  Security  Council  at  its  first 
and  twenty-third  meetings,  the  Committee  of  Ex- 
perts presented  the  revised  provisional  Rules  of 
Procedure  to  the  Security  Council  at  the  CounciFs 
thirty-first  meeting,  together  with  reconunenda- 
tions  concerning  communications  ,f rom  private  in- 
dividuals and  non-governmental  bodies. 

After  minor  amendments  the  Security  Council 
adopted  these  Rules  of  Procedure  and  reconmien- 
dations,  the  approved  text  being  reproduced  in 
Document  S/35. 

It  was  agreed  that  the  Committee  of  Experts 
should  formulate  additional  rules  of  procedure 
for  submission  to  the  Security  Council,  and  this 
work  is  proceeding. 

6.  The  Status  and  Rules  of  Procedure  of  the  Mili- 
tary Staff  Committee. 

At  the  twenty-third  meeting  of  the  Security 
Council  it  was  agreed  to  postpone  consideration  of 
the  Report  of  the  Military  Staff  Committee  con- 
cerning its  Status  and  Rules  of  Procedure  (Docu- 
ment S./IO).  It  was  also  agreed  that  pending  the 
approval  by  the  Security  Council  of  the  report  of 
the  Military  Staff  Committee,  the  Military  Staff 
Committee  was  authorized  to  carry  on  its  busi- 
ness along  the  lines  suggested  in  its  report. 

At  the  twenty-fifth  meeting  consideration  of  the 
report  was  .further  postponed  pending  examina- 
tion by  the  Committee  of  Experts.  The  Commit- 
tee of  Experts  has  not  yet  examined  the  report 
of  the  Military  Staff  Committee. 


6.  The  Application  for  the  Admission  of  Albania 
as  a  Member  of  the  United  Nations. 

By  letter  addressed  to  the  Acting  Secretary- 
General,  Mr.  Edvard  Kardelj,  Vice-Premier  of 
Yugoslavia,  requested  that  the  Security  Council 
recommend  to  the  General  Assembly  the  admission 
of  Albania  as  a  Member  of  the  United  Nations. 
The  letter  enclosed  a  telegram  from  Colonel-Gen- 
eral Enver  Hoxa,  President  of  the  Peoples'  Repub- 
lic of  Albania,  addressed  to  the  President  and 
Vice-Presidents  of  the  General  Assembly,  apply- 
ing for  the  admission  of  Albania  as  a  Member  of 
the  United  Nations. 

At  the  third  meeting  of  the  Security  Council  it 
was  agreed  without  objection  that  this  application 
be  placed  on  the  agenda  (page  47,  Security  Council 
Journal  No.  6).  At  the  eighteenth  meeting  Mr. 
Stettinius  made  the  following  proposal : 

"I  move  that  this  item  be  kept  on  our  agenda,  but 
disposition  be  deferred  pending  further  study 
until  the  Security  Council  convenes  at  the  tem- 
porary headquarters."  (Page  216,  Security  Coun- 
cil Journal  No.  14) . 

Seven  delegations  voted  in  favor  of  this  proposal 
and  the  President  declared  that  it  was  adopted. 

Trygve  Lie 

Secretary-General 


Confirmation 

On  April  22, 194(1  the  Senate  confirmed  the  nomi- 
nation of  Herschel  V.  Johnson  to  be  Deputy  Rep- 
resentative of  the  United  States,  with  the  rank  of 
Envoy  Extraordinary  and  Minister  Plenipoten- 
tiary, in  the  Security  Council  of  the  United 
Nations. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Forpigu  Ministers  : 
Meeting  of  Deputies 

Meeting  of  Foreign  Ministers 

Far  Eastern  Commission 

Allied-Swiss  Negotiations  for  German  External  Assets 

Anglo-American  Committee  of  Inquiry 

Fiftli  Pan  American  Railway  Congress 

International  Labor  Organization: 

Industrial  Committee  on  Iron  and  Steel 
Metal  Trades  Committee 

International  Office  of  Public  Health 

PICAO :  ' 
European  and  Mediterranean  Air  Route  Services  Conference 
Annual  Meeting  of  the  Assembly 
Near  Eastern  Route  Services  Conference 

International  Cotton  Advisory  Committee 

The  United  Nations : 
Security  Council 
Military  Staff  Committee 

Negotiating  Committee  on  League  of  Nations  Assets 
Special  Committee  on  Refugees  and  Displaced  Persons 
International  Court  of  Justice 
Commissions  of  the  Economic  and  Social  Council 
Economic  and  Social  Council 
International  Health  Conference 
General  Assembly :  Second  Part  of  First  Session 


London 

January  18 — temporarily 

adjourned 

Paris 

April  25 

Washington 

February  26 

Washington 

March  18 

Lausanne 

April  1-20 

Montevideo 

April  5 

Cleveland 

April  23-29 

Toledo 

May  2 

Paris 

April  24 

Paris 

April  24 

Montreal 

May  21 

Cairo 

June  25 

Washington 

May  7 

New  York 

March  25 

New  York 

March  25 

Geneva 

April  6-19 

London 

April  8 

The  Hague 

April  18 

New  York 

April  29 

New  York 

May  25 

New  York 

June  19 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  Apr.  28. 

'  Provisional  International  Civil  Aviation  Conference. 


755 


756 


DEPARTMENT  OF  STATE  BULLETIN 


Activities  and  Developments 

FOOD  SUPPLIES  FOR  JAPAN 


Policy  of  Far  Eastern  Commission 

The  Far  Eastern  Commission  at  its  weekly  meet- 
ing on  April  25  approved  the  following  policy  with 
respect  to  food  supplies  for  Japan : 

"In  view  of  the  world  food  shortage,  which  will 
be  at  its  most  critical  stage  over  the  next  three 
months,  and  in  view  of  the  conditions  prevailing  in 
the  territories  of  the  Allied  Powers,  the  Far  East- 
ern Commission : 

"(a)  Decides  as  a  matter  of  policy  that,  except 
to  the  extent  that  the  Supreme  Connnander  for 
the  Allied  Powers,  with  the  advice  of  the  Allied 
Council  for  Japan,  determines  that  imports  are 
essential  immediately  for  the  safety  of  the  Occupa- 
tion Forces,  no  imports  shall  be  permitted  which 
will  have  the  effect  of  giving  to  the  Japanese  a 
priority  or  preferential  ti'eatment  oxev  the  reqnii-e- 
ments  of  the  peoples  of  any  Allied  Power  or  lib- 
erated area;  and 

"(5)  Requests  the  United  States  Government, 
in  the  light  of  the  policy  set  out  above,  immediately 
to  review  the  food  import  program  for  Japan  in 
consultation  with  the  United  Nations  Relief  and 
Rehabilitation  Administration,  the  Combined 
Food  Board,  and  other  allocating  authorities." 

Discussion  by  Acting  Secretary  Acheson 
at  Pi-ess  Conference 

At  his  press  and  radio  news  conference  on  April 
2G,  Acting  Secretary  Acheson  urged  drastic  action 
by  the  United  States  to  meet  its  goals  in  supplying 
food  allocated  to  the  rest  of  the  world.  In  discu.ss- 
ing  the  food  situation,  Mr.  Acheson  pointed  out 
that  during  April  the  United  States  was  committed 
to  exporting  1,000,000  tons  of  wheat  or  its  equiva- 
lent, but  that  by  the  end  of  April  it  will  actually 
have  sent  only  550,000  tons,  or  55  percent. 

The  Acting  Secretary  said  that  the  occupied 
countries  of  Germany  and  Japan  will  receive  only 
about  one  third  of  their  allocated  amount  during 
the  month,  while  the  rest  of  the  needy  nations  will 
receive  two  thirds.    He  explained  that  allocations 


to  areas  other  than  Germany  and  Japan  are  based 
upon  a  higher  scale  of  computation  of  food  needs, 
the  daily  individual  Japanese  need  being  set  at  970 
calories,  that  for  Germans  at  1,250. 

For  April,  he  said,  200,000  tons  of  wheat  were 
asked  for  Japan,  150,000  tons  were  allocated,  and 
48,000  tons  will  actually  be  sent.  Figures  for  Ger- 
many were  50,000  tons  allocated  and  10,000  tons 
to  be  sent. 

Asked  whetlier  he  felt  there  was  severe  danger 
of  food  riots  in  Germany  and  Japan,  he  said  he 
thought  there  was. 

Asked  what  sort  of  drastic  action  should  be 
taken,  Mr.  Acheson  said  that  was  a  matter  for  the 
Department  of  Agriculture. 

In  reply  to  questions  about  the  Far  Eastern 
Commission  policy  opposing  any  shipments  of 
food  to  Japan  which  might  give  to  the  Japanese 
priority  over  peoples  of  any  Allied  or  liberated 
area,  the  Acting  Secretary  stressed  that  such  has 
always  been  the  position  of  the  United  States.  He 
said  we  have  always  acted  on  the  principle  that 
food  being  imported  into  Jaj^an  is  essential  im- 
mediately for  the  safety  of  the  occupation  forces, 
and  that  no  imports  are  permitted  which  would 
give  the  Japanese  preferential  treatment  over  re- 
quirements of  Allied  or  liberated  countries. 

Remiiided  that  the  Commission  had  recom- 
mended that  the  United  States  review,  in  the  light 
of  the  Commission's  declared  policy,  food-import 
plans  for  Japan,  Mr.  Acheson  said  the  Govern- 
ment is  reviewing,  and  will  continue  to  review,  all 
food  programs  for  Japanese,  Germans,  and  all 
others.  Food  plans  are  being  reviewed  two  and 
three  times  weekly,  he  said. 

Statement  by  Assistant  Secretary  Hilldring 

[Rele.Tsed  to  the  press  April  25] 

The  State  Department  is  pleased  to  learn  by  the 
action  of  the  Far  Eastern  Commission  that  it  ap- 
proves the  policy  under  which  the  United  States 
Ciovernment  has  heretofore  been  requesting  alloca- 
tions of  food   for  the  Japanese.     Unfortmiately 


MAY  5,  1946 


757 


because  of  the  world  shortage  of  food  it  has  not 
been  possible  even  under  these  very  rijjid  standards 
to  meet  the  minimum  requirements,  and  actual 
shipments  have  fallen  far  below  the  approved  allo- 
cation under  these  vei-y  minimum  requirements. 

The  matter  of  food  allocations  is.  of  course,  sub- 
ject to  continuing  revision  in  the  light  of  develop- 
ing conditions. 

UNRRA  OPERATIONS:  SIXTH  QUARTERLY 
REPORT ' 

President's   Letter   of  Transmittal   to   Congress 

To  tht'  (' (Dig reus  of  the  United  States  of  America: 

I  am  transmitting  herewith  the  sixth  report  to 
Congress  on  UNRRA  operations  for  the  quarter 
ending  December  31,  1945. 

During  this  quarter,  while  UNRRA"s  shipments 
reached  unprecedented  figures,  recipient  countries 
experienced  unprecedented  needs.  Crop  failures 
resulted  in  continuance  of  near  famine  conditions. 
The  hardships  of  winter  were  innninent. 

At  the  year's  end.  moreover,  critical  shortages 
(notably  of  wheat,  fats,  meat  for  Europe,  and  of 
rice  for  China)  threatened  execution  of  even  the 
limited  relief  program  that  had  been  planned. 
For  millions  survival  was,  and  still  is,  the  issue, 
antl  for  UNRRA  the  challenge  to  be  met.  World 
recovery  still  remains  a  formidable  task. 

Oidy  concerted  action  by  the  United  Nations 
(and,  primarily,  of  the  producing  countries)  can, 
even  at  this  date,  avert  prolongation  of  emergency 
conditions  throughout  the  world.  Now,  more  than 
ever,  intensified  etforts  to  match  need  with  sup- 
ply, are  required  of  us.  We  must  not  fail.  For 
our  continued  paiticipation  in  UNRRA  marks  the 
fulfillment  of  a  pledge  and  the  discharge  of  a 
debt  to  those  who,  beyond  the  connnon  sacrifice 
of  life  and  material  resources,  enduied  the  devas- 
tation and  brutalities  that  we  were  spared.  Con- 
science alone  demands  that  we  meet  the  full  meas- 
ure of  our  obligation. 

But  prudence  aiid  self-interest  no  le.ss  dictate 
our  policy.  Neither  peace  nor  prosperity  can  be 
assured  to  us  while  famine,  disease,  and  destitu- 
tion deprive  others  of  the  means  to  live,  let  alone  to 
prosper.  Relief  and  rehabilitation  are  paramount 
necessities  for  that  world  recovery  which  is  a  pri- 
mary objective  of  our  national  policy.  They  pro- 
vide the  best  insurance  against  social  chaos  and 
moral  disintegration  and  the  surest  guarantee  for 

692417 — 16 ( 


growth  of  democratic  modes  of  thought  and  action. 
Tlie  emergency,  whicii  UNRRA  was  designed  to 
meet,  continues.  Months  immediately  ahead  are 
critical. 

While  ours  is  the  largest  contribution  to 
UNRRA's  funds,  it  is  matched  by  like,  propor- 
tionate conti'ibutions  of  30  other  nations.  This 
gives  significance  to  UNRRA  altogether  beyond 
the  relief  that  it  provides.  In  UNRRA  the  United 
Nations  have  created  the  first  international  oper- 
ating agency  through  wliich  to  test  and  to  perfect 
our  powers  of  cooperation.  Such  powers  are  not 
inborn.  They  are  cultivated  by  constant  exercise 
and  the  progressive  enlargement  of  mutual  experi- 
ence. In  UNRRA  a  precedent  has  been  created 
that  may  prove  a  huuhnark  in  our  progress  toward 
solidarity  and  conunon  action  by  the  nations  of 
the  world. 

Harry  S.  TRrji.vx. 
The  White  House 

March  2:2,  mO 

INAUGURAL  SITTING  OF  THE 
INTERNATIONAL  COURT  OF  JUSTICE 

The  International  Court  of  Justice  held  its  in- 
augural sitting  on  the  afternoon  of  April  18  in  the 
Peace  Palace  at  The  Hague.  Princess  Juliana  and 
Prince  Bernhard  of  the  Netherlands  attended  the 
meeting  as  well  as  members  of  the  Diplomatic 
Corps,  high  goverunient  officials,  and  officials  of 
the  United  Nations. 

Solemn  declarations  were  made  by  14  judges  of 
the  Court  in  conformity  with  Article  20  of  the 
Statute  of  the  Court  which  is  attached  to  and  made 
a  part  of  the  Charter  of  the  United  Nations. 
Alejandro  Alvarez  of  Chile  being  the  only  mem- 
ber absent.  Messages  were  read  from  Secretary- 
General  Trygve  Lie  and  the  retiring  president  of 
the  League  of  Nations,  Carl  Joachim  Hambro. 
Addresses  were  delivered  by  Paul-Henri  Spaak. 
l^resident  of  the  General  Assembly;  Ivan  Kerno, 
United  Nations  Assistant  Secretary-General ;  Jan 
Herman  van  Royen.  Netherlands  Foreign  Minis- 
ter: The  Hague  Burgouuister  de  Monchy;  and 
Jose  Gustavo  Guerrero,  president  of  the  Court. 

Discussions  in  progress  deal  primarily  with  the 
rules  of  the  Court. 

'  The  text  of  the  Report  is  obtainable  from  the  Super- 
intendent of  Documents.  U.S.  Governmeut  Printing  Office, 
Washington  2.5,  D.C. 


The  Record  of  the  Week 


U.  S.  Policy  in  Maintaining  and  Developing  International  Law 


April  20,  194s. 
My  Dear  Me.  Cotideet  : ' 

I  have  received  your  letter  of  April  1,  1946  in 
which  you  refer  to  our  previous  con-espondence 
concerning  the  Annual  Meeting  of  the  American 
Society  of  International  Law  and  request  that,  in 
view  of  my  inahility  to  be  present,  I  send  you  a 
written  statement  of  my  views  in  regard  to  "the 
desirability  of  our  maintaining  and  developing  in- 
ternational law  at  the  present  time,  and  the  policy 
of  the  United  States  in  that  regard".  I  am  glad 
to  have  an  opportunity  of  doing  so. 

The  two  devastating  World  Wars  within  our 
lifetime  have  shown  the  necessity  of  doing  every- 
thing possible  to  prevent  a  third.  In  my  opinion 
the  only  way  to  preserve  our  civilization  is  for 
peace-loving  nations  to  give  unstinted  support  to 
measures  for  insuring  the  observance  of  interna- 
tional law,  and  to  do  everything  possible  to  see 
that  it  develops  in  such  a  way  as  to  meet  the  needs 
of  a  rapidly  changing  world.  Most  of  the  inven- 
tions of  recent  years  have  enormous  potentialities 
for  good  to  the  peoples  of  our  own  and  other  lands 
if  they  are  directed  along  the  right  channels.  On 
the  other  hand,  inventions  which  are  designed  for, 
or  may  be  turned  to,  purposes  of  destruction  have 
been  multiplied  and  made  more  and  more  deadly. 
The  question  then  is :  Which  are  to  triumph,  meas- 
ures of  peace  or  the  machinery  of  destruction? 

It  is  the  determination  of  our  own  Government 
and  the  Governments  of  other  countries  with  whicli 
we  are  joined  in  the  Organization  of  the  United 
Nations  that  measures  for  the  maintenance  of  peace 
under  international  law  shall  prevail. 

The  development  of  international  law  has  been 
a  long  and  sometimes  painful  process,  interrupted, 
as  it  has  been  over  and  over  again,  by  bloody  and 
destructive  wars,  the  most  devastating  of  which 

'  Frederic  R.  Coudert  is  Pre-sident  of  the  American  So- 
ciety of  International  Law. 


has  just  ended.  But  this  is  not  a  reason  why  those 
who  have  been  hoping  and  working  for  the  main- 
tenance of  peace  should  give  up.  On  the  contrary, 
it  should  strengthen  their  determination  to  have 
IDeace  on  earth  firmly  established. 

The  observance  and  enforcement  of  the  rules  of 
international  law  have  always  been  a  matter  of 
deep  concern  to  the  Department  of  Stat«.  It  is  an 
interesting  fact  that  John  Marshall,  before  he  be- 
gan his  long  and  distinguished  service  as  Chief 
Justice  of  the  United  States,  served  for  a  time  as 
Secretary  of  State.  As  Chief  Justice  he  rendered 
the  opinion  of  the  court  in  a  nun^ber  of  cases  which 
have  ever  since  been  recognized  as  landmarks  in 
the  develo})ment  of  international  law.  I  refer 
especially  to  his  opinions  in  Murray  v.  The 
/Schooner  Charming  Betsy,  2  Cranch  64,  and  The 
Schooner  Exchange  v.  McFaddon,  7  Cranch  116. 
In  the  former  he  expressed  the  opinion  that  "An 
Act  of  Congress  ought  never  to  be  construed  to 
violate  the  law  of  nations  if  any  other  possible 
construction  remains."  In  the  latter  he  laid  stress 
upon  the  equality  and  sovereignty  of  states  and 
the  respect  due  from  one  state  to  another,  and  the 
"common  interest  impelling  them  to  mutual  inter- 
course". 

If  the  common  interest  of  states  pronounced  by 
the  great  Chief  Justice  was  of  such  importance  in 
the  year  1812,  surely  it  is  a  matter  of  the  greatest 
concern  in  our  own  time,  when  contacts  between 
states,  even  those  most  widely  separated,  have  mul- 
tiplied and  become  so  close.  Those  who,  despite 
the  teaching  of  history,  still  cling  to  the  idea  of 
national  self-sufficiency  and  isolation,  point  to  the 
failure  of  the  League  of  Nations  to  prevent  the 
Second  World  War. 

It  is  true  the  League  was  not  a  perfect  organiza- 
tion, but  its  weakness  was  due  very  largely  to  the 
failure  of  our  own  coimtry  to  follow  President 
Wilson's  leadership  and  to  join  and  give  it  our  full 


758 


MAY  5,  J 946 


759 


support.  Nothing  is  to  he  gained,  however,  by 
arguing  that  question  or  lamenting  past  failure. 
It  is  our  duty  to  turn  our  eyes  to  the  future  and 
leave  nothing  undone  toward  supporting  the  new 
Organization  of  the  United  Nations. 

While  international  law  governs  relations  be- 
tween states,  its  prevalence  and  the  success  of  the 
United  Nations  in  keeping  the  peace  will  depend 
ultimately  upon  the  support  which  the  Organiza- 
tion will  leceive  from  the  people  of  the  various 
members  of  the  family  of  nations.  If  the  people 
of  our  own  country,  which  is  honored  by  having 
the  headquarters  of  the  Organization  in  its  terri- 
tory, are  to  be  made  to  realize  that  it  forms  an  im- 
portant part  of  their  lives  and  is  the  only  means  of 
preventing  the  sacrifice  of  our  young  men  in  an- 
other World  War,  there  will  be  needed  the  active 
support  of  our  churclies  and  schools  and  organiza- 
tions devoted  to  the  advancement  of  international 
law  and  peace  on  earth. 

Not  the  least  of  these  organizations  is  the  Ameri- 


can Society  of  International  Law,  which  you  rep- 
resent. This  Society  has  performed  useful  serv- 
ices in  the  past  in  furnishing  instruction  and  lead- 
ersliip  in  the  field  of  international  law,  and  I  am 
confident  that  it  will  be  even  more  useful  in  the 
future,  by  aiding  in  the  developing  and  shaping  of 
international  law  to  meet  changing  conditions  in 
the  world,  and  in  giving  support  to  the  Organiza- 
tion of  the  United  Nations. 

In  my  judgment  one  of  the  most  impressive  ways 
in  which  the  United  States  could  indicate  its  sup- 
port of  the  United  Nations  woidd  be  a  declaration 
by  the  United  States  of  acceptance  of  the  jurisdic- 
tion of  the  International  Court  of  Justice  in  the 
types  of  legal  disputes  enumerated  in  Article  36  of 
the  Statute  of  the  Court. 

Regretting  that  I  shall  not  be  able  to  attend  the 
meeting  of  your  Society,  and  wishing  it  the  best 
success  in  its  important  delibei'ations,  I  am 
Sincerely  yours, 

Jaaies  F.  Byrnes 


The  British  Loan  and  Foreign  Trade 


BY  ACTING  SECRETARY  ACHESON 


WE  J I  AVE  A  CHANCE  tlirough  the  British- Amer- 
ican financial  agreement — one  last,  clear 
chance — to  I'estore  world  trade,  to  put  it  on  a  basis 
which  will  permit  a  person  who  sells  goods  in  Eng- 
land to  get  some  money  which  he  can  then  use  in 
Brazil  or  tlie  United  States,  France  or  any  other 
country.  If  Congress  approves  the  agreement,  we 
can  move  toward  a  condition  of  multilateral  trade, 
in  which  every  sale  gives  you  a  chance  to  buy  in  any 
market  anywhere  in  the  world,  a  situation  which 
will  increase  production  everywhere  because 
everybody  will  have  a  chance  to  compete  freely  in 
every  market. 

The  3%  billion-dollar  credit,  added  to  the  Cana- 
dian loan  of  a  billion  dollars  and  possibly  to  other 
loans  that  are  in  the  ofRng,  will  take  care  of  the 
deficit  in  the  British  balance  of  payments  for  the 
next  few  years  and  make  it  possible  for  them  to 
join  with  us  in  our  efforts  to  remove  restrictions 
on  international  trade. 
Without  the  credit  the  British  would  be  forced 


to  adojjt  the  only  alternative  open  to  them — a  des- 
perate one  which  offers  no  real  hope  to  them  or 
anyone  else.  It  is  the  alternative  of  trying  to  pull 
the  Empire  closer  and  closer  together,  of  saying, 
"We  will  make  a  contract  to  sell  to  Australia  and 
they  will  buy  from  England.  Or,  Australia  will 
sell  to  South  Africa  and  buy  from  England."  Deals 
within  the  Empire :  that  is  the  alternative.  It  is 
ail  alternative  which  would  mean  a  lowered  stand- 
ard of  living  throughout  the  world;  it  would  mean 
lowered  markets  for  the  United  States.  For  the 
prosperity  of  this  country  can  no  more  continue  in 
the  face  of  a  descending  and  impoverished  world 
than  it  could  continue  in  the  30's.  These  are  the 
alternatives,  and,  faced  with  this  situation,  some 
of  the  criticisms  I  hear  seem  to  me  to  be  uninfoiraed 
and  almost  frivolous. 

To  understand  why  the  Anglo-American  finan- 
cial agreement  is  the  key  to  the  world  trade  situa- 

Summary  of  an  address  delivered  before  the  National 
Convention  of  the  Women's  Action  Committee,  Louisville, 
Ky..  on  Apr.  2.5,  and  released  to  the  press  on  the  same  date. 


760 


DEPARTMENT  OF  STATE  BULLETIN 


tion,  we  ha  vi'  to  consider  the  position  of  the  United 
Kingdom  in  relation  to  world  trade,  world  pro- 
duction, world  exchange  of  goods,  and  world  com- 
merce. Let  us  think  of  the  position  of  the  Uniteil 
Kingdom,  not  merely  because  of  the  tremendous 
importance  of  what  it  buys  and  sells  but  also  be- 
cause of  t  lie  ti'emendous  importance  of  its  currency, 
which,  together  with  the  dollar,  provided  the  trad- 
ing mechanism  for  one  half  of  the  total  pre-war 
world  trade. 

Britain  and  the  United  States  provide  the  cur- 
I'eiicy  which,  after  this  war  and  the  elimination  of 
Germany  and  Japan  frimi  prominence  in  interna- 
tional commerce,  will  be  the  currency  with  which 
two  thirds  or  three  quarters  of  the  trade  of  the 
world  is  conducted. 

Let  us  look  a  little  more  closely  at  the  position 
of  England.  Befoi-e  the  war  one  fifth  of  the  en- 
tire tratle  of  the  world  moved  in  and  out  of  the 
ports  of  Great  Britain.  Great  Britain  and  the 
British  Empire,  the  United  States  and  Canada  be- 
tween them  conducted  one  half  of  all  world  trade. 
British  trade.  Canadian  trade,  American  trade  af- 
fected every  single  corner  of  the  earth,  affected 
France  and  all  of  Europe,  affected  Indonesia. 
China,  Japan.  Every  part  of  the  world  was  acti- 
vated by  British  and  American  trade. 

Now,  what  is  the  position  of  Great  Britain  to- 
da_y?  During  the  war  many  things  happened  to 
that  island.  One  of  the  things  was  that  through 
force  of  necessity,  through  the  virility  of  its  own 
administration  and  its  own  character,  that  island 
converted  almost  its  entire  economy  to  the  produc- 
tion of  war  commodities.  Life  throughout  Britain 
was  completely  disrupted  to  produce  materials  for 
tiie  wai-  and  to  cany  on  the  war.  I  am  not  saying 
this  because  this  loan  is  a  reward  for  virtue;  I 
am  saying  it  to  indicate  the  condition  of  that  island 
at  the  end  of  the  war.  For  instance.  British  ex- 
ports declined  7t)  percent,  and  at  the  end  of  this 
year  the  British  will  have  accumulated  14  billion 
dollars  in  sterling  debts  to  other  coimtries.  I 
don't  mention  that  merely  because  it  is  a  tough 
thing  for  Britain  to  accmnulate  debt;  we  have  ac 
cunudated  debt  ourselves.  We  borrowed  billions 
from  our  own  people.  But  the  important  fact 
about  the  British  is  that  they  accumulated  debt 
to  other  people. 

In  terms  of  world  trade  this  means,  first,  that  for 
decades  and  decades  the  British  will  have  to  ex- 
1  )ort  goods  for  which  they  get  no  pay.   Those  goods 


will  have  to  be  exportetl  to  pay  off  the  sterling  debt. 
That  is  inevitable.  That  must  happen.  That  is 
the  burden  the  war  brought  upon  Britain.  It  is 
our  hope  and  the  hope  of  the  British  that  some  of 
their  creditors  will  agree  to  scale  down  a  part  of 
that  debt  as  part  of  their  war  contribution.  But 
there  will  certainly  remain  a  very  substantial 
amount  which  Britain  will  have  to  work  off 
through  exports.  And  that  means  that,  unless 
drastic  steps  are  taken  to  secure  an  interchange- 
ability  of  currency,  the  British  must  work  for 
their  individual  creditors,  and  their  individual 
creditors  if  they  are  to  realize  upon  their  debt  must 
accept  British  goods  and  services  only.  That  prob- 
lem, if  not  dealt  with  in  some  way,  would  bring- 
about  a  channeling  of  economic  activity  which 
could  only  result  in  the  division  of  the  world  into 
closed  economic  blocs. 

In  the  Anglo-American  financial  agreements  the 
British  agree  not  only  to  repay  the  loan  with 
interest  but  to  take  immediate  steps  to  remove 
restrictions  on  trade  and  support  our  trade  pro- 
posals. These  proposals  were  put  forward  with 
a  view  toward  freeing  world  trade  of  discrimina- 
tory and  lianipering  restrictions  of  all  kinds. 
The  proposals  relate  to  such  matters  as  the  reduc- 
tion of  imperial  preferences  comparable  to  the 
reductions  in  our  tariff;  the  lifting  of  quantitative 
quotas  and  embargoes  of  a  discriminatory  nature; 
the  limiting  of  subsidies  on  exports  to  exceptional 
and  well-defined  cases;  the  elimination  of  restric- 
tions on  the  commerce  of  the  world  by  cartels  and 
combines  through  international  action;  the  han- 
dling of  the  difficult  special  problems  of  surplus 
commodities;  the  creation  of  an  international 
trade  organization  under  the  Economic  and  Social 
Council  of  the  LTnited  Nations;  and  the  efforts  to 
provide  full  and  regular  employment  in  each  coun- 
try by  domestic  action  which  will  avoid  harmful 
effects  on  the  employment  situation  in  neighbor- 
ing countries. 

In  the  agreement  we  ai'i'ived  at  an  understand- 
ing with  a  nation,  whose  position  in  world  com- 
merce is  unique,  to  move  forward  towards  the 
I'emoval  of  controls  and  restrictions  which  hamper 
and  reduce  international  trade  so  that  both  of  us 
and  other  nations  may  prosper  in  an  expanding 
world  economy.  It  is  inconceivable  to  me  that 
the  American  people  or  the  Congress  can  fail  to 
recognize  how  our  own  vital  interests  are  served 
bv  this  agreement. 


MAY  5,  1946 


761 


Interdependence  of  Political  and  Economic  Freedom  in  Poland 


[Released  to  the  press  April  24] 

On  April  24,  1946  notes  were  exchanged  be- 
tween the  Polish  Ambassador  and  the  Acting  Sec- 
letary  of  State  regarding  the  successful  conclu- 
sion of  negotiations  for  the  extension  by  the 
Export-Import  Bank  of  the  limited  credit  of 
$40,()0(),0()0  to  Poland.  This  credit  is  for  the  spe- 
cific jjurpose  of  enabling  that  country  to  purchase 
locomotives  and  coal  cars  in  the  United  States 
which  will  facilitate  the  transportation  of  coal 
from  Poland  to  the  countries  of  western  Europe 
and  the  Balkans.  It  is  therefore  calculated  to 
help  the  people  of  Europe  at  the  same  time  that 
it  helps  the  people  of  Poland  and  it  has  been 
authorized  with  that  purpose  in  mind. 

It  has  been  and  will  continue  to  be  the  policy 
of  the  United  States  Government  to  assist  the 
Polish  people  in  their  valiant  efforts  to  overcome 
the  destruction  and  devastation  of  the  war. 
This  Government  has  been  pleased  to  assist  in 
the  UNRRA  program  for  Poland  and  has  also 
made  a  credit  available  for  the  purchase  of  sur- 
plus projDerty  suitable  for  reconstruction  as  well 
as  the  credit  now  authorized  for  the  purcliase  of 
lailway  equipment. 

In  the  view  of  this  Government,  however,  eco- 
nomic freedom  and  political  freedom  are  interde- 
pendent, and  for  that  reason,  this  Government 
has  made  it  clear  on  numerous  occasions  that  the 
election  commitments  undertaken  at  Yalta  and 
Potsdam  must  be  fulfilled  by  Poland  in  their  en- 
tirety. It  remains  true  today,  as  it  was  when 
that  pledge  was  first  given,  that  for  the  Polish 
people  to  achieve  their  goals  of  freedom  and  democ- 
racy, they  must  be  given  the  opportunity  freely 
to  elect  a  government  which  represents  the  will 
of  the  Polish  people. 

It  was  therefore  the  view  of  this  Government 
that  it  would  not  be  justified  in  authorizing  such 
credit,  unless  in  so  doing  the  American  people 
could  receive  reassurance  that  free  and  unfettered 
elections  will  be  held  in  accordance  with  the  Yalta 
and  Potsdam  pledge,  and  that  commercial  rela- 
tions between  the  tM'o  countries  can  develop  in 
accordance  with  the  nondiscriminatory  principles 
of  our  economic  foreign  policy.  Accordingly  it 
has  sought  and  obtained  such  assurances  from  the 


Provisional  Government  of  Poland,  as  indicated 
in  the  notes  that  are  made  public  concurrently 
herewith.  This  Government  has  also  made  it 
clear  to  the  Provisional  Government  of  Poland 
that  the  question  of  any  further  credit  will  be 
considered  in  the  light  of  the  fulfillment  of  the 
assurances  given. 

$40,000,000  LOAN  TO  POLISH  PROVISIONAL 
GOVERNMENT 

Exchange  of  Notes  Between  the  Acting  Becretartj 
of  Htate  and  the  Amhassador  of  Poland^ 

April  2Jt,  19JiC,. 
Excellency  : 

.  The  Government  of  the  United  States,  desirous 
of  aiding  the  people  of  Poland  in  their  efforts  to 
repair  war  damages  and  to  reconstruct  the  Polish 
economy,  expresses  its  satisfaction  at  the  successful 
conclusion  of  the  negotiations  concerning  the  open- 
ing of  credits  of  $40,000,000  to  the  Provisional 
Government  of  Poland  by  the  Export-Import 
Bank  of  Washington,  D.C.,  and  the  satisfactory 
conclusion  of  arrangements  for  extending  credits 
up  to  $50,000,000  for  the  purchase  by  Poland  of 
United  States  surplus  projierty  held  abroad. 

The  Government  of  the  United  States  hopes  that 
these  agreements  will  prove  to  be  the  first  step 
toward  durable  and  mutually  beneficial  economic 
and  financial  cooperation  between  the  Govern- 
ments of  the  two  countries.  It  believes,  however, 
that  such  cooperation  can  develop  fully  only  if 

(1)  a  general  framework  is  established  within 
which  economic  relations  between  Poland  and  the 
United  States  can  be  effectively  organized  on  the 
l)asis  of  princijiles  set  forth  in  Article  VII  of  the 
Mutual  Aid  Agi-eement  of  July  1,  1942,  so  as  to 
result  in  the  elimination  of  all  forms  of  discrimina- 
tory treatment  in  international  commerce,  and  the 
reduction  of  tariffs  and  other  trade  barriers; 

(2)  the  Provisional  Government  of  Poland  is  in 
accord  with  the  general  tencjr  of  the  "Projiosals  for 
Expansion  of  World  Trade  and  Employment" 
recently  transmitted  to  the  Provisional  Govern- 
ment of  Poland  by  the  Government  of  the  United 

'  Released  to  the  press  Apr.  24. 


762 


DEPARTMENT  OF  STATE  BULLETIN 


States,  and  undertakes  together  with  the  Govern- 
ment of  the  United  States  to  abstain,  pending  the 
participation  of  the  two  Governments  in  the  gen- 
eral international  conference  on  trade  and  employ- 
ment contemplated  by  the  "Proposals",  from  adopt- 
ing new  measures  which  would  prejudice  the  objec- 
tives of  the  conference ; 

(3)  the  Provisional  Government  of  Poland  will 
continue  to  accord  to  nationals  and  corporations  of 
the  United  States  the  treatment  provided  for  in 
the  Treaty  of  Friendship,  Commerce  and  Consular 
Eights  between  the  United  States  and  Poland,' 
signed  June  15,  1931 ; 

(4)  the  Government  of  the  United  States  and 
the  Provisional  Government  of  Poland  will  make 
both  adequate  and  effective  compensation  to  na- 
tionals and  corporations  of  the  other  country  whose 
properties  are  requisitioned  or  nationalized ; 

(5)  the  Provisional  Government  of  Poland  and 
the  Government  of  the  United  States  agree  to 
afford  each  other  adequate  opportunity  for  con- 
sultation regarding  the  matters  mentioned  above, 
and  the  Provisional  Government  of  Poland,  recog- 
nizing that  it  is  the  normal  practice  of  the  Gov- 
ernment of  the  United  States  to  make  public  com- 
prehensive information  concerning  its  interna- 
tional economic  relations,  agrees  to  make  available 
to  the  Government  of  the  United  States  full  infor- 
mation, similar  in  scope  and  character  to  that  nor- 
mally made  public  by  the  United  States,  concern- 
ing the  international  economic  relations  of  Poland. 

The  Government  of  tlie  United  States  under- 
takes herewith  to  honor  and  to  discharge  faithfully 
the  obligations  which  relate  to  the  United  States 
specified  in  points  (1)  through  (5)  above,  and 
would  be  pleased  to  receive  a  parallel  undertaking 
from  the  Provisional  Government  of  Poland  with 
respect  to  those  obligations  specified  in  points  ( 1 ) 
tlirough  (5)  above  which  relate  to  Poland. 

Accept  [etc.] 

Dean  Acheson 
Acting  Secretmy  of  State 

April  2Jf,  19 Jif). 
Sir: 

The  receipt  is  acknowledged,  on  behalf  of  the 
Provisional  Government  of  Poland  of  your  note 
of  April  24, 1946  reading  as  follows : 

[Hfii-e  follows  the  text  of  the  U.  S.  note  printed  above.] 

'  Treaty  Series  862. 

"  Released  to  the  press  Apr.  24. 


Under  instructions  from  my  Government,  I  have 
the  honor  to  communicate  to  you  the  following : 

The  Provisional  Government  of  Poland  shares 
the  views  of  the  United  States  as  expressed  by  the 
Secretary  of  State  and  undertakes  herewith  to 
honor  and  to  discharge  faithfully  the  obligations 
which  relate  to  Poland  specified  in  points  (1) 
through  (5)  of  the  note  under  reference. 

Accept  [etc.] 

OSKAR  Lange 

PROPOSED  POLISH  ELECTIONS 

Note  From  the  Polish  Ambassador  to  the  Secre- 
tary of  State  ^ 

April  2i,  19Ifi. 

The  Ambassador  of  Poland  presents  his  compli- 
ments to  His  Excellency  the  Secretary  of  State  and 
has  the  honor  to  comnumicate  to  him  the  following 
statement. 

Certain  information  recently  published  in  the 
press  concerning  the  purpose  of  the  Referendum 
proposed  by  the  six  Political  Parties  which  sup- 
port the  Provisional  Government  of  National 
Unity  seems  to  imply  that  the  Referendum  is  to  be 
a  substitute  for  the  general  elections.  This  is  not 
tlie  case.  The  Referendum  is  a  measure  prepara- 
tory to  the  election.  The  principal  question  to  be 
submitted  for  decision  must  be  clarified  by  popu- 
lar vote  before  elections  are  held.  This  question 
is  whether  the  future  parliament  is  to  be  comjDosed 
of  one  or  two  houses.  This  consultation  is  to  take 
place  this  summer,  by  which  time  it  is  hoped  that 
the  major  part  of  displaced  citizens  of  Poland  will 
be  returned  home.  Thus,  the  Government  will 
leave  to  the  Electorate  decisions  on  this  basic  con- 
stitutional issue. 

The  general  elections  will  take  place  this  year  in 
accordance  with  the  stipulations  of  Article  IX :  A 
of  the  Agreement  of  Potsdam  of  August  2,  1945, 
which  notes  that  the  Polish  Provisional  Govern- 
ment "has  agreed  to  the  holding  of  free  and  un- 
fettered elections  as  soon  as  possible  and  on  the 
basis  of  universal  suffrage  and  secret  ballot  in 
which  all  democratic  and  anti-Nazi  parties  shall 
have  the  right  to  take  part  and  to  put  forward  can- 
didates, and  that  representatives  of  the  Allied 
Press  shall  enjoy  full  freedom  to  report  to  the 
World  upon  developments  in  Poland  before  and 
during  the  elections." 

OsKAR  Lange 

(Coiitinued  on  page  773) 


MAY  5,  1946 


763 


Proposed  Limitation  on  Importation  of  Swiss  Watches 


EXCHANGE  OF  MEMORANDA  BETWEEN  U.S.  AND  SWISS  GOVERNMENTS 


[Released  to  the  press  April  22] 

2'ext  of  an  exchange  of  memoranda  hehveen  the 
United  States  and  Sivitzerland  concerning  the  ex- 
portation of  watches  and  watch  movements,  watch 
farts,  loatch-making  machinery,  and  jewel  hear- 
ings from  Switserland  to  the  United  States  during 
the  period  Janvarij  1,  lOJ^  to  March  31, 19^7 

LEGATION  OF  SWITZERLAND 

Washington  8,  D.  C. 

April  22,  lDJi6. 

The  Legation  of  Switzerland  wishes  to  refer  to 
recent  conversations  which  have  taken  phice  be- 
tween officials  of  the  Governments  of  the  United 
States  and  Switzerland  in  regard  to  a  number  of 
problems  affecting  the  importation  into  the  United 
States  of  Swiss  watclies,  watch  movements  and 
parts,  watchmaking  machinery  and  jewel  bear- 
ings. 

Reference  was  made  in  these  conversations  to 
the  fact  that  the  United  States  watch  manufac- 
turing industry  had  during  the  last  few  years  been 
converted  largely  to  war  production,  and  in  con- 
trast to  many  other  industries  similarly  converted, 
the  absence  of  American  production  had  been 
largely-  compensated  by  imports  of  Swiss  watches. 
The  fact  that  as  large  an  accumulated  civilian  de- 
mand did  not  exist  in  the  case  of  watches  as  in 
other  commodities,  therefore,  appeared  likely  to 
create  certain  difliculties  for  the  American  watcli 
manufacturing  industry  during  its  period  of  re- 
conversion to  civilian  pi'oduction.  It  was  also 
recognized  that,  by  the  terms  of  the  Trade  Agree- 
ment between  the  United  States  and  Switzerland 
concluded  in  19.36,^  no  quantitative  limitations  were 
to  be  placed  by  the  United  States  on  the  importa- 
tion of  watches  and  watch  movements  into  the 
United  States.  It  was  further  recognized  that  this 
provision  of  the  Trade  Agreement  should  not  be 
allowed  to  operate  in  a  manner  to  interfere  with 
the  reconversion  of  the  United  States  watch  man- 
ufacturing industry.  Taking  into  account  such 
considerations  as  the  foregoing,  the  Legation  of 


Switzerland    makes   the    declarations    set    forth 
below : 

1.  The  Swiss  Government  is  willing  to  effect  a 
scheduling  of  the  exports  of  watches  and  watch 
movements  during  the  period  of  the  reconversion 
of  the  United  States  watch  manufacturing  indus- 
try to  civilian  production  (which  is  estimated  for 
that  purpose  to  end  March  31,  1947)  so  that  the 
\olume  of  watches  and  watch  movements  reaching 
tlie  United  States  shall  not  be  such  as  to  interfere 
with  the  ready  marketing  in  the  United  States  of 
the  products  of  the  American  watch  industry. 

2.  In  order  to  facilitate  such  scheduling  de- 
scribed in  Paragraph  1,  above,  the  Swiss  Govern- 
ment further  declai-es  itself  prepared  to : 

(a)  Initiate  immediately  such  measures  as  are 
available  to  it  to  channel  the  shipment  of  watches 
and  watch  movements  from  Switzerland  directly 
to  the  United  States  and  to  prevent  their  indirect 
shipment  to  the  United  States. 

{h)  Initiate  immediately  such  measures  as  may 
be  necessary  to  assure  that  direct  shipments  of 
watches  and  watch  movements  from  Switzerland 
to  the  LTnited  States  during  1946  shall  not  exceed 
the  amount  of  direct  exports  in  1945.  The  limita- 
tion is  to  become  effective  retroactively  to  January 
1,  194('>.  The  volume  of  the  direct  sliipments  dur- 
ing the  first  three  months  of  1947  shall  be  calcu- 
lated pro  rata  temporis. 

3.  The  two  governments  will  review  the  ques- 
tion of  the  volume  of  imports  of  Swiss  watches 
and  watch  movements  from  time  to  time  as  the 
Government  of  the  United  States  or  the  Swiss 
Government  may  deem  necessai'y.  If  at  any  time 
during  the  reconversif)n  period  satisfactory  evi- 
dence appears  that  the  United  States  watch  in- 
dustry is  finding  difficulty  in  marketing  its  prod- 
ucts, the  Government  of  Switzerland  declares 
itself  prepared,  in  addition  to  the  control  of  ex- 
ports  contemplated   by   Paragraph   2   above,   to 

^  Executive  Agreement  Series  90. 


764 


DEPARTMENT  OF  STATE  BULLETIN 


effect  a  further  retluctioii  in  the  vohune  of  exports 
of  watches  and  watch  movements  from  Switzer- 
land to  the  United  States  to  an  extent  to  be  agreed 
upon  between  the  two  governments. 

Furthermore,  tlie  Swiss  Government  takes  cog- 
nizance of  the  opinion  expressed  by  ofTicials  of  the 
(lovernment  of  the  United  States  that  a  joint  re- 
view shall  be  made  whenever  tiie  imports  in  any 
three-month  period  during  I!)4()  exceed  the  average 
direct  imports  during  a  similar  period  of  the  years 
1942-45,  inclusive,  or  whenever  the  volume  of  im- 
ports with  respect  to  the  several  United  States 
import  classifications  greatly  deviates  in  any  such 
period  from  the  general  pattern  established  dui-ing 
the  last  decade,  and  sees  no  objection  to  such 
procedure. 

-1.  The  Swiss  (iovennncnt  will  use  its  good  nf- 
tices  to  expedite  the  issuance  of  exjiort  permits 
by  the  Swiss  Watch  Chamber  and  other  watch 
associations  for  watch  parts  and  for  jewel  bearings 
to  be  used  in  the  manufactui'e  of  watches  in  the 
United  States,  according  to  the  autonomous  in- 
ternal regulations  of  the  Swiss  Government.  Tiie 
Swiss  Govermnent  also  will  use  its  good  offices 
to  secure  the  issuance  of  export  licenses  to  supply 
tlie  American  watch  manufactiuing  industry  witii 
the  watchmaking  machinery  which  it  is  now  en- 
deavoring to  purchase  in  Switzerland  and  will  con- 
sider sympathetically  the  granting  of  export 
licenses  for  such  further  watchmaking  machinery 
as  United  States  watch  manufacturers  may  desire 
to  purchase  in  Switzerland.  The  Swiss  Legation 
is  looking  forward  to  receiving  from  the  Depart- 


ment of  State  the  list  of  machines  which  the 
American  watch  manufacturing  industry  is  now 
desirous  of  obtaining  in  Switzerland. 

The  foregoing  declarations  will  be  in  effect  until 
March  31,  1947. 


Aipe-Memoikk 

April  2i2,  mo. 

The  Government  of  the  United  States  appreci- 
ates the  declaration  made  by  the  Legation  of 
Switzerland  in  its  aide-memoire  of  April  22,  1946 
concerning  the  intentions  of  the  Government  of 
Switzerland  with  respect  to  the  exportation  of 
watches  and  watch  movements,  watch  parts, 
watchmaking  machinery  and  jewel  bearings  to  the 
TTnitcd  States  during  the  period  from  January  1, 
1!)46  to  March  31,  1947. 

The  Government  of  the  United  States  believes 
that  the  adoption  and  execution  of  these  measures 
by  the  Government  of  Switzerland  will  contribute 
materially  to  the  solution  of  problems  confronting 
the  American  watch  industry  in  its  period  of  re- 
conversion to  civilian  production  and  will  serve, 
at  the  same  time,  to  assure  the  American  watch 
importers  and  assemblers  as  well  as  the  retail  jew- 
elers and  consumers  of  an  adequate  supply  of 
watches. 

The  Department  of  State,  in  this  connection, 
will  transmit  to  the  I./egation  of  Switzerland  in  the 
very  near  future  the  lists  referred  to  in  paragraph 
four  of  the  aide-memoire. 


Closing  of  Displaced-Persoiis  Camps  Postponed 


[Released  to  the  press  Aiiril  22] 

Secietary  Byrnes  announced  on  April  22  that 
after  a  conference  witli  the  President  on  Saturday, 
A))ril  20,  it  was  decided  to  defer  closing  the  camps 
for  displaced  persons  in  the  American  zone  in  Ger- 
many. The  closing  was  scheduled  for  the  month 
of  August. 

The  Secretary  stated  tiiat  the  President  and  he 
agi-eed  with  the  jiosition  of  the  Army  that  these 
camps  could  not  be  maintained  indefinitely  but 
concluded  the  closing  should  be  postponed  until 
after  the  LTnited  Nations  Assembly  has  had  an 


oi^portunity  to  consider  the  report  of  its  connnit- 
tee  which  was  appointed  at  the  last  Assembly  meet- 
ing to  study  the  refugee  problem.  The  committee 
will  I'eport  to  the  next  meeting  of  the  Assembly  in 
September,  and  it  was  concluded  that  the  camps 
should  not  be  closed  until  the  Assembly  had  an 
opixirtunity  to  consider  sonu'  substitute  [ilan. 

In  the  meantime  every  encouragement  will  be 
offered  to  governments  willing  to  receive  as  na- 
tionals the  unfortunate  homeless  now  in  the  camps 
ill  the  American  zone. 


MAY  5,  1946 


765 


U.S.  Position  on  Recoo;nition  of  Trans- Jordan 


LETTER  FROM  THE  SECRETARY  OF  STATE  TO  SENATOR  MYERS 


[Released  to  the  press  April  23] 

April  23,  HUG 

My  Dear  SE>f atoe  Myers  : 

I  have  received  your  letter  of  April  9,  1046  with 
respect  to  Trans-Joi"dan. 

Before  taking  up  the  points  raised  in  your  letter 
it  may  be  useful  to  review  some  of  the  back- 
ground. 

In  the  Mandate  of  the  League  of  Nations  of 
July  24,  1922,  a  distinction  was  made  between  the 
lands  lying  to  the  west  and  to  tlie  east  of  the 
Jordan  River.  Article  25  of  the  JNlandate  reads 
as  follows: 

"In  the  territories  lying  between  the  Jordan  and 
the  eastern  boundary  of  Palestine  as  ultimately 
determined,  the  Mandatory  .shall  be  entitled,  with 
the  consent  of  the  Council  of  the  League  of  Na- 
tions, to  postpone  or  withhold  application  of  such 
{>rovisions  of  this  mandate  as  he  niay  consider 
inapplicable  to  the  existing  local  conditions,  and 
to  make  .such  provision  for  the  administration 
of  the  territories  as  he  may  consider  suitable  to 
those  conditions,  provided  that  no  action  shall  be 
taken  which  is  inconsistent  with  the  provisions  of 
Articles  15,  16  and  18.'' 

In  September  1922,  the  Council  of  the  League  of 
Nations  approved  a  memorandum  presented  by  the 
British  Government  proposing  that  Trans-Jordan 
should  be  exempted  from  all  clauses  of  the  Pales- 
tine Mandate  dealing  with  the  Holy  Places  and 
the  Jewish  National  Home,  and  providing  for  a 
separate  administration  in  Trans-Jordan.  In  its 
memorandum  to  the  League  Council  the  British 
Government  accepted  responsibility  as  Manda- 
tory for  Trans- Jordan  in  the  following  words : 

"In  the  application  of  the  Mandate  to  Trans- 
Jordan,  the  action  which  in  Palestine  is  taken  by 
the  Administration  of  the  latter  country,  will  be 
taken  by  the  Administration  of  Trans-Jordan  un- 
der the  general  supervision  of  the  Mandatory." 


Following  this  action  of  the  Council  of  the 
League  of  Nations,  the  High  Commissioner  for 
Palestine  made  the  following  announcement  at 
Amnuin  in  April,  1923: 

'"Subject  to  the  approval  of  the  League  of  Na- 
tions, His  Majesty's  Government  will  recognize 
the  existence  of  an  independent  Government  in 
Trans-Jordan  under  the  rule  of  His  Highness  the 
Emii'  Abdulla,  provided  that  such  Government  is 
constitutional  and  places  His  Britannic  Majesty's 
Government  in  a  position  to  fulfill  its  interna- 
tional obligations  in  respect  of  the  territory  by 
means  of  an  agreement  to  be  concluded  between 
the  two  Governments."' 

It  was  agreed  in  an  exchange  of  notes  in  July  1924 
that  the  United  States'  consent  would  be  applicable 
to  Trans- Jordan.  (Hackworth's  Digest  of  Inter- 
national Law,  Vol.  I,  pp.  114-115.)  Subsequently, 
on  December  3,  1924,  the  United  States  signed  a 
Convention  with  the  United  Kingdom  regarding 
the  Mandate  for  Palestine.  By  Article  1  of  that 
Convention  the  United  States  consented  to  the  ad- 
ministration of  Palestine  by  the  British  Govern- 
ment, pursuant  to  the  Mandate.  By  Articles  2,  3, 
5  and  6,  the  British  Government  recognized  cer- 
tain rights  of  the  United  States  with  regard  to 
Palestine  and  Trans-Jordan.  These  rights  com- 
prised non-discriminatory  treatment  in  matters  of 
connnerce;  non-impairment  of  vested  American 
propertj'  rights;  permission  for  American  na- 
tionals to  establish  and  maintain  educational,  phil- 
osophic and  religious  institutions  in  Palestine; 
safeguards  with  respect  to  the  judiciary;  and,  in 
general,  equality  of  treatment  with  all  other  for- 
eign nationals.  Lastly  Article  7  of  this  Conven- 
tion stipulated  that: 

"Nothing  contained  in  the  present  convention 
shall  be  affected  by  any  modification  which  may  be 
made  in  the  terms  of  the  mandate,  as  recited  above, 
unless  such  modification  shall  have  been  assented 
to  l)v  the  United  States.'' 


766 


DEPARTMENT  OF  STATE  BULLETIN 


It  lias  been  the  consistent  position  of  the  Govern- 
ment of  the  United  States  that  Article  7  does  not 
empower  this  Government  to  prevent  the  modifi- 
cation of  the  terms  of  the  Mandate.  This  Article, 
however,  renders  it  possible  for  this  Government 
to  decline  to  recognize  the  validity  of  the  applica- 
tion to  American  rights  and  interests,  as  defined 
by  the  Convention,  of  any  modification  of  the 
Mandate  unless  such  modification  has  been  as- 
sented to  by  the  Government  of  the  United  States. 
(For  the  text  of  the  Convention  see  Treaties,  Con- 
ventions, etc.  between  ths  United  States  and  Other 
Poxoers,  Vol.  4,  pp.  4227-4234 ;  Senate  Document 
No.  134,  75tli  Congi-ess,  3rd  Session.) 

By  signing  the  Convention  of  December  3, 1924, 
the  Government  of  the  United  States  acquiesced  in 
the  decision  of  the  Council  of  the  League  of  Na- 
tions referred  to  above  that  Trans-Jordan  should 
be  exempted  from  all  the  clauses  of  the  Palestine 
Mandate  dealing  with  the  Holy  Places  and  the 
Jewish  National  Home  and  that  it  should  enjoy 
an  independent  position.  There  has  been,  there- 
fore, a  differentiation  in  the  treatment  of  Trans- 
Jordan  and  Palestine  since  1923,  a  differentiation 
formally  approved  by  the  Council  of  the  League 
of  Nations  in  September  1922  and  tacitly  approved 
by  the  Government  of  the  United  States  when  it 
signed  and  ratified  the  Convention  of  December 
3,  1924. 

In  February  1928,  the  British  and  Trans-Jor- 
dan Governments  signed  an  Agreement,  formally 
ratified  in  October  1929  and  supplemented  in  June 
1934,  thereby  consummating  the  earlier  agreement 
of  1923.  Finally,  on  January  17,  1946  in  an  ad- 
dress before  the  General  Assembly  of  the  United 
Nations,  the  British  Foreign  Minister  made  the 
following  statement  with  regard  to  the  future 
status  of  Trans- Jordan : 

"Regarding  the  future  of  Trans-Jordan,  it  is  the 
intention  of  His  Majesty's  Government  in  the 
United  Kingdom  to  take  steps  in  the  near  future 
for  establishing  this  territory  as  a  sovereign,  in- 
dependent state  and  for  recognizing  its  status  as 
such.  In  these  circumstances,  the  question  of  plac- 
ing Trans-Jordan  under  a  trusteeship  does  not 
arise." 

On  February  9  at  a  Plenary  Session  of  the  Gen- 
eral Assembly  of  the  United  Nations  a  resolution 
on  non-self-governing  peoples  was  unanimously 


adopted  which  included  the  following  statement: 
"The  General  Assembly  welcomes  the  declara- 
tions made  by  certain  States  administering  ter- 
ritories now  held  under  mandate,  of  an  intention 
to  negotiate  trusteeship  agreements  in  respect  of 
some  of  these  territories,  and  in  respect  of  Trans- 
Jordan  to  establish  its  independence." 

On  March  22,  1946,  a  Treaty  of  Alliance  was 
entered  into  between  the  United  Kingdom  and 
Trans-Jordan.  Article  8  of  that  treaty  contains 
the  following  provisions: 

"1.  All  obligations  and  resijonsibilities  devolv- 
ing on  His  Majesty  The  King  in  respect  of  Trans- 
Jordan  in  respect  of  any  international  instrument 
which  is  not  legally  terminated  should  devolve  on 
His  Highness  The  Amir  of  Trans-Jordan  alone, 
and  the  High  Contracting  Parties  will  immedi- 
ately take  such  steps  as  may  be  necessary  to  secure 
the  transfer  to  His  Highness  The  Amir  of  these 
responsibilities. 

"2.  Any  general  international  treaty,  conven- 
tion or  agreement  which  has  been  made  applicable 
to  Trans- Jordan  by  His  Majesty  The  King  (or  by 
his  Government  in  the  United  Kingdom)  as  man- 
datory shall  continue  to  be  observed  by  His  High- 
ness The  Amir  until  His  Highness  The  Amir  (or 
his  Government)  becomes  a  separate  contracting 
l^arty  thereto  or  the  instrument  in  question  is  le- 
gally terminated  in  respect  of  Trans-Jordan." 

After  a  careful  study  of  the  matter,  the  Depart- 
ment has  found  nothing  which  would  justify  it  in 
taking  the  position  that  the  recent  steps  taken  by 
Great  Britain  with  regard  to  Trans-Jordan  vio- 
late any  treaties  existing  between  Great  Britain 
and  the  United  States,  including  the  Convention 
of  December  3,  1924,  or  deprive  the  United  States 
of  any  rights  or  interests  which  the  United  States 
may  have  with  respect  to  Trans-Jordan.  The  De- 
I^artment  considers,  however,  that  it  would  be  pre- 
mature for  this  government  to  take  any  decision 
at  the  present  time  with  respect  to  the  question  of 
its  recognition  of  Trans-Jordan  as  an  independent 
state. 

Sincerely  yours, 

James  F.  Btrnes 
The  Honorable 

Francis  J.  Myers, 
United  States  Senate, 


MAY  5,  1946 


767 


Report  of  U.  S.  Education  Mission  to  Japan ' 


TRANSMITTAL  OF  REPORT  TO  THE  SECRETARY  OF  STATE 


[Released  to  the  press  April  22] 

April  19, 1946 
The  Secretary: 

Herewith  I  submit  the  report  of  the  U.S.  Edu- 
cation Mission  to  Japan.  The  most  striking  single 
element,  in  my  judgment,  is  the  revelation  that  the 
literacy  of  the  Japanese  people  has  been  greatly 
over-rated  and  the  recommendation  that  Japan 
foster  the  widespread  use  of  an  alphabet.  The 
Mission  recommends  that  some  form  of  Romaji 
(the  use  of  a  jihonetic  system  based  on  the  Roman 
alphabet  instead  of  Chinese  ideographs)  be  brought 
into  common  use  throughout  Japan  by  all  meaais 
possible. 

This  proposal,  if  adopted,  can  contribute  enor- 
mously to  the  democratization  of  the  Japanese  way 
of  life. 

Dr.  George  D.  Stoddard,  Chairman  of  the  Mis- 
sion, tells  me  that  the  much  vaunted  literacy  rate 
in  Japan  is  another  Japanese  myth.  An  elemen- 
tary school  graduate,  after  spending  a  high 
percentage  of  his  years  in  school  studying  the 
Japanese  ideographs,  is  able  to  recognize  only  six 
to  eight  hundred  characters.  Approximately  85 
percent  of  the  Japanese  children  terminate  their 
education  with  the  elementary  school.  The  daily 
press,  says  Dr.  Stoddard,  uses  in  the  neighbor- 
hood of  2400  characters.  This  means  that  a  very 
great  percentage  of  the  Japanese  populace,  while 
theoretically  rated  as  literate,  are  unable  to  in- 
form themselves  of  the  day -by-day  happenings  in 
the  world  through  the  written  language.  Even 
the  average  Japanese  college  graduate  finds  it  nec- 
essary constantly  to  refer  to  a  dictionary  in  ordi- 
nary correspondence. 

When  I  was  in  Japan  in  1937  I  was  informed 
on  all  sides  that  Japan's  literacy  rate  was  very 
nearly  100  percent.  This  claim  is  still  advanced, 
and  has  been  generally  accepted  throughout  the 
world.  But  an  alleged  literacy  in  which  two- 
thirds  of  the  characters  used  in  the  newspapers 
ai"e  unintelligible  to  the  great  masses  of  people 


is  not  the  kind  of  literacy  that  has  political  or 
democratic  significance.  Democracy  is  impossi- 
ble unless  the  peoj)le  are  able  to  understand  politi- 
cal, economic  and  social  issues.  Thus  this  pro- 
posed reform  of  the  written  language,  difficult  as 
it  may  be  to  achieve,  holds  great  i:)romise  for  the 
Jaj^anese  people  and  for  the  cause  of  world  mi- 
derstanding  and  peace.  It  may  in  fact  be  the 
supreme  test  for  the  new  leaders  of  Japan. 

Further,  there  are  some  aspects  o,f  the  trip  of 
the  Mission  which  may  transcend  in  importance 
the  formal  content  of  its  report.  The  recognition 
by  General  MacArthur  of  the  important  part 
played  by  the  educational  system  of  a  nation,  in 
enabling  that  nation  to  become  and  to  remain 
democratic,  is  further  evidence  of  his  leadership. 
I  am  especially  gratified  that  the  important  part 
that  can  and  must  be  played  bj'  civilians  in  meet- 
ing the  problems  of  military  occupation  has  been 
demonstrated  here  in  a  very  practical  way. 

The  warmth  of  the  i-eceptivity  on  the  part  of 
the  Japanese  was,  in  its  extent  and  sincerity,  a 
pleasant  surprise  to  the  Mission.  The  Mission 
leports  a  growing  sense  of  mental  and  spiritual 
liberation  among  great  numbers  of  the  Japanese 
people.  There  is  fertile  soil  for  democratic  de- 
velopment among  many  Japanese  intellectual 
leaders,  who  are  now  earnestly  seeking  all  that  we 
can  give  them  in  the  way  of  guidance  and  assist- 
ance. Their  desire  to  prepare  Japan  to  take  her 
place  in  the  family  of  democratic  nations  is  a  good 
omen  for  peace. 

This  sense  of  liberation  is  strong  in  Japan.  Mr. 
Abe,  the  Japanese  Minister  of  Education,  wel- 
comed the  delegation  with  these  words :  "It  is  my 
conviction  that  democracy  is  to  be  the  basis  of 
our  postwar  social  life,  political  life  and  economic 
life,  and  therefore  also  the  basis  of  education  since 
education  is  the  foundation  of  all  this.    But  I  hold 

'  Submitted  by  the  U.  S.  Education  Mission  to  Japan  to 
the  Supreme  Commander  for  the  Allied  Powers,  Tokyo, 
Mar.  30. 


768 

this  conviction  not  simply  because  this  was  the 
principle  forced  npon  us  by  America,  but  because 
this  derives  from  a  fundamental  principle  of  the 
universe  and  is  based  upon  the  essential  nature  of 
luunan  beings."  He  also  sounded  this  note  of 
warning  to  his  own  people : 

"The  liberals,  who  had  been  under  the  pressure 
of  militarism  during  the  war,  took  the  Allied 
Powers  for  their  Savior  and  fell  under  the  illu- 
sion that,  suddenly,  their  best  days  have  come, 
and,  forgetting  the  fact  of  our  surrender,  they 
thought  that  the  future  of  our  country  was  going 
to  be  easily  built  through  the  help  of  the  Allied 
Powers.  We  should,  however,  repent  like  the  con- 
vert of  all  the  miseries  and  sacrifices  we  have  in- 
flicted upon  our  own  country  and  the  world 
through  our  faults  and  crimes  in  this  war.  At 
the  same  time,  we  should  consider  our  position  of 
a  surrendered  nation  as  a  trial  sent  by  God,  endure 
it,  overcome  it,  and  turn  tlie  present  misfortune 
into  a  future  blessing.  AVe  believe  that  your  coun- 
try is  not  going  to  violate  truth  and  justice  on  the 
strength  of  her  being  a  victor.  And  we  pray  that 
the  pressure  brought  upon  us  by  this  victor — for 
we  cannot  help  feeling  it  as  a  pressure — will  help 
to  make  truth  and  justice  ])ernieate  all  our  country, 
and  serve  as  a  chance  for  us  to  eliminate  quickly 
and  vigorously  all  the  injustices  and  defects  exist- 
ing in  our  society'  and  all  tlie  weaknesses  and  evils 
underlying  our  national  character  and  customs."' 

The  Mission  was  furtlier  gratified  by  state- 
ments by  Japanese  leaders,  such  as  the  following 
from  an  address  delivered  on  the  anniversary  of 
the  founding  of  Japan  by  Shigeru  Nambara,  Presi- 
dent of  Tokyo  Imperial  Univei'sity,  and  Chairman 
of  the  Committee  of  Japanese  educators  which  sat 
witli  the  U.  S.  Mission  : 

"Japan  .  .  .  staked  all  her  time-old  tradition 
and  indigenous  spirit  on  this  war  and  was  de- 
feated ....  With  what  can  the  Japanese  try  to 
reconstruct  their  own  fathei'land?  It  will  never 
be  found  in  past  history.  It  nnist  be  created  in 
the  future.  .  .  . 

"It  should  not  stop  simply  by  being  a  change  of 
the  political  and  social  system,  but  further  it  must 
be  a  subjective  spiritual  revolution,  intellectual 
and  religious  in  nature." 

In  the  Emperor's  request  that  Dr.  Stoddard 
secure  for  him  an  American  woman  to  serve  as 
tutor  for  the  Crown  Prince,  there  may  be  a  sym- 


DEPARTMENT  OF  STATE  BULLETIN 

bolic  crystallization  of  the  move  towards  reorien- 
tation by  the  Japanese  and  the  struggle  towards 
the  internationalization  of  Japanese  culture. 

While  the  report  itself  is  more  or  less  technical, 
the  work  of  this  Mission  has  demonstrated  a  fresh 
approach  to  the  problem  of  international  relations, 
and  merits  serious  consideration  for  future  de- 
velopment and  expansion.  The  inspiration  and 
encouragement  to  the  earnest  leaders  of  foreign 
nations  by  visits  from  similar  groups  from  Amer- 
ica has  a  potential  importance  that  should  not  be 
underestimated. 

William  Benton 

TRANSMITTAL  OF  REPORT 
TO  GENERAL  MACARTHUR 

March  30, 19^6 

JNIy  Dear  General  MacArthur, 

On  behalf  of  the  United  States  Education  Mis- 
sion to  Japan,  I  have  the  honor  to  submit  herewith 
a  report  on  Japanese  education,  with  recommenda- 
tions. 

In  signing  this  report,  the  Mission  asks  me  to 
tliank  you  for  the  invitation  which  formed  us  into 
a  group,  for  the  foresight  that  brought  us  across 
the  ocean,  and  for  the  extensive  aid  given  by  your 
Civil  Information  and  Education  Section.  We 
have  had  the  privilege  of  an  extensive  briefing  in 
the  Japanese  educational  system  at  the  hands  of 
your  excellent  staff,  together  with  an  ease  of  access 
to  our  helpful  counterparts,  the  Japanese  educa- 
tors. We  are  deeply  impressed  by  the  efficiency 
and  integrity  of  a  military  that  solicits  objective 
guidance  in  this  difficult  field. 

We  ai'e  also  impressed  with  the  cultural  re- 
sources of  the  Japanese  people  and  especially  with 
the  children.  The  people's  will  to  move  forward 
has  survived  the  spiritual  poverty  of  autocratic 
power  and  defeat.  The  new  leaders  frankly  admit 
that  Japan  had  been  set  upon  the  wrong  path. 
They  are  pi-epared  to  follow  what  to  them  is  a 
strange  new  constitutional  road  to  peace,  facing 
unfearfully  the  demands  of  democracy. 

Our  labor  has  progressed  in  a  spirit  of  gratitude 
to  you  and  your  staff,  of  confidence  in  the  future  of 
Japan,  and  of  hope  for  a  more  peaceful  and  hu- 
mane world. 

Kespectfully  yours, 

George  D.  Stoddard 
Chair/nan,  Education  Mission 


MAY  5,  1946 


769 


GENERAL  MacAKTHUR'S  STATEMENT 


Statement  mcuJe  by  General  MacArthur  in  releas- 
ing a  summary  of  the  rejwrt  of  the  United  States 
Education  Mission  to  Japan  for  publication  in  the 
United  States  as  of  April  6, 1940 

The  report  iind  recommendations  submitted  to 
me  by  the  United  States  Education  Mission  to 
Japan  cover  the  whole  scope  of  the  education  meth- 
ods and  principles  very  thoroughly  and  tlieir  anal- 
ysis and  representation  of  views  reveal  the  high 
character  and  intelligence  of  the  Committee  mem- 
bers. 

It  is  a  document  of  ideals  high  in  tlie  democratic 
tradition.  In  origin,  these  ideals  are  universal. 
Likewise  universal  are  the  ends  envisaged  by  the 
mission.  In  devising  possible  means  to  achieve 
them,  full  cognizance  has  been  taken  of  the  views 
of  the  Japanese  themselves  regarding  the  problems 
of  better  schools,  better  teachers  and  better  tools 
of  learning.  Few  of  these  proposals,  therefore, 
will  appear  entirely  novel  or  surprising  to  think- 
ing Japanese  and  other  peoples.  The  I'eport  will 
be  most  helpful  to  the  Civil  Information  and  Edu- 
cation section  of  my  headquarters  in  their  further 
efforts  to  assist  the  Japanese  government  in  mod- 
ernizing the  Japanese  educational  system.     The 


report  may  well  be  studied  by  all  educators  regard- 
less of  individual  aspects.  Some  of  the  reconnnen- 
dations  regarding  education  principles  and  lan- 
guage reform  are  so  far  reaching  that  they  can 
only  serve  as  a  guide  for  long  range  study  and 
future  planning. 

The  eventual  reforms  in  education  as  worked 
out  by  the  Japanese  people  will  provide  tliem  with 
a  system  of  learning  that  furnishes  a  thorough 
ground  in  the  basic  knowledge  essential  to  their 
becoming  a  member  of  the  family  of  nations  dedi- 
cated to  the  promotion  of  world  peace  and  respect 
for  the  fundamental  human  rights.  The  eventual 
form  the  education  organization  shall  take  will  be 
that  as  adopted  by  the  Japanese  people  in  their 
endeavor  to  establish  a  peacefully  inclined  and 
I'esjJonsible  government  in  accordance  with  the 
Potsdam  Proclamation. 

I  must  express  to  the  membei's  of  the  Education 
Mission  my  sincere  appreciation  for  the  time  they 
so  generously  gave  and  the  contribution  they  have 
made  toward  a  better  educated  world.  They  have 
earned  the  thanks  of  the  entire  Allied  Nations  for 
their  unstinting  contribution  to  the  cause  of  edu- 
cational uplift. 


DIGEST  OF  THE  REPORT 


The  United  States  Education  Mission,  con- 
sisting of  twenty-seven  representatives  of  Ameri- 
can education  under  the  chairmanship  of  Dr. 
George  D.  Stoddard,  in  the  process  of  preparing 
this  report,  spent  the  month  of  March  in  Japan 
consulting  with  the  officers  of  the  Education  Di- 
vision of  the  Civil  Information  and  Education 
Section,  General  Headquarters,  SCAP,  with  a 
committee  of  Japanese  educators  appointed  by  the 
Minister  of  Education  of  Japan,  and  with  other 
representatives  of  the  schools  and  of  various  walks 
of  life  in  Japan.  This  report  to  the  Supreme 
Commander  for  the  Allied  Powers  is  presented 
upon  the  basis  of  the  deliberations  by  the  mem- 
bers of  the  Mission. 

The  Mission  recognizes  the  necessity  for  the 
original  negative  directives,  such  as  those  eradi- 
cating militarism  and  nationalistic  Shintoism 
from  the  schools,  but  it  has  concentrated  chiefly 
upon  positive  proposals.     In  so  doing  it  has  sought 


to  aid  the  Japanese  to  set  for  themselves  the 
conditions  for  reestablishing  a  sound  educational 
system  within  their  cultui-e. 

The  Aims  and  Content  of  Japanese  Education 

A  highly  centralized  educational  system,  even 
if  it  is  not  caught  in  the  net  of  ultra-nationalism 
and  militarism,  is  endangered  by  the  evils  that 
accompany  an  intrenched  bureaucracy.  Decen- 
tralization is  necessary  in  order  that  teachers  may 
be  freed  to  develop  professionally  under  guidance, 
without  reginientation.  They,  in  turn,  may  then 
do  their  part  in  the  development  of  free  Japanese 
citizens. 

To  this  end,  knowledge  must  be  acquired  that 
is  broader  than  any  available  in  a  single  pre- 
scribed textbook  or  manual,  and  deeper  than  can 
be  tested  by  stereotyped  examinations.  A  cur- 
riculum consists  not  merely  of  an  accepted  body 
of  knowledge,  but  of  the  pupils'  physical  and 


770 


DEPARTMENT  OF  STATE  BULLETIN 


mental  activities;  it  takes  into  account  their  dif- 
fering backgrounds  and  abilities.  It  shoidd 
therefore  be  set  up  through  cooperative  action  in- 
volving teachers,  calling  on  their  experience  and 
releasing  their  creative  talents. 

Morals,  which  in  Japanese  education  occupy  a 
separate  place,  and  have  tended  to  promote  sub- 
missiveness,  should  be  differently  construed  and 
should  interpenetrate  all  phases  of  a  fi'ee  people's 
life.  Manners  that  encourage  equality,  tlie  give- 
and-take  of  democratic  government,  the  ideal  of 
good  workmanship  in  daily  life — all  these  are 
morals  in  the  wider  sense.  They  should  be  de- 
veloped and  practiced  in  the  varied  program  and 
activities  of  the  democratic  school. 

Books  in  the  fields  of  geograj^hy  and  history 
will  have  to  be  rewritten  to  recognize  mythology 
for  what  it  is,  and  to  embody  a  more  objective 
vieAvpoint  in  textbooks  and  reference  materials. 
On  the  lower  levels  more  use  should  be  made  of 
(he  community  and  local  resources;  at  the  higher 
levels  competent  scholarship  and  research  should 
be  encouraged  in  various  ways. 

The  program  in  health  instruction  and  physical 
education  is  basic  to  the  educational  program  as  a 
whole.  Medical  examinations,  instruction  in  nu- 
trition and  public  health,  the  extension  of  the 
physical  education  and  recreation  program  to  the 
university  level,  and  the  replacement  of  equipment 
as  rapidly  as  possible  are  recommended. 

At  all  levels  vocational  education  should  be  em- 
phasized. A  variety  of  vocational  experiences  is 
needed  under  well  trained  staff  members,  with  an 
emphasis  on  technology  and  its  supporting  arts 
and  sciences.  The  contributions  of  artisans  and 
workers  should  find  a  place  in  the  social  studies 
program,  and  opportunities  for  originality  and 
creativity  should  be  provided. 

Language  Reform 

The  problem  of  the  written  language  is  funda- 
mental to  all  modifications  in  educational  practice. 
While  any  change  in  the  form  of  a  language  must 
come  from  within  the  nation,  the  stimulus  for  such 
cliange  may  come  from  any  source.  Encourage- 
ment may  be  given  to  those  who  recognize  the 
value  of  language  reform,  not  only  to  the  educa- 
tional program,  but  also  to  the  development  of  the 
Japanese  people  throughout  future  generations. 

It  is  recommended  that  some  form  of  Eomaji  be 
brought  into  common  use.    It  is  proposed  that  a 


language  commission  made  up  of  Japanese  schol- 
ars, educational  leaders  and  statesmen  be  formed 
IDromptly  in  order  that  a  comprehensive  program 
may  be  announced  Mithin  a  reasonable  period.  In 
addition  to  deciding  the  form  of  Romaji  to  be 
chosen,  this  commission  would  have  the  following 
functions:  (1)  to  assume  the  responsibility  for 
coordinating  the  program  of  language  reform  dur- 
ing the  transitional  stages;  (2)  to  formulate  a 
plan  for  introducing  Romaji  into  the  schools  and 
into  the  life  of  the  community  and  nation  through 
newspapers,  periodicals,  books,  and  other  writ- 
ings; and,  (3)  to  study  the  means  of  bringing 
about  a  more  democratic  form  of  the  spoken  lan- 
guage. The  commission  might,  in  time,  grow  into 
a  national  language  institute. 

The  need  for  a  single  and  efficient  medium  of 
written  communication  is  well  recognized,  and  the 
time  for  taking  this  momentous  step  is  perhaps 
more  favorable  now  than  it  will  be  for  many  years 
to  come.  Language  should  be  a  highway  and  not 
a  barrier.  Within  Japan  itself,  and  across  na- 
tional borders,  this  highway  should  be  open  for 
the  transmission  of  knowledge  and  ideas  in  the 
interest  of  a  better  world  understanding. 

Administration  of  Education  at  the  Primary  and 
Secondary  Levels 

The  principle  is  accepted  that,  for  the  purposes 
of  democratic  education,  control  of  the  schools 
should  be  widely  dispersed  rather  than  highly  cen- 
tralized as  at  present.  The  observance  of  cere- 
monies in  the  reading  of  the  Imperial  Rescript 
and  obeisances  to  the  Imperial  Portrait  in  the 
schools  are  regarded  as  undesirable.  The  Ministry 
of  Education,  under  the  proposals  of  the  Mission, 
would  have  important  duties  to  perform  in  pro- 
viding technical  aid  and  professional  counsel  to 
the  schools,  but  its  direct  control  over  local  schools 
would  be  greatly  curtailed. 

In  order  to  provide  for  greater  participation  by 
the  people  at  local  and  prefectui-al  levels,  and  to 
remove  the  schools  from  the  administrative  con- 
trol by  representatives  of  tlie  Minister  of  Home 
Affairs  at  the  local  level,  it  is  proposed  to  create 
educational  agencies  elected  by  popular  vote,  at 
both  local  and  prefectural  levels.  Such  agencies 
would  be  granted  considerable  power  in  the  ap- 
proval of  schools,  the  licensing  of  teachers,  the 
selection  of  textbooks — power  now  centralized  in 
the  Ministry  of  Education. 


MAY  5,  1946 


771 


Tliere  is  proposed  an  upward  revision  of  com- 
pulsory education  in  schools  to  be  tax-supported, 
coeducational  and  tuition- fi-ee,  such  education  to 
cover  nine  years  of  schooling,  or  until  the  boy  or 
girl  reaches  the  age  of  sixteen.  It  is  further  pro- 
posed that  the  first  six  years  be  spent  in  primary 
school  as  at  present,  and  the  next  three  years  in  a 
"lower  secondary  school"  to  be  developed  through 
merging  and  modifying  the  many  kinds  of  schools 
which  those  completing  primary  school  may  now 
enter.  These  schools  should  provide  general  edu- 
cation for  all,  including  vocational  and  educa- 
tional guidance,  and  should  be  flexible  enough  to 
meet  individual  differences  in  the  abilities  of  the 
pupils.  It  is  proposed  further  that  a  three-year 
"upper  secondary  school''  be  established,  fi'ee  of 
tuition  costs,  in  time  to  be  coeducational,  and  pro- 
viding varied  opportunities  for  all  who  wish  to 
continue  their  education. 

Together,  the  lower  and  upper  secondary  schools 
would  continue  the  varied  functions  of  other  tax- 
supported  schools  now  at  this  level :  higher  elemen- 
tary schools,  girls'  high  schools,  preparatory 
courses,  vocational  schools,  and  youth  schools. 
Graduation  from  the  upper  secondary  schools 
would  be  made  a  condition  of  entrance  to  insti- 
tutions of  higher  learning. 

Private  schools  under  the  proposal  would  retain 
full  freedom,  except  that  they  would  be  expected 
to  conform  to  the  minimum  standards  necessary 
to  assure  ready  transfer  by  the  pupil  from  one 
school  to  another,  whether  public  or  private. 

Teaching  and  the  Education  of  Teachers 

In  order  that  the  newer  aims  of  education  may 
be  achieved,  teaching  methods  emphasizing  mem- 
orization, conformity  and  a  vertical  system  of 
duties  and  loyalties  should  be  modified  to  encour- 
age independent  thinking,  the  development  of  per- 
sonality, and  the  rights  and  responsibilities  of 
democratic  citizenship.  The  teaching  of  morals, 
for  example,  should  be  less  by  precept  than  by  in- 
struction deriving  from  experiences  in  concrete 
situations  in  school  and  community. 

A  program  for  the  reeducation  of  teachers 
should  be  set  up  to  further  the  adoption  of  demo- 
cratic methods  in  the  transitional  period.  Sug- 
gestions are  made  for  a  program  which  will  grad- 
ually merge  into  one  of  in-service  education. 

Normal  schools  should  be  modified  so  as  to  pro- 
vide the  kinds  of  teachers  needed.    They  should 


admit  students  only  after  completion  of  a  course 
in  the  upper  secondary  school  equivalent  in  stand- 
ards to  that  of  the  present  middle  school,  thus  elim- 
inating the  normal  preparatory  courses.  The  re- 
organized normal  schools,  all  more  nearly  at  the 
level  of  the  higher  normal  schools,  should  become 
four-year  institutions;  they  would  continue  gen- 
eral education  and  provide  adequate  professional 
training  for  teachers  in  elementary  and  secondary 
schools. 

Other  institutions  for  preparing  teachers  for 
certification,  whether  private  or  tax-supported, 
should  satisfy  teacher-training  standards  equiva- 
lent to  those  of  the  reorganized  normal  schools. 

School  administrators  and  supervisors  should 
have  a  professional  education  equivalent  to  that 
for  teachers  and  should  have,  in  addition,  such 
special  preparation  as  will  fit  them  for  their  as- 
signed duties. 

Universities  and  other  higher  institutions  should 
develop  facilities  for  advanced  study  on  the  part 
of  teachers  and  administrators;  they  should  pro- 
mote research  and  exert  educational  leadership. 

Adult  Education 

During  this  period  of  crisis  for  the  Japanese 
people,  adult  education  is  of  paramount  impor- 
tance, for  a  democratic  state  places  much  respon- 
sibility on  each  citizen. 

The  schools  are  but  one  agency  for  adult  educa- 
tion, but  through  parent-teacher  activities,  evening 
and  extension  classes  for  adults,  and  the  opening 
of  buildings  to  a  variety  of  community  activities, 
adult  education  may  be  fostered. 

Another  important  institution  for  adult  educa- 
tion is  the  public  library.  It  is  recommended  that 
central  public  libraries,  with  branches,  be  estab- 
lished in  the  larger  cities,  and  that  appropriate 
arrangements  be  made  for  library  service  in  all 
prefectures.  The  appointment  of  a  director  of 
l)ublic  library  service  in  the  Ministry  of  Educa- 
tion would  facilitate  this  program.  Museums  of 
science,  art,  and  industry  may  serve  educational 
purposes  paralleling  those  of  the  library. 

In  addition,  organizations  of  all  kinds,  includ- 
ing community  and  professional  societies,  labor 
unions,  and  political  groups,  should  be  helped  to 
use  effectively  the  techniques  of  forum  and 
discussion. 

In  the  furtherance  of  these  ends,  the  present 
adult  education  services  of  the  Ministry  of  Edu- 
cation should  be  vitalized  and  democratized. 


712 


DEPARTMENT  OF  STATE  BULLETIN 


Higher  Education 

For  a  period  of  years  following  the  first  world 
war  currents  of  liberal  thought  were  fostered 
largely  by  men  and  women  educated  in  the  colleges 
and  universities  of  Japan.  Higher  education  now 
has  the  opportunity  of  again  setting  a  standard 
of  free  thought,  bold  inquiry,  and  hopeful  action 
for  the  people.  To  fulfil  these  purposes,  higher 
education  should  become  an  opportunity  for  the 
many,  not  a  privilege  of  the  few.  In  order  to 
increase  the  oppoi-tunities  for  liberal  education  at 
higher  levels,  it  would  be  desirable  to  liberalize 
to  a  considerable  extent  the  curricula  of  the  pre- 
paratory schools  (Koto  Gakko)  leading  to  the  uni- 
versities and  those  of  the  more  specialized  colleges 
(Semmon  Gakko),  so  that  ii  general  college  train- 
ing would  become  more  widely  available.  This 
would  lead,  on  the  one  hand,  to  university  study, 
and,  on  the  other,  to  specialized  training  at  the 
semi-professional  level  such  as  is  provided  by  the 
Semmon  Gakko,  but  rounded  out  with  training  of 
broader  cultural  and  social  significance. 

In  addition  to  providing  more  colleges,  it  is 
proposed  that  more  universities  be  established  ac- 
cording to  a  considered  plan.  Some  governmental 
agency  should  be  responsible  for  supervising  the 
establishment  of  higher  institutions  and  the  main- 
tenance of  the  requirements  first  set  down.  Except 
for  examining  the  qualifications  of  a  proposed 
institution  of  higher  education  before  it  is  per- 
mitted to  open  its  doors,  and  assuring  that  these 
initial  requirements  are  met,  the  governmental 
agency  should  have  practically  no  control  over 
institutions  of  higher  education.  The  institutions 
should  be  entirely  free  in  all  respects  to  pursue 
their  objectives  in  the  manner  which  they  them- 
selves deem  best. 

Establishment  of  economic  and  academic  free- 
dom for  faculties  in  institutions  of  higher  educa- 
tion is  of  primary  importance.  To  this  end,  it  is 
recommended  that  the  present  civil  service  plan  be 
discontinued. 

For  the  student,  the  freedom  which  should  be 
guaranteed  is  freedom  of  access,  on  the  basis  of 
merit,  to  all  levels  of  higher  studies.  Financial 
help  should  be  given,  in  order  that  further  educa- 
tion may  be  positively  assured  for  talented  men 
and  women  unable  to  study  on  their  own  resources. 
Freedom  of  access  to  higher  institutions  shoidd 
l)e  provided  immediately  for  all  women  now  pi'e- 


pared  for  advanced  study;  .steps  should  be  taken 
also  to  improve  the  earlier  training  of  women. 

The  extension  of  libraries,  research  facilities, 
and  institutes  is  recommended;  such  agencies 
can  make  invaluable  contributions  to  the  public 
welfare  during  the  period  of  reconstruction  and 
beyond.  Attention  needs  to  be  given  to  the  im- 
provement of  professional  education  in  fields  such 
as  medicine,  school  administration,  journalism, 
labor  relations,  and  public  administration.  A  spe- 
cial commission  is  recommended  for  the  study  of 
the  whole  question  of  medicine  and  public  health. 


Views  on  Reported  Press 
Censorship  in  Iran 

[Released  to  the  press  April  23] 

On  April  IT  the  Department  of  State  released 
to  the  press  a  statement  concerning  the  reported 
institution  of  censorship  in  Iran.^  The  Embassy 
at  Tehran  was  instructed  on  April  19  to  express  to 
Prime  Minister  Ghavam  the  following  views  of  the 
United  States  Ciovernment  on  this  subject: 

The  United  States  Government  is  opposed  as  a 
matter  of  national  policy  to  political  or  other 
censorship  in  time  of  peace  and  considers  blind 
censorship  to  be  the  most  intolerable  kind,  often  a 
source  of  misunderstanding  and  friction ;  the 
American  public  would,  under  a  system  of  blind 
censorship,  soon  come  to  place  no  confidence  in 
dispatches  from  Iran;  American  correspondents 
have  demonstrated  ability  for  fair  and  accurate 
reporting  which  has  enabled  the  American  public 
to  make  valid  judgments  as  regards  the  Iranian 
situation;  this  has  created  an  understanding  of 
Iran  which  might  be  lost  because  of  censorship. 

Prime  Minister  Ghavam  on  April  20  informed 
an  official  of  the  Embassy  that  no  censorship  has 
been  applied  to  American  or  any  other  news 
stories,  with  the  exception  of  two  London  Times 
dispatches.  The  Prime  Minister  stated  that  noth- 
ing will  be  suppressed  unless  it  falls  within  the 
provisions  of  the  Madrid  convention  of  19o'2.  He 
added  that  no  blind  censorship  has  been  applied 
and  that,  in  any  event,  American  corresjjondents 
will  be  informed  in  case  their  dis])atches  are 
stopped. 

'  Bulletin  of  Apr.  28,  1946,  p.  731. 


MAY  5.  1946 


773 


Negotiations  Regarding  Military  Facilities  in  Iceland 


[Kelensed  to  the  press  Ai>ril  27] 

United  States  forces  entered  Iceland  on  the  in- 
vitation of  the  Icelandic  Government  in  July  1941. 
These  forces  and  the  military  facilities  constructed 
largely  by  the  United  States,  played  a  vital  part 
against  the  Axis  in  keeping  open  the  Allied  lines 
of  sea  and  air  communication  across  the  North 
Atlantic  including  the  convoy  route  to  Murmansk. 
The  peak  gai'rison  strength  of  45,000  men  has  been 
reduced  since  the  end  of  hostilities  in  Europe  to 
about  1,000  men,  chiefly  Air  Force  technicians 
operating  the  facilities  at  Meeks  (Keflavik)  Field 
essential  to  air  communication  with  the  United 
States  occupation  foi'ccs  now  in  Europe  as  a  result 
of  the  war.  There  are  no  American  combat  troops 
in  Iceland. 

The  agreement  between  the  United  States  and 
Iceland  provides  for  the  withdrawal  of  United 
States  military  forces  from  Iceland  immediately 
on  conclusion  of  the  war.  The  limited  military 
personnel  still  in  Iceland  will  be  withdrawn,  and 
Meeks  Field  turned  over  to  the  Icelandic  Govern- 
ment in  accordance  with  this  agreement. 

On  October  1,  1945  the  United  States  proposed 
to  the  Icelandic  Government  the  basis  for  nego- 
tiation of  a  new  agreement  which  should  make 
military  facilities  in  Iceland  available  for  the 
joint  use  of  Iceland  and  the  United  States  beyond 
the  termination  of  the  present  war. 

The  proposal  submitted  by  the  United  States 
provided  that  should  Iceland  be  admitted  to  the 


United  Nations,  Iceland  might  make  any  military 
facilities  granted  the  United  States  available  to 
the  Security  Council  in  fulfillment  of  obligations 
which  Iceland  might  assume  under  Article  43, 
Cliapter  VII,  of  the  Charter.  In  this  connection 
the  United  States  Government  reiterated  earlier 
assurances,  given  in  response  to  inquiries  by  the 
Icelandic  Government  at  the  time  of  the  San 
Francisco  conference  and  again  in  September  1945, 
that  the  United  States  would  whole-heartedly 
support  the  admission  of  Iceland  to  the  United 
Nations. 

The  United  States  further  assured  the  Icelandic 
Government  that  such  rights  as  Iceland  might 
grant  the  United  States  would  be  exercised  with 
full  regard  for  Icelandic  sovereignty  and  complete 
respect  for  the  independence  of  Iceland. 

The  proposals  made  to  Iceland  were  made 
known  to  the  British  and  Soviet  Governments  and 
subsequently  to  the  Governments  of  Denmark, 
Norway,  and  Sweden. 

During  November  1945  the  Icelandic  Govern- 
ment informed  the  United  States  that  it  was  not 
ready  to  enter  into  discussions  on  the  basis  of  the 
United  States  proposals,  but  was  prepared  to  have 
further  discussions  concerning  the  admission  of 
Iceland  to  the  United  Nations  and  the  fulfillment 
of  obligations  to  participate  in  those  measures  for 
the  security  of  world  peace  provided  in  the  United 
Nations  Charter.  The  matter  has  rested  there 
up  to  the  present,  and  no  negotiations  have  taken 
place. 


POLAND — Continued  from,  page  762. 

ECONOMIC  AFFAIRS  WITH  THE 
PHILIPPINES 

A'oie  From  the  Polish  Ambassador  to  the  Secretary 

of  State ' 

April  2Jt,  mo. 
Sni: 

I  have  tlie  honor  to  refer  to  recent  informal 
discussions  concerning  the  relationship  between 
the  Treaty  of  Friendsliip,  Commerce  and  Consular 
Rights,  signed  June  15, 1931,  and  a  proposal  pend- 
ing before  the  United  States  Congress  to  provide, 
among  other  things,  for  special  trade  arrange- 
ments between  the  United  States  and  the  Philip- 
pines after  the  Pliilippines  become  an  independent 
nation  on  July  4, 1946. 


I  hereby  have  the  honor  to  inform  you  that  in 
view  of  the  very  special  nature  of  the  intended  re- 
lations between  the  United  States  of  America  and 
the  Philippines,  the  most  favored  nation  provisions 
of  Article  VI  of  the  aforementioned  Treaty  shall 
not  be  understood  as  according  to  Poland  any 
rights  and  privileges  by  reason  of  any  special  ar- 
rangements with  respect  to  commerce  between  the 
United  States  and  the  Philippines  which  may  be 
agreed  to  by  the  Government  of  the  United  States 
of  America  and  the  Government  of  the  Republic 
of  the  Philippines. 

Accept  retc.l  ^  t 

^    ■-       -■  OsKAR  Lange 

'  Released  to  the  press  Apr.  24. 


774 


DEPARTMENT  OF  STATE  BULLETIN 


International  Control  of  Atomic  Energy 


A  discussion  on  the  international  control  of  atomic  energy  was  broadcast  over  the  network  of  the  Columbia 
Broadcasting  System  on  April  23,  by  Under  Secretary  Acheson  and  Vannevar  Bush,  President  of  the  Car- 
negie Institution  of  Wasliington  and  member  of  the  Secretary  of  State's  Committee  on  Atomic  Energy, 
which  was  responsible  for  the  Report  on  the  International  Control  of  Atomic  Energy.  Larry  LeSueur  was 
chairman  of  their  discussion.  Excerpts  from  their  conversation  on  the  air  are  presented  below.  For  full 
text  of  the  broadcast,  see  Department  of  State  press  release  274  of  April  23,  1946. 


LeSueur:  Mr.  Acheson,  will  you  tell  us  some- 
thing of  the  way  the  Secretary  of  State's  Commit- 
tee on  Atomic  Energy  went  to  work  on  their  prob- 
lem and  how  the  Report '^  was  prepared? 

At'iiESON :  Perhaps  the  most  significant  thing 
about  this  Report  is  its  demonstration  of  a  process 
of  coming  to  grips  with  a  most  difficult  problem. 
The  special  problem  of  atomic  energy  is  not  unlike 
other  problems  in  this  respect.  Better  under- 
standing and  an  approach  to  solutions  can  only 
be  found  through  painstaking,  intelligent  exami- 
nation of  the  facts  and  patient  consideration  of 
alternatives.  I  think  it  may  be  of  interest  to  de- 
scribe how  the  Report  came  about.  As  a  result  of 
the  President's  meeting  with  the  Prime  Ministers 
of  Great  Britain  and  Canada  last  fall,  and  the 
Moscow  conference  in  December,  the  United  King- 
dom, the  U.S.S.R.,  Canada,  and  the  United  States 
sponsored  the  setting  up  of  a  United  Nations  Com- 
mission on  Atomic  Energy.  When  this  Commis- 
sion was  established  by  the  General  Assembly  of 
the  United  Nations  in  January,  it  reflected  the 
almost  universal  conviction  that  somehow  means 
must  be  found  to  develop  effective  international 
control  of  this  new  force.  It  was  also  in  Janu- 
ary that  the  Secretary  of  State  set  up  a  State 
Deijartment  Committee  to  study  the  question  of 
international  control.  This  was  done  as  a  means 
of  preparing  our  Government  for  the  forthcoming 
deliberations  of  the  United  Nations  Commission. 
In  addition  to  Dr.  Bush,  who  lias  had  so  much  to  do 
with  the  atomic-energy  project  during  the  war, 
there  were  two  others  on  the  Committee  whose  part 
in  this  great  achievement  is  well  known;  Presi- 
dent Conant  of  Harvard,  and  General  Groves. 
The  other  members  were  Mr.  John  J.  McCloy, 
former  Assistant  Secretary  of  War,  and  myself. 

Our  Committee  felt  that  what  was  most  needed 

'A  Report  on  the  International  Control  of  Atomic 
Eiierf/y,  Department  of  State  publication  2498. 


for  a  wise  approach  to  the  question  was  to  bring 
together  a  group  of  qualified  consultants  who 
would  be  willing  to  give  their  full  time  long 
enough  to  make  a  really  thorough  analysis  of  in- 
ternational control.  And  so  at  the  beginning  of 
our  work  we  appointed  a  Board  of  Consultants, 
consisting  of  Dr.  J.  Robert  Oppenheimer,  the  bril- 
liant physicist  who  had  such  a  prominent  part  in 
developing  the  bomb,  three  leading  industrialists, 
Chester  Barnard,  President  of  the  New  Jersey 
Bell  Telephone  Company,  Dr.  Charles  Thomas, 
Vice  President  of  the  Monsanto  Chemical  Com- 
pany, and  Harry  Winne,  Vice  President  of  the 
General  Electric  Company.  The  Board  was 
headed  by  David  Lilienthal,  distinguished  Chair- 
man of  the  Tennessee  Valley  Authority.  For  two 
months  these  men  abandoned  all  their  other  work 
and  devoted  their  full  time  to  an  intensive  study 
of  this  problem.  The  Report  on  the  International 
Control  of  Atomic  Energy  was  largely  their  work. 
After  thej^  completed  their  study  they  discussed 
their  findings  extensively  with  our  Committee.  All 
of  us  became  firmly  convinced  that  the  plan  which 
these  men  advocated  with  such  remarkable  unani- 
mity represented  the  most  constructive  analysis  of 
the  question  that  had  been  made,  and  a  definitely 
hoiJeful  approach  to  a  solution. 

LeSueur:  Is  that  the  plan,  then,  under  which 
this  Government  is  going  to  proceed,  Mr.  Ache- 
son? 

Achesok:  As  the  Secretary  of  State  has  said, 
this  report  is  not  a  statement  of  Government  pol- 
icy. It  was  made  public  merely  as  a  basis  for  dis- 
cussion. In  a  way,  it  is  a  sort  of  working  paper. 
It  was  prepared  as  a  means  of  assisting  the  Presi- 
dent and  the  Secretary  of  State  and  other  presi- 
dential advisers  to  determine  the  Government  pol- 
icy. And,  of  course,  even  if  the  report  were  to  be 
adopted  as  the  outline  of  the  official  Government 
position,  it  should  not  be  thought  that  in  itself  it 


MAY  5,  1946 


775 


contains  a  complete  plan  that  the  United  Nations 
could  then  take  and  put  into  effect.  It's  more  like 
the  rough  sketches  an  architect  makes  of  a  build- 
ing before  the  plan  is  accepted  by  his  client  and 
before  the  thousands  of  detail  drawings  are  made 
that  must  be  used  to  construct  the  building. 

Dr.  Bush  and  I  can  give  you  a  quick  summary  of 
the  conclusions  of  the  Board  of  Consultants.  But 
I  strongly  urge  our  listeners  to  read  the  whole  text 
of  the  liepovt.  It's  short  enough  to  read  in  a 
couple  of  hours  and  it  can't  really  be  under-stood 
unless  it  is  read  in  full. 

The  control  of  atomic  energy  is  a  human  prob- 
lem. The  Consultants  started  their  work  the 
same  way,  I  suppose,  that  most  people  begin 
when  they  think  about  this  matter.  They  con- 
sidered the  idea  of  an  agreement  among  nations 
to  outlaw  atomic  weapons.  They  observed,  as 
everj'one  does,  that  we  are  still  far  from  that  state 
where  mere  agreement  among  nations  can  provide 
security.  But  then  when  they  examined  the  pos- 
sibility of  giving  strength  to  such  an  agi'eement  by 
a  woi'ld-wide  system  of  inspection,  they  wei'e  forced 
to  conclude  that  such  a  police  system  would  not 
work.  I  believe  you  agreed  with  that  decision  did 
you  not,  Dr.  Bush  ? 

Bush  :  I  did  and  emphatically.  It  would  re- 
quire an  international  police  force  of  immense  size 
to  do  the  job  at  all.  Wliat  is  more,  it  would  take  a 
high  quality  of  personnel,  who  would  never  be  will- 
ing to  do  mere  police  work.  Every  corner  of  the 
earth  would  have  to  be  open  to  the  international 
police.  The  political  and  mechanical  complica- 
tions in  such  a  system  would  be  endless.  It  was 
certain  to  be  as  objectionable  to  this  country  as  it 
would  be  to  others. 

AcHESoN :  Well,  that  scheme  of  solving  the  prob- 
lem didn't  make  sense — it  wasn't  realistic  and  it 
wasn't  practical.  The  Board  of  Consultants  then 
looked  at  the  problem  from  an  entirely  different 
angle.  They  tried  to  see  whether  there  was  any 
means  of  reducing  the  whole  problem  of  control  to 
more  manageable  proportions.  They  looked  care- 
fully at  all  the  complicated  scientific  and  technical 
facts  concerning  atomic  energy,  and  they  obseiwed 
a  number  of  very  significant  things,  technical 
things  about  atomic  energy  that  could  be  utilized 
in  building  an  effective  and  practical  system  of 
control.  Their  fii-st  important  conclusion  was 
that  there  was  one  absolutely  indispensable  element 
in  the  pi'ocess  of  releasing  atomic  energy — that 


element  was  uranium.  Dr.  Bush  can  explain  better 
than  I  can  why  this  is  true. 

Bush  :  That  conclusion  is  the  right  one,  Mr. 
Acheson.  You  must  have  uranium  to  produce 
atomic  energy,  so  far  as  science  can  see.  However, 
there  is  another  element,  thorium,  which  can  be 
used  if  uranium  is  available  as  a  starter.  There- 
fore, it  is  wise  to  control  both  of  them.  These 
are  the  only  two  elements  which  occur  abundantly 
in  nature  and  which  can  be  used  as  a  primary 
source  of  fissionable  material — that  is,  the  material 
from  which  you  get  atomic  energy.  The  ores  of 
these  elements  are  frequently  found  together  in  the 
earth — a  fact  that  simplifies  the  over-all  problem 
of  control.  Uranium,  remember,  is  the  indispensa- 
ble material  for  atomic  fission.  The  Consultants 
concluded  that  for  effective  control  it  would  be 
absolutely  necessary  to  put  the  mining  and  posses- 
sion of  uranium  and  thorium  ores  under  the  con- 
trol of  an  international  body.  This  would  mean 
that  no  nation  and  no  individual  could  legally 
have  control  over  any  dangerous  amounts  of  the 
two  metals.  They  reasoned  that  by  this  one  stroke 
the  whole  problem  of  international  control  would 
be  immensely  simplified.  We  would  not  have  to 
worry  about  v)l\y  someone  or  some  nation  had  pos- 
session of  uranium  or  thorium,  nor  what  they  in- 
tended to  do  with  it — the  very  fact  that  the  nation 
or  individual  had  taken  possession  of  a  danger- 
ous amount  would  flash  a  danger  signal  to  the 
world.  For  convenience  they  called  their  proposed 
organization  the  Atomic  Development  Authority. 
Once  it  was  in  operation  it  would  immediately 
conduct  world-wide  geological  surveys  through 
which  it  would  become  fully  aware  of  the  location 
and  the  status  of  available  ores.  Its  agents  would 
be  in  charge  of  all  mining  operations.  Any  illegal 
effort  to  develop  secret  sources  of  the  ores  and 
thus  to  evade  the  safeguards  would  mean  but  one 
clear  thing,  that  an  aggressive  effort  was  being 
made  to  make  atomic  armaments. 

LeSueur  :  I  must  say  that  seems  very  practical 
if  we  can  get  the  other  countries  to  agree.  But 
that's  not  all  there  is  to  international  control  of 
atomic  energy.  Dr.  Bush  ? 

Bush:  Xo.  that's  only  one  of  the  major  prem- 
ises on  which  international  control  must  be  based. 
It's  only  one  of  the  steps  which  the  Board  of 
Consultants  went  through  in  their  thinking. 
After  you  get  uranium  and  thorium  out  of  the 
ground  and  even  after  you  refine  them  you  must 


776 

go  through  a  long  complicated  process  to  get  the 
fissionable  materials  which  can  be  used  in  making 
bombs  or  in  peaceful  applications  of  atomic  power. 
In  studying  this  long  process  of  production  and 
utilization,  the  Board  of  Consultants  observed 
another  very  significant  fact.  These  operations 
could  be  divided  into  two  general  classes,  safe 
and  dangerous.  On  tlie  one  hand,  they  concluded 
that  the  operation  of  primary  production  plants 
by  nations  or  individuals  would  be  dangerous  in 
the  sense  that  such  operations  carried  on  by  na- 
tions in  competition  with  one  another  would  be  a 
constant  threat  to  security.  It  would  be  impos- 
sible to  tell  under  such  conditions  whether  the 
plants  were  being  used  witli  peaceful  purposes 
in  mind  or  for  aggression. 

They  concluded  that  there  would  be  no  hope  for 
security  unless  these  dangerous  operations  were 
placed  in  international  hands,  so  that  there  would 
be  no  opportunity  for  destructive  national  rival- 
ries. As  in  the  case  of  the  mines,  any  attempt  by  a 
nation  or  an  individual  to  set  u]3  a  primary  pi'oduc- 
tion  plant  would  be  an  immediate  danger  signal. 
It  would  be  unnecessary  to  wonder  about  the  pur- 
poses of  such  a  nation.  The  mere  act  of  operating 
such  a  plant  would  in  itself  be  illegal.  Thus  by 
arranging  the  regulations  so  that  the  only  legal 
operations  were  those  of  the  international  Au- 
thority the  problem  of  control  would  again  be 
greatly  simplified.  Specifically,  of  course,  this 
would  mean  that  our  great  installations  at  Han- 
ford  and  Oak  Ridge  would  eventually  be  operated 
by  an  international  Autliority.  It  would  mean,  in 
addition,  that  comparable  installations  would  be 
owned  and  operated  by  tliat  Authority  in  other 
nations. 

AcHESON :  In  plain  words,  the  Report  sets  up  a 
plan  imder  which  no  nation  would  make  atomic 
bombs  or  the  materials  for  them.  All  dangerous 
activities  would  be  carried  on — not  merely  in- 
spected— by  a  live,  functioning  international  Au- 
thority with  a  real  purpose  in  the  world  and  capable 
of  attracting  competent  personnel.  This  monopoly 
of  the  dangerous  activities  by  an  international  Au- 
thority would  still  leave  a  large  and  tremendously 
productive  field  of  xaff  activities  open  to  individual 
nations,  their  industries,  and  universities. 

LeSueur:  The  Report  mentions  something 
about  a  special  kind  of  material  for  peaceful  uses, 
doesn't  it,  Dr.  Bush?  Uranium  with  its  explosive 
teeth  pulled.    Is  that  right? 


DEPARTMENT  OF  STATE  BULLETIN 

Bush  :  Let's  say  the  explosive  teeth  can  be 
muzzled  or  made  inoperative.  The  teeth  are  still 
there,  but  the  muzzle  cannot  be  removed  without 
going  to  a  great  deal  of  trouble.  By  a  process 
called  "denaturing"  dangerous  fissionable  mate- 
rials can  be  ti'eated  or  denatured  so  that  they 
cannot  be  used  for  atomic  explosives  without 
going  through  a  difficult  renaturing  or  purifica- 
tion. To  purify  them  would  require  plants  of 
the  same  general  type,  though  not  the  same  size, 
as  those  at  Oak  Kidge.  Denaturing  material 
labels  it  at  once  as  legal.  Possession  of  un- 
denatured  material  by  a  nation  or  an  individual 
\A-ithout  authorization  by  the  international  control 
body  would  be  illegal — a  warning  of  trouble.  Th.e 
fact  that  fissionable  materials  can  be  readily  iden- 
tified as  legal  or  illegal  in  this  way  will  be  of  great 
importance  in  control,  even'  should  renaturing  be- 
come much  simpler.  Thus  we  have  an  added  mar- 
gin of  safety  and  a  wider  peaceful  use  of  fission- 
able materials.  Denaturing  alone  cannot  make 
operations  safe  but  it  is  a  helpful  device  when 
used  together  with  the  other  features  of  the  plan. 

Acheson:  The  safe  activities  that  the  plan 
would  leave  to  national  development  hold  great 
promise.  Let  me  add  another  word,  however, 
about  tlie  dangerous  ones.  The  authority's  dan- 
gerous production  plants,  stockpiles,  and  other 
installations  will  be  strategically  distributed  ge- 
ographically. You  can  see  what  would  happen, 
then,  if  a  nation  bent  on  atomic  war  should 
seize  the  international  plants  within  its  borders. 
Such  a  course  would  be  a  clear  danger  signal  to 
the  world.  Other  nations  would  have  atomic 
plants  within  their  own  borders  so  that  they  would 
not  be  at  a  disadvantage.  If  a  nation  did  seize 
the  Authority's  installations  that  were  located 
within  its  territoi'y,  it  would  still  take  at  least  a 
year  or  more  to  produce  bombs.  Therefore,  the 
plan  can  jDrovide  by  this  dispersion  of  installa- 
tions a  great  measure  of  security  against  surprise 
attack. 

LeSueur:  We  have  a  notion  now,  Mr.  Secre- 
tary, what  the  Report  is  about.  What  happens  to 
it  now?  Has  it  been  transmitted  to  Mr.  Baruch, 
our  American  delegate  to  the  Atomic  Energj' 
Commission  of  the  United  Nations  ? 

At'iiEsoN :  Yes,  it  has  been  sent  to  all  the  officers 
of  the  Government  whose  duty  it  is  to  advise  with 
the  President  in  determining  our  policy.     Tiiey 


MAY  5,  1946 


777 


may  reject  it  entirely  or  the}'  may  cliange  it  to 
bring  out  other  methods  and  conclusions. 

LeSukuk  :  If  this  phm  for  interniitional  control 
is  accepted  in  principle  as  the  starting  position  of 
the  United  States  at  the  beginning  of  international 
negotiations,  wliat  happens  then? 

AciiEsoN :  Well,  there  ■would  be  a  great  deal  to 
do.  Remember  the  plan  in  the  Report  merely  out- 
lines  a  general  course  of  action.  To  put  it  in  final 
foini  would  take  a  lot  more  hard  work  by  a  large 
staff. 

LeSueur  :  If  the  United  States  arrived  at  a 
clear  and  detailed  policy  of  controlling  atomic 
energy  along  the  lines  of  the  Report^  what  would 
then  be  the  next  step  ? 

AcHEsoN  :  The  plan  would  be  rejiorted  to  the  in- 
ternational Commission  by  our  delegate,  Mr.  Ba- 
rucli.  The  Commission  would  debate  its  merits 
and  the  merits  of  any  alternate  plans  advanced  by 
other  delegates.  Out  of  these  deliberations  would 
come  the  Commission's  agreed  proposal,  which 
would  then  be  reported  to  the  General  Assembly 
and  to  the  Security  Council.  Finally  the  United 
Nations  Organization  would  probably  make  a  rec- 
ommendation that  its  members  enter  into  a  treaty 
or  a  series  of  treaties  binding  them  to  the  adopted 
plan  of  control.  It  would  be  up  to  each  nation 
then  to  decide  whether  to  ratify  formally  such 
agreements.  I  might  add  that  this  process  would 
take  considerable  time. 

Over  a  period  of  years,  as  the  Authority  ma- 
tured, our  atomic  facilities,  our  stockpiles  and 
the  like  would  pass  from  national  to  international 
control.  When  the  Authority  was  fully  in  oper- 
ation— and  this,  of  course,  is  looking  a  considerable 
period  into  the  future — all  of  the  so-called  dan- 
gerous activities,  here  and  elsewhere  in  the  world, 
would  be  internationalized. 

Bush  :  In  my  opinion,  and  I  state  it  em- 
phatically, the  most  dangerous  aspect  of  atomic 
fission  in  the  future  is  the  possibility  that  the 
field  may  become  the  subject  of  national  rivalry. 
The  striking  fact  about  the  plan  we  have  been 
discussing  is  that  it  shows  the  way  to  avoid  these 
rivalries  where  they  would  do  the  most  harm  and 
it  also  shows  the  way  to  permit  nations  to  press 
forward  in  the  development  of  constructive  uses 
of  atomic  energy  where  competition  between  na- 
tions is  not  only  healthy  but  desirable.  By  with- 
drawing dangerous  activities  from  national  hands, 
this  plan — unlike  any  mere  agreement  to  outlaw 


the  atomic  bomb — imposes  a  minimum  strain  on 
the  good  faith  of  nations. 

Acheson  :  I  believe  you've  expressed  the  core  of 
the  matter  right  there.  Doctor.  It  reduces  the 
temptation  to  evasion  because  evasion  would  be 
pointless  and  unprofitable.  More  than  that,  by 
providing  sovereign  states  with  an  opportunity  to 
collaborate  in  a  live,  functioning  organization  for 
a  specific  purpose,  it  will  build  up  mutual  confi- 
dence and  establish  a  pattern  of  cooperation  which 
can  be  extended  to  the  solution  of  other  interna- 
tional problems. 

LeSueur  :  And  that  is  the  central  point  of  the 
Committee's  plan,  is  it  not,  Mr.  Acheson,  that  it 
provides  a  practical  basis  for  working  out  an  in- 
ternational agieement  ? 

Acheson  :  Yes,  but  I  would  change  that  phrase 
a  little  bit  to  say  that  it  provides  a  starting  point 
for  practical  discussion.  I  repeat  that  the  Com- 
mittee's plan  is  a  preliminary  sketch  of  the  house 
to  be  built.  The  final  decisions  must  be  roughed 
out  and  the  finished  lines  drawn  in  by  the  long 
process  of  national  and  international  discussion. 

Mr.  LeSueur,  I  would  like  to  make  a  little 
summary  that  might  be  useful.  The  interna- 
tional Authority  we  have  sketched  here  tonight 
would  be  able  to  do  these  things  Dr.  Bush  has  been 
speaking  about  because  the  plan  recognizes  three 
facts :  first,  that  control  of  the  raw  materials  cap- 
able of  chain  reaction  is  essential ;  second,  that  ac- 
tivities dangerous  internationally  and  activities 
safe  for  national  development  can  be  distin- 
guished; and  third,  that  the  international  agency 
must  and  can  by  its  own  research  and  its  own  in- 
spection system  lead  even  the  most  advanced  single 
nation  in  the  knowledge  of  atomic  energy. 


Visit  of  Peruvian  Dentist 

Dr.  Jose  Santos  Herrera,  professor  of  orthodon- 
tia in  the  school  of  medicine,  University  of  San 
Marcos,  Lima,  Peru,  and  founder  of  the  Peruvian 
Academy  of  Entomology,  is  visiting  dental  clinics 
and  dental  schools  in  this  country  at  the  invita- 
tion of  the  Department  of  State. 

During  his  three  months'  visit  Dr.  Herrera  will 
visit  Washington,  Baltimore,  Philadelphia,  New 
York,  Boston,  Ann  Arbor,  Chicago,  San  Francisco, 
and  Los  Angeles. 


778 

Senate  Approves  Commodity 
Protocols 

I  liter- American  Coffee  Agreement 

The  Senate  on  April  11,  l!)-i6  gave  its  advice  and 
consent  to  the  ratification  of  a  protocol  ^  to  extend 
for  one  year  from  Octol)er  1,  1945,  with  certain 
modifications,,  the  inter-American  coffee  agree- 
ment signed  in  Washington  on  November  28, 1940,- 
as  extended  from  time  to  time. 

Regulation  of  Production  and  Marketing  of  Sugar 

The  Senate  on  Ajn-il  17, 194(;  gave  its  advice  and 
consent  to  the  ratification  of  a  protocol  dated  in 
London  August  31, 1945  ^  prolonging  for  a  further 
period  of  one  year  after  August  31,  1945  the  in- 
ternational agreement  regarding  the  regulation  of 
production  and  marketing  of  sugar  which  was 
signed  originally  in  London  May  G,  1937,*  as 
renewed. 


The  Department 


Alfred  McCormack  Resigns  as  Special 
Assistant  to  the  Secretary 

[Keleased  to  the  press  April  24] 

April  23, 10^6. 
Dear  Mr.  Secretary: 

The  series  of  Dei^artmental  Orders  issued  yes- 
terday, relating  to  the  intelligence  organization 
within  the  Department,  provide  for  dismembering 
the  Office  of  Research  and  Intelligence  and  trans- 
ferring its  functions  to  a  group  of  separate  re- 
seai'ch  divisions  under  tlie  Political  Offices,  and 
they  contain  other  organizational  provisions  that 
I  regard  as  unworkable  and  unsound.  I  had 
hoped  that  the  compromise  proposal  worked  out 
by  Colonel  Tyler  Wood,  which  appeared  to  meet 

'  Senate  Executive  A,  79tli  Cong. 
-  Treaty  Series  970  and  970. 
■■'  Senate  Executive  B,  79th  Cong. 
i  Treaty  Series  990. 


DEPARTMENT  OF  STATE  BULLETIN 

all  points  of  substance  raised  by  the  Political  Of- 
fices, would  be  found  acceptable,  and  I  was  there- 
fore disappointed  to  find  that  the  orders  as  issued 
conformed  almost  exactly  to  the  so-called  "Rus- 
sell Plan,"  proposed  by  the  Assistant  Secretary 
for  Administration  last  December. 

I  realize  how  difficult  it  has  been  for  the  Secre- 
tary to  decide  an  issue  on  wliich  the  Department 
has  been  so  divided  in  opinion,  in  view  of  the  enor- 
mous burden  that  the  Secretary  has  been  carry- 
ing. I  am  convinced,  however,  that  while  the 
plan  adopted  will  give  needed  reinforcements  to 
the  Political  Offices,  and  in  that  i-espect  will  be 
beneficial,  it  will  make  impossible  the  establish- 
ment of  a  real  intelligence  unit  within  the  De- 
partment ;  that  it  will  weaken  the  Department 
vIs-a-vIs  the  military  components  of  the  National 
Intelligence  Authority,  who  already  have  the  ad- 
vantage of  a  three  to  one  representation  in  the 
Central  Intelligence  Group,  as  compared  with  that 
of  the  State  Department;  and  that  it  will  prevent 
the  carrying  out  of  the  long-range  plans  for  post- 
war intelligence  which  you  and  I  had  in  mind 
when  you  asked  me  to  come  into  the  Department. 

The  Department  must  go  before  the  Senate  Ap- 
propriations Committee  within  two  or  three  weeks 
to  i^resent  its  case  for  restoration  of  the  appropria- 
tions cut  made  by  the  House  of  Representatives, 
affecting  the  intelligence  organization.  Feeling 
as  I  do  that  the  organization  as  now  to  be  set  up 
is  unsound  and  not  in  the  best  interests  of  the 
Government,  I  cannot  conscientiously  present  the 
case  to  the  Senate,  and  I  believe  that  the  best  in- 
terests of  the  Department  and  the  Government 
will  be  served  by  my  immediate  resignation. 

I  therefore  submit  my  resignation,  with  the 
request  that  you  release  me  at  once.  It  is  my  hope 
that,  by  replacing  me  with  a  man  who  has  not  been 
a  party  to  the  internal  differences  of  the  jjast  six 
months,  the  Department  may  contrive  in  some  way 
to  salvage  the  intelligence  organization  which  it 
took  over  from  the  Office  of  Strategic  Services.  In 
spite  of  serious  losses  of  personnel  and  many  other 
difficulties  that  it  has  encountered  since  October  1, 
1945,  it  is  still  an  effective  intelligence  unit.  In 
my  opinion,  because  of  demobilization  of  other 
intelligence  units  that  were  functioning  in  war 
time,  it  is  the  best  remaining  asset  of  the  Govern- 
ment in  the  foreign  intelligence  field. 

I  am  grateful  to  vou  for  the  efforts  that  you 


MAY  5,  1946 


779 


have  made  to  work  out  an  organizational  arrange- 
ment that  would  meet  the  views  of  all  parties  con- 
cerned and  for  the  personal  support  and  good  ad- 
vice that  you  have  given  me  since  I  have  been  in 
the  DeiDartment. 

Witli  all  good  wishes, 
Sincerely  yours, 

Alfred  McCokmack 

The  Honorable 
Dean  Aciieson 

Acting  Secretary  of  State. 

April  23,  191fi. 
Dear  Colonel  McCoRsrAcic : 

I  have  your  letter  of  April  23  in  which  you 
tender  your  resignation  as  Special  Assistant  to  the 
SecretaiT  for  Research  and  Intelligence.  I  under- 
stand and  respect  the  reasons  that  led  you  to  this 
decision;  and  much  as  I  regret  that  it  falls  to  me 
to  receive  your  letter,  I  accept  your  resignation.  I 
know  that  the  Secretary  would  wish  me  to  express 
on  his  behalf  his  appreciation  of  your  devoted 
service  to  the  Department  over  these  past  months, 
both  in  organizing  within  the  Department  the  in- 
telligence work  and  in  representing  the  Depart- 
ment in  establishing,  in  accordance  with  the  Presi- 
dent's direction,  the  Department's  participation  in 
the  work  of  the  National  Intelligence  Authority. 

May  I  add  my  own  word.  I  know  with  what 
reluctance  you  gave  up  last  fall  your  intention  to 
return  to  private  life  in  order  to  do  this  work  in 
the  Department.  I  know  the  untiring  energy 
which  you  devoted  to  it.  I  know  the  effort  which 
you  have  put  into  surmounting  the  difficulties 
which  were  inherent  in  the  task.  All  of  us  who 
have  worked  with  you  are  deeply  grateful.  When 
3'ou  joined  us,  you  and  I  had  only  a  slight  ac- 
quaintance ;  I  knew  you  chiefly  through  your  work. 
As  you  leave,  you  take  with  you  my  increased 
admiration  for  that  and  a  deep  jiersonal  regard. 
I  hope  that  the  future  holds  opportunities  for  us 
to  work  together  again  and  to  happier  outcomes. 
Sincerely  yours. 

Dean  Acheson 
The  Honorable 

Alfred  McCormack 
S fecial  Assistant  for 

Research  and  Intelligence, 
Department  of  State. 

^  Use  of  Original  Keeords  of  the  Department  of  State, 
effective  JIar.  15,  1946. 


Depa 


rtmental  Regulation'  420.1 


Use  of  Records  by  Persons  Who  Are  not  Officials  of 
THE  United  States  Go^TaiNMENT. 
A  The  confidential  or  unpublished  files  and  records 
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o  If  such  permission  is  requested,  the  expenses 
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the  purpose  of  the  applicant's  work. 

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the  Department  of  dates  "prior  to  the  one  fixed  by  the 
Department  will  be  referred  to  the  Chief  of  the  Division 
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780 

Publications 

of  the  DEPARTMENT  OF  STATE 

For  sale  by  the  Superintendent  of  Doewnents,  Government 
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Anglo-American  Committee  of  Inquiry.  Agree- 
ment Between  tlie  United  States  of  America  and 
the  United  Kingdom  of  Great  Britain  and  North- 
ern Irehxnd — Effected  by  exchange  of  notes  signed 
at  Washington  December  10,  1945.  Executive 
Agreement  Series  491.     Pub.  2488.     2  pp.     5^. 

Agreement  for  the  estalilisliinent  of  a  joint  committee 
of  six  United  States  nationals  and  six  United  King- 
dom nationals  to  examine  and  report  on  tlie  ix>sition 
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tine. 

Prc.secution  and  Punishment  of  the  Major  War 
Criminals  of  the  European  Axis.  Agreement 
and  Protocol  Between  the  United  States  of  Amer- 
ica and  the  Frencli  Republic,  the  United  Kingdom 
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Union  of  Soviet  Socialist  Republics— Agreement 
signed  at  London  August  8,  1945,  effective  August 
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Executive  Agreement  Series  472.  Pub.  24fil.  48 
pp.     150. 

Agreement  for  the  establislmient  of  an  international 
military  tribunal  for  the  trial  of  war  criminals,  with 
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Mutual  Aid  in  French  North  and  West  Africa. 

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and  the  French  Committee  of  National  Libera- 
tion— Signed  at  Algiers  September  25, 1943 ;  effec- 
tive September  25,  1943.  Executive  Agreement 
Series  483.    Pub.  2465.    8  pp.    H- 

Agreement  regardiiig  reciprocal  aid  with  respect  to 
military  and  civilian  supplies  and  services  in  French 
North  and  West  Africa. 

Mutual  Aid.  Agreements  Between  the  United 
States  of  America  and  Belgium,  including :  Agree- 
ment Relating  to  Supplies  and  Services,  signed  at 
Washington  April  1",  1945,  effective  April  17, 
1945;  Memorandum  of  Interpretation;  Exchanges 


DEPARTMENT  OF  STATE  BULLETIN 

of  Notes;  and  Agreement  Relating  to  Principles 
Apiilying  to  tlie  Provision  of  Aid  to  the  Armed 
Forces  of  the  United  States.  Executive  Agree- 
ment Series  481.     Pub.  2480.     18  pp.     H- 

Text  of  agreements  with  a  memorandum  of  interpreta- 
tion and  notes  on  the  principles  applying  to  aid  for 
defense  under  the  Lend-Lease  Act. 

International  Civil  Aviation.  Interim  Agreement 
Between  the  United  States  of  America  and  Other 
Powers — Opened  for  signature  at  Chicago  Decem- 
ber 7,  1944;  signed  for  the  United  States  of 
America  December  7, 1944;  accepted  by  the  United 
States  of  America  February  8, 1945,  with  an  under- 
staiuling ;  effective  June  6, 1945.  Executive  Agree- 
ment Series  469.     Pub.  2460.     21  pp.     50. 

Agreement  establishing  the  Provisional  International 
Civil  .\viation  Organization  (PICAO)  for  the  purpose 
of  collaboration  in  the  field  of  international  civil 
aviation. 

Sockeye  Salmon  Fisheries.  Agreement  Between 
the  United  States  of  America  and  Canada — Ef- 
fected by  exchange  of  notes  signed  at  Washington 
July  21  and  August  5,  1944.  Executive  Agree- 
ment Series  479.     Pub.  2450.     14  pp.     50. 

Agreement  on  remedial  measures  for  overcoming  ob- 
structions to  the  ascent  of  salmon  in  Hell's  Gate 
Canyon  and  for  investigating  and  overcoming  obstruc- 
tions to  salmon  elsewhere  in  the  Fraser  River  water- 
shed. 

The  Proclaimed  List  of  Certain  Blocked  Na- 
tionals. Cumulative  Supplement  No.  2,  March 
14,  194C,  containing  additions,  amendments,  and 
deletions  made  since  Revision  X  of  December  20, 

1945.  Pub.  2486.    14  pp.    Free. 

Diplomatic  List,  April  1946.  Pub.  2509.  145  pp. 
Subscription,  $2  a  year;  single  copy  200. 

Monthly  list  of  foreign  diplomatic  representatives  in 
Washington,  with  their  addresses,  prepared  by  the 
Division  of  Protocol  of  the  Department  of  State. 

Recent  Publications  of  the  Department  of  State, 

1946.  Pub.  2510.     Free. 

Annotated  list  of  Department  publications  on  current 
developments  In  foreign   relations. 

A  cumulative  list  of  tlie  publications  of  the  De- 
partment of  State,  from  Oct.  1,  1929  to  Jan.  1, 
10.1^6  {put.  2Ji6^),  mat/  be  obtained  from  the  De- 
partment of  State. 

PUBLISHED    WITH    APPROVAL    OF    DIRECTOR    OF    BUREAU    OF    THE    BUDGET 
U.  S.  GOVERHUEHT  PRINTING   OFFICE;  1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  358 


MAY  12,  1946 


Meeting-  of  the  Security  Council:  Proposals  Discussed 
for  Drafting  Resolution  on  Spain  .     .     .  page  788 

Non-Military  Activities  in  Japan  and  Korea    .  page  80.5 


Anglo-American  Committee  of  Inciuiry 

EXCERPTS  FROM  REPORT  .... 


page  783 


Council  of  Foreign  Ministers:  Draft  Treaty  on  Disarm- 
ament and  Demilitarization  of  Germany    .  page  815 


^^^'^  o*. 


For  complete  contents 
see  inside  cover 


"axes  o^ 


THE  DEPARTMEINT  OF  STATE 


BULLETIN 


VoL.XIV»No.358 


Publication  2526 


May  12,  1946 


For  eale  by  the  Superintendent  of  Documenie 

U.  S.  Government  Printing  Office 

Washington  25,  D.  C. 

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Special  offer:  13  weeks  for  $1.00 
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The  Department  of  Slate  BVLLETIN, 
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edited  in  the  Division  of  Research  and 
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4,,  I,  lUflRtNTENDENT  OF  DOCUMENT 

jUN  19  1946 


Contents 


Page 
Report  of  the  Anglo-American  Committee  of  Inquiry: 

Statement  by  the  President 783 

Transmittal  of  the  Report  to  the  President 783 

Letter  From  the  President  to  Judge  Hutcheson 783 

Excerpts  P'rom  the  Report 784 

Non-Military  Activities  in  Japan  and  Korea: 

Economic  Activities  in  Japan 805 

Social  Activities  in  Japan 807 

Legal  and  War  Crimes 808 

Discussions  on  Korean  Cultural  and  Educational  Problems   .  812 

The  United  Nations 

Meeting  of  the  Security  Council.     Proposals   Discussed  for 

Drafting  Resolution  on  Spain 788 

Memorandum  on  the  Objectives  of  the  Economic  and  Em- 
ployment Commission 7i)7 

International  Organizations  and  Conferences 

Calendar  of  Meetings 813 

Activities  and  Developments: 

U.S.  Delegation  to  the  First   Meeting  of  the  Metal  Trades 

Committee  of  ILO 813 

Announcement  on  Positions  in  FAO  Secretariat 814 

Opening  Meetings  of  the  Commissions  of  the  Economic  and 

Social  Council 814 

The  Record  of  the  Week 

*Draft  Treaty  on  the  Disarmament  and  Demilitarization  of 

Germany 815 

Italian  Government  To  Restore  Projjerty  of  United  Nations 

Nationals 817 

Myron  C.  Taylor  To  Return  to  Italy  as  President's  Personal 

Representative.     Statement  bj-  the  President 818 

*Credit  Arrangement  With  Austria 818 

Discussions  Regarding  Foreign  Purchasing  Missions   ....        819 

Addresses  and  Broadcasts  of  the  Week 819 

Foreign  Liquidation  Commission  Report 820 

Discussions  on  World  Trade  Proposed 820 

Clearance  Processes  for  Sale  of  Classified  Articles 821 

Ambassador  Pauley  To  Study  Economic  Problems  in  the  Far 

East 821 

Program  for  Philippine  Re'abilitation  and  Recovery.       State- 
ment by  the  President 822 

American  Vessels  To  Transport  Food  to  Foreign  Countries.    .    822 
♦Convention  With  Canada  for  the  Development,  Protection,  and 
Conservation  of  the  Fisheries  of  the  Great  Lakes: 

Message  From  the  President 823 

Report  of  the  Secretary  of  State 823 

Prime  Minister  of  Australia  To  Visit  in  U.S 825 

Consideration  of  Japanese  Reparations 826 

The  Department: 

Appointment  of  William  L.  Langer  as  Special  A.ssistant  to  tl  e 

Secretary 826 

Appointment  of  Officers 826 

Intelligence  Objectives 826 

The  Foreign  Service: 

Confirmations 828 

Diplomatic  and  Consular  Offices 828 

*Treaty  iDformation. 


Report  of  the  Anglo-American  Committee 
of  Inquiry 


STATEMENT  BY  THE  PRESIDENT 

I  am  very  happy  that  the  request  wliich  I  made 
for  the  immediate  admission  of  100,000  Jews  into 
Palestine  has  been  unanimously  endorsed  by  the 
Anglo-American  Committee  of  Inquiry.  The 
ti-ansference  of  these  imfortunate  people  should 
now  be  accomplislied  with  the  greatest  dispatcli. 
The  protection  and  safeguarding  of  the  Holy 
Places  in  Palestine  sacred  to  Moslem,  Christian, 
and  Jew  is  adequately  jirovided  in  the  rejjort. 
One  of  the  significant  features  in  tlie  report  is  that 
it  aims  to  insure  comj^lete  protection  to  the  Arab 
population  of  Palestine  by  guaranteeing  tlieir  civil 
and  religious  rights,  and  by  recommending  meas- 
ures for  constant  improvement  in  tlieir  cultural, 
educational,  and  economic  position. 

I  am  also  pleased  that  the  Committee  recom- 
mends in  effect  the  abrogation  of  the  AVhite  Paper 
of  1939  including  existing  restrictions  on  immigi-a- 
tion  and  land  accjuisition  to  permit  the  further 
development  of  the  Jewish  National  Home.  It  is 
also  gratifying  that  the  report  envisages  the  carry- 
ing out  of  large-scale  economic  development  proj- 
ects in  Palestine  which  would  facilitate  further 
immigration  and  be  of  benefit  to  the  entire  popula- 
tion. 

The  text  of  the  report  and  the  President's  statement  were 
released  to  the  press  by  the  White  House  on  Apr.  30,  1946. 

Tlie  report,  as  submitted  to  the  Governments  of  the 
United  States  and  the  United  Kingdom,  wa.s  signed  at 
Lausanne,  Switzerland,  on  Apr.  20,  1046.  The  following 
signatures  were  attached  to  the  report :  Joseph  C.  Hutch- 
eson,  American  Chairman ;  John  E.  Singleton,  British 
Chairman;  Frank  Aydelotte  (U.S.),  EYank  W.  Buxton 
(U.S.),  W.  F.  Crick  (U.K.),  K.  H.  S.  Grossman  (U.K.), 
Bartley  C.  Crum  (U.S.),  Frederick  Leggett  (U.K.),  R.  E. 
Manningham-BuUer  (U.K.),  James  G.  McDonald  (U.S.), 
Morrison  (U.K.),  William  Phillips  (U.S.),  Leslie  L.  Rood, 
American  Secretary,  Evan  M.  WIIsdu,  American  Secretary, 
H.  G.  Vincent,  British  Secretary,  and  H.  Beeley,  British 
Secretary. 


In  addition  to  these  immediate  objectives  the 
report  deals  with  many  other  questions  of  long- 
range  political  policies  and  questions  of  interna- 
tional lav?  which  require  careful  study  and  which 
I  will  take  under  advisement. 

TRANSMITTAL  OF  THE  REPORT  TO  THE 
PRESIDENT 

Lausanne,  Switzerland, 

April  20, 1946. 
The  President, 
The  White  House, 
Washington,  D.  C. 
My  Dear  Mr.  President  : 

We  have  the  honor  to  transmit  herewith  the 
report  of  the  Anglo-American  Committee  of  In- 
quiry. 

Very  respectfully  yours, 

Joseph  C.  Hutcheson, 

American  Chairman. 

Frank  Aydelotte 
Frank  W.  Buxton 
Bartley  C.  Crum 
James  G.  McDonald 
William  Phillips 

LETTER  FROM  THE  PRESIDENT  TO 
JUDGE  HUTCHESON 

Letter  addressed  hy  the  President  to  Joseph  C. 
Hutcheson,  American  Chairman,  Anglo-American 

Committee  of  Inqidry,  on  April  25 

My  Dear  Judge  Hutcheson  : 

I  have  received  the  report  of  the  Anglo-American 
Committee  of  Inquiry  on  Palestine  which  you  and 
the  other  American  members  of  that  Committee 
transmitted  to  me  under  cover  of  your  letter  of 
April  20,  1946. 

783 


784 


DEPARTMEm'  OF  STATE  BULLETIN 


I  wish  to  take  this  opijortunity  to  thank  you  and 
your  American  colleagues  for  the  untiring  eflPorts 
which  you  have  exerted  in  preparing  the  report. 
In  performing  the  task  which  I  asked  them  to  un- 
dertake, the  members  of  the  Committee  made  con- 
siderable personal  sacrifices  and  liave  given  un- 
stintedly of  their  time  and  energy. 

Sincerely  yours, 

Haery  S.  Truman. 

EXCERPTS  FROM  THE  REPORT 

Excerpts  from  the  text  of  the  report  of  the  Anglo- 
American  Committee  of  Inquiry,  as  submitted  to 
the  Governments  of  the  United  States  and  the 
United  Kingdom 

Preface 

We  were  appointed  by  the  Governments  of  the 
United  States  and  of  the  United  Kingdom,  as  a 
joint  body  of  American  and  British  membership, 
with  the  following  Terms  of  Reference : 

1.  To  examine  political,  economic  and  social  con- 
ditions in  Palestine  as  they  bear  upon  the  j)roblem 
of  Jewish  immigration  and  settlement  therein  and 
the  well-being  of  the  peoples  now  living  therein. 

2.  To  examine  the  position  of  the  Jews  in  those 
countries  in  Europe  wliere  they  liave  been  the  vic- 
tims of  Nazi  and  Fascist  persecution,  and  the  prac- 
tical measures  taken  or  contemplated  to  be  taken 
in  those  countries  to  enable  them  to  live  free  from 
discrimination  and  oppression  and  to  make  esti- 
mates of  those  who  wish  or  will  be  impelled  by  their 
conditions  to  migrate  to  Palestine  or  other  coun- 
tries outside  Europe. 

3.  To  hear  the  views  of  competent  witnesses  and 
to  consult  representative  Arabs  and  Jews  on  the 
problems  of  Palestine  as  such  problems  are  affected 
by  conditions  subject  to  examination  under  para- 
graphs 1  and  2  above  and  by  other  relevant  facts 
and  circumstances,  and  to  make  recommendations 
to  His  Majesty's  Government  and  the  Government 
of  the  United  States  for  ad  interim  handling  of 
tliese  problems  as  well  as  for  their  permanent  solu- 
tion. 

4.  To  make  such  other  recommendations  to  His 
Majesty's  Government  and  the  Government  of  the 
United  States  as  may  be  necessary  to  meet  the  im- 

'  In  the  report  eaih  (if  these  recoiunieiulatiims  is  fol- 
lowed by  comments. 


mediate  needs  arising  from  conditions  subject  to 
examination  under  paragraph  2  above,  by  remedial 
action  in  the  European  countries  in  question  or  by 
the  provision  of  facilities  for  emigration  to  and 
settlement  in  countries  outside  Europe. 

The  Governments  urged  upon  us  the  need  for  the 
utmost  expedition  in  dealing  with  the  subjects  com- 
mitted to  us  for  investigation,  and  requested  to  be 
furnished  with  our  Report  within  one  hundred  and 
twenty  days  of  the  ince^jtion  of  our  Inquiry. 

We  assembled  in  Washington  on  Friday,  4th 
January,  1946  and  began  our  public  sessions  on  the 
following  Monday.  We  sailed  from  the  United 
States  on  18th  January  and  resumed  our  public 
sessions  in  London  on  25th  January.  We  left  for 
Europe  on  4tli  and  5th  February,  and,  working  in 
Subcommittees,  proceeded  to  our  investigations  in 
Germany,  Poland,  Czechoslovakia,  Austria,  Italy 
and  Greece.  On  28th  Februar}^  we  flew  to  Cairo 
and,  after  sessions  there,  reached  Jerusalem  on  tith 
March.  In  Palestine,  our  sessions  were  inter- 
spersed with  personal  visits  to  different  parts  of  the 
country,  during  which  we  sought  to  acquaint  our- 
selves at  first  hand  with  its  various  characteristics 
and  the  ways  of  life  of  its  inhabitants.  Subcom- 
mittees visited  the  capitals  of  Syria,  Lebanon,  Iraq, 
Saudi-Arabia  and  Trans-Jordan  to  liear  the  views 
of  the  Arab  Governments  and  representatives  of 
bodies  concerned  with  the  subjects  before  us.  We 
left  Palestine  on  28th  March  and  have  concluded 
our  deliberations  in  Switzerland.  The  detailed 
itinerary  is  shown  in  Appendix  I. 

We  now  submit  the  following  Report. 

Chapter  I 

Recommendations  ^ 

The  European  ProMem. 

Recommendation  No.  1.  We  liave  to  report 
that  such  information  as  we  received  about  coun- 
tries other  than  Palestine  gave  no  hope  of  .sub- 
stantial assistance  in  finding  homes  for  Jews  wish- 
ing or  impelled  to  leave  Europe. 

But  Palestine  alone  cannot  meet  the  emigration 
needs  of  the  Jewish  victims  of  Nazi  and  Fascist 
persecution;  the  whole  world  shares  responsibility 
,for  them  and  indeed  for  the  resettlement  of  all 
"disjtlaced  persons". 

We  therefore  recoimnend  that  our  Govermnents 
together,  and  in  association  with  other  countries, 
shoidd  endeavor  immediatelv  to  find  new  homes 


MAY  12,  1946 


785 


lor  all  such  "displaced  persons",  irrespective  of 
creed  or  nationality,  whose  ties  with  their  former 
communities  liave  been  irreparably  brolcen. 

Though  emigration  will  solve  tlie  problems  of 
some  victims  of  persecution,  the  overwhelming 
majority,  including  a  considerable  number  of 
Jews,  will  continue  to  live  in  Europe.  We  rec- 
ommend therefore  tliat  onr  Governments  en- 
deavor to  secm'e  that  immediate  effect  is  given  to 
the  provision  of  the  United  Nations  Charter  call- 
ing for  ''universal  respect  for,  and  observance  of, 
hmnan  rights  and  fundamental  freedoms  for  all 
without  distinction  as  to  race,  sex,  language,  or 
religion". 

Refugee  Irmnigration  Into  Palestine. 

Recommendation  No.  2.  We  recommend  (a) 
that  100,000  certificates  be  authorized  immediately 
for  the  admission  into  Palestine  of  Jews  who  have 
been  the  victims  of  Nazi  and  Fascist  persecution; 
(b)  that  the.se  certificates  be  awarded  as  far  as 
possible  in  1946  and  that  actual  immigration  be 
pushed  forward  as  rapidly  as  conditions  will 
permit. 

Prineiplex  of  (forrnimmf:  no  Arab,  no  Jewish 
State. 
Recommendation  No.  3.  In  order  to  dispose, 
once  and  for  all,  of  the  exclusive  claims  of  Jews 
and  Arabs  to  Palestine,  we  regard  it  as  essential 
that  a  clear  statement  of  the  following  principles 
should  be  made : 

I.  That  Jew  shall  not  dominate  Arab  and  Arab 
shall  not  dominate  Jew  in  Palestine.  TI.  That 
Palestine  shall  be  neither  a  Jewish  state  nor  an 
Arab  state.  III.  That  the  form  of  go^'ernment 
ultimately  to  be  established,  shall,  under  interna- 
tional guarantees,  fully  protect  and  preserve  the 
intei'ests  in  the  Ho]_y  Land  of  Christendom  and 
of  the  Moslem  and  Jewish  faiths. 

Thus  Palestine  nnist  ultimately  become  a  state 
which  guards  the  rights  and  interests  of  IVIoslems, 
Jews  and  Christians  alike;  and  accords  to  the 
inhabitants,  as  a  whole,  the  fullest  measure  of  self- 
government,  consistent  with  the  three  paramount 
principles  set  forth  above. 

Mandate  and  United  Nations  Trusteeship. 

Recommendation  No.  4.  We  have  i-eached  the 
conclusion  that  the  hostility  between  Jews  and 
Arabs  and,  in  particular,  the  determination  of  each 
to  achieve  domination,  if  necessary  by  violence, 


make  it  almost  certain  that,  now  and  for  some  time 
to  come,  any  attempt  to  establish  either  an  inde- 
pendent Palestinian  state  or  independent  Pales- 
tinian states  would  result  in  civil  strife  such  as 
might  threaten  the  peace  of  the  world.  We  there- 
fore recommend  that,  imtil  this  hostility  dis- 
appears, the  government  of  Palestine  be  continued 
as  at  present  under  mandate  pending  the  execu- 
tion of  a  trusteeship  agreement  under  the  United 
Nations. 

EquaUty  of  Standards. 

Recommendation  No.  5.  Looking  towards  a 
form  of  ultimate  self-government,  consistent  with 
the  three  principles  laid  down  in  recommendation 
No.  3,  we  recommend  that  the  mandatory  or  trustee 
should  proclaim  the  principle  that  Arab  economic, 
educational  and  political  advancement  in  Pales- 
tine is  of  equal  importance  with  that  of  the  Jews; 
and  should  at  once  prepare  measures  designed  to 
bridge  the  gap  which  now  exists  and  raise  the 
Arab  standard  of  living  to  that  of  the  Jews;  and 
so  bring  the  two  peoj^les  to  a  full  appreciation  of 
their  common  interest  and  common  destiny  in  the 
land  where  both  belong. 

Future  Immigration  Piilicij. 

Recommendation  No.  (>.  We  recommend  tliat 
jiending  the  early  reference  to  tlie  United  Nations 
and  the  execution  of  a  ti'usteeship  agreement,  the 
mandatory  should  administer  Palestine  according 
to  the  mandate  which  declares  with  regard  to 
immigration  that  ''The  administration  of  Pales- 
tine, while  ensuring  that  the  rights  and  position  of 
other  sections  of  the  population  are  not  prejudiced, 
shall  facilitate  Jewish  innnigration  under  suitable 
conditions." 

Land  Policy. 

Recommendation  No.  7.  (a)  We  recommend 
that  the  land  transfers  regulations  of  1940  be 
rescinded  and  rei:)laced  by  regulations  based  on  a 
policy  of  freedom  in  tlie  sale,  lease  or  use  of  land, 
iii'espective  of  race,  community  or  creed;  and 
providing  adequate  protection  for  the  interests  of 
small  owners  and  tenant  cultivators,  (b)  We 
further  recommend  that  steps  be  taken  to  render 
nugatory  and  to  prohibit  provisions  in  convey- 
ances, leases  and  agreements  relating  to  land  which 
stipulate  that  only  members  of  one  race,  community 
or  ci-eed  may  be  employed  on  or  about  or  in  con- 
nection therewith,      (c)   We  reconnnend  that  the 


786 


DEPARTMENT  OF  STATE  BULLETIN 


Government  should  exercise  such  close  supervision 
over  the  Holy  Places  and  localities  such  as  the  S?a 
of  Galilee  and  its  vicinity  as  will  protect  them  from 
desecration  and  from  uses  which  offend  the  con- 
science of  religious  people;  and  that  such  laws  as 
are  required  for  this  purpose  be  enacted  forthwith. 

Economic  Development. 

Recommendation  No.  8.  Various  plans  for 
large-scale  agricultural  and  industrial  develop- 
ment in  Palestine  have  been  presented  for  our  con- 
sideration; these  projects,  if  successfully  carried 
into  effect,  could  not  only  greatly  enlarge  the  capac- 
ity of  the  country  to  support  an  increasing  popula- 
tion, but  also  rai.se  the  living  standards  of  Jew  and 
Arab  alike. 

We  are  not  in  a  position  to  assess  the  soundness 
of  these  specific  plans;  but  we  cannot  state  too 
strongly  that,  however  technically  feasible  they 
may  be,  they  will  fail  unless  there  is  peace  in  Pales- 
tine. Moreover  their  full  success  requires  the  will- 
ing cooperation  of  adjacent  Arab  states,  since  they 
are  not  merely  Palestinian  projects.  We  recom- 
mend thei-efore  that  the  examination,  discussion 
and  execution  of  these  plans  be  conducted,  from  the 
start  and  throughout,  in  full  consultation  and 
cooperation  not  only  with  the  Jewish  agency  but 
also  with  the  govermnents  of  the  neighboring  Arab 
states  directly  affected. 

Education. 

Recommendation  No.  9.  We  recommend  that, 
in  the  interests  of  the  conciliation  of  the  two  peo- 
ples and  of  general  improvement  of  the  Arab 
standard  of  living,  the  educational  system  of  both 
Jews  and  Arabs  be  reformed  including  the  intro- 
duction of  compulsory  education  within  a  reason- 
able time. 

The  Need  for  Peace  in  Palestine. 

Recommendation  No.  10.  We  recommend  that, 
if  this  report  is  adopted,  it  should  be  made  clear 
beyond  all  doubt  to  both  Jews  and  Arabs  that  any 
attempt  from  either  side,  by  threats  of  violence, 
by  terrorism,  or  by  the  organization  or  use  of 
illegal  armies  to  prevent  its  execution,  will  be 
resolutely  su ppressed. 

Furthermore,  we  express  the  view  that  the  Jew- 
ish agency  should  at  once  resume  active  coopera- 
tion with  the  mandatory  in  the  supj^ression  of 
terrorism  and  of  illegal  immigration,  and  in  the 
maintenance  of  that  law  and  order  throujihout 


Palestine  which  is  essential  for  the  good  of  all, 
including  the  new  inunigrants. 

[Here  follow  Chapters  II  through  X  under  the  headings 
of:  "The  Position  of  the  Jews  in  Europe"  ;  "The  Political 
Situation  in  Palestine" ;  "Geograph.v  and  Economics" ; 
"The  Jewish  Attitude" ;  "Tlie  Arab  Attitude"  ;  "Christian 
Interests  in  Palestine" :  "Jews,  Arabs  and  Government" ; 
"Public  Security";  and  "General".] 

Appendix  I 


1946 

Jan.  4-17 
Jan.  23-Feb. 
Feb.  5-15 


Feb.  5-22 


Feb.  5-17 


Itinerary  oj  Committee 


Feb.  7-13 


Feb.  8-1 1 


Feb.  17-25 
Feb.  19-22 


Feb.  25-26 
Feb.  25-27 


Feb.  28-I\Iar. 
Mar.  6-28 
Mar.  15-20 


Mar.  16-21 


Mar.  23-24 


Washington 
London 
American  Zone  of 

Germany 
Czechoslovakia 

Paris 

French    Zones    of 

Germany      and 

Austria 
Berlin 


Poland 


British     Zone     of 
Germany 

Vienna 

American  Zone  of 
Austria 


British     Zone     of 

Austria 
Italy 


5      Cairo 
Palestine 
Damascus;  Beirut 


Baghdad;  Riyadh 


Amman 


Full  Committee 
Full  Committee 
Mr.  Crum 


Sir  Frederick 

gett 
Mr.  Phillips 
Mr.  McDonald 


Leg- 


Mar.  29-Apr.  20    Lausanne 


Judge  Hutcheson 

Sir  John  Singleton 

Lord  Morrison 

Mr.  Buxton 

Mr.  Manningham- 
Buller 

Mr.  Crick 

Mr.  Buxton 

Mr.  Manningham- 
BuUer 

Mr.  Crick 

Judge  Hutcheson 

Sir  John  Singleton 

Ijord  Morrison 

Full  Committee 

Mr.  Buxton 

Mr.  Manningham- 
Buller 

Mr.  Crick 

Mr.  Crum 

Mr.  Grossman 

Sir  John  Singleton 

Mr.  Phillips 

Mr.  McDonald 

Sir  Frederick  Leg- 
gett 

Full  Committee 

Full  Committee 

Judge  Hutcheson 

Lord  Morrison 

Mr.  McDonald 

Sir  John   Singleton 

Mr.  Buxton 

Mr.  Manningham- 
BuUer 

Lord  Morrison 

Mr.  Phillips 

Sir  Frederick  Leg- 
get  t 

Full  Committee 


MAY  12,  1946 


787 


Appendix  III 
Estimated  Jewish  Population  in  Europe 


TABLE  A 


1939 

Country  Total 

Albania •  .    .    .    .  200 

Austria »  60,  000 

Belgium 90,  000 

Bulgaria 50,  000 

Czechoslovakia 1=315,000 

Denmark 7,  000 

Finland 2,  000 

France 320,  000 

Germany ''215,000 

Greece 75,  000 

Holland 150,000 

Hungary '  400,  000 

Italy 50,  000 

Luxembourg 3,  500 

Norway 2,  000 

Poland 3,351,000 

Rumania t  850,  000 

Yugoslavia 75,  000 


Total 
300 
15,000 

33,  000 

45,  000 
■^  65,  000 

5,  500 

1,  800 

180,000 

94,  000 

10,  000 

30,  000 

'  200,  000 

46,  000 

500 

1,000 

^  80,  000 

'  335.  000 

11,000 


Refugee  and 
Native  Displaced  Nationality  of  Refugee  and  Displaced 

50  250     Mainly  Austrian  and  Yugoslav 

7,000  8,000     75%  Polish;  11%  Hungarian;  6%  Czech 

and  6%  Rumanian 
25,  000  8,  000     Mainly  German,  Austrian  and  Polish 

45,000     

°  60,  000  5,  000     Mainly  Polish ;  some  Hungarian 

5,500     

1,800     

160,  000         20,  000     Mainly  German,  Austrian  and  Polish 
20,  000         74,  000     85 %  Polish ;  5 %  Hungarian ;  4 %  Lithua- 
nian; 3%  Rumanian 

10,000     

24,  000  6,  000     Over  80%  German  and  Austrian 

'200,000     

30,  000         16,  000     75%  Polish;  7%  Rumanian;  5%  Czech; 
5%  Hungarian 

500     

750  250     Mostly  German 

^80,000     

-  320,  000         15,  000     Mainly  Polish 
11,000     


Total  (Tal)le  A). 


6,  015,  700       1,  153,  100       1,  000,  600       152,  500 


1939 

Country  Total" 

United  Kingdom 340,  000 

Portugal 3,  500 

Soviet  Union '3,  550,  000 

Spain 4,  500 

Sweden 7,  500 

Switzerland 25,  000 


TABLE  B 

« 

Total 
350,  000 

Native 

300,  000 

Refugee  and 
Displaced 

50,  000 

4,000 

3,  500 

500 

2,  665,  000 

2,  500,  000 

165,  000 

4,  500 

4,000 

500 

19,  500 

7,  500 

12,000 

28,  500 

18,  000 

10,  500 

Total  (Table  B).    .      3,930,500       3,071,500       2,833,000       238,500 
Total  (Table  A).    .      6,015,700       1,153,100       1,000,600       152,500 


Nationality  of  Refugee  and  Displaced 
90%  German  and  Austrian 
Various  nationalities 
150,000  Polish;  15.000  Hungarian 
Various  nationalities 
Mainly  Polish,  German  and  Austrian 
Mainly  Polish,  German  and  Austrian 


Total  for  Europe.      9,  946,  200       4,  224,  600       3,  833,  000       391,  000 


*The  figures  in  this  column  include  refugee  as  well  as  native  Jews. 

«  In  1937,  the  Jewish  population  of  Austria  was  approximately  192,000.  By 
the  outbreak  of  the  war,  the  emigration  of  over  100,000  together  with  persecu- 
tion and  deportations  had  reduced  the  number  to  some  60.000. 

b  The  figure  refers  to  the  Jewish  population  within  pre-Munich  bound- 
aries, when  the  Jews  of  Czechoslovakia  numbered  about  360,000.  By 
September  1939  due  mainly  to  emigration,  the  number  had  fallen  to  approx- 
imately 315.000. 

c  Does  not  include  such  Jewish  survivors  as  have  remained  in  the 
Carpatho-Ukrame,  this  territory  now  in  the  Soviet  Union. 

d  According  to  the  census  of  June  1933,  the  Jewish  population  of  Germany 
totaled  499.682.  By  September  1939  the  emigration  of  something  over  200,000, 
persecution,  and  natural  population  decline  had  reduced  the  number  to 
around  215,000. 


«  The  figure  refers  to  the  Jewish  population  within  pre-Munich  boundaries. 

f  These  figures  do  not  include  an  estimated  15,000  prisoners  of  war  now  in 
the  Soviet  Union  who  are  expected  ultimately  to  be  repatriated. 

e  These  figures  do  not  include  an  estimated  150.000  Polish  Tews  in  the  Soviet 
Union,  to  whom  the  option  of  repatriation  has  been  made  available. 

h  Inclusive  of  the  .Jewish  population  of  Bessarabia  and  Bukovina,  which  are 
now  in  the  Soviet  Union. 

'  Does  not  include  an  estimated  40,000-45,000  survivors  in  Bessarabia  and 
Bukovina.  The  pre-war  Jewish  population  within  present  Rumanian 
boundaries  was  approximately  520,000.  Included  in  the  1946  figure  of  335,000 
are  40,000  formerly  residing  in  the  two  ceded  provinces. 

J  Includes  the  1939  Jewish  population  of  Estonia,  Latvia,  and  Lithuania, 
estimated  at  about  250,000. 


The  United  Nations 


Meeting  of  the  Security  Council 

PROPOSALS  DISCUSSED  FOR  DRAFTING  RESOLUTION  ON  SPAIN 

Excerpts  from  Remarks  at  Thirty-seventh  Meeting  - 


Colonel  Hodgson  (Australia)  :  Mr.  President, 
I  would  like  to  thank  you  and  other  members  of 
the  Council  for  your  assistance  and  coojieration 
in  endeavoring  to  find  a  resolution  which  woukl  be 
generally  acceptable.  I  have  distributed  the  re- 
sults of  those  suggestions,  and  I  will  read  it  as 
it  now  stands : 

'"The  attention  of  the  Security  Council  liaving 
been  drawn  to  the  situation  in  Spain  by  a  Member 
of  the  United  Nations  acting  in  accordance  with 
article  35  of  the  Cliarter,  and  the  Security  Council 
having  been  asked  to  declare  that  this  situation  has 
led  to  international  friction  and  endangers  inter- 
national peace  and  security,  the  Security  Council 
hereby  resolves: 

"To  make  further  studies  in  order  to  determine 
whether  such  a  situation  does  exist. 

"To  this  end.  the  Security  Council  appoints  a 
subcomniittee  of  five  of  its  members  and  instructs 
this  subconnnittee  to  examine  the  statements  made 
before  the  Security  Council  concerning  Spain,  to 
call  for  further  statements,  documents  and  evi- 
dence and  to  conduct  such  inquiries  as  it  may  deem 
necessary  in  order  that  the  subcommittee  may  re- 
port to  the  Security  Council  on  31  May  10-16,  on 
the  results  of  such  studies  and  especially  the  facts 
bearing  on  the  following  questions : 

"(1)  Is  the  existence  of  the  Franco  regime  a 
matter  of  international  concern  and  not  one  essen- 
tially within  the  jurisdiction  of  Spain? 

"(2)  Is  the  situation  in  Spain  one  which  might 
lead  to  international  friction  or  give  I'ise  to  a  dis- 
pute? 

''(3)  If  the  answer  to  question  (2)  is  'Yes',  is 
the  continuance  of  the  situation  likely  to  endanger 

'  In  session  at  Hunter  C'olle;,'?,  Afw  York,  N.Y.,  since 
Mar.  25,  1946. 
'  Held  on  Apr.  LTi.  lii4G. 

788 


the    maintenance    of    international    peace    and 
security?" 

Now,  the  main  points  to  be  emphasized  aie 
these:  first  of  all,  I  have  cut  out  the  idea  of  a 
formal  investigation  under  article  3-1  so  as  to 
enable  the  proposed  body  to  be  brought  in  under 
article  29  as  a  subsidiaiy  organ;  and  I  call  it  a 
subcommittee  instead  of  a  committee ;  and  the  im- 
portant alterations  are  that  I  am  deleting  the  pas- 
sage :  "to  call  for  further  written  statements  and 
documentary  evidence  from  Members  of  the 
United  Nations  and  from  the  Franco  regime",  so 
that  the  text  reads :  "to  call  for  fuither  statements, 
documents  and  evidence  and  conduct  such  inquiries 
as  it  may  deem  necessary". 

Then,  to  meet  the  point  that  probably  17  May 
was  too  early — tliat  date  was  originally  selected 
arbitrarily — the  date  has  been  clianged  to  31  May, 
that  is,  a  montli  from  the  presentation  of  the 
amendment.  Some  of  the  delegates  may  desire, 
instead  of  fixing  a  date,  to  say  "as  early  as  prac- 
ticable." 

The  last  point  is  that  it  was  felt  by  some  dele- 
gates that  the  subcommittee  should  not  and  could 
not  itself  make  a  finding  on  those  three  questions, 
or  make  recommendations  on  these  three  ques- 
tions, but  should  present  the  facts  so  that  the 
Council  itself  could  decide  and  make  its  own  deci- 
sion on  the  facts  as  ascertained  and  presented  by 
the  subcommittee. 

I  take  it  that  there  may  be  other  suggestions 
and  other  proposals  which  will  come  out  in  the 
course  of  the  debate. 

Mr.  Stettinius  (United  States  of  America)  : 
My  Government  has  been  giving  very  careful 
study  to  what  has  been  said  during  the  first  meet- 
ings of  the  Security  Council  on  the  situation  in 
Spain.     We  have  been  closely  following  the  entire 


MAY  12,  1946 


789 


Spanish  [noblem  and  have  accumulated  informa- 
tion based  upon  first-hand  observations  of  our 
representatives  in  Spain.  Our  information  on 
manj'  of  the  specific  points  which  have  been 
brought  forward  by  the  Polisli  Delegate  is  quite 
different  from  his  and  does  not  sui^port  many  of 
his  conclusions. 

On  the  basis  of  our  own  information  and  the 
information  so  far  developed  here  in  the  Secui'ity 
Council,  we  cannot  agree  with  those  of  his  con- 
clusions which  seem  to  suggest  that  there  is  a  situ- 
ation in  Spain  requiring  action  under  articles  39 
and  41  of  the  Charter. 

Our  disagreement  with  many  of  the  facts  and 
the  conclusions  already  submitted  does  not  mean 
that  our  frequently  e.xpressed  views  on  the  Franco 
regime  have  changed  in  any  way.  It  is  clear  that 
there  is  a  wide  divergence  here  as  to  the  facts  them- 
selves and  as  to  the  interpretation  which  should 
reasonably  be  given  to  these  facts.  It  is  essential 
that  actions  of  the  Security  Council  in  such  mat- 
ters as  this  should  be  based  on  factual  information 
which  has  first  been  examined  in  detail  and,  so  far 
as  possible,  agreed  upon  by  the  Security  Council. 

For  these  reasons  my  Government  believes 
that  the  Council  would  not,  on  the  basis  of  the 
information  now  before  it,  be  warranted  in  adopt- 
ing the  Polish  resolution  in  its  original  form. 
While  I  have  just  Jieard  the  revised  pro^Dosal  of 
the  Delegate  for  Australia,  I  am  happy  to  say  that 
sucli  a  proposal  would  be  agreeable  and  satisfac- 
tory to  the  United  States  of  America,  possibly 
with  minor  modifications  which  he  himself  has 
just  suggested. 

We  believe  that  there  should  be  a  committee  of 
the  Council  charged  with  the  responsibility  of  ob- 
taining facts  relating  to  the  situation  in  Spain  so 
that  the  Council  ma}\  on  a  sound  basis,  meet  its 
obligation  to  determine  whether  or  not  continu- 
ance of  the  situation  is  truly  likely  to  endanger  the 
maintenance  of  international  ])eace  and  security. 

My  Go\ei'nnient  hopes  that  the  committee  will 
give  i)articular  attention  to  the  facts  as  to  the 
presence  of  Nazis  in  Spain.  The  possibility  of 
their  representing  a  potential  threat  has  been  em- 
phasized here  in  our  discussions. 

Before  the  end  of  the  war  and  since,  we,  the 
United  States  Government,  have  been  studying 
and  putting  into  effect  with  other  interested  gov- 
ernments plans  for  meeting  this  very  vital  and 
important  problem.    Through  the  diplomatic  rep- 


resentatives of  the  interested  governments  in 
Madrid,  we  have  been  able  to  persuade  the  Span- 
ish Goverinnent  to  aid  in  repatriating  those  ob- 
no.xious  Germans.  With  the  cooperation  of  the 
French  we  were  able  to  repatriate  to  Germany 
by  rail,  early  in  February  of  this  year,  nearly 
l,;ii»<t  Germans  who  had  served  as  guards  on  the 
French-Spanish  border  and  who  went  to  Spain 
after  the  liberation  of  France.  In  addition  to 
these,  we  have  given  the  Spanish  Government  the 
names  of  about  500  obnoxious  Nazis.  They  pro- 
duced of  these  500  only  approximately  150. 

There  is  now  a  growing  reluctance  on  the  part 
of  the  Spanish  Government  to  cooperate  in  this 
prograna.  For  example,  the  British  authorities 
arranged  for  a  ship  to  call  at  a  Spanish  port  early 
in  March  of  this  year,  which  was  on  its  way  bact 
to  Germany  and  had  places  for  approximately  500 
additional  passengers.  The  Spanish  police  pro- 
duced only  a  small  fraction  of  the  persons  who 
had  been  named  by  us  to  the  Foreign  Office  for 
remo\al  on  that  ship. 

We  estimate  that,  including  the  persons  so 
named  to  the  Spanish  Government  who  have  not 
yet  been  deported,  there  remain  about  2,200  such 
Germans  of  all  categories.  We  propose  to  con- 
tinue our  efforts  to  bring  about  the  removal  of 
these  Germans  and  will,  of  course,  give  full  de- 
tails of  the  information  in  our  possession  on  this 
matter  to  the  committee  whicli  is  under  discussion 
to  be  set  np  by  the  Council. 

I  think  it  is  very  important  that,  when  the 
committee  makes  its  report  to  the  Council,  it  pro- 
vide us  with  the  facts  developed  by  it,  so  that  the 
Security  Council  it.self  may  make  its  own  determi- 
nation, based  upon  these  facts. 

I  believe  that  the  Sectirity  Council  miglit  well 
consider  directing  the  committee  to  report  to  us 
not  only  at  the  conclusion  of  its  first  stud_\-,  but. 
if  necessary,  from  time  to  time  thereafter,  when- 
ever they  may  feel  that  information  has  been 
broviglit  to  light,  to  their  attention,  or  develojied 
by  them,  that  would  warrant  the  Council's  imme- 
diate attention.  In  this  way,  we  would  have  the 
means  of  being  continually  and  accurately  in- 
formed of  the  developments  in  Spain  in  relation 
to  the  Charter  of  the  United  Nations. 

Mr.  Gromyko  (Soviet  Union)  (Speaking  in 
Russian;  translation)  :  In  summing  up  what  I 
have  said  at  this  meeting  of  the  Security  Coujicil. 
I  would  like  to  make  the  following  statement. 


790 


DEPARTMENT  OF  STATE  BULLETIN 


The  declaration  of  the  Delegate  for  Poland,  Dr. 
Lange,  and  also  the  discussions  which  have  taken 
place  in  the  Security  Council  on  the  question  raised 
by  the  Polish  Delegate  in  his  letter  of  8  and  9  April, 
leave  no  doubt  that  the  Fascist  regime  of  Franco  at 
present  existing  in  Spain  is  indeed  a  serious  danger 
for  international  peace  and  security. 

In  view  of  this  fact  there  is  no  need  to  set  up 
any  kind  of  commission  to  study  the  question.  In 
the  presence  of  an  abundance  of  facts  and  evidence 
which  confirm  the  Tightness  of  the  accusation 
brought  against  the  Fascist  regime  of  Franco  by 
the  Delegate  for  Poland,  the  setting  up  of  a  com- 
mission might  have  a  negative  effect  on  world  pub- 
lic opinion,  as  well  as  on  the  democratic  forces  of 
Spain  herself.  It  would  be  impossible  to  justify 
the  setting  up  of  such  a  commission  in  the  eyes  of 
the  jiublic  opinion  of  the  world,  which  demands 
the  complete  severance  of  relations  with  the  Franco 
regime,  and  not  delays,  for  which  it  is  impossible 
to  find  any  justification.  For  these  reasons  I  de- 
clare myself  opposed  to  the  proposal  to  set  up  a 
commission. 

Mr.  \ax  Kleffens  (Netherlands)  : 

I  only  have  now  to  laise  two  points  in  connection 
with  the  wording  of  the  revised  Australian 
proposition. 

The  fir.st  is  that  I  am  asking  myself  whether  it 
would  not  be  preferable  to  strike  out  the  time  limit 
of  31  May.  No  doubt  the  committee  will  work  with 
all  i-easonable  dispatch  but  I  feel  tliat  certain  mat- 
ters cannot  very  well  be  dealt  with  on  the  basis 
of  a  timetable,  and  I  do  not  see  wh}'  the  committee 
should  present  its  report  on  that  particular  date 
of  31  May.  If  the  committee  is  ready  before  that 
date,  so  much  the  better.  Why  should  it  not  then 
come  forward  at  once  with  its  report? 

Moreover,  there  is  in  session  at  this  moment  in 
Paris  an  important  conference.  I  do  not  know 
whether  that  conference  will  or  will  not  deal  with 
the  case  of  Sjjain,  but  I  think  that  we  should  avoid 
any  possibility,  however  remote,  of  parallel  action 
on  different  lines.  That  could  only  create  confu- 
sion, and  we  are  here  to  try  to  straighten  out  ques- 
tions, not  to  confuse  them.  This,  too,  seems  to  me 
to  make  it  advisable  not  to  .set  a  time-limit  for  the 
committee's  labors. 

May  I  therefore  move  the  deletion  of  the  words 
"on  3]  May  I'JiG"? 


In  the  second  place,  the  new  text  of  the  Austral- 
ian jjroposal  contains  a  new  notion,  a  notion  which 
is  not  known  to  the  Charter,  namely,  the  term 
"matter  of  international  concern",  which  you  will 
find  under  question  ( 1 ) .  I  think  that  we  should 
not  introduce  in  such  an  incidental  way  notions 
which  do  not  find  support  in  the  Charter.  If  we 
did  that  sort  of  thing,  we  would  risk  to  deviate 
from  the  Charter,  and  I  should  be  glad  if  the 
Australian  Delegate  could  see  his  way  to  delete  in 
question  (1)  of  his  amended  text  the  words  *'of 
international  concern".  It  does  not  alter  the  ques- 
tion in  any  sense,  but  in  doing  so  we  avoid  the 
terminology  which  might  be  dangerous  or  mis- 
leading. 

Mr.  Bonnet  (France)  {Interpretation^  :  From 
the  beginning  of  the  discussions  of  this  Council 
on  this  question  there  have  been  divergencies  of 
views  between  the  members,  and  these  divergencies 
still  persist  today. 

But  it  seems  to  me  that  there  has  been  a  certain 
slight  measure  of  unanimity  at  least  on  one  point. 
All  those  who  have  spoken  have  at  one  time  or 
anotlier  expressed  their  moral  condenmation  of 
the  Franco  regime.  If  today  we  adopt  a  provi- 
sional resolution  which  will  enable  us  to  continue 
our  work  on  this  problem,  I  think  that  we  should 
note  with  gladness  this  rare  unanimity  among  our 
members,  and  I  think  that  we  should  also  express 
in  some  way  our  sense  of  affection  and  friendship 
for  the  Spanish  people  who  have  placed  their  hopes 
in  the  United  Nations.  I  would  therefore  ask  the 
Delegate  for  Australia  to  accept  an  amendment  to 
his  resolution  in  this  sense. 

The  resolution  put  forward  by  Colonel  Hodgson 
is  short  and  concise ;  the  first  paragraph  recalls  the 
demand  made  to  the  Council  by  the  Polish  Am- 
bassador; the  rest  of  the  resolution,  I  think,  con- 
tains a  good  deal  of  repetition. 

The  second  paragraph  says  that  the  Security 
Council  resolves  to  make  further  studies  in  order 
to  determine  whether  such  a  situation  does  exist, 
that  is,  the  situation  mentioned  in  the  first  para- 
graph. After  that  the  draft  of  Colonel  Hodgson 
puts  three  questions  which  seem  to  me  to  repeat  the 
point  made  earlier  in  the  draft,  and  which  seem 
to  me  really  all  to  boil  down  to  one  single  point. 

And  so  it  seems  to  me  that  the  substance  of  this 
resolution  is  the  question  of  ascertaining  whether 
the  Spanish  situation  constitutes  a  danger  to  inter- 
national peace  and  security.    I  ask  myself  whether 


MAY  12,  1946 


791 


this  series  of  questions  at  the  end  of  the  text  is 
necessary.  Tliey  seem  to  me  to  be  rather  negative 
and  restricti\'e  because  I  think  that  there  are  many 
other  questions  which  the  connnittee  might  have  to 
deal  with.  To  mention  only  a  few,  it  might  have 
to  deal  with  the  question  whether  this  Franco 
regime  set  up  with  the  help  of  the  Axis  still  ad- 
heres to  the  principles  of  the  Axis;  and  if  so, 
whether  these  principles  held  by  the  Franco  regime 
constitute  a  threat  to  democratic  regimes. 

I  could  frame,  in  a  short  time,  a  dozen  otlier 
such  questions  which  it  might  be  useful  for  the 
subcommittee  to  examine.  I  think,  therefore,  that 
it  might  be  desirable  to  give  this  proposed  subcom- 
mittee other  possibilities,  a  wider  scope  for  its 
study  than  that  envisaged  by  the  Delegate  for 
Australia,  and  I  would  therefore  ask  the  Delegate 
for  Australia  whether  he  would  be  prepared  to 
consider  dropping  the  three  questions  which  form 
the  conclusion  of  his  draft. 

Colonel  Hodgson  said  that  he  wanted  to  give  the 
subcommittee  the  greatest  possible  scope,  the  great- 
est possibilities  for  its  work. 

Let  us  add  some  implied  answer  as  to  what  meas- 
ures might  be  prescribed.  I  would  suggest,  there- 
fore, that,  if  the  Delegate  for  Australia  is  prepared 
to  drop  the  three  questions  enumerated  in  his  text, 
I  would  ask  him  to  add  after  the  words  ''on  the 
results  of  such  studies"  the  words  "and  on  practical 
measures  which  the  United  Nations  might  take  in 
this  matter."  I  think  that  such  a  text  would  be 
short  and  modest. 

Instead  of  continuing  the  discussion  which  has 
already  taken  a  good  deal  of  our  time,  we  should, 
by  adopting  .such  a  text,  refer  to  five  of  our  number 
the  task  of  doing  this  preparatory  piece  of  work,  of 
getting  supplementary  information  from  whatever 
governments  are  able  to  sujiply  it,  and  of  reporting 
back  to  the  Council  as  soon  as  possible  so  that  the 
Coimcil  can,  as  I  hope  it  will  after  convincing 
those  colleagues  mIio  are  .still  in  doubt  of  the  neces- 
sity of  the  United  Nations  intervening  in  the  Span- 
I      ish  question,  then  reach  a  unanimous  conclusion. 

Mr.  L.\nge  (Poland)  :  The  problem  before  us, 
therefore,  is  to  find  some  ba.sis  for  international 
action.  I  do  not  believe  that  this  can  be  reached 
within  the  next  15  minutes  nor  even  within  the 
next  hour.  This  requires  study  by  the  different  del- 
egations, and  perhaps  also  by  their  governments. 
In  order  to  prepare  for  unanimous  action,  I  should 
suggest  that  this  Council  appoint  a  subcommittee. 


the  purpo.se  of  which  is  to  reach  a  basis  for  such 
unanimity.  On  one  side  we  have  the  proposal  of 
a  committee  for  investigation ;  on  the  other  side  we 
have  in  opposition  to  this  committee  of  investi- 
gation a  connnittee  of  the  type  which  I  propose 
that  would  consider  the  resolution  I  have  presented, 
the  different  procedural  proposal  of  our  Australian 
colleague,  and  try  to  come  to  this  Council  with  a 
resolution  which  presents  recommendations  of 
practical  steps  to  be  taken  by  the  United  Nations. 

Now,  in  making  such  a  proposal  I  do  not  with- 
draw my  original  resolution,  the  resolution  that  the 
I^iited  Nations  through  collective  action  of  tlieirs 
break  diplomatic  relations  with  the  Franco  regime. 
The  Government  of  Poland  considers  such  an  act 
the  very  minimum  of  what  has  to  be  done.  How- 
ever, in  the  interest  of  reaching  a  unanimous  de- 
cision and  action,  I  am  perfectly  willing  to  submit 
this  resolution,  like  all  other  resolutions  which 
were  presented  here,  to  such  a  committee  for  study, 
or  draft,  or  whatever  you  call  it,  which  would  in 
a  few  days'  time  report  to  us  its  recommendations 
as  to  the  proper  action  to  be  taken. 

In  conclusion,  I  would  once  more  like  to  under- 
line the  fundamental  unanimity  which  was  ex- 
pressed during  the  debates  of  this  Council  on  the 
Franco  regime,  the  moral  condemnation  which  was 
expressed  by  every  member  who  took  part  in  the 
debate.  Again,  I  hope  that  the  people  of  Spain 
will  take  notice  of  this  unanimity. 

The  President:'  Can  I  liave  the  written  pro- 
posal of  your  motion,  Mr.  Lange  ? 

Colonel  Hodgson  (Australia)  :  With  regard  to 
the  various  suggestions  which  have  been  made.  I 
am  quite  in  accord  with  the  wishes  of  the  Delegate 
for  the  Netherlands.  I  had  a  doubt  myself  as  to 
specifying  a  date.  I  thought  as  an  alternative  we 
might  as  well  have  used  the  words  "as  soon  as 
possible"  or  "as  early  as  practical"  so  that  it  re- 
mained open  to  tlie  discretion  and  good  sense  of  the 
connnittee.  The  whole  point  of  fixing  a  date  is 
due  to  the  fact  that  I  did  not  want  the  world  or 
anybody  to  have  the  impression  we  were  trying 
to  delay. 

Now,  about  the  matter  of  "international  con- 
cern", on  that  I  quite  agree  and  that  is  as  I  had 
it  originally.  But  you  come  to  this  i^oint:  in  par- 
liamentary procedure  you  usually  only  accept  an 
amendment  if  you  know  it  is  in  accordance  with 
the  wishes  of  the  majority  of  the  rest  of  the  com- 

^\fifi  Pasba  (Egypt). 


192 


DEPARTMENT  OF  STATE  BULLETIN 


mittee.  1  have  not  heard  any  view  expressed  in 
favor  of  the  suggestions  of  tlie  French  Delegate. 
I  am  prepared  to  go  so  far  as  to  drop  the  three 
questions,  because  the  gist  of  these  questions  is 
really  contained  in  paragraph  1.  But  when  the 
Delegate  for  Poland  suggests  that  we  might  have 
a  subcommittee  to  get  togethei',  to  decide  ui^on 
measures  to  be  taken,  we  are  faced  with  a  funda- 
mental difference  in  principle.  In  other  words, 
my  conception  is  that  it  is  for  this  Council,  and 
tliis  Council  alone,  to  make  just  and  impartial  de- 
cisions and  to  ascei'tain  facts,  not  a  subcommittee. 

Now  for  a  subcommittee  to  recommend  practical 
measures  means,  in  effect,  that  that  committee 
makes  decisions  instead  of  the  Council.  Even  to 
suggest  ]iractical  measures  means  that  they  have 
reached  a  decision  on  the  facts. 

There  is  this  point,  too.  I  do  not  know  yet  Avhat 
the  composition  of  the  subcommittee  will  be.  I 
have  heard  that  there  is  a  likelihood  or  that  it 
would  be  preferable,  say,  for  four  of  the  permanent 
members  not  to  be  represented  on  it.  Would  it  be 
right  for  this  Council  to  give  a  subconunittee  au- 
thority to  make  lecommendations  as  to  what  the 
permanent  members  should  do,  without  their  really 
having  a  say  ?  I  think  not.  That  is  where  I  cannot 
reach  across  to  the  Delegate  for  France  and  the 
Delegate  for  Poland  with  a  view  to  reaching  unani- 
mity. 

There  is  also  this  point.  Even  if  I  did  accept 
that,  the  delegate  for  the  Soviet  Union  says  that 
no  commission  or  subcommittee  would  be  accept- 
able to  him.  Even  then  we  still  would  not  have 
reached  unanimity  because  he  objects  to  any  com- 
mission or  any  conunittee. 

At  the  same  time,  if  it  is  the  wish  of  tlie  Council 
that  we  might  have  another  consultation  and  try  to 
reach  an  agreement,  I  am  only  too  happy  to  do  so. 

Mr.  Lange  (Poland)  :  The  wording  might  be 
changed  somewhat  if  a  member  of  the  Council 
desires  it.  The  draft  proposal  of  the  resolution 
is  this : 

The  attention  of  the  Security  Council  luiviug 
been  draM'n  to  the  situation  in  Si)ain  by  one  of 
the  United  Nations  acting  in  conformity  with  ar- 
ticle 35,  jjaragrapli  1  of  the  Charter,  the  Security 
Council, 

(1)  Takes  into  account  the  unanimous  condem- 
nation of  the  Franco  regime  expressed  during  the 
debate ; 

(2)  Appoints  a  subcommittee  of  five  of  its  mem- 


bers to  study  the  basis  for  unanimous  decision 
to  be  reached  by  the  Council  and  to  prepare  a 
draft  resolution  containing  recommendations  as 
to  the  practical  steps  to  be  taken. 

Mr.  Bonnet  (France)  {hiterprcfation)  :  I 
would  like  now  to  refer  to  the  three  amendments 
that  I  have  brought  forward  and  which  I  think 
the  Council  wishes  to  have  considered. 

The  first  amendment  that  I  proposed  to  the  Aus- 
tralian amendment  was  that  we  should  note  our 
unanimity  in  condemning  the  Franco  regime  and 
that  we  should  greet  the  Spanish  people  and  ex- 
pi-ess  our  hojie  that  they  woidd  soon  be  represented 
among  us. 

The  second  was  tliat  we  should  drop  the  three 
questions  enumerated  at  the  end  of  the  Australian 
text. 

The  third  was  that  a  subcommittee  should  be 
set  up,  a  working  committee,  to  make  proposals 
regarding  practical  measures  that  the  Council 
might  take  in  this  matter.  I  think  that  such  a 
proposal  of  a  subcommittee  to  suggest  practical 
measures  is  not  at  all  a  scandal,  as  has  been  sug- 
gested. 

We  could  discuss  these  amendments  at  very  great 
length.  I  think,  indeed,  that  they  should  be 
studied,  and  I  think,  in  particular,  that  the  require- 
ment of  unanimity,  which  has  been  stressed  by  the 
Delegate  for  Mexico  and  Poland,  is  very  im- 
portant. 

I  think  that  it  might  be  enough  to  make  one  or 
two  further  changes  in  the  text  of  the  Australian 
proposal  as  I  have  amended  it,  and  it  seems  to  me 
that  that  is  what  Mr.  Lange  has  proposed.  I 
think  there  is  a  little  misunderstanding  as  regards 
the  proposal  put  forward  by  Dr.  Lange.  I  believe 
that  the  Delegate  for  Australia  is  under  the  im- 
pression that  this  proposal  of  the  Polish  Delegate 
is  of  a  final  nature  and  intended  to  replace  his 
own  amendment.  For  a  time,  too,  I  wondered 
whether  that  might  be  the  case,  but  clearly  I  see 
that  the  intention  of  the  Polish  Delegate  is  to  pro- 
pose a  drafting  connnittee.     Is  this  not  correct  ? 

Mr.  L.\NGE  (Poland)  (Transldfion)  :  The  com- 
mittee would  work  for  a  period  of  two  or  three 
days. 

Mr.  Bonnet  (France)    {Iiiferpretutton)  :   Even 
if  it  was  only  in  session  for  a  period  of  two  or 
three  days  my  three  amendments  could  be  referred 
to  it.    This  drafting  committee  could  make  pro-     J 
])osals  tomorrow   aftei'uoon   on   the  basis  of  the     ^ 


MAY  12.  1946 


793 


Aiistialiiin  text,  aiicl.  as  a  result  (if  these  [)ioposals, 
we  niifrht  be  able  to  reach  a  iinaniinous  decision 
toinoirow. 

I  tiiiiik  that  the  Council  should  be  able  to  accept 
my  proposal,  which  is  really  Mv.  Lange's  proposal 
amended  and  altered.  We  have  a  number  of 
amendments  before  us.  We  could,  of  course,  con- 
sider them  now,  but  we  could  also  refer  them  to 
tliis  draftinff  conunittee,  and  I  would  insist  upon 
the  desirabilitj'  of  having  the  drafting  committee 
consider  these  amendments  today  and  tomorrow 
morning,  and  that  the  Security  Council  itself 
should  meet  to  discuss  them  tomorrow  afternoon, 
after  the  drafting  committee  has  done  its  work. 

Mr.  Bonnet  (France)  {Intrrprctation)  :  I 
should  like  to  reply  very  briefly  to  the  delegate 
for  the  Netherlands  and  to  say  that  I  do  not  see 
how  my  proposal  can  be  exclusively  opposed  to  the 
proposal  of  the  Australian  Delegate.  I  do  not 
think  these  two  proposals  are  mutually  exclusive. 

Is  there  any  reason  why  a  greeting  to  the  Span- 
ish people  should  not  be  included  in  the  Australian 
proposa  1  ?  Is  there  any  reason  why  this  text  should 
not  include  a  statement  that  the  members  of  the 
Council  condemn  the  Franco  regime?  If  so,  I 
should  not  be  able  to  vote  for  the  Australian  pro- 
posal, but  I  do  not  think  that  the  inclusion  of  such 
provisions  is  impossible  at  all. 

Again,  are  we  to  consider  that  the  dropping  of 
the  two  questions  at  the  end  of  this  text  is  impos- 
sible? If  that  were  so,  I  should  insist  on  many 
other  questions  being  added,  but  I  think  it  is 
perfectly  possible. 

I  think  that  the  Australian  text  can  remain  with 
the  amendments  proposed  and  with  the  addition, 
the  small  addition,  which  I  proposed,  and  I  must 
say  I  see  no  contradiction  between  my  proposals 
and  those  of  the  Australian  Delegate  and  I  think 
the  Australian  Delegate  himself  has  admitted  that 
there  is  no  such  contradiction.  If  it  were  held  that 
my  amendments  \Aere  irreconcilable  with  the  Aus- 
tralian text,  then  I  would  suggest  that  it  would  be 
impossible  ever  to  propose  amendments  to  any 
text  in  parliamentary  procedure. 

Mr.  van  Kleffexs  (Netherlands)  :  I  only  want 
to  speak  very  briefly.  Of  course  the  Australian 
resolution  does  not  exclude  the  insertion  of  the 
word  "greeting"  to  the  people  of  Spain  nor  does  it 
exclude  that  the  three  questions  at  the  end  be  sup- 
pressed, but  where  the  opposition  between  the  two 


resolutions  comes  in  is  in  what  tlie  Delegate  for 
France  wanted  to  add,  namely,  "that  the  suliconi- 
mittee  may  report  to  the  Council  .  .  .  on  the 
practical  measures  which  the  United  Nations  could 
take  in  this  matter".  The  Australian  proposition 
goes  no  f urtlier  than  a  study  of  facts,  but  we  must 
not  prejudge  the  question  whether  or  not  steps  are 
to  be  taken,  and  this  is  the  ground  on  which  I 
stood  in  my  previous  estimation  of  the  debate. 

Colonel  Hodgson  (Australia)  :  I  am  not  sure 
what  we  are  getting  to  and  wliat  we  are  going  to  do 
when  we  get  there,  but  I  said  earlier  this  aftei'noon 
that  I  would  be  only  too  happy  to  meet  together 
with  the  Delegates  for  France  and  Poland  with  a 
view  to  reacliing  an  agreement  on  this  text  with 
amendments,  with  a  view  to  a  vote. 

I  thought  the  Delegate  for  the  United  Kingdom 
made  it  perfectly  clear  and  I  was  prepared  to  ac- 
cept that,  but  from  the  remarks  of  the  Delegate 
for  the  Soviet  Union  it  is  very  clear  that  there  is 
a  fundamental  difference  between  us  even  in  the 
conception  of  drafting.  In  other  words,  the  Dele- 
gate for  Poland  wants,  and  I  take  it  that  is  still 
his  idea,  to  embody  in  his  draft  certain  resolu- 
tions, certain  things  which  will  prejudge  the  whole 
matter  and  cause  us  to  take  action.  This  will 
undermine  the  case  which  is  em1)odied  in  the 
resolution  of  the  Australian  Delegation. 

So,  if  we  want  to  get  nnanimity  regarding  the 
duties  of  the  drafting  subcommittee  on  which  we 
are  going  to  vote  I  do  not  see  any  point  in  going 
on  with  it  and  I  would  rather  see  a  vote  taken  on 
the  amendment  as  it  stands. 

I  would  like  to  have  a  meeting  with  the  Delegate 
for  France  halfway,  so  to  speak,  if  that  would  suit 
the  Delegate  for  Mexico.  I  would  drop  those  three 
questions  if  tlie  Delegate  for  France  is  prepared 
to  drop  that  particular  sentence  which  he  wants 
added,  and  if  he  can  agree  on  that  straiglitaway. 
He  is  more  than  half  prepared  to  agree  now;  I 
think  we  can  have  a  vote  on  that. 

I  would  like  to  say  that  instead  of  going  halves, 
I  am  prepared  to  offer  75  for  25,  and  I  am  prepared 
to  tlirow  in  the  clause  of  condemnation  of  the 
Franco  regime  similar  to  the  terms  of  the  resolu- 
tions and  declarations  of  San  Francisco,  Potsdam, 
and  London,  or  such  terms  as  we  can  mutually 
agree  on  along  those  lines. 

The  President  :  I  think  I  am  going  to  j^ropose 
the  adjournment  until  tomorrow  at  11  o'clock,  and 
in  the  meantime  I  think  the  Delegate  for  Australia 
will  see  the  French  Delegate  and  perhaps  the  Pol- 


794 


DEPARTMENT  OF  STATE  BULLETIN 


ish  Delegate  tonight.  If  they  can  arrive  at  any 
agreed  proposal  it  would  be  quite  all  right,  other- 
wise we  will  have  tomorrow  to  vote  on  the  resolu- 
tion of  the  Australian  Delegate  and  on  the  amend- 
ments made  by  the  Delegates  ior  France  and 
Poland. 

Colonel  Hodgson    (Australia)  :  I   would   like 
first  to  ask  a  question  of  the  French  Delegate.     Is 


he  prepared  to  accept  my  suggestion?     If  so,  I 
would  like  a  vote  immediately. 

Mr.  Bonnet  (France)  {Interpretation)  :  AVhen 
I  proposed  a  drafting  committee  my  object  was 
that  the  Council  should  be  enabled  to  reach  agree- 
ment, for  I  am  firmly  persuaded  that  one  can  reach 
agreement  usually,  when  concessions  are  made  on 
both  sides. 


Remarks  Made  at  Thirty-eighth  Meeting  ^ 


The  President  :  Now  we  come  to  the  Spanish 
question.     Does  any  representative  wish  to  speak? 

Colonel  Hodgson  (Australia)  :  In  accordance 
with  the  request  of  the  Council  yesterday  after- 
noon, I  beg  to  refjort  that  the  Delegates  for  France, 
Poland,  and  Australia  met  witli  a  view  to  reach- 
ing an  agreed  draft  resolution  to  be  placed  before 
this  Council.  I  am  pleased  to  say  that  we  were 
successful.  Witli  your  permission  I  will  read  the 
resolution  as  it  now  stands.  There  are  two  minor 
corrections  which  I  ani  going  to  make  in  the  text 
you  have  got,  which  have  been  suggested  to  me 
and  which  I  think  will  make  it  precise.  I  will 
point  them  out  to  you  as  I  go  along. 

"The  attention  of  the  Secui'ity  Council  has  been 
drawn  to  the  situation  in  Spain  by  a  member  of 
the  United  Nations  acting  in  accordance  with  arti- 
cle 35  of  the  Charter,  and  the  Security  Council  has 
been  asked  to  declare  that  this  situation  has  led 
to  international  friction  and  endangers  interna- 
tional peace  and  security. 

"Therefore,  the  Security  Council,  keeping  in 
mind  the  moral  condemnation  of  tlie  Franco  re- 
gime by  the  Security  Council  (instead  of  'by,'  'in' 
the  Security  Council) ,  and  the  resolutions  concern- 
ing Spain  which  were  adopted  at  the  United  Na- 
tions Conference  on  International  Organization 
at  San  Francisco  and  at  the  First  General  Assem- 
bly of  the  Unit(^d  Nations,  and  the  views  expressed 
by  members  of  the  Security  Council  regarding  the 
Franco  regime,  hereby  resolves : 

"to  make  further  studies  in  order  to  determine 
whether  the  situation  in  Spain  has  led  to  inter- 
national friction  and  does  endanger  international 
peace  and  security,  and  if  it  so  finds,  then  to  deter- 
mine what  practical  measures  the  United  Nations 
may  take. 


'  Held  on  Apr.  26,  1946. 


"To  this  end,  the  Security  Council  appoints  a 
subcommittee  of  five  of  its  members  and  instructs 
this  subcommittee  to  examine  the  statements  made 
befoj-e  the  Securitj'  Council  concerning  Spain,  to 
receive  further  statements  and  documents  (in- 
stead of  'to  call  for',  the  word  'receive'),  and  to 
conduct  such  inquiries  as  it  may  deem  necessary, 
and  to  report  to  the  Security  Council  as  soon  as 
practicable." 

There  are  three  points  I  might  mention.  You 
will  see  that  in  paragraph  2  it  brings  in  the  request 
of  the  French  delegation,  and  other  members,  that 
there  should  be  some  mention  of  the  moral  con- 
demnation, requested  e-x^^ressly  by  all  the  dele- 
gates. 

The  second  point  is  in  paragraph  -i.  The  main 
substance  of  this  resolution  is  tliat  it  is  for  this 
Council,  and  not  the  subcommittee,  to  determine 
what  practical  measures  the  Ignited  Nations  might 
take  on  the  finding  that  it  has  led  to  international 
friction  and  does  endanger  international  peace 
and  security. 

In  paragraph  4  you  will  see  that  very  wide 
jjowers  of  discretion  are  given  to  the^  subcom- 
mittee to  conduct  such  inquiries  as  it  may  deem 
necessary;  that  is,  it  will  itself  decide  how  and 
when  and  where  the  inquiry  is  to  be  made. 

Mr.  de  la  Colina  (]\Iexico)  :  In  order  to  have 
time  to  study  carefully  the  new  text  of  the 
Australian  amendment,  and  also  to  permit  the 
representatives  of  the  members  of  the  Security 
Council  to  obtain  definite  instructions  from  their 
respective  governments,  I  move  that  we  adjourn 
tlie  vote  until  an  early  date,  let  us  say  Monday, 
if  that  is  agreeable  to  you. 

The  President  :  Do  you  agree  to  the  postpone- 
ment of  the  vote  until  Monday  at  three  o'clock? 

Mr.  van  Klefeens  (Netherlands)  :  May  I  just 
ask  a  question  ?  In  order  to  understand  this  draft 
resolution    correctly,   I    should    like    to    ask   the 


MAY  12,  1946 


795 


Australiuu  Delegate  why  this  resolution  speaks 
not  only  about  keeping  in  mind  the  moral  con- 
demnation of  the  Franco  regime,  which  I  think 
is  perfectly  right,  but,  in  addition  to  that,  the 
views  expressed  by  members  of  the  Security  Coun- 
cil regarding  the  Franco  regime?  I  was  wonder- 
ing whether  that  was  not  a  repetition.  Perhaps 
I  am  mistaken. 

Colonel  Hodgson   (Australia)  :  Yesterday  we 
had  a  close  look  at  this.     You  will  note  the  two 


concepts  there.  The  first  one  was  the  desire  of 
the  French  Delegate  for  the  moral  condemnation. 
The  original  resolution  read  that  the  subcommittee 
had  to  bear  in  mind  the  views  expressed,  that  is, 
all  the  views  in  the  whole  of  the  debate  for  and 
against,  and  the  question  of  domestic  jurisdiction. 
So  the  first  is  the  narrow  concept  and  that  last 
l^ortion,  the  views  expressed,  deals  with  all  the 
views  on  every  aspect  of  the  question  expressed 
durino;  the  debate. 


Remarks  Made  at  Thirty-ninth  Meeting  ^ 


Tjie  President  :  The  first  item  of  the  agenda  is 
the  Spanish  question.  I  think  we  can  close  the 
debate  and  put  this  question  to  vote  if  no  member 
wants  to  speak. 

Mr.  Lange  (Poland)  :  In  the  name  of  the  Polish 
Delegation  I  want  to  declare  that  we  are  ready  to 
support  the  Australian  resolution.  However,  we 
are  very  anxious  that  this  proi^osed  subcommittee 
does  really  work  and  does  not  prove  a  means  of 
indefinitely  shelving  the  issue,  as  certain  fears 
were  expressed  during  the  last  meeting  of  our 
Council. 

I  should  like,  therefore,  to  propose  two  minor 
amendments.  One  is  that  the  date  be  added  when 
the  report  is  due ;  for  instance,  31  May.  Further- 
more, in  the  very  beginning  of  the  second  para- 
graph we  read  the  following:  "Therefore  the  Se- 
curity Council,  keeping  in  mind  the  moral  con- 
demnation of  the  Franco  regime  in  the  Security 
Council".  I  would  propose  that  we  say  either, 
"by  the  Security  Council"  or  "the  unanimous 
moral  condemnation  of  the  Franco  regime  in  the 
Security  Council" — because  as  it  stands  there  may 
be  a  ceitain  misunderstanding.  It  might  be  under- 
stood, for  instance,  that  one  of  the  members  of 
this  Council  condemned  the  Franco  regime  and 
all  the  others  appi-oved  of  it.  Since  there  was  an 
unanimity  of  opinion  on  the  subject,  1  think  this 
unanimity  of  opinion  somehow  should  be  regis- 
tered in  the  resolution.  I  want  to  ask  the  Delegate 
of  Australia  whether  these  two  changes  would  be 
acceptable  to  him. 

In  general,  I  again  want  to  express  what  I  had 
the  opportunity  of  saying  before,  that  there  is 'a 
certain  unanimity  in  the  Council  as  to  the  attitude 
of  the  member  governments  towards  the  Franco 
regime,  and  we  support  this  resolution  in  spite 

'Held  nil  Apr,  29.  194(5. 


of  certain  fears  which  were  expressed  in  this 
Council  that  it  may  mean  indefinite  postponement 
of  the  issue,  because  we  attach  great  importance 
to  the  unanimity  of  action  by  the  Council  in  this 
matter,  and  we  want  to  give  the  Council  a  chance 
to  act  unanimously. 

Of  course,  this  does  not  mean  that  we  withdraw 
our  earlier  resolution  demanding  collective  break- 
ing of  diplomatic  relations  with  Spain.  We  under- 
stand that  our  earlier  resolution  will  again  come 
under  discussion  and  vote  after  this  committee  has 
presented  its  report. 

Mr.  Hasluck  (Australia)  :  So  far  as  the  Aus- 
tralian Delegation  is  concerned,  we  are  quite  ready 
to  accept  the  suggestions  which  the  representative 
of  Poland  has  nmde.  so  long  as  those  suggestions 
are  acceptable  to  other  members  of  the  Council. 
I  should  like  to  say  this,  since  the  representative 
of  Poland  has  raised  the  question,  that  in  moving 
this  resolution  the  Australian  Delegation  also 
fully  intended  that  this  committee  should  work. 
Our  one  object  is  that  this  committee  should  assist 
the  Council  to  reach  a  decision  as  quickly  as 
possible. 

On  the  particular  point,  regarding  unanimous 
condemnation,  if  there  are  no  other  objections 
from  other  supporters  of  the  resolution,  we 
are  quite  prepared  to  accept  the  suggestion  in 
regard  to  the  insertion  of  the  word  "unanimous" 
before  "moral  condemnation".  With  regard  to  the 
second  suggestion,  for  inserting  a  date,  I  recall 
that  in  the  second  resolution  we  ]iut  forward  we 
had  until  31  May,  and  we  should  be  quite  happy 
to  see  that  restored.  On  that  point,  I  think  it  is 
worth  bearing  in  mind  that,  if  the  conunittee  found 
itself  unable  to  complete  its  work  by  May  31,  it 
could  report  back  on  that  daj'  and  ask  for  an  ex- 
tension of  time. 


796 


DEPARTMENT  OF  STATE  BULLETIN 


Mr.  Groiiyko  (Soviet  Union)  (Spcak'nig  in 
Rus-sian;  tranftlatioii)  :  Before  the  ilraft  resolu- 
tion projjosed  by  the  Delejiute  for  Australia  is 
put  to  the  vote,  I  consider  it  necessary  to  make  the 
following  observations : 

In  spite  of  some  changes  in  the  text  of  the  Aus- 
tralian draft  resolution,  its  contents  remain  un- 
changed. What  this  draft  resolution  contains  is 
a  proposal  to  inquire  into  the  existing  situation  in 
Spain  in  order  to  ascertain  whether  the  Fascist 
Franco  regime  existing  in  Spain  constitutes  a 
threat  to  international  peace.  This  proposal  was 
made  in  spite  of  the  fact  that  the  discussion  in  the 
Security  Council  on  the  question  raised  by  the 
Polish  Delegate  had  fully  confirnied  the  fact  that 
the  existing  Fascist  regime  in  Spain  constituted  a 
serious  threat  to  the  maintenance  of  international 
peace  and  security. 

The  adoption  of  the  Australian  draft  resolution 
will  mean  that  the  Security  Council,  instead  of 
taking  effective  measures,  will  take  the  path  of 
delays  and  inaction  in  regard  to  Fascism  in  Spain, 
which  the  public  opinion  of  the  world  will  fail  to 
understand  and  even  more  to  justify'. 

In  view  of  this,  the  Soviet  Delegation  continues 
in  its  strongly  negative  attitude  towards  the  draft 
resolution  proposed  by  the  Delegate  for  Australia. 

Bearing  in  niind,  however,  that  some  members 
of  the  Council  declare  that  they  are  still  unsatis- 
fied with  the  information  at  the  disposal  of  the 
Council  regarding  the  question  raised  by  the  Dele- 
gate for  Poland,  and  bearing  in  mind  in  this  con- 
nection that  my  voting  against  the  Australian 
draft  resolution  would  make  its  adoption  impos- 
sible, I  abstain  from  voting. 

I  consider  it  necessary  to  draw  the  attention  of 
the  Security  Council  to  the  fact  that  my  abstention 
from  voting  on  this  matter  may  in  no  way  be  re- 
garded as  a  precedent  capable  of  influencing  in 
any  Avay  the  question  of  the  abstention  of  perma- 
nent members  of  the  Security  Council. 

Mr.  i)f:  i.A  CoLixA  (Mexico)  :  I  am  prepared  to 
vote  for  the  final  text  of  the  Australian  resolution 
as  now  submitted  to  the  Council,  but,  in  order  to 
clear  up  any  possible  misunderstandings  of  Mex- 
ico's position  concerning  my  decision  to  vote  in 
favor  of  this  resolution,  I  wish  to  make  the  follow- 
ing statement: 

My  Government  has  considered  it  vital  to  avoid 
any  division  on  this  issue,  as  we  believe  that  lack 


of  unanimity  will  only  give  aid  and  comfort  to 
tiie  Falange  government.  In  the  hope  of  reach- 
ing a  unanimous  decision,  we  have  been  willing  to 
accept  the  proposal  concerning  the  creation  of  a 
subcommittee,  trusting  that  its  findings  may  per- 
suade members  of  the  Council  who  still  doubt 
whether  conditions  in  Franco  Spain  constitute  a 
situation  likely  to  endanger  the  maintenance  of 
international  peace  and  security.  We  continue  to 
believe  that  Franco  Spain  is  a  potential  menace 
to  international  peace  and  security,  because  it  is 
a  center  of  world-wide  Fascist  activities  and  a 
haven  of  Nazi  agents. 

We  are  disposed,  however,  in  the  interest  of 
unity  to  join  in  this  resolution  with  the  other  mem- 
bers of  the  Council  who  are  not  convinced  that 
such  a  danger  to  international  peace  and  security 
exists. 

Mr.  van  Kleffens  (Netherlands)  :  I  am  glad 
that,  thanks  to  the  attitude  of  the  Russian  Dele- 
gate, I  need  not  go  into  the  question  as  to  whether 
this  is  a  question  of  procedure  or  not,  but  I  want 
it  to  be  understood  that,  if  in  the  future  a  similar 
position  arose  on  some  other  matter,  I  should  feel 
([uite  free  to  express  an  opinion,  if  necessarj^,  on 
the  question  as  to  whether  it  is  a  matter  of  pro- 
cedure or  not. 

The  Presidext:  The  Council  now  has  to  con- 
sider only  one  motion,  the  motion  of  the  Australian 
representative  which  has  been  amended  now  and 
which  reads  finally  as  follows: 

"The  attention  of  the  Security  Council  has  been 
drawn  to  the  situation  in  Spain  by  a  Member  of 
the  United  Nations  acting  in  accordance  with 
Article  35  of  the  Charter,  and  the  Security  Council 
has  been  asked  to  declare  that  this  situation  has 
led  to  international  friction  and  endangers  inter- 
national peace  and  securit}^ 

"Therefore  the  Security  Council,  keeping  in 
mind  the  unanimous  moral  condemnation  of  the 
Franco  regime  in  the  Security  Council,  and  the 
resolutions  concerning  Spain  which  were  adopted 
at  the  United  Nations  Conference  on  International 
Organization  at  San  Francisco  and  at  the  first 
General  Assembly  of  the  United  Nations,  and  the 
views  expressed  by  members  of  the  Security  Coun- 
cil regarding  the  Franco  regime,  hereby  resolves : 

"to  make  further  studies  in  order  to  determine 
whether  the  situation  in  Spain  has  led  to  intorna- 
(Continurd  on  pnt/c  80,i) 


MAY  12,  1946 


797 


Memorandum  on  the  Objectives  of  the  Economic 
and  Employment  Commission^ 


The  Charter  of  the  United  Nations  states  that 
the  United  Nations  are  determined  "to  promote 
social  progress  and  better  standards  of  life  in 
larger  freedom",  and  "to  employ  international 
machinery  for  the  promotion  of  the  economic  and 
social  advancement  of  all  peoples". 

The  United  Nations  shall,  according  to  Chapter 
IX,  promote  "higher  standards  of  living,  full  em- 
ployment, and  conditions  of  economic  and  social 
progress  and  development".  (Article  55a).  The 
task  of  promoting  full  employment  is  considered 
so  important  that  it  is  stipulated  in  the  Charter 
itself.  To  obtain  this  objective.  Chapter  X,  Ar- 
ticle 68  provides  for  the  establishment  of  commis- 
sions in  economic  and  social  fields  by  the  Economic 
and  Social  Council :  "The  Economic  and  Social 
Council  shall  set  up  commissions  in  economic  and 
social  fields  ....  and  such  other  commissions 
as  may  be  required  for  the  performance  of  its 
functions." 

*  *  * 

The  Preparatory  Commission  Report  presented 
to  the  General  Assembly  for  its  first  session  held 
in  London  on  January  10th  included  in  Chapter 
III,  Section  4,  "Considerations  and  Recommenda- 
tions concerning  the  organization  of  the  Economic 
and  Social  Council",  certain  recommendations  for 
the  Economic  and  Employment  Commission  for 
its  consideration,  as  follows : 

Economic  and  Employment  Com/mission 

18.  The  Economic  and  Social  Council  will  re- 
quire an  advisory  commission  to  assist  the  Council 
in  fulfilling  its  responsibilities  in  the  economic  field 
under  Ai'ticle  55  of  the  Chartei'.  This  commission 
will  be  especially  concerned  with  questions  which 

"do  not  fall  solely  within  the  scope  of  any  of  the 
other  commissions  or  of  any  single  specialized 
agency. 

19.  The  Council  should  establish  an  Economic 
and  Employment  Commission  with  the  following 
as  its  principal  terms  of  reference. 

693365—46 3 


20.  The  Cojnmission  would  advise  the  Economic 
and  Social  Council  on: 

(a)  economic  questions  of  a  general  char- 
acter; and 

(b)  economic  questions  involving  concerted 
study  and  action  by  more  than  one  spe- 
cialized agency  or  commission  of  the 
Council. 

21.  In  particular  it  will  be  the  function  of  the 
Commission  to  advise  the  Council  on : 

(a)  the  promotion  of  world-wide  full  employ- 
ment and  the  co-ordination  of  national 
full  employment  policies ; 

(b)  the  prevention  of  economic  instability; 

(c)  urgent  problems  of  economic  reconstruc- 
tion; and 

(d)  economic  development  of  under-devel- 
oped areas. 

22.  The  Commission  will  require  several  spe- 
cialized committees  to  assist  it  in  its  comprehen- 
sive work.  Attention  is  drawn  to  three  such  com- 
mittees which  will  probably  be  required  and  for 
which  brief  terms  of  reference  and  explanatory 
notes  are  set  out  in  the  following  paragraphs. 

Employment  Committee 

23.  The  promotion  of  full  employment  is  a  func- 
tion which  cannot  be  divorced  fi-om  the  work  of 
the  main  Commission  in  the  field  of  general  eco- 
nomic policy.  Nevertheless  there  are  special  highly 
important  aspects  of  employment  which  should  be 
handled  by  a  special  committee : 

(a)  study  of  national  and  international 
methods  of  promoting  full  employment, 
and  related  economic  and  administrative 
problems;  and 

(b)  analysis  of  information  relating  to  em- 
ployment and  unemployment  in  the  var- 
ious countries. 

'Document  E/EMP/3,  Apr.  26,  1946;  original  text  in 
English. 


798 


DEPARTMENT  OF  STATE  BULLETIN 


Balance  of  Payments  Committee 

24.  Since  trade,  exchange  and  employment  poli- 
cies of  states  will  be  largely  affected  by  their  bal- 
ance of  payments,  it  will  be  desirable  for  an  ex- 
pert group  to  study  and  advise  the  Commission  on 
balance  of  payments  problems,  especially  in  so  far 
as  they  require  for  their  solution  concerted  action 
by  governments  and  specialized  agencies. 

Economic  Development  Com,mittee 

25.  The  Commission  will  require  expert  advice 
on  the  long-term  development  of  production  and 
consumption  throughout  the  world  and,  in  par- 
ticular, on — 

(a)  the  methods  of  increasing  production, 
productivity  and  levels  of  consumption 
in  the  less-developed  regions  of  the  world ; 

(b)  the  effects  of  industrialisation  and  tech- 
nological change  on  world  economic  con- 
ditions, and  the  adiustments  required; 
and 

(c)  the  co-ordination  of  the  activities  of  the 
commissions  or  specialized  agencies  con-, 
cerned. 

On  the  proposition  of  the  Committee  on  the  or- 
ganization of  the  Council,  the  Economic  and  Social 
Council  adopted  the  following  resolution  establish- 
ing the  Economic  and  Employment  Conmiission, 
as  follows : 

Economic  and  Employment  Commission 

Eesolution  of  the  Economic  and  Social  Council 
of  16  February  1946,  (Document  E/20  of  15  Feb- 
ruary 1946) ,  on  the  establishment  of  an  Economic 
and  Employment  Commission,  supplemented  by 
the  action  taken  by  the  Council  on  18  February 
1946,  completing  paragraphs  9  and  10  concerning, 
the  initial  composition  of  this  commission. 

1.  The  Economic  and  Social  Council,  being 
charged  under  the  Charter  with  the  responsibility 
of  promoting  higher  standards  of  living,  full  em- 
ployment, conditions  of  economic  and  social  prog- 
ress and  development  and  solutions  of  interna- 
tional economic  problems,  and  requiring  advice 
and  assistance  to  enable  it  to  discharge  this  respon- 
sibility, 

ESTABLISHES  AN   ECONOMIC  AND  EMPLOYMENT   COM- 
MISSION. 

2.  The  Commission  shall  advise  the  Economic 
and  Social  Council  on  : 


(a)  economic  questions  of  a  general  char- 
acter; 

(b)  economic  questions  involving  concerted 
study  and  action  by  more  than  one  spe- 
cialized agency  or  commission  of  the 
Council ; 

(c)  the  world  economic  situation  and  eco- 
nomic problems  requiring  immediate  at- 
tention from  time  to  time. 

?>.  In  particular  it  will  be  the  function  of  the 
Commission  to  advise  the  Council  on : 

(a)  problems  of  economic  reconstruction  of 
devastated  areas  and  other  urgent  eco- 
nomic problems  arising  from  the  war,  in- 
cluding methods  of  meeting  short- 
term  situations  most  consistently  with  the 
requirements  of  long-term  policy ; 

(b)  the  promotion  of  world-wide  full  em- 
ployment, the  coordination  of  national 
full  employment  policies  and  the  pre- 
vention of  economic  instability ; 

(q)  problems  of  economic  development  in- 
cluding particularly  those  relating  to 
under-developed  areas. 

4.  The  Commission  shall  make  studies  and 
recommendations  and  provide  information  and 
other  services  at  the  request  of  the  Economic  and 
Social  Council. 

5.  The  Commission  shall  establisli  the  follow- 
ing sub-commissions : 

(a)  A  sub-commission  on  Employment  to 
study  national  and,  in  consultation  with 
the  sub-commissions  on  Balance  of  Pay- 
ments and  Economic  Development,  inter- 
national methods  of  promoting  full  em- 
2)loyment  and  related  problems,  and  to 
analyse  information  regarding  employ- 
ment and  unemployment  in  the  various 
countries ; 

(b)  A  sub-commission  on  Balance  of  Pay- 
ments to  study  and  advise  the  Commis- 
sion on  balance  of  payments  problems, 
especially  insofar  as  they  require  for  their 
solution  concerted  action  by  governments 
or  by  more  than  one  specialized  agency; 

(c)  A  sub-commission  on  Economic  Develop- 
ment to  advise  the  Commission  on  the 
long-term  development  of  production  and 
consumption  throughout  the  world,  and 
in  particular,  on : 


MAY  12,  1946 


799 


i)  the  methods  of  increasing  production, 
productivity  and  levels  of  consump- 
tion in  the  less-developed  regions  of 
the  world; 
ii)  the  effects  of  industrialization  and 
technological  change  on  world  eco- 
nomic conditions,  and  the  adjust- 
ments required. 

6.  The  Commission  may  also  make  recom- 
mendations to  the  Council  concerning  any  other 
sub-commission  which  it  considers  should  be  estab- 
lished. 

7.  Not  more  than  three  members,  not  members 
of  the  Commission,  may  be  appointed  to'  a  sub- 
commission  without  the  previous  approval  of  the 
Council. 

8.  The  Commission  may  propose  to  the  Council 
any  changes  in  its  terms  of  reference  or  in  those 
of  the  sub-commissions. 

9.  Initially,  the  Commission  sliall  consist  of  a 
nucleus  of  nine  members  appointed  in  their  indi- 
vidual capacity  for  a  term  of  office  expiring  on  31 
March  1947.  They  are  eligible  for  reappointment. 
In  addition  to  exercising  the  functions  enumerated 
in  paragraphs  2,  3,  4  and  8,  the  Commission  thus 
constituted  shall  make  recommendations  to  the 
Second  Session  of  the  Council  on  the  definitive 
composition  of  the  Commission  and  on  the  desira- 
bility of  establishing  a  sub-commission  on  economic 
reconstruction  of  devastated  areas. 

10.  The  Council  hereby  appoints  the  following 
persons  as  initial  membei's  of  the  Commission : 

1.  Mr.  Luis  Angel  Arango    Colombia 

2.  Dr.  Franklin  L.  Ho  China 

3.  Dr.  Alexander  Kunosi       Czechoslovakia 

4.  M.  Fernand  van  Langen-  Belgium 

hove 

5.  Dr.  Alexander  Loveday  United  Kingdom 

6.  Mr.  Isador  Lubin  U.S.A. 

7.  Miss  R.  Zafiriou  Greece 

8.  Mr.  W.  A.  Mackintosh  Canada  (transmit- 

ted since) 

9.  U.S.S.R. 

and,  in  addition,  persons  whose  names  will  be 
transmitted  to  the  Secretary-General,  not  later 
than  31  ^March  1946,  by  the  members  of  the  Coun- 
cil for  Canada  and  the  U.S.S.R. 

II 

The  Preparatory  Commission  was  anxious  that 
the  Commission  should  be  especially  concerned 


with  questions  which  do  not  fall  solely  within  the 
scope  of  any  of  the  other  commissions  or  of  any 
single  specialized  agency.  '  The  Economic  and 
Social  Council  is  also  concerned  with  the  coordi- 
nation of  the  Specialized  Agencies  and  should 
study  carefully  the  scope  of  their  activities. 

It  is  to  be  remembered,  however,  that  the  Eco- 
nomic and  Social  Council  has  no  power  concerning 
the  coordination  of  policies,  which  belongs  solely 
to  tlie  General  Assembly. 

1.  The  constitution  of  the  International  Labour 
Organisation  provides  that  this  organisation  is 
established  for  the  promotion  of  improvement  of 
the  conditions  of  labour, 

"by  the  regulation  of  the  hours  of  work,  in- 
cluding the  establishment  of  a  maximum  working 
day  and  week,  the  regulation  of  labour  supply, 
the  prevention  of  v/nemployinent,  the  provision  of 
an  adequate  living  wage,  the  protection  of  the 
worker  against  sickness,  disease  and  injury  arising 
out  of  his  employment,  the  protection  of  children, 
young  persons  and  women,  provision  for  old  age 
and  injury,  protection  of  the  interests  of  the  work- 
ers when  employed  in  countries  other  than  their 
own,  recognition  of  the  principles  of  freedom  of 
association,  the  organisation  of  vocational  and 
technical  education  and  other  measures." 

In  the  light  of  these  objects,  the  International 
Labour  Organisation  is  taking  care  of  the  prob- 
lems of  unemployment  from  the  social  point  of 
view,  from  the  point  of  view  of  the  conditions  of 
labour,  and  even  in  the  Declaration  concerning  the 
aims  and  puri:)oses  of  the  International  Labour 
Organisation  adopted  at  Philadelphia  on  10  May 
1944,  the  text  of  which  is  annexed  to  the  proposed 
amendments  to  the  Constitution  (Report  of  the 
Conference  Delegation  on  Constitutional  Ques- 
tions on  the  work  of  its  first  session  21  January- 
15  February  1946.)  The  obligation  of  the  I.L.O. 
to  further  among  the  nations  of  the  world  pro- 
grammes which  will  achieve  full  employment  and 
the  raising  of  standards  of  living  is  put  also  in  the 
framework  of  policies  in  regard  to  wages  and  earn- 
ings, hours,  and  other  conditions  of  work. 

There  will  be  no  overlapping  of  tasks  and  ac- 
tivities if  the  Economic  and  Employment  Com- 
mission considers  the  problem  of  full  employ- 
ment in  connection  with  economic  questions  of  a 
general  character. 

2.  The  governing  principles  of  the  proposed  In- 
ternational Trade  Organisation  outline  expansion 


800 


DEPARTMENT  OF  STATE  BULLETIN 


of  world  trade  and  employment  in  the  following 
terms : 

"1)   It  is  recognized  that: 

a)  In  all  countries  hifjh  and  stable  employment 
is  a  main  condition  for  the  attainment  of  satisfac- 
tory levels  of  living. 

b)  The  attainment  of  approximately  full  em- 
ployment by  the  major  industrial  and  trading 
nations,  and  its  maintenance  on  a  reasonably  as- 
sured basis,  are  essential  to  the  expansion  of  in- 
ternational trade  on  which  the  full  prosperity  of 
these  and  other  nations  depends ;  to  the  full  reali- 
zation of  the  objectives  of  all  liberal  international 
agreements  in  such  fields  as  commercial  policy, 
commodity  problems,  restrictive  business  prac- 
tices, monetai-y  stabilization,  and  investment;  and, 
therefore,  to  the  preservation  of  world  peace  and 
security." 

This  organisation  is  approaching  the  problem 
only  from  the  trade  and  commercial  aspects  by 
considering  the  pi-omotion  of  intei'national  com- 
mercial cooperation,  establishing  machinery  for 
consultation  and  collaboration  among  member 
governments  regarding  the  solution  of  problems 
in  the  field  of  international  commercial  policies 
and  relations. 

In  the  discussion  of  the  Committee  on  the  or- 
ganisation of  the  Council  (London,  15  February 
19-16),  it  was  pointed  out  by  the  chairman  that  no 
international  trade  organisation  was  likely  to  be  in 
being  before  1947,  and  that  it  would  be  created 
against  the  background  of  the  Commission  with 
which  its  activities  would  have  to  be  coordinated. 
The  Dutch  member  reminded,  in  this  connection, 
"that  the  proposed  international  trade  organisa- 
tion would  not  deal  with  problems  of  employment. 
The  Economic  and  Employment  Commission,  in 
its  turn,  would  not  be  particularly  concerned  with 
questions  of  commercial  policy."' 

3.  The  aim  of  the  Organisation  on  Food  and 
Agriculture  is  to  expand  and  impi'ove  production, 
to  increase  employment,  to  raise  levels  of  consump- 
tion in  the  field  of  production,  distribution  and 
consumption  of  f(jod  and  other  agricultural  prod- 
ucts. The  Organization  on  Food  and  Agricul- 
ture is  studying  the  relation  of  agriculture  to 
world  economy  and  the  problems  of  agricultural 
population  and  farm  labor.  The  social  factors 
which  are  in  the  scope  of  this  organization  in- 
clude the  distribution  of  population  between  agri- 
culture   and    inihistry,    popidation    movements. 


Considering  this,  there  is  no  overlapping  of  func- 
tions but  a  necessity  of  coordination  so  far  as  un- 
employment in  agriculture  is  concerned. 

-1.  The  purpose  of  the  International  Bank  for 
Reconstruction  and  Development  is  "to  promote 
exchange  stabilitj',  to  maintain  orderly  exchange 
arrangements  among  members,  and  to  avoid  com- 
petitive exchange  depreciation."  (Article  I,  iii). 
Tlie  main  task  of  the  Bank  is  to  assist  in  the  recon- 
struction by  facilitating  the  investment  of  capital 
for  productive  purposes,  and  by  so  doing,  to  con- 
tribute to  the  raising  of  productivity,  the  standard 
of  living,  and  conditions  of  labour. 

The  coordination  between  those  above-men- 
tioned specialized  agencies  in  the  field  of  promo- 
tion of  full  employment  is  therefore  imperative. 

Scope  and  Aims  of  the  Economic  and 
Employment  Commission 

During  the  discussions  in  the  Committee  on  the 
Organization  of  the  Council,  ideas  were  expressed 
by  the  members  which  the  Committee  may  con- 
sider as  interpretation  of  the  adopted  resolution 
and  as  guidance  for  future  activities : 

Cooi'dination  of  work  of  Commission  and  Specml- 
ized  Agencies 

"Without  deviating  from  the  recommendations 
of  the  Preparatory  Commission  which  referred  to 
the  necessity  of  an  organ  to  coordinate  the  work 
of  the  Commissions  and  the  Specialized  Agencies, 
the  Committee  might  recommend  that  the  Eco- 
nomic and  Employment  Commission  should  con- 
stitute this  coordinating  bodj-  so  far  as  questions 
within  its  competence  were  concerned." 

.  .  .  "The  Economic  and  Employment  Com- 
mission should  have  the  power  to  coordinate  ac- 
tivities of  Specialized  Agencies  and  Commissions 
within  the  sphere  of  its  work."  ( Colombian  mem- 
ber). 

On  the  subject  of  coordination,  it  was  stated  that 
the  Coordination  Commission  proposed  in  para- 
graph 3.5  page  39  of  the  report  would  have  as  its 
terms  of  reference  the  functions  suggested  in  para- 
graphs 12-15  of  Section  V  of  Chapter  III.  The 
Commission  was  expected  to  establish  the  means 
by  which  the  activities  of  specialized  agencies  and 
commissions  could  be  harmonised. 

"The  Charter  provided  for  two  forms  of  co-or- 
dination. The  Council  would  co-ordinate  the  ac- 
tivities of  the  Connnissions  and  the  Specialized 


MAY  12,  1946 


801 


Agencies,  while  the  General  Assembly  presum- 
ably on  the  recommendation  of  the  Council,  was 
to  co-onlinate  the  policies  and  activities  of  the 
whole.  It  had  been  felt  that  it  would  be  difficult 
for  a  council  of  18  members  to  undertake  direct 
co-ordination  of  tlie  policies  of  specialized  agen- 
cies which  would  often  include  in  their  member- 
ship tlic  fifty -one  members  of  the  United  Nations. 
If  the  recommendations  or  conclusions  of  various 
specialized  agencies  were  conflicting,  the  General 
Assembly  alone  would  have  power  to  remedy  the 
situation. 

"The  co-ordinating  functions  given  to  the  Eco- 
nomic and  Employment  Commission  in  the  repf)rt 
of  the  Preparatory  Commission  might  have  to  be 
clarified.  But  where  the  policy  of  specialized 
agencies  was  involved,  it  was  intended  that  the 
Commission  transmit  its  reconnnendations  to  the 
Council,  which  would  then  report  to  the  General 
Assembly."     (Chairman). 

"The  terms  of  reference  of  the  Economic  and 
Employment  Commission  should  make  it  clear 
that  it  was  required  to  co-ordinate  the  activities 
of  all  the  Commissions  and  specialized  agencies 
dealing  with  economic  questions,  and  to  make  rec- 
ommendations to  the  Council  regarding  the  poli- 
cies of  such  agencies  as  the  Monetary  Fund,  the 
International  Bank,  the  F.A.O.,  etc.  and  Com- 
missions such  as  the  Fiscal  Commission  and  the 
Transport  and  Communications  Commission." 
(Norwegian  member). 

"That  the  question  of  co-ordination  of  the  ac- 
tivities of  specialized  agencies  should  be  specifi- 
cally mention  [ed]  in  the  terms  of  reference  of  the 
Economic  and  Employment  Commission.  Some 
of  these  agencies  had  powers  which  amovmted  to 
international  authority.  The  Council  must  have 
elfective  means  of  action  if  it  was  to  be  able  to 
enforce  economic  policy  and  ensure  that  the  poli- 
cies of  the  specialized  agencies  were  in  no  way 
contrary  to  the  aims  of  the  Charter."  (Colombian 
member) . 

"As  regards  the  question  of  co-ordination,  the 
discussion  seemed  to  arise  as  a  result  of  differing 
conceptions  of  the  composition  and  character  of 
the  Commissions.  Some  members  of  the  Com- 
mittee implied  the  concept  that  the  Commissions 
would  have  executive  functions  and  be  composed 
of  persons  who  were  executive  in  character.  In 
referring  to  "highly  qualified  persons"  he  felt  that 


the  Report  of  the  Preparatory  Commission  meant 
to  imply  technical  qualifications.  The  word  "ex- 
pert" had  been  dropped  during  the  debates  at  San 
Francisco,  but  he  did  not  think  that  in  deleting  it, 
there  had  been  any  intention  to  alter  the  meaning 
of  the  text."     (U.  S.  member) . 

"The  bodies  at  present  termed  commissions 
might  well  be  given  the  task  of  supervising  the 
execution  of  an  international  convention  or  of  per- 
forming administrative  functions  in  pursuance  of 
it. 

"In  regard  to  the  co-ordination  of  specialized 
agencies,  the  United  Kingdom  Government  did 
not  accept  the  narrow  definition  of  the  word  "ac- 
tivities". The  Council  would  require  to  under- 
take not  only  administrative  but  substantive  co- 
ortlination,  and  it  would  need  to  be  advised  by  its 
Commissions".     (U.  K.  member). 

"Specialized  agencies  existed  already  in  many 
of  the  fields  covered  by  the  Commission,  which 
would  itself  be  mainly  concerned  with  the  co-ordi- 
nation and  integration  of  the  policies  of  the  vari- 
ous agencies.  It  was,  therefore,  not  inconsistent 
to  ci'eate  a  commission  to  deal  with  questions  of 
trade  and  employment."     (Greek  member). 

Survei/s 

'Tt  should  be  the  primary  task  of  the  Economic 
and  Employment  Connnission  to  carry  out  a  com- 
prehensive and  detailed  survey  of  world  economic 
conditions,  both  by  independent  investigation  and 
by  means  of  questionnaires  sent  to  governments, 
and  to  study  both  the  short  and  long  term  prob- 
lems facing  each  country".  It  was  stated  that 
"before  reaching  conclusions  and  making  recom- 
mendations the  Economic  and  Employment  Com- 
mission must  be  fully  and  authoritativeh'  informed 
on  the  following  matters : 

a)  pre-war  material  resources  of  each  coun- 
try and  changes  due  to  tlie  war; 

b)  main  pre-war  economic  problems  of  each 
country  and  in  particular  the  foreign  de- 
mand for  its  products,  the  level  and  nature 
of  its  imports  and  the  state  of  its  balance 
of  payments; 

c)  main  problems  which  each  country  is  fac- 
ing today  as  a  result  of  war,  occupation, 
changes  in  demand,  loss  of  export  markets 
and  so  on ; 

d)  measures  and  resources  needed  by  each 
country  for  its  economic  development; 


802 


DEPARTMENT  OF  STATE  BULLETIN 


e)  any  other  matter  that  any  country  would 
like  to  bring  to  the  attention  of  the  Coun- 
cil." (Greek  member). 

"The  technical  commissions  would  be  the  best 
judge  of  the  most  effective  way  of  obtaining  the 
information  they  required.  They  should  contain 
experts  capable  of  analysing  and  interpreting  the 
facts  and  statistics  whicli  in  many  cases  already 
existed."  (U.  K.  member). 

"Tlie  Economic  and  Employment  Commission 
would  analyse  tlie  work  of  the  different  agencies 
and  commissions  and  prepare  the  final  report  of 
the  Council. 

"The  pi'oblem  of  employment  had  nuiny  social 
aspects  and  the  Commission  might  more  appro- 
priately be  called  "Economic  and  Social  Commis- 
sion" in  order  not  to  give  the  impression  that  it 
was  restricted  to  economic  problems.  It  should  be 
in  some  way  the  executive  body  of  the  Council 
itself."     (Peruvian  member). 

"The  Commissions  thus  constituted  should  not 
be  limited  to  organizational  work,  but  should  take 
up  the  study  of  some  urgent  i^roblems  and  thus 
prepai'e  the  work  for  the  next  session  of  the  Coun- 
cil." (Greek  member) . 

Composition  of  Commissions  and  Term  of  Office 
of  Members 

It  was  suggested  that,  in  view  of  the  fluidity 
of  the  position  and  the  fact  that  the  Council  might 
later  wish  to  revise  the  composition  and  nature 
of  the  Commissions,  it  would  be  advisable  to  make 
appointments  for  one  year.  The  solution  was  to 
appoint  a  nucleus  of  each  commission  who  could 
make  recommendations  to  the  next  session  of  the 
Council  regarding  the  completion  of  the  member- 
ship of  each  commission. 

"A  nucleus  of  each  Commission  be  set  up  for  an 
undefined  term,  thus  leaving  the  Council  greater 
latitude  to  review  the  position  at  its  next  session. 
The  nucleus  could,  in  the  meantime,  study  the 
question  of  the  final  composition  of  the  Commis- 
sions, in  addition  to  certain  urgent  substantive 
problems."  (Chilean  member). 

The  U.  S.  S.  R.  member  asked  "whether  the 
functions  of  the  ])roposed  nuclear  Commissions 
would  be  ijurely  organisational  or  whether  they 
would  include  questions  contained  in  the  terms  of 
reference  of  the  Commissions." 

"The  nuclear  bodies  would  examine  the  terms  of 
reference  of  the  Commissions,  and  as  far  as  pos- 


sible, lay  down  a  program  of  work.  If,  as  an 
expert  body,  they  encountered  difficulties  regard- 
ing the  terms  of  reference  or  felt  that  they  should 
be  modified,  they  woidd  report  to  the  next  Session 
of  the  Council,  which  would  probably  be  held  in 
May  or  June.  In  addition,  they  would  also  be 
invited  to  make  proposals  to  the  Council  regarding 
the  personnel  of  experts  required  to  complete  the 
composition  of  their  Commissions. 

"For  some  Commissions,  such  as  the  Economic 
and  Employment  Commission,  a  larger  nucleus 
would  be  required.  If  no  definite  terms  of  office 
were  laid  down,  it  would  be  difficult  for  the  Council 
to  remove  an  expert  fi-om  office  if  it  saw  fit.  The 
term  could  be  fixed  on  the  understanding  that  it 
could  be  extended  if  necessary."  (Chairman). 

"The  tasks  of  a  nuclear  Commission  might  be 
threefold : 

a)  to  examine  the  terms  of  reference  and  re- 
port thereon  to  the  Council ; 

b)  to  submit  lists  of  candidates  for  the  final 
composition  of  the  Commissions ; 

c)  to  deal  with  urgent  problems. 

"As  regards  the  third  item,  he  thought  the  nu- 
cleus of  members  should  make  material,  rather 
than  technical  preparation  to  speed  up  the  work 
of  the  Commission,  by  gathering  together  the  nec- 
essary documentation,  and  making  recommenda- 
tions regarding  such  questions  as  jiremises,  secre- 
tariat, frequency  of  meeting,  and  duration  of  the 
Commission. 

"If  the  program  of  the  nuclear  Commissions 
were  thus  limited,  it  might  be  easier  to  secure 
agreement  as  to  their  membership."  (French 
member). 

Addendum  to  Document  E/EMP/3 

Memorandum  on  the  Objectives  of  the 

Economic  and  Employment  Commission 

Tlie  following  should  be  added  to  the  end  of 
Document  E/EMP/3 

Sub-Commission  on  Economic  Reconstruction  of 

Devastated  Areas 

In  the  resolution  establishing  the  Economic  and 
Employment  Commission  (E/28),  it  is  stated  that 
this  commission  should  make  recommendations  to 
the  second  .session  of  the  Council  on  the  desirabil- 
it,v  of  establishing  a  sub-commission  on  economic 
reconstruction  of  devastated  areas. 

In  the  discussion  leading  to  this  decision,  it  was 


MAY  12,  1946 


803 


suggested  by  the  U.S.S.E.  member  that  the  terms 
of  i-eference  of  the  proposed  sub-commission  were 
not  of  a  sufficiently  concrete  nature,  and  that  the 
question  required  further  consideration  before  a 
sub-commission  could  be  established  which  would 
furnish  really  effective  help  to  the  devastated 
areas.  Tlie  question  should  be  postponed  until 
the  next  session  of  the  Council  by  which  time  the 
countries  concerned  could  present  proposals  re- 
garding ajDproiDriate  action. 

The  Peruvian  member,  however,  suggested  that 
in  view  of  the  magnitude  of  the  problems  to  be 
studied,  a  sub-commission  might  be  set  up  now 


with  the  limited  task  of  gathering  data  regarding 
the  actual  conditions  in  the  devastated  areas,  in 
order  that  more  information  might  be  available 
to  the  Coiuicil  to  take  a  decision  at  its  next  session. 
The  U.S.A.  member  pointed  out  that  the  Sub- 
Commission  could  not,  in  any  case,  be  set  up  until 
the  second  session.  In  the  meantime,  the  initial 
members  of  the  Commission  would  examine  their 
own  terms  of  reference  and  propose  any  necessary 
changes.  The  question  of  reconstruction  must  be 
taken  up  at  latest  the  second  session  since  the 
Council  had  been  instructed  to  report  on  it  to  the 
September  session  of  the  General  Assembly. 


SECURITY  COVJSClh— Continued  from  page  796. 

tional  friction  and  does  endanger  international 
peace  and  security,  and  if  it  so  finds,  then  to  deter- 
mine what  practical  measures  the  United  Nations 
may  take. 

"To  this  end,  the  Security  Council  appoints  a 
sub-committee  of  five  of  its  members  and  instructs 
this  sub-committee  to  examine  the  statements  made 
before  the  Security  Council  concerning  Spain,  to 
receive  further  statements  and  documents,  and  to 
conduct  such  inquiries  as  it  may  deem  necessary, 
and  to  report  to  the  Security  Council  before  the 
end  of  May." 

We  can  put  this  Australian  motion,  amended  as 
I  read  it  now,  to  a  vote. 

Mk.  Stettinius  (United  States)  :  I  wish  to  re- 
serve the  position  of  the  United  States  on  the 
statement  Mr.  Gromyko  has  just  made.    With  that 


understanding  I  am  prepared  to  agree  that  Mr. 
Gromyko's  abstention  should  not  create  a  prece- 
.dent  for  the  future. 

The  President  :  I  am  going  to  put  the  motion 
of  the  Australian  Delegate  to  a  vote. 

(The  vote  was  taken  with  the  following  result: 
AfHrmative,  10;  Negative,  0;  Abstention,  1.) 

The  President:  The  resolution  is  adopted. 
Now  we  have  the  question  of  the  subcommittee. 

I  wish  to  propose  that  this  subcommittee  should 
be  formed  of  the  Delegates  of  Australia,  Brazil, 
China,  France,  and  Poland.  Is  there  any  objec- 
tion? 

Mr.  Lange  (Poland)  :  I  should  like  to  add  to 
your  proposal  that  the  Delegate  of  Australia  be 
chairman  of  the  committee. 

The  President:  Has  anybody  any  objection? 
Adopted. 


KURIL.  ISLftNDS 


JAPANESE 

ADMINISTRATIVE 

REGIONS 

I 

HOKKAIDO 

2 

KINKI 

I 

TOHOKU 

H 

CMUGOKU 

m 

KflNTO 

VU 

SHIKOKU 

IS 

T0KA1 

VIII 

KYUSHU 

PA   C  I  F  I  C 
OCEAN 


LEGEND 
BOUNDflBiES 
■^  5CAP    A0M1NISTR4TIVE    AREAS 


PREFECTURAL  OR  PROVINCIAL 

CAPITALS 

NATIONAL 

PREFECTURAL  OR  PROVINCIAL 


SCAP 
ADMINISTRATIVE    AREAS 

JAPAN    AND    SOUTH    KOREA 


Non-Military  Activities 
in  Japan  and  Korea 

ECONOMIC  ACTIVITIES  IN  JAPAN 

Natlrai,  Rksoukces 

Afjl'tCHlturK 

1.  Rice  collection  remained  below  schedule.  The 
collection  rate  improved  but  bj^  20  Febi-uary  only 
50  percent  of  the  quota  had  been  collected,  com- 
pared with  80  percent  on  the  same  date  last  year. 
The  shortage  of  concentrated  stock  feed  hampers 
egg  and  milk  product  ion, 

Fhhing 

2.  More  fishing  boats  were  re-activated  a.s  a  re- 
sult of  repairs  and  increased  allotments  of  fuel  oil. 
There  remains  an  acute  shortage  of  nets  and  hooks. 
The  production  of  shellfish  and  their  products  is 
being  levived.  Fisliennen's  cooperatives  are  being 
reorganized  along  democratic  lines. 

Forextrtj 

3.  Annual  capacity  of  sawmills  is  rated  at  5,250.- 
000.000  board  feet  of  lumber.  Present  indications 
are  that  only  about  30  percent  of  this  capacity  will 
be  attained  during  the  fiscal  year  194Ij— 17. 

Mininf/ 

i.  February  production  of  coal  was  1,.364.000 
metric  tons,  an  increase  of  six  percent  over  the 
January  figure. 

Metal  mining  industries  continued  on  a  mainte- 
nance basis  with  little  ore  produced. 

Commerce  axd  Ixdcstrv 

/iiihi.tfri/ 

5.  The  industrial  situation  was  virtually  un- 
changed. Shortages  of  raw  materials,  fuel  and 
labor  continued  to  keep  most  production  at  low 
levels  as  compared  to  minimum  needs. 

Iron  and  steel  production  rose  moderately  in 
January  and  early  February.  This  was  attribu- 
table to  an  increase  in  coal  supplies  starting  in  late 
January. 


Excei-pts  from  Summation  number  5  for  the  month  of 
Feb.  1W6.  prepared  l>y  General  Headquarters.  Supreme 
Commander  for  the  .\llied  Powers ;  releaseil  to  the  press 
slniultaueousl.v  b.v  the  War  Department  iu  Washiugton 
and  h.v  SCAP  in  Toliyo  on  .\pr.  2.'.,  1!I46.  Tlie  first  section— 
Political  .\ctivities — was  printed  in  the  Bn.t.ETiN  of 
May  r,. 


806 


DEPARTMENT  OF  STATE  BULLETIN 


Chemical  production  was  curtailed  by  shortages 
of  basic  raw  materials.  Heavy  chemicals  manu- 
factured in  Januai-y  averaged  less  than  10  percent 
of  industrial  requirements. 

Moderate  declines  prevailed  in  textile  produc- 
tion for  January,  largely  caused  by  continued 
sliortages,  the  shortened  M'orking  month  resulting 
from  the  week-long  New  Year  holiday  and  the 
necessity  for  making  detailed  inventories. 

The  Japanese  Government  inaugurated  a  na- 
tionwide program  intended  to  provide  proper 
maintenance  for  industrial  machinery  and  equip- 
ment. Supervision  will  be  conducted  from  the 
prefectural  level. 

Communications 

6.  A  Telecommunications  Facilities  Keconstruc- 
tion  Council  was  formed  of  representatives  of  the 
Board  of  Communications  and  various  ministries 
to  juovide  improved  coordination  of  the  Board's 
activities. 

Broadcasting  service  wa§  improved  with  the  ad- 
dition of  seven  new  stations  and  an  increase  in 
power  output  of  four  stations  already  in  service. 

Tramportation 

7.  The  past  low  level  of  development  of  motor 
transportation  in  Japan  combined  with  war  dam- 
age have  resulted  in  a  current  supply  of  motor 
vehicles  below  the  minimum  essential  require- 
ments. 

High  passenger  and  freight  traffic  demands  on 
the  railways  kept  the  system  overtaxed. 

Utilities 

8.  A  considerable  increase  in  the  electric  power 
load  in  Japan  was  evident  during  January  and 
February. 

The  operation  of  tlie  public  utility  gas  systems 
of  Japan  is  still  limited  by  coal  allocations. 

Imports  and  Exports 

9.  Operational  procedures  and  other  details  of 
import  and  export  relations  were  further  clarified 
in  meetings  between  SCAP  representatives  and 
the  Japanese  Government.  Initial  shipments  be- 
tween Japan  and  the  United  States  are  expected 
in  the  very  near  future.  Import  and  export  pro- 
grams for  1946  for  China  and  Korea  were  devel- 
oped. Production  of  equipment  and  preparation 
of  supplies  urgently  needed  in  China  and  Korea 
were  expedited. 


Labor 

10.  The  promulgation  of  the  Imperial  Ordi- 
nance on  Labor  Unions  and  the  enforcement  of 
the  new  Labor  Union  Law  climaxed  a  month  of 
intensive  labor  union  activity  in  the  course  of 
which  the  number  of  labor  union  members  ap- 
proached 1,000,000. 

Programs  to  recruit  seamen  for  repatriation 
service  and  coal  miners  were  substantially  com- 
pleted. 

The  Advisory  Committee  on  Labor  to  assist 
SCAP  on  special  problems  in  Japan  and  Korea 
arrived  fronr  the  United  States. 

Rationing  and  Price  Control 

11.  In  order  to  bring  essential  conunodities  into 
normal  distributional  channels  the  Japanese  Gov- 
ernment promulgated  ordinances  to  prevent  hoard- 
ing of  staple  foods  and  clothing  and  to  raise  official 
prices.  These  regulations  should  increase  the 
(juantity  of  foodstuffs  sold  to  the  government. 

To  reduce  black-mnrket  activities  street  vendors 
are  being  formed  into  associations  which  will 
regulate  types  and  prices  of  articles  sold.  Each 
vendor  will  be  licensed  and  required  to  operate  his 
business  in  a  designated  area. 

Finance 

Money  and  Banking 

12.  The  Japanese  Government  promulgated 
ordinances  blocking  deposits  and  requiring  com- 
plete currency  conversion.  Limited  withdrawals 
from  blocked  accounts  are  permitted  for  specified 
purposes. 

Restrictions  on  financial  transactions  and  im- 
ports and  exports  of  currency  and  financial  instru- 
ments were  modified. 

Further  consolidation  of  financial  institutions 
was  forbidden. 

Public  Finance 

13.  Permission  was  granted  for  government 
borrowing  of  ¥1,000,000,000  by  long-term  bonds 
and  ¥500,000,000  in  treasury  notes. 

Public  finance  plans  of  local  governments  em- 
phasized expenditures  for  education,  public  woi'ks 
and  sanitation.  Decreases  in  planned  expendi- 
tures in  other  fields  were  caused  by  shortages  of 
materials. 

Legislation  is  being  prepared  to  create  a  Hold- 
ing Company  Liquidation  Commission  and  to 
prohibit  i)articipution  in  international  cartels  and 
restrictive  international  agreements. 


MAY  12,  1946 


807 


SOCIAL  ACTIVITIES  IN  JAPAN 

Public  Health  and  Welfare 

Disease  Iru-idence 

1.  The  incidence  of  smallpox  continued  to  be 


generalized  throughout  most  of  the  country. 
There  has  been  some  decrease  in  areas  where  ex- 
tensive campaigns  have  been  undertaken  with 
stocks  of  newl^'  manufactured  vaccine. 

2.  A  major  outbreak  of  tj'phus  fever  occurred 
in  the  city  of  Osaka.  Supplies  of  DDT  dusting 
poM'der  were  made  available  for  a  progiam  of  mass 
dusting  under  the  supervision  of  SCAP  repre- 
sentatives. 

Welfare 

3.  The  Japanese  Government  has  submitted  a 
l^lan  to  control  and  restrict  unnecessary  jDopula- 
tion  movements  from  rural  areas  to  urban  centers 
defined  as  cities  with  100,000  or  more  population. 
Evacuees  considered  essential  in  re-establishing 
the  minimum  civilian  economy  of  Japan  will  be 
pei'mitted  to  return  to  those  localities  where  their 
services  are  needed. 

Social  Insurance 

4.  The  Ministry  of  Health  and  Welfare,  Social 
Insurance  Bureau,  reported  that  under  the  five 
social  insurance  laws  benefits  totalling  ¥525,000,- 
000  were  paid  on  58,600,000  policies  during  1945. 
At  the  end  of  the  year  the  balances  of  the  five  funds 
totalled  ¥1,831,000,000. 

Medical  Supply 

5.  Distribution  of  newly  manufactured  medi- 
cines continued  to  improve.  During  the  month 
over  3,000,000  doses  of  smallpox  vaccine  were 
shipped  to  areas  where  cases  of  smallpox  occurred. 

Production  of  smallpox  vaccine  during  the 
month  exceeded  20,000,000  doses.  Increased  pro- 
duction of  diphtheria  toxoid,  cholera  vaccine, 
triple  typhoid  vaccine  and  typhus  vaccine  was 
directed  by  SCAP. 

Data  from  Japanese  Government  for  JanuaiT 
show  that  the  overall  production  of  all  medical 
supplies  increased. 

Relief 

6.  A  SCAP  memorandum  on  public  assistance 
directs  the  establishment  of  a  central  government 
agency  to  supervise  local  governmental  operation 
of  the  I'elief  program.    It  requires  that  the  needs 


of  all  indigent  persons  be  met  adequately  regard- 
less of  the  cause  of  dependency.  The  Japanese 
Government  is  required  to  integrate  all  public 
assistance  administration  into  this  program  and 
to  cancel  its  subsidies  in  this  field  to  non-govern- 
mental agencies. 


Repatriation 

7.  By  24  February  829,623  individuals  had  been 
repatriated  to  China,  Formosa,  Korea  and  the 
Eyukyus  while  1,465,980  Japanese  w-ere  returned 
to  Japan. 

Education 

8.  On  13  February  the  Japanese  Government 
was  directed  to  abrogate  all  laws,  ordinances  and 
other  regulations  which  restricted  the  fi'ee  circu- 
lation of  printed  materials  in  public  or  educa- 
tional libraries. 

9.  Three  hundred  three  national  and  vocational 
textbooks  were  approved  by  SCAP  as  free  from 
militaristic  and  ultra-nationalistic  ideologies 
and  released  to  the  Ministry  of  Education  for 
printing. 

10.  The  term  of  the  middle  and  higher  schools 
were  restored  to  their  pre-war  jjeriods  of  five  and 
three  years  respectively.  During  the  war  each 
had  been  shortened  by  one  year. 

Keligion 

11.  The  Japanese  Government  continued  the 
separation  of  Shinto  from  state  control  and  sup- 
port by  the  abolition  of  the  Shrine  Board  of  the 
Home  Ministry.  The  Religious  Corporations 
Ordinances  were  amended  so  that  they  are  appli- 
cable to  Shinto  Shrines. 

Media  of  Expression 

Information  Dissemination 

12.  SCAP's  information  programs  designed  to 
further  the  development  of  democratic  organiza- 
tions in  the  fields  of  political  life,  labor,  women 
and  youth  continued. 

A  special  information  jirogram  was  instituted 
to  insure  accurate  and  adequate  explanation  and 
discussion  of  the  emergency  Imperial  Ordinances 
affecting  Japanese  economics;  another  program 
explained  the  need  for  typhus  control  and  outlined 
the  methods  to  be  used. 


808 


DEPARTMENT  OF  STATE  BULLETIN 


13.  Forty-eight  thousand  copies  of  a  weekly 
newspajjer  prepared  for  Japanese  prisoners  of 
war  overseas  were  sent  to  Korea,  Philippine  Is- 
lands, Saipan  and  China  each  week  during  the 
month. 

Pi^ess  and  Publications 

14.  Japanese  newspapers  showed  continued 
progress  toward  tlie  development  of  a  democratic 
press.  Press  analysis  of  leailing  Tokyo  and  pre- 
fectural  newspapers  indicated  that  economics,  re- 
conversion and  politics  dominated  both  the  news 
and  editorial  columns. 

A  similar  reflection  of  tlie  critical  problems  of 
the  day  was  noted  in  analyses  of  articles  appearing 
in  Japanese  magazines. 

Radio 

15.  Radio  continued  to  play  an  important  role 
in  the  dissemination  of  information  concerning 
l^roblems  facing  the  Japanese  people.  A  marked 
improvement  in  production  standards  for  radio 


programs  was  noted.  A  question  and  answer  pro- 
gram concerning  the  war  and  a  current  events  pro- 
gram were  broadcast.  The  Women's  Hour  devoted 
much  of  its  time  to  a  series  of  political  commen- 
taries. 

Motion  Pictures 

16.  Five  feature  moving  pictures  were  released 
during  the  month,  four  of  them  dealing  with  prob- 
lems facing  the  Japanese  people  todav.  Newsreels 
showed  improved  treatment  of  current  events  and 
a  variety  of  timely  documentary  and  educational 
films  are  in  production.  American  documentary 
films  were  shown  to  Japanese  audiences  and  for  the 
first  time  in  four  years  American  feature  films  were 
shown  on  Japanese  moving  picture  theater  screens. 

Theater 

17.  Modern  plays  constituted  50  percent  of  the 
stage  productions  in  February.  One  classical 
Kabuki  drama  was  presented  with  modern  inno- 
vations. A  production  of  Drinkwater's  "Abra- 
ham Lincoln"  played  throughout  the  month. 


LEGAL  AND  WAR  CRIMES 


Legal  .\nd  JuDici.\r.  Affairs 

1.  Opinions  were  given  on  numerous  questions 
but  the  majority  was  concerned  with  the  jurisdic- 
tion of  new  occupation  courts  and  the  conduct  of 
proceedings  in  Japanese  courts  involving  foreign 
nationals. 

2.  An  opinion  was  rendered  stating  that  the 
Supreme  Conunander  might  appoint  members  of 
the  Allied  Forces  to  militarj'  commissions  trying 
war  criminals  and  determine  their  qualifications 
and  authority. 

3.  Claims  in  Japan  and  Korea  which  are  out- 
side the  jurisdiction  of  statutory  claims  commis- 
sions are  under  examination  by  SCAP. 

Exercise  of  GriniinaJ  Jm-isdiction 

4.  A  directive  of  19  February  deprived  the  Jap- 
anese courts  of  criminal  jurisdiction  over  nation- 
als of  the  LTnited  Nations  or  their  organizations 
including  corporations.  Proceedings  now  pend- 
ing were  ordered  stayed,  subject  to  further  direc- 
tions of  SCAP  after  a  full  report  of  such  pro- 
ceedings had  been  made  by  the  Japanese  Gov- 
ernment. 

5.  The    Jajianese    Government    was    informed 


that  acts' and  offenses  which  in  the  future  would 
be  tried  only  by  military  occuxiation  courts  in- 
cluded : 

(1)  Acts  prejudicial  to  the  security  of  the  Oc- 
cupation Forces. 

(2)  Killing  or  assaulting  any  member  of  the 
Occupation  Forces. 

(3)  Unauthorized  possession  of  property  of 
the  Occupation  Forces  or  its  members. 

(4)  Interfering  witli  the  arrest  of  any  person 
sought,  or  assisting  in  the  escape  of  any  person 
detained  by  the  Occupation  Forces  or  by  others 
acting  under  the  direction  of  the  Supreme  Com- 
mander. 

(5)  Interfering  with,  refusing  information  re- 
quired h\,  making  any  fal.se  or  misleading  state- 
ment orally  or  in  writing  to,  or  defrauding  any 
member  of  the  Occupation  Forces  in  a  matter  of 
official  concern. 

(C )  Acts  on  behalf  or  in  support  of  any  organi- 
zation dissolved  or  declared  illegal  by  the  Supreme 
Commander. 

(7)  Conspiracies  to  commit,  or  acts  which  aid 
or  abet  the  connnission  of  any  of  the  foregoing- 
offenses. 


MAY  12,  1946 


809 


In  addition  to  members  of  the  Oc-cuijation 
Forces  all  persons  attached  to  or  accompanying  the 
Occupation  Forces  are  entitled  to  the  protection 
of  the  foregoing  provisions. 

The  Japanese  criminal  courts  were  permitted  to 
continue  the  exercise  of  jurisdiction  over  "acts 
prejudicial  to  the  objectives  of  the  occupation  inso- 
far as  such  acts  constitute  violations  of  Japanese 
law"'.  The  right  was  reserved  to  transfer  juris- 
diction over  such  matters  to  the  military  occupa- 
tion courts  at  any  time.  This  reservation  assured 
the  Occupation  Forces  the  right  of  ultimate  de- 
cision as  to  jurisdiction  over  acts  involving  both 
violations  of  SCAP  directives  and  Japanese  ordi- 
nances or  laws. 

6.  The  Commanding  General  of  the  Eighth 
Army  and  the  Commander  of  the  Fifth  Fleet 
were  directed  by  a  Letter  Order  of  19  February 
to  appoint  military  occupation  courts  including 
military  commissions  and  provost  courts,  to  exe- 
cute the  provisions  of  the  directive  of  19  Febru- 
ary. Commissions  were  authorized  to  impose  im- 
prisonment at  hard  labor  not  to  exceed  five  years 
or  a  fine  not  to  exceed  ¥75,000,  or  both. 

Other  penalties  which  may  be  imposed  include 
imprisonment  in  lieu  of  payment  of  fines;  expul- 
sion ;  and  confiscation,  padlocking  and  forfeiture 
of  estates. 

7.  The  Japanese  Government  was  deprived  of 
authority  to  arrest  nationals  of  the  United  Nations 
except  in  areas  where  Allied  troops  are  not  actu- 
ally present  on  duty  or  when  directed  to  do  so  by 
the  Supreme  Commander  or  his  authorized  sub- 
ordinates. Such  incidents  will  be  immediately 
reported  to  the  nearest  Allied  military  authority. 

8.  Another  directive  of  19  February  informed 
the  Japanese  Government  that  sentences  imposed 
by  Japanese  criminal  courts  on  Koreans  and  other 
nationals  of  countries  formerly  under  the  domina- 
tion of  Japan  would  be  subject  to  review  by  SCAP. 

Review  will  be  made  onlj'  when  the  defendant 
has  exhausted  remedies  reasonably  available  to 
him  in  the  Japanese  courts  and  when  he  furnishes 
adequate  proof  of  intention  to  return  to  his  home- 
land. 

Exerche  of  Civil  Jurisdiction 

9.  A  directive  of  26  February  deprived  Japa- 
nese courts  of  civil  jurisdiction  over  nationals  of 
the  United  Nations  or  organizations   (including 


corijorations)   attached  to  or  accompanying  the 
Occupation  Forces. 

10.  The  trial  of  civil  cases  affecting  nationals 
of  the  United  Nations  other  than  those  accom- 
panying or  attached  to  the  Occupation  Forces 
will  be  subject  to  supervision  and  review  by  SCAP. 

The  Japanese  Government  was  required  to  I'e- 
port  to  the  Supreme  Commander  all  civil  cases 
hereafter  instituted  or  now  pending  affecting  na- 
tionals of  the  United  Nations  and  their  organiza- 
tions or  corporations.  The  reports  will  include 
nationalities  of  the  parties,  nature  of  the  case, 
relief  sought  and  the  status  of  the  proceedings. 

11.  Civil  claims  against  nationals  of  the  United 
Nations  will  be  presented  to  the  Japanese  Govern- 
ment which  in  turn  will  forward  them  to  SCAP 
Headquarters  for  decision  if  they  appear  to  be  meri- 
torious and  are  supported  by  projier  evidence. 

Apprehension  of  War  Criminals 

12.  During  February  seven  directives  were  is- 
sued ordering  the  Japanese  Government  to  appre- 
hend 51  persons  suspected  of  war  crimes  and  to 
deliver  them  to  Sugamo  Prison.  Forty-six  of 
those  listed  were  accused  of  atrocities  and  offenses 
against  nationals  of  the  United  Nations  who  had 
been  confined  in  Japanese  POW  camps. 

Orders  for  Apprehension 


February  1946 


Date  and  File  Number  of 
Directive 


AG  383.7  (3  Feb  46)  CIS 
AG  000.5  (3  Feb  46)  LS 


SCAPIN 

695 


AG  312.4  (6  Feb  46)  CIS 
AG  000.5  (18  Feb  46)  CIS 


715 
749 


Persons  Ordered 
-Apprehended 

Burmese    Embassy 
officials 
696       6  Army  officers 
Soldiers 
Civilian 

Lieutenant  General 
Burmese  Ambassa- 
dor Designate 
Manchurian      Am- 
bassador    Desig- 
nate 
AG  000.5  (22  Feb  46)  LS         762       7  Army  officers 

8  Navy  officers 

9  Soldiers 
3  Civilians 
1   Army  officer 


11 

1 
1 
1 

1 


AG  000.5  (22  Feb  46)  LS         763 


Total 


51 


Persons  Apprehended 

13.  Suspected  war  criminals  of  all  categories 
arrested  during  February  numbered  118,  bringing 
the  total  niunber  of  persons  interned  in  Sugamo 
Prison  to  623.     Twelve  of  those  interned  durine; 


810 

the  month  are  being  hekl  for  charges  other  than 
war  crimes. 

14.  The  names  and  identifications  of  important 
persons  interned  chiring  the  month  are : 

^fasa!luki'  Tani:  Aiubassailor,  Councillor  at  the  Embassy 
at  Mauehukuo,  Miiiistei-  to  Austria  and  Hungary,  Minister- 
at-Large  in  China,  Vice  Minister  of  Foreign  Affairs,  Presi- 
dent of  the  Board  of  Information,  Foreign  Minister  in  the 
Tojo  Cabinet,  and  Ambassador  to  Nanking. 

Shioshichi  Kamisago:  Major  General,  Commanding  Gen- 
eral of  the  Military  Police  in  Formosa  in  January  1945. 

Ichiro  Morimoto:  Major  General,  suspected  of  commit- 
ting atrocities  in  the  Philippine  Islands. 

SiKhiDiii  Shimomiira:  General,  War  Minister  August  23, 
194.5,  Commander  of  North  China  Area  Army  November 
1944  to  August  1&4.5. 

Takaji  Wachi:  Lieutenant  General,  succeeded  Maeda  as 
Chief  of  Staff  on  General  Homma's  Staff,  Chief  of  Staff  for 
Tanaka  and  Kureda,  General  Headquarters,  Philippines. 

Kiiioliil-e  Kinrai/iichi:  Major  General,  Chief  Justice  of 
the  I'hilippine  Supreme  Court. 

Kcnsiike  Isogui:  Lieutenant  General,  Conuuander  of  the 
10th  Division,  Viceroy  of  Hongkong  January  193S. 

15.  A  former  second  lieti tenant  in  the  Japanese 
Army  voluntarily  came  to  SCAP  Headquarters 
and  confessed  to  certain  atrocity  acts  he  had  com- 
mitted against  members  of  the  Allied  Armed 
Forces.  After  his  confession  had  been  reduced  to 
writing  he  was  arrested  and  delivered  to  Sugamo 
Prison  to  await  formal  charges. 

Investigation  of  Wak  Criminals 

16.  Special  teams  are  continuing  investigations 
of  atrocities  committed  against  B-29  fliers  shot 


DEPARTMENT  OF  STATE  BULLETIN 

down  during  combat  missions  and  against  prison- 
ers of  war  aboard  Japanese  ships  and  in  POW 
camps.  Cases  in  investigation  files  are  classified  as 
follows : 

Number 
Type  of  Cases 

POW  camps 81 

B-29  fliers 52 

Kempei-tai  (Military  Police) 21 

Miscellaneous -    .  75 

Total 229 

17.  Investigation  of  81  cases  was  finished  during 
the  month  bringing  the  total  of  completed  cases  to 
147.  A  record  containing  the  confessions  of  a 
Lieutenant  General  and  his  entire  staff  relating  to 
atrocities  which  they  had  either  ordered  or  con- 
doned was  completed. 

PliOSECUTION  OF  MlI.ITARY  WaK  CrIMIXALS 

18.  Seven  additional  war  atrocity  cases  were  re- 
ferred to  the  Eighth  Army  for  trial  and  18  cases 
which  were  prepared  for  trial  now  await  assign- 
ment. A  total  of  223  cases  are  in  the  process  of 
preparation  for  trial. 

19.  Ten  persons  were  tried  for  war  atrocity 
crimes  by  military  commissions  at  Yokohama  dur- 
ing February.  Six  were  individual  trials  and  one 
was  a  common  trial  with  four  defendants.  One  of 
the  10  defendants  was  found  not  guilty.  Three 
entered  pleas  of  guilty.  The  results  of  the  trials 
are  given  in  the  table  below : 


Trials  of  War  Atrocity  Cases 
February  1946 


Name  of  Accused 

Official  Capacity 

Rank 

Period  of  Trial 

Honda,  Hiroji 

POW  Camp  Commandant 

Capt 

19  Jan-2  Feb 

Fukuhara,  Isao 

POW  Camp  Commandant 

Capt 

29  Jan-I4  Feb 

IsHiDA,  Kitaro 

POW  Camp  Quartermaster 

Cpl 

31  Jan-5  Feb 

Aon  A,  Shigeru 

POW  Camp  Medical  Off 

Capt 

6  Feb-22  Feb 

Odeishi,  Shigamaru 

Medical  Corps 

Pvt 

9  Feb-9  Feb 

Sakamoto,  Yukiehi 

POW  Camp  Commandant 

Capt 

13  Feb-25  Feb 

Sakagami,  Motoiehi  • 

Medical  Corps 

Cpl 

23  Feb-26  Feb 

Chihara,  Naraichi  " 

POW  Camp  Guard 

Cpl 

23  Feb-26  Feb 

Ono,  Teruo  « 

POW  Camp  Interpreter 

Pvt 

23  Feb-26  Feb 

Kato,  Shunsuke  ' 

Medical  Corps 

Pvt 

23  Feb-26  Feb 

Results  of  Trial 
Sentenced  to  30  years  at  hard  labor 
Sentenced  to  death  by  hanging 
Sentenced  to  30  years  at  hard  labor 
Sentenced  to  10  years  at  hard  labor 
Plea:     Guilty.        Sentenced   to    10 

years  at  hard  labor 
Sentenced  to  life  imprisonment 
Sentenced  to  2  years  at  hard  labor 
Plea:     Guilty.        Sentenced    to    6 

years  at  hard  labor 
Plea:     Guilty.        Sentenced    to    2 

years  at  hard  labor 
Plea:    Not  Guilty 
Verdict:    Not  guilty 


a  The  first  common  trial  of  war  crimiuals  in  Japan 


MAY  12,  1946 


811 


Fir^t  Plea  of  Guilty 

20.  For  the  first  time  a  plea  of  guilty  was  re- 
ceived in  the  trial  of  a  war  crimes  case  on  9  Feb- 
ruary. A  private  in  the  IMedical  Corps  of  the 
Japanese  Army  admitted  the  charge  and  ]0  of  its 
12  specifications,  two  specifications  having  been 
withdrawn  previously  for  lack  of  evidence.  Under 
existing  rules  the  prosecution  is  required  to  make 
out  a  prima  facie  case  as  to  each  specification  de- 
spite an  unqualified  plea  of  guilty. 

The  prosecution  complied  with  this  rule  by  in- 
troducing affidavits  in  support  of  each  of  the  speci- 
fications. The  defense  consisted  of  a  plea  for 
mercy  based  upon  the  youth  of  the  defendant  and 
his  frankness  in  confessing  his  guilt.  The  accused 
was  found  guilty  by  the  Commission  and  sentenced 
to  10  years  imprisonment  at  hard  labor. 

First  Common  Ti'ial 

21.  The  first  common  trial  of  war  criminals  in 
Japan  commenced  on  23  February  and  was  com- 
pleted on  26  February.  The  defense  offered  no 
objection  to  the  joint  trial  of  four  defendants  who 
were  charged  with  the  commission  of  separate  but 
similar  offenses.  Each  accused  was  arraigned  sep- 
arately. Two  entered  pleas  of  guilty  and  two 
pleaded  not  guilty. 

The  prosecution  rested  after  introducing  evi- 
dence against  all  four  defendants.  Motions  for 
acquittal  made  in  the  case  of  two  who  had  pleaded 
not  guilty  were  denied  after  oral  argument.  The 
defense  opened  by  placing  on  the  witness  stand 
the  two  defendants  who  had  pleaded  guilty.  Both 
endeavored  to  minimize  the  effects  of  their  con- 
duct. At  the  conclusion  of  this  evidence  the  Com- 
mission stated  that  it  would  consider  the  cases 
of  these  two  defendants  separately. 

The  prosecution  and  defense  made  arguments  on 
the  length  of  sentence  to  be  imposed.  After  de- 
liberation the  Commission  announced  a  verdict 
of  guilty  and  imposed  sentence.  The  two  defend- 
ants who  had  admitted  their  guilt  were  ordered 
removed  from  the  courtroom. 

The  trial  then  proceeded  with  the  testimony  of 
the  third  defendant  and  a  character  witness  who 
testified  in  his  behalf.  The  Commission  sustained 
a  motion  of  the  defense  for  a  separate  argument 
and  judgment  on  this  defendant  before  proceeding 
with  the  trial  of  the  fourth.  The  third  defendant 
was  acquitted  and  ordered  lemoved  from  the  court- 
room. 


The  fourth  defendant  took  the  stand  as  the  sole 
witness  in  his  behalf.  After  hearing  arguments 
on  both  sides  the  Commission  deliberated  and  re- 
turned a  verdict  of  guilty. 

Review  of  0 onvictioiis 

22.  Preparations  were  made  for  the  review  of 
war  crimes  trials  and  for  the  handling  of  other 
supplemental  proceedings.  Letters  and  petitions 
were  received  requesting  clemency  for  war  crimi- 
nals convicted  in  the  Philippine  Islands  and  in 
Japan.  These  requests  will  be  held  for  considera- 
tion with  review  of  the  official  trial  records  and 
for  submission  to  the  confirming  authority. 

23.  An  informal  review  written  in  the  case  of 
the  United  States  vs.  Tsuchii/a,  the  first  case  tried 
in  Japan,  upheld  the  legality  of  the  conviction  and 
sentence. 

International  Prosecution  of  War  Criminals 

21.  By  General  Orders  No.  7  of  15  February 
the  Supreme  Commander  appointed  nine  members 
of  the  International  Military  Tribunal  for  the  Far 
East,  implementing  paragraph  10  of  the  Potsdam 
Declaration  of  26  July  1915,  the  Instrument  of 
Surrender  of  2  September  1945  and  Article  2  of 
the  Charter  of  the  Tribunal  19  January  1946.  This 
action  confirmed  the  nominations  previously  made 
by  participating  countries.  The  names  of  those 
apiDointed  and  the  countries  they  represent  are: 


Commonwealth  of  Australia 
Dominion  of  Canada 

Republic  of  China 
Republic  of  France 
United  Kingdom  of  Great 

Britain  and  Northern 

Ireland 
Kingdom  of  the  Netherlands 

Dominion  of  New  Zealand 

Union   of   Soviet   Socialist 

Republics 
United  States  of  America 


Sir  William  Flood  Webb 
Mr.    Justice    F.    Stuart 

McDougall 
Mr.  Ju-Ao  Mei 
Mr.  Henri  Reimburger 
Lord  Patrick 


Prof.  Bernard  Victor  A. 
Roling 

Mr.  .Justice  Erima  Har- 
vey Northcroft 

Mr.  Justice  I.  M.  Zar- 
yanov 

Mr.  Justice  John  P.  Hig- 
gins 


25.  Sir  William  Flood  Webb,  Chief  Justice  of 
the  Supreme  Court  of  Queensland,  Commonwealth 
of  Australia,  was  designated  as  President  of  the 
Tribunal  and  Colonel  Vern  Walbridge  was  ap- 
pointed General  Secretary.  The  Marshal  and 
Adjutant  were  also  named. 

26.  Members  from  Australia,  Canada,  the  Neth- 


872 


DEPARTMENT  OF  STATE  BULLETIN 


erlands.    New    Zealand    and    the    United    States 
arrived  in  Tokyo. 

27.  Trials  will  be  held  in  the  War  Ministry 
Building  at  Tokyo.  The  main  hall  is  being  rear- 
ranged so  that  the  accused  will  face  the  Tribunal 
as  in  the  Nuremberg  trials.  The  defendants  will 
be  brought  to  trial  each  day  from  Sugamo  Prison 
where  they  are  detained.  Bai'racks  are  being  re- 
modeled for  temporary  housing  of  witnesses. 

Prosecution  Staff 

28.  The  International  Prosecution  Staff  has 
nearly  completed  its  organization  with  the  arrival 
of  a  majority  of  the  associate  counsel.  The  part 
Mhich  each  will  take  in  the  trials  has  been  decided. 
An  executive  committee  is  studying  completed  in- 
vestigations to  determine  the  individuals  who  will 
be  charged  with  crimes  and  the  form  of  indictment 
to  be  used.  The  War  Ministry  Building  will  be 
headquarters  for  the  prosecution. 


29.  The  following  associate  counsel  have  arrived : 

Commonwealth  of  Australia  Mr.  Justice  Alan  James 

Mansfield 

Dominion  of  Canada  Brigadier  Henry  Grattou 

Nolan 

Repuljlie  of  China  Judge  Che-Chun  Hsiang 

United   Kingdom    of   Great  Mr.  Arthur  Comyns  Carr 
Britain  and  Northern  Ire- 
land 

Dominion  of  New  Zealand      Brigadier  Roland  Henry 

Quilliam 

The  following  associate  counsel  are  expected  in 
the  early  part  of  March : 

Republic  of  France  M.  Jean  Lambert 

Kingdom    of     the    Nether-  Dr.  W.  G.  F.  BorgerhofC 

lands  Mulder 

Commonwealth  of  the  Phil-  Mr.  Pedro  Lopez 

ippines 
Union    of    Soviet    Socialist  Minister  S.  A.  Golunsky 

Republics 


Discussions  on  Korean  Cultural  and  Educational  Problems 


The  Department  announced  to  the  press  on 
April  3  that  a  group  of  six  Koreans  would  arrive 
in  Washington  early  in  April  to  establish  sources 
of  cultural  and  technical  aid  in  initiating  a  pro- 
gram of  training  which  would  involve  the  ex- 
change of  students  and  instructors  between  this 
country  and  Korea.  The  members  of  the  group, 
all  graduates  of  American  as  well  as  Korean  uni- 
versities, are  Miss  Whang  Kyung  Koh  and 
Messrs.  Lee  Wook  Chang,  Hoon  Lincoln  Kim, 
Byron  R.  S.  Koo,  Ki  Ho  Lah,  and  Chang  Wook 
Moon. 

The  group  is  coming  to  the  United  States  under 
the  sponsorship  of  the  United  States  Military 
Government  in  Korea.  This  is  one  of  tlie  meas- 
ures being  taken  by  the  military  government  to 
aid  the  Korean  peoi^le  in  establishing  a  free  edu- 
cational system,  withheld  from  them  by  the  Japa- 
nese during  their  35  years  of  domination  over 
Korea.  Other  measures  already  undertaken  by 
the  military  government  in  Korea  have  been  the 
a])pointinent  of  a  Korean  as  Director  of  Educa- 
tion, the  rewriting  of  Korean  textbooks,  increas- 
ing of  salaries  paid  to  Korean  teachers,  and 
ti'aining  of  Korean  teachers  to  take  the  places 
formerly  held  by  Japanese. 

The  Department  of  State,  under  its  program 
of  cultural  coopei'ation.  will  assist  the  Koreans 


in  planning  their  itinerary  and  in  making  contact 
with  interested  departments  of  this  Government, 
private  educational  foundations,  and  institutions. 

Mr.  William  Franklin  Sands,  who  has  long  ex- 
perience in  Korean  affairs,  is  now  serving  as  a 
consultant  with  the  Office  of  International  In- 
formation and  Cultural  Affairs  of  the  Depart- 
ment of  State  and  will  accompany  the  group  of 
Koreans  on  its  travels  in  this  country. 

On  April  17,  the  Department  announced  to  the 
press  that  discussions  concerning  Korean  cultural 
and  educational  problems  are  now  under  way  be- 
tween members  of  the  Korean  Educational  Com- 
mission to  the  United  States  and  officials  of  the 
United  States  Government  and  private  institu- 
tions. 

This  commission  has  been  sent  to  the  LTnited 
States  for  a  stay  of  approximately  three  months 
to  make  a  survey  of  educational  conditions  and 
make  recommendations  to  the  military  govern- 
ment of  Korea  for  establishing  a  long-range  cul- 
tural and  educational  program  to  meet  require- 
ments of  the  Korean  people  for  training  tech- 
nicians in  all  phases  of  public  life.  Because  of  the 
severe  discrimination  imposed  upon  the  Koreans 
by  their  Japanese  overlords  during  the  years  of 
Japanese  domination,  there  is  an  acute  shortage 
of  trained  skills  among  Koreans. 


I 


Calendar  of 


Council  of  Foreign  Ministers: 
Meeting  of  Deputies 

Meeting  of  Foreign  Ministers 

Far  Eastern  Commission 

Allied-Swiss  Xegotiations  for  German  External  Assets 

Fifth  Pan  American  Railway  Congress 

International  Labor  Organization: 

Industrial  Committee  on  Iron  and  Steel 
Metal  Trades  Committee 

International  Office  of  Public  Health 

PICAO: 

European  and  Mediterranean  Air  Route  Services  Conference 
Annual  Meeting  of  the  Assembly 

International  Cotton  Advisory  Committee 

FAO:  Special  Meeting  on  Urgent  Food  Problems 
The  United  Nations: 

Security  Council 

Military  Staff  Committee 

Special  Committee  on  Refugees  and  Displaced  Persons 

International  Court  of  Justice 

Commissions  of  the  Economic  and  Social  Council 

Economic  and  Social  Council 

International  Health  Conference 

General  Assemblv:  Second  Part  of  First  Session 


Meetings 

London 
Paris 

January  18 — temporarily 

adjourned 
April  2.5 

Washington 

February  26 

Washington 

March  18 

^lontevideo 

April  5 

Cleveland 
Toledo 

April  23-29 
Mav  2 

Paris 


April  24 


Paris 

April  24 

Montreal 

May  21 

Washington 

May  7 

Washington 

May  20-28 

New  York 

March  25 

New  York 

:March  25 

London 

April  8 

The  Hague 

April  18 

New  York 

April  29 

New  York 

Mav  25 

New  York 

June  19 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  May  5. 


Activities  and  Developments 


United  States  Delegation  to  the  First  Meeting 
of  the  Metal  Trades  Committee  of  ILO.^     The 

Acting  Secretary  of  State  announced  on  May  1 
that  the  President  has  approved  the  folhiwing 
persons,  nominated  in  concurrence  with  the  Sec- 
retary of  Labor,  as  members  of  the  U.S.  Delega- 
tion. 

i;fi::3i!o — 46 3 


This  meeting  is  similar  in  scope,  \yith  respect  to 
die  metal  trades  industries,  to  the  meeting  of  the 
International  Labor  Organization  Committee  on 
Iron  and  Steel,  which  concluded  its  first  session 
(m  April  2it  at  Cleveland.  Ohio. 


'Released  to  the  press  May  1. 


813 


814 


DEPARTMENT  OF  STATE  BILLETIN 


Representing  the  Government  of  the  United 
States 
Mi'mhers 

Edward  L,  Cushniiiu,  State  Director,  United  States 
Employment  Service,  Department  of  Labor,  De- 
troit, Mich. 
Oscar  W.  Meier,  Chief,  Special  Economic  Relations 
Division,  Office  of  ^\'orkl  Trade  Policy,  Dejiart- 
nient  of  Commerce. 
Admaer 

Victor  S.  Baril,  Labor  Economist,  Wage  Analysis 
Branch,  Bureau  of  Labor  Statistics,  Department 
of  Labor. 

Representing  the   Employers   or  the  United 
States 
Memhers 

George  W.  Eomney,  Manager,  Automobile  Manufac- 
turers' Association,  Detroit,  Mich. 
A.  M.  Roehlen,  Director  of  Industrial  and  Public  Re- 
lations, Douglas  Aircraft  Company,  Inc.,   Santa 
Monica,  Calif. 

Representing    the    Woricers    of    the    United 
States 

Memhera 

James  A.  Erownlow,  Secretary-Treasurer,  Metal 
Trades  Department,  American  Federation  of 
Labor,  Washington,  D.C. 

Richard  T.  Leonard,  Vice  President,  United  Auto- 
mobile, Aircraft  and  Agricultural  Implement 
Workers  of  America,  Detroit,  Mich. 

Announcement  on  Positions  in  FAO  Secre- 
tariat. The  Director  (jeneral  of  the  Food  and 
Agriculture  Organization  of  the  United  Nations 
has  sent  a  ineinorandinn  to  member  governments 
announcing  the  principal  positions  in  the  FAO 
Secretariat,  to  which  it  is  hoped  to  make  appoint- 
ments within  the  next  few  months.  These  posi- 
tions are  in  the  professional  grades  I  (commenc- 
ing salary  $10,000)  through  V  (commencing  sal- 
ary $4,500).  Applications  should  be  made  to  the 
Director  General  not  later  than  June  30,  1946. 
The  positions  are  in  the  fields  of : 

Administration — including  senior  administrative 
officers,  press  officers,  editorial  assistants,  and 
finance  officer; 

Nutrition  and  food  management — including  the 
science  of  nutrition,  experience  in  making  die- 
tary surveys  and  food-consumption  studies, 
l^ublic-health  nutrition  work,  and  food  tech- 
nology; 

AgrK'ULture — incliuling  the  natural  sciences  as 
applied  to  agriculture;  crop  husbandry  and  ani- 


mal husbandry;  agricidtural  education  and 
extension ; 

Fisheries — including  scientific,  technical,  and 
economic  aspects  of  the  fishing  industry  and  fish 
trade;  marine  biology  and  stock  conservation; 
l^rocessing  and  preservation  of  fishery  products ; 

Forestry — including  the  science  and  practice  of 
forestry  and  utilization  of  forestry  products; 
silviculture  and  forest  management ; 

Economics  and  marketincv — including  both  gen- 
eral  and  agricultural  economics;  the  economics 
of  agricultural  production  and  government  pro- 
grams; economics  of  marketing,  distribution, 
and  food-processing  industries;  international 
trade  jDolicy ;  and  the  relationship  of  rural  and 
industrial  economy  to  the  economic  development 
of  backward  areas; 

Statistics^ — including  the  general  field  of  statistics 
as  well  as  the  special  fields  of  statistics  of  agri- 
cultural, fishery,  and  forestry  production ;  mar- 
keting, consumption,  jirices;  and  international 
trade. 

For  all  posts,  ability  to  speak  and  write  fluently 
at  least  one  of  the  two  working  languages  ( English 
and  French)  is  necessary  and  ability  to  read  and 
understand  the  other  working  language  will  be  an 
advantage. 

Apjjiication  blanks  and  further  details  may 
be  secured  from  the  FAO,  2000  Massachusetts 
Avenue,  AYashington,  D.C. 

Opening  Meetings  of  the  Commissions  of  the 
Economic  and  Social  Council.    At  Hunter  Col 
lege,  building  no.  1  (Gillet  Hall),  Henri  Laugier, 
Assistant   Secretary-General   for   Social   Affairs, 
presided  on  April  29  over  the  opening  meeting  of  : 

The  Temporary  Social  Commission 
The  Commission  on  Human  Rights 
The  Subcommission  on  the  Status  of  Women 

A.  D.  K.  Owen,  Assistant  Secretary-General  for 
Economic  Affairs,  presided  over  the  opening  meet- 
ing of : 

The  Statistical  Commission 
The  Temiiorary  Transport  and  Communica- 
tions Conmiission 
The  Econonuc  and  Employment  Conunission 

A  provisional  agenda  was  submitted  to  each  of 
the  Commissions. 


The  Record  of  the  Week 


Draft  Treaty  on  the  Disarmament  and  Demilitarization  of  Germany 


Preamble 

On  June  5, 1945,  the  Governments  of  the  United 
States,  the  Union  of  Soviet  Socialist  Republics, 
the  United  Kingdom,  and  the  French  Republic 
declared  their  intention  to  effect  the  total  disarm- 
ament and  demobilization  of  Germany.  In  sub- 
stantial measure  this  intention  has  already  been 
fulfilled.  Nothing  shall  prevent  or  delay  the 
completion  of  the  process.  It  remains  to  ensure 
that  the  total  disarmament  and  demilitarization 
of  Germany  will  be  enforced  as  long  as  the  peace 
and  security  of  the  world  may  require.  Only  this 
assurance  will  permit  the  nations  of  Europe  and 
the  world  to  return  single-mindedly  to  the  habits 
of  peace.  To  achieve  this  objective,  the  Govern- 
ments of  the  United  States,  the  Union  of  Soviet 
Socialist  Republics,  the  United  Kingdom,  and  the 
French  Republic  agree  to  engage  in  the  common 
undertaking  defined  in  this  treaty. 

A?' tide  I. 

The  high  contracting  parties  agree  that  they 
shall  take  steps  jointly  to  ensure  that: 

(a)  All  German  armed  forces,  including  land, 
air,  anti-aircraft  and  naval  .forces,  all  para-mili- 
tary forces,  such  as  the  SS,  the  SA  and  the  Ges- 
tapo, and  all  organizations  auxiliary  to  the  fore- 
going shall  be  and  shall  remain  completely  dis- 
armed, demobilized  and  disbanded. 

(b)  The  German  general  staff  and  the  staffs 
of  any  j^ara-military  organizations  shall  be  and 
.shall  remain  disbanded. 

(e)  No  German  military  or  para-military  or- 
ganization in  any  form  or  guise  shall  be  permitted 
in  Germany. 

(d)  The  manufacture,  production,  or  importa- 
tion of  military  equipment  in  Germanj?  shall  be 
prevented.     In  particular,  the  high  contracting 


parties  .shall  prevent  the  manufacture,  produc- 
tion, or  importation  of: 

(1)  All  ai-ms,  ammunition,  explosives,  military 
equipment,  military  stores  and  supplies  and  other 
implements  of  war  of  all  kinds; 

(•2)  All  fissionable  materials  for  any  purpose, 
except  under  conditions  approved  by  the  high 
contracting  parties ; 

(3)  All  naval  vessels  of  all  classes,  both  surface 
and  submarine,  and  auxiliary  naval-craft; 

(Jr)  All  aircraft  of  all  kinds,  aviation  equip- 
ment and  devices,  and  equipment  for  anti-aircraft 
defense. 

(e)  The  establishment,  utilization  or  operation 
for  military  purposes  of  any  of  the  following  shall 
lae  prevented : 

(1)  All  military  structures,  installations  and 
establishments,  including;  but  not  limited  to  mili- 
tary air  fields,  seaplane  bases  and  naval  bases,  mili- 
tary and  naval  storage  depots,  permanent  and 
temporary  land  and  coast  fortifications,  fortresses 
and  other  fortified  areas ; 

{•2)  All  factories,  plants,  shops,  research  insti- 
tutions, laboratories,  testing  stations,  technical 
data,  patents,  plans,  drawings  and  inventions,  de- 
signed or  intended  to  produce  or  to  facilitate  the 
production  of  items  listed  in  paragraph  (d)  above. 

(/)  Under  conditions  which  may  be  established 
by  the  high  contracting  parties,  the  demilitariza- 
tion and  disarmament  required  by  this  article  shall 
be  subject  of  the  following  exceptions  and  to  nn 
others : 

( 1 )  The  formation  and  employment  of  such 
detachments  of  German  civil  police,   and  their 

'  Submitted  by  the  United  States  to  the  Council  of  For- 
eign Mlnistei-s  at  the  Apr.  29  meeting  and  subsequently 
released  to  the  press  in  Paris.  Released  to  the  press  by 
the  Department  of  State  on  Apr.  30. 

875 


816 


DEPARTMEJST  OF  STATE  BULLETIN 


equipment  with  sucli  t.vpes  and  quantities  of  im- 
ported small  arms,  as  may  be  essential  to  the  main- 
tenance of  public  security ;  and 

(2)  The  importation  of  minimum  quantities  of 
those  items  listed  in  paragraph  [d)  (1)  above, 
such  as  explosives  or  ingredients  of  explosives, 
whicli  may  be  e,ssential  for  purposes  of  construc- 
tion, mining,  agriculture  or  for  other  peaceful 
purposes. 

Article  II. 

To  implement  the  disarmament  and  demilitari- 
zation provisions  set  forth  in  Article  I,  the  high 
contracting  parties  agree  that  they  shall  make 
provision  for  a  system  of  quadripartite  inspection, 
which  shall  become  oi3erative  upon  the  termination 
of  the  Allied  occupation  of  Germany.  This  sys- 
tem of  inspection  shall  be  conducted  through  a 
Commission  of  Control  to  be  established  by  the 
high  contracting  parties  on  a  quadripartite  basis. 
The  Commission  of  Control,  through  its  officers 
and  agents,  shall  conduct,  in  any  and  all  parts  of 
German  territory,  such  inspections,  incjuiries  and 
investigations  as  it  may  deem  necessary  to  deter- 
mine whether  the  disarmament  and  demilitariza- 
tion provisions  set  forth  in  Article  I  are  being- 
observed. 

Article  III. 

The  high  contracting  parties  agree  that  for  the 
duration  of  the  period  of  Allied  occupation  of 
Germany,  they  shall,  through  the  Allied  Control 
Council  and  in  their  respective  zones,  enforce 
strictly  the  disarmament  and  demilitarization  pro- 
visions set  forth  in  Article  I.  They  agree  further 
that  the  express  acceptance  by  Germany  of  the 
provisions  of  Articles  I  and  II  shall  be  an  essen- 
tial condition  to  the  termination  of  Allied  occupa- 
tion of  German  territory. 

Artic/c  IV. 

The  Commission  of  Control  provided  for  in 
Article  II  shall  keep  the  high  contracting  parties 
and  the  Security  Council  of  the  United  Nations 
informed  of  the  results  of  the  inspections,  inquiries 
and  investigations  authoi-ized  by  that  article.  The 
Conunission  of  Co]itr((l  shall  submit  a  report  to  the 
high  contracting  i)arties  whenever  in  the  opinion 
of  a  majority  of  the  membei-s  of  the  Commission, 
it  has  reason  to  believe  that  a  violation  of  the  dis- 


armament and  demilitarization  provisions  of 
Article  I  have  occurred  or  is  about  to  occur.  In 
conjunction  with  such  report  the  Commission  shall 
submit  a  recommendation  for  action  on  the  part 
of  the  high  contracting  parties  which  appeal's  ap- 
propriate to  a  majority  of  the  members  of  the 
Commission.  Upon  receipt  of  such  report  and 
reconnnendations,  the  high  contracting  parties 
will,  by  common  agreement,  take  such  prompt 
action — including  action  by  air,  sea  or  land 
forces — as  may  be  necessary  to  assure  the  immedi- 
ate cessation  or  prevention  of  such  violation  or 
attempted  violation.  The  high  contracting  parties 
shall  innnediately  report  to  the  Security  Council 
of  the  United  Nations  the  action  taken  or  to  be 
taken. 

The  high  contracting  parties  agree  that,  within 
six  months  of  the  effective  date  of  this  treaty,  they 
sliall  consult  for  the  pui]iose  of  negotiating  special 
quadripartite  agreements  which  shall  provide  in 
the  greatest  practicable  detail  for  inspection,  in- 
quiry and  investigation  by  the  Commission  of  Con- 
trol. For  the  numbers  and  types  of  forces  which 
each  party  shall  make  available  for  purposes  of 
this  treaty,  for  their  degree  of  readiness  and  gen- 
eral location,  and  for  the  nature  of  the  facilities 
and  assistance  which  each  shall  provide.  Such 
special  quadripartite  agreements  shall  be  subject 
to  ratification  by  the  high  contracting  parties  in 
accordance  with  their  respective  constitutional 
processes. 

Article  V. 

This  treaty  shall  be  ratified  by  the  high  cont  ract- 
ing  parties  in  accordance  with  their  respective 
constitutional  processes.  The  ratifications  shall  be 
deposited  with  the  government  of  (blank),  which 
shall  notify  all  the  high  contracting  parties  of  each 
deposit. 

This  treaty  shall  come  into  force  upon  the  de- 
posit of  ratifications  by  each  of  the  high  contract- 
ing parties.  This  treaty  shall  remain  in  force  for 
a  period  of  25  years  from  its  effective  date.  The 
high  contracting  parties  agree  to  consult  six 
months  before  the  date  of  exjnration  of  this  treaty 
for  the  purpose  of  determining  whether  the  inter- 
ests of  international  peace  and  security  require  its 
renewal,  with  or  without  modification,  or  whether 
the  German  people  have  so  far  progressed  in  the 
reconstruction  of  their  life  on  a  democratic  and 
peaceful  basis  that  the  continued  imposition  of 
the  controls  defined  herein  is  no  longer  necessary. 


MAY  12,  1946 


8i: 


Italian  Government  To  Restore  Property 
of  United  Nations  Nationals 


[KolHiist'd  t(i  the  ijress  Apiil  llil] 

On  April  9  tlio  Italian  (ioveiiunent  ileseqncs- 
tiated  all  [)ropert y  in  Italy  belonging  t(j  nationals 
of  the  United  Nations.  The  amount  of  ])roperty 
in  Italy  belonging  to  United  States  citizens  and 
corporations  and  affected  l)v  this  action  is  esti- 
mated at  over  $200,000,1 )()(). 

Under  the  procedure  estaljlished,  in  cases  in- 
volving commercial  or  industrial  concerns,  real 
estate  and  personal  chattels,  owners  or  their  repre- 
sentatives must  l)e  in  Italy  to  take  over  deseques- 
t  rated  property.  In  cases  inv(jlving  bank  accounts, 
securities,  and  valuables,  the  presence  of  owners 
or  legal  representatives  is  not  required.  Where 
owners  or  representatives  are  required  to  be  in 
Italy,  it  is  suggested  that  they  seek  the  advice  and 
assistance  of  American  Consuls  in  Italy. 

In  order  not  to  impede  the  restoration  of  prop- 
erty to  its  rightful  owners,  questions  of  taxes  and 
charges  on  property  restored,  claims  for  malad- 
ministration of  property,  and  claims  for  war  dam- 
ages are  being  reserved  for  later  settlement  by 
inter-governmental  agreement.  Owners,  it  is  true, 
can  settle  such  matters  directly  with  the  Italian 
Government  but  they  may  thereby  prejudice  their 
rights  under  the  inter-governmental  agreement. 

The  provisions  concerning  desequestration  are 
contained  in  Italian  decree  36  of  February  1,  l!)4r) 
and  Italian  decree  140  of  March  26,  19-1:6,  which 
were  made  etfective  as  of  April  9  l>y  the  decree  of 
the  President  of  the  Council  of  Ministers  of  Italy 
of  that  date. 

The  sequestrator  of  property  is  re(iuired  to  make 
restoration  to  the  owner  or  his  representative  im- 
mediately upon  request.  If  the  propei'ty  is  not 
returned  within  oO  days  of  April  9  because  the 
owner  is  absent  and  unrepresented  or  unwilling  to 
accept  his  property  back,  the  Italian  Government 
will  appoint  administrators  to  continue  the  cus- 
tody of  the  property.  These  administrators  may 
lie  the  present  sequestrators. 

Legal  representatives  must  have  full  power  of 
attorney,  properly  legalized.  Where  a  change  in 
title  to  property  has  occurred  since  sequestration 
the  new  owner  must  show  proof  of  ownership.     It 


is  suggested  that  co-heirs  use  the  same  legal  rep- 
resentative to  avoid  expense  and  delay. 

The  local  Intendente  di  Finanza  (Provincial 
Treasury  OfHcer)  will  supervise  the  procedure  for 
the  restoration  of  the  property  and  will  also  assure 
the  cancelation  of  the  sequestration  decree  in  the 
provisional  I'ecords. 

At  the  time  of  the  return  of  the  property,  a  Ver- 
bale  di  Riconsegna  ( Instrument  of  Re.consign- 
ment)  will  be  tendered  the  owner  or  his  legal  rep- 
resentative. This  instrument  will  contain  a  list  of 
all  items  being  returned.  Before  signiing  the  docu- 
ment and  accepting  the  restoration  of  property  the 
owners  should  insist  upon  inclusion  of  all  other 
intVniiKition  pertinent  to  their  particular  cases; 
and  they  should  insist  that  statements  of  account, 
balance  sheets,  schedules,  inventories,  etc.,  be  pro- 
duced and  scrupulously  checked  against  the  actual 
property.  Any  discrepancy  should  be  explained 
in  writing. 

In  certain  cases  special  procedui'es  may  be  re- 
(piired  as  where  the  sequestrator  can  not  be  found 
or  where  property  has  disappeared  or  been  trans- 
ferred to  a  third  party.  In  this  situation  where 
])ropei'ty  has  been  transferred  to  a  third  party,  the 
owner  is  entitled  to  cancellation  of  the  instrument 
of  transfer.  Where  the  property  has  been  leased, 
the  lease  may  be  terminated  at  the  option  of  the 
owner  or  be  jjermitted  to  continue  in  foi'ce  until  the 
end  of  the  lease  contract. 

While  the  decrees  provide  that  all  exj)enses  of 
deseque.stration  and  restoration  of  desequestrated 
pro]ierty  will  be  borne  by  the  Italian  Government, 
some  question  exists  whether  this  includes  the  costs 
of  professional  assistance. 

In  the  following  cases  the  presence  of  the  (jwner 
or  legal  representative  is  not  required  but  applica- 
tion may  be  made  hj  ordinary  communication  as 
indicated: 

1.  Bank  accounts  transferred  to  ISTCAMBI 
( National  Institute  for  Foreign  Exchange)  will  be 
lestored  to  the  original  bank  of  deposit  to  which 
(jwners  should  apply.  Lire  sums  will  be  I'estoi'ed 
in  lii-e,  sums  in  other  currencies  will  be  restored  in 


818 


DEPARTMENT  OF  STATE  BULLETIN 


kind  (dollar  for  dollar,  etc.)  and  in  orig^inal  tj'pe 
of  account. 

•2.  Funds  paid  into  ISTCAMBI  by  individuals 
or  institutions  other  than  banks  will  be  restored  to 
owner  upon  his  request  filed  with  the  Bank  of  Italy, 
wliich  will  deal  with  ISTCAMBI  for  the  owner. 

'■>.  Bank  accounts  or  other  funds  frozen  in  the 
Bank  of  Italy  or  in  other  banks  will  be  restored  by 
the  bank  concerned  upon  request. 

4.  Funds  from  a  sale  by  SICEA  (Italian  For- 
eign Commerce  Corporation,  number  1,  Via  delle 
Marche,  Rome)  of  propert_v  of  United  States 
nationals  will  be  made  available  to  owner  upon 
filing  of  application.  SICEA  obtained  these 
funds  from  the  sale  of  goods  belonging  to  United 
States  nationals  in  Italian  ports  and  ships. 

5.  Securities  and  valuables  held  by  the  Bank  of 
Italy  or  other  banks  will  be  restored  upon  applica- 
tion with  tlie  bank  concerned. 


Myron  C.  Taylor  to  Return  to 
Italy  as  President's  Personal 
Representative 

STATEMENT  BY  THE  PRESIDENT 

[Released  to  the  press  by  the  White  House  May  3] 

I  lutve  asked  Mr.  jMyron  C.  Taylor  to  return  to 
Italy  as  my  personal  representative  to  His  Holiness 
the  Pope,  with  the  rank  of  Ambassador. 

After  the  cessation  of  hostilities  Mr.  Taylor 
came  home  for  consultation  and  report.  I  have 
studied  his  report  of  his  several  audiences  with 
the  Pope  with  interest  and  with  profit.  I  feel 
that  he  can  continue  to  render  helpful  service  to 
the  cause  of  Christian  civilization  if.  at  my  in- 
stance from  time  to  time,  he  resumes  his  duties  in 
Italy.  As  on  his  previous  trips  Mr.  Taylor  will 
confer  not  only  with  the  Pope  but  with  other  lead- 
ers in  the  spiritual  world  and  in  the  world  of  poli- 
tics and  secular  affairs  as  he  travels  through  Eu- 
rope in  the  fulfilment  of  his  mission. 

The  cessation  of  active  fighting  has  left  the 
M-orld  in  a  state  of  unrest.  In  many  quarters  we 
witness  lamentable  conflicts  of  principle  and 
l^olicy.  Out  of  all  of  this  unrest  and  conflict,  how- 
ever, one  conviction  emerges  as  clear  as  the  noon 
day.     It  is  that   we  shall  establish  an  enduiini;- 


l^eace  only  if  we  build  it  ujion  Christian  principles. 

In  the  dark  days  of  19-iO  President  Roosevelt 
sent  Mr.  Taylor  to  Italy  as  his  personal  representa- 
tive. His  mission  was  most  helpful  to  the  cause  of 
peace  and  in  the  alleviation  of  suffering  brought 
about  by  the  most  awful  conflict  in  the  annals  of 
mankind,  and  it  will  be.  I  am  sure,  equally  useful 
in  the  future. 

There  is  no  minimizing  the  gravity  of  the  days 
in  which  we  live.  I  feel  the  necessity  of  having 
for  my  guidance  the  counsel  and  cooperation  of 
all  men  and  women  of  good  will  whether  in  reli- 
gion, in  government,  or  in  the  pursuits  of  everyday 
life.  I  have  therefore  sought  the  advice  of  leaders 
in  religion  of  various  convictions  and  allegiances, 
not  oidy  in  this  country  but  from  abroad.  I  feel 
that  all  have  a  vital  contribution  to  nmke.  I  shall 
continue  to  welcome  the  counsel  of  such  leaders 
to  the  end  that  the  voice  of  conscience  may  be  heard 
in  the  councils  of  nations  us  they  seek  a  solution  of 
that  age-old  problem — the  government  of  man. 


Credit  Arrangement  With 
Austria 

[Released  to  the  press  May  3] 

The  Department  of  State  announced  on  May 
3  that,  in  carrying  out  the  Moscow  Declaration 
of  1943  which  pledged  the  Four  Powers  to  open 
the  way  for  the  Austrian  people  to  find  economic 
security,  a  dollar  credit  arrangement  of  10  million 
dollars  has  been  completed  with  the  Government 
of  Austria  for  the  purchase  of  American  surplus 
jjrojjerty  abroad. 

The  agreement  with  the  Austrian  Governlnent 
is  designed  to  facilitate  the  reconstruction  of 
Austria  by  utilizing  American  surplus  property 
in  Europe.  The  utilization  of  these  resources  has 
hitherto  been  made  impossible  by  the  shortage  of 
dollars  in  Austria. 

The  present  credit  arrangement  represents  a 
"credit  ceiling"'  and  does  not  mean  that  the 
Austrian  Government  will  necessarily  purchase  up 
to  this  total.  All  credit  arrangements  concluded 
by  the  Office  of  the  Foreign  Liquidation  Commis- 
sioner provide  for  a  rate  of  interest  of  2-^^  percent 
per  annum  payable  annually  with  the  principal 
to  be  made  in  annual  instalments. 


MAY  12,  1946 


819 


Discussions  Regarding  Foreign  Purchasing  Missions 


[Keleased  to  the  press  May  4] 

Officers  of  the  Depiirtiuent  of  State  have  recently 
informed  representatives  of  governments  having 
purchasing  missions  in  this  country  that  the 
United  States,  wliile  recognizing  the  vahiable 
services  performed  by  these  missions  during  the 
war  emergency,  nevertheless  believes  that  they 
shoidd  be  terminated  by  the  end  of  the  transition 
period.  There  was  also  an  exchange  of  views  con- 
cerning the  operations  of  the  missions  pending 
their  termination.  Conversations  were  held  with 
the  representatives  of  the  following  governments: 
Australia.  Belgium.  China,  France,  Greece,  India, 
Italy,  Netherlands.  New  Zealand,  Norway,  Poland, 
Portugal.  Union  of  South  Africa.  Union  of  Soviet 
Socialist  Republics,  and  United  Kingdom. 

The  policy  of  this  Government,  as  explained  to 
the  representatives  of  the  foreign  governments 
concerned,  favors  the  use  of  private  commercial 
channels  in  international  trade.  Although  it  is 
recognized  that  during  the  transition  period  the 
continuance  of  governmental  participation  in 
trade  may  be  required  to  bring  about  the  prompt 
reconversion  of  the  economies  of  the  world,  sta- 
bility of  prices,  and  equitable  distribution  of  avail- 
able supplies,  it  was  pointed  out  that  it  is  the  policy 
of  the  United  States  that  such  state  trading  agen- 
cies should  conduct  their  trade  in  accordance  with 
usual  commercial  considerations. 

With  these  policies  in  mind,  the  Department  ex- 


pressed the  view  that  the  missions  shoidd  limit 
their  ojaerations  during  the  transition  period  to 
the  procurement  of  commodities  necessary  to  meet 
essential  civilian  requirements  for  relief  and  re- 
habilitation. The  Department  also  took  the  posi- 
tion that  purchasing  missions  should  use  noi'mal 
trade  channels  to  the  maximum  extent  practicable 
and  that  their  purchasing  methods  sliould  be  in 
accord  with  commercial  considerations.  The  gov- 
ernments having  purchasing  missions  here  were 
also  informed  of  the  view  of  the  United  States 
Government  that,  as  the  transition  draws  to  a 
close  and  the  emergency  need  ceases,  the  wartime 
purchasing  missions  should  be  terminated. 

There  was  general  concurrence  with  the  policy 
set  forth  by  this  Government.  Several  of  the 
representatives  indicated  that  their  government's 
piu'chasing-mission  activities  had  already  been 
considerably  reduced  and  anticipated  that  before 
the  end  of  the  year  they  would  be  completely  dis- 
banded. 

With  respect  to  the  Union  of  Soviet  Socialist 
Republics,  whose  trade  is  conducted  through  en- 
terprises which  are  public  in  character,  the  United 
States  expressed  the  view  that,  upon  the  termina- 
tion of  the  wartime  Soviet  Purchasing  Mission, 
trade  between  the  United  States  and  the  U.S.S.R. 
should  again  be  carried  on  by  an  agency  or  agen- 
cies incorporated  in  one  of  the  states  of  the  United 
States  as  was  the  case  prior  to  the  war. 


Addresses  and  Broadcasts  of  the  Week 


Assistant  Secretary  Clavton 


Willard  L.  Thorp 

Deput}'  to  the  Assistant  Secretary  for 
Economic  AflFairs 
Francis  H.  Russell 

Acting  Director  of  the  Office  of  Public 
Affairs 
Benjamin  A.  Cohen  of  Chile 

United  Nations  Assistant  Secretary- 
General  for  Information 
William  T.  Stone 

Director  of  the  Office  of  International 
Information  and  Culttiral  Affairs, 
Department  of  State 
Francis  H.  Russell 


American  International  Economic  In- 
terests. See  Department  of  State 
press  release  295  of  May  1 

The  British  Financial  Agreement.  See 
Department  of  State  press  release 
296  of  May  1 

On  the  subject  of  connnunications  and 
foreign  policy.  See  Department 
of  State  press  release  299  of  May  3 


The  Role  of  International  Information 
>         Services.      See     Department     of 
State  press  release  297  of  Maj-  2 


Delivered  before  the  34th  Annual 
Meeting  of  the  Chamber  of  Com- 
-  merce  of  the  United  States  in 
Atlantic  City,  X.J.,  on  May  2 

Delivered  before  the  Chamber  of  Com- 
merce of  the  State  of  New  York 
in  New  York,  N.Y.,  on  May  2 

Delivered  before  the  16th  Institute 
for  Education  by  Radio  in  Co- 
lumbus, Ohio,  on  May  4 


A  radio  program  broadcast  over  the 
NBC  network  on  May  4 


820 


DEPARTMENT  OF  STATE  BULLETIN 


Foreign  Liquidation 
Commission  Report 

[Released  to  the  press  April  30] 

Foreifiii  Liquidation  Coininissioner  Thomas  B. 
McCabe  today  reported  to  Congress  that  during 
the  period  ending  March  31,  1946.  the  FLC  has 
realized  $345.000,000 from  tlie  sale  of  surplus  prop- 
erty costing  $1,02«,000,000  when  it  was  new. 

Property  whose  original  cost  was  $3,521,000,000 
has  been  declared  surplus  overseas  and  made  avail- 
able to  the  FLC  by  the  Army  and  Xavy  and  other 
owning  agencies,  McCabe  stated  in  a  quai'terly  re- 
ijort.  He  estimated  that,  in  addition  to  the  prop- 
erty already  declared  surplus,  potential  surj)lus 
remaining  undeclared  as  of  March  31  exceeded 
$10,000,000,000.  This  estimate  included,  however, 
property  which  might  be  abandoned,  scrapped,  or 
returned  to  the  United  States  and  hence  never 
made  available  to  the  FLC  for  disposal. 

"In  view  of  the  nature  and  condition  of  the 
property  involved,"  the  report  explained,  "the 
return  on  the  surplus  sold  to  date  is  extremely 
good,  and  probably  will  show  a  higher  percentage 
of  realization  than  will  be  jjossible  on  future  sur- 
plus disposals". 

The  5-1-page  report  described  the  organization 
and  activities  of  the  FLC  from  its  start  to  March 
31.  1916.  Foreign  disposal  was  transferi'ed  from 
the  War  Department  to  the  State  Department  on 
October  20,  1945. 

Secretary  of  State  Byrnes,  in  a  letter  transmit- 
ting the  report  to  Congress,  said :  "To  those  who 
have  dealt  with  the  problems  of  foi'eign  disposal, 
one  truth  stands  paramount — prompt,  decisive 
action  is  essential.  Rapid  deterioration  of  the 
surpluses,  the  importance  of  relieving  U.  S.  ti'oops 
abroad  of  custodial  responsibilities,  aiid  the  ur- 
gency of  the  need  in  many  parts  of  the  world  all 
point  to  a  jirogram  in  which  speed  is  the  dominant 
influence". 

The  re]iort  pointed  out  that  the  FLC  has  also 
transferred  to  UNRRA  property  involving  an 
original  cost  of  approximately  $146,000,000  at  a 
transfer  value  of  $97,000,000,  under  authority  of 
Section  202  of  the  UNRRA  Participation  Appro- 
priation Act  of  1945. 

^  Report  to  Coiigress  on  Foreiirn  Siuplus  1  lispos.-il.  April. 
1046  (Dopai-tment  of  State). 


Discussions  on  World  Trade 
Proposed 

In  answer  to  inquiries  concerning  statements 
made  on  May  2  in  the  debate  -  on  the  British  loan 
to  the  effect  that  the  United  States  w:is  negotiating 
with  the  British  Government  for  tariff  reductions, 
a  State  Department  spokesman  said  that : 

No  negotiations  for  tariff  reductions  are  being 
conducted  between  the  LTnited  States  and  the 
British  Government. 

The  Proposals  for  Expansion  of  World  T rade 
(inil  Knijiloyment,  published  last  December,  recom- 
mend that  "members  (of  the  proposed  inter- 
national trade  organization)  should  enter  into  ar- 
rangements for  the  substantial  reduction  of  tariffs 
and  for  the  elimination  of  tariff'  pi-eferences"  as 
\n\v{  of  a  general  jirogram  for  the  reduction  of 
trade  barriers. 

It  was  also  announced  last  December  that  the 
United  States  had  invited  15  countries  to  partici- 
))ate  in  such  discussions.  The  United  Kingdom  is 
(jiie  of  these  countries. 

No  date  has  yet  been  set  for  these  discussions. 

These  discussions,  when  they  occur,  will  be  con- 
ducted under  the  Trade  Agreements  Act.  The\- 
will  be  preceded  by  public  notice  and  regular  hear- 
ings before  the  Committee  for  Reciprocity  Infor- 
mation under  that  act.  The  tariff  concessions  to 
be  offered  by  the  United  States  will  be  carefully 
considered  from  the  point  of  view  of  the  whole 
national  interest,  in  the  light  of  whatever  ma3'  be 
developed  at  the  hearings.  Reductions  will  be 
made  in  the  future,  as  they  have  been  in  the  past, 
selectively,  after  full  hearing  and  consideration, 
with  due  regard  for  the  interests  of  American 
producers,  and  always  in  return  for  corresponding 
concessions  made  bj'  other  countries. 

"  A  congressional  debate  is  in  progress  on  the  subject  of 
the  financial  agreement  \yliieh  was  submitted  by  the  Presi- 
dent to  (.'ongress  for  implementation.  Senator  Hugh 
Butler  asked  on  the  Uoor  of  the  Senate  on  M.a.v  2  whether 
negotiations  were  in  progress  for  taritT  reductions  between 
the  United  States  and  the  Tuited  Kingdom. 


MAY  12,  1946 


821 


Clearance  Processes  for  Sale 
of  Classified  Articles 

[Rt'liascfl  to  the  press  April  29] 

111  answer  to  inquiries  regarding  articles  in  the 
press  stating  that  American  companies  ai'e  negoti- 
ating for  tlie  sale  of  radar  and  other  iinj)ortant  war 
seci'ets  to  a  foreign  power  with  State  Department 
consent,  the  Department  issued  the  following  state- 
ment on  April  29 : 

Under  the  Espionage  Act  of  1917,  anyone  who 
transmits  to  a  foreign  power  or  national  an}-  infor- 
mation whicli  may  aifect  the  national  security  is 
liable  to  prosecution.  Accordingly  many  firms 
wliich  manufacture  articles  used  in  the  mainte- 
advisability  of  entering  into  contracts  Avith  for- 
eign governments  or  nationals  for  the  sale  of  these 
articles  or  for  the  negotiation  of  licenses  for  the 
nance  of  national  security  make  inc[uiry  of  the  War, 
Navy,  or  State  Departments  9s  to  the  possibility  or 
manufacture  of  such  articles  in  foreign  countries. 

As  is  well  known,  certain  items  contracted  for  by 
the  War  and  Navy  Departments  are  classified  as  to 
tlieir  relative  degree  of  importance  in  the  mainte- 
iiaace  of  national  security.  Before  any  such  ar- 
ticles may  be  sold  or  licenses  negotiated  for  their 
manufacture  abroad,  clearance  must  be  obtained 
from  the  War,  Navy,  and  State  Departments. 

This  applies  exclusively  to  material  classified  by 
the  War  and  Navy  Departments,  which  have 
jurisdiction  over  classification  procedure. 

With  the  exception  of  certain  material  jointly 
devek)i)ed  by  the  United  States  and  other  countries, 
no  classified  equipment  in  the  electronic  field  has 
been  leleased  for  sale  or  for  licensing  for  manufac- 
lure  abroad  since  the  termination  of  the  lend-lease 
program.  All  electronic  material  made  available 
through  lend-lease  has  been  declassified. 

Tlie  Department  has  no  legal  authority  to  pre- 
vent the  sale  or  manufacture  of  unclassified  mate- 
rial abroad. 


Ambassador  Pauley  To  Study 
Economic  Problems  in  the 
Far  East' 

[Released  to  the  press  Ma.v  2] 

The  Acting  Secretary  of  State  announced  on 
May  2  that  Ambassador  Edwin  W.  Pauley,  per- 
sonal rei^resentative  of  the  President  on  repara- 
tions matters,  would  leave  at  the  end  of  the  week 
foi-  the  Far  East  at  the  request  of  the  President  and 
tlie  Secretary  of  State. 

Acting  Secretary  Acheson  emphasized  that  it  is 
the  American  objective  to  support  and  to  promote 
the  unity  and  the  economic  development  of  China 
and  Korea,  and  at  the  same  time  to  assure  that  they 
will  be  economically  independent  of  Japan. 

Mr.  Acheson  stated  that  China  must  be  enabled 
to  utilize  to  the  full  the  natural  resources  and  in- 
dustries of  Manchuria  and  that  Korea  must  be  in 
a  position  to  develop  its  own  resources  and  indus- 
tries if  a  long-range  plan  for  the  peaceful  economy 
of  East  Asia  is  to  be  worked  out. 

Mr.  Pauley  will  make  studies  and  investigations 
with  a  view  to  recommending  cooi'dinated  and 
rational  programs  for  the  healthy  industrial  and 
economic  development  of  Manchuria  and  Korea 
and  utilization  of  their  natural  resources  in  rela- 
titm  to  reparations  removals  from  Japan. 

Mr.  Pauley's  conclusions  at  the  termination  of 
his  mission  will  be  drawn  from  actual  facts  and  a 
meeting  of  minds.  His  approach  will  be  based 
upon  the  broader  aspects  of  the  American  view- 
point, which  is  based  on  a  program  of  rehabilita- 
tion of  the  Far  East  and  is  designed  to  enlarge 
the  area  of  opportunity  for  the  millions  who  in- 
habit that  part  of  the  globe. 

The  main  purpose  of  tlie  mission,  said  Mr.  Ache- 
st)ii,  is  to  secure  information  and  make  recommen- 
dations which  will  assist  the  United  States  Govern- 
ment and  its  allies  in  planning  a  program  for  the 
Far  East  which  will  contribute  to  the  peace  and 
security  of  the  Far  East  and  of  the  whole  world. 


^  This  announcement  was  read  by  the  President  at  his 
press  conference  on  May  2.  Tlie  U.  S.  Reparations  Mission 
is  i-oniposed  of  the  following  persons :  Edwin  W.  Pauley, 
iversonal  representative  of  the  President,  with  the  rank 
of  Ambassador,  and  Chief  of  the  U.S.  Reparations  Mis- 
sion ;  Martin  T.  Bennett,  Industrial  Engineer ;  B.  S.  Berco- 
viei,  Information  and  Education ;  G.  S.  Carter,  Chief  of 
the  Secretariat ;  A.  B.  Einig,  Industrial  Consultant ;  N.  M. 
Elias.  ("hemieal  Eiiftineer :  Capt.  M.  E.  Fenieal,  AVar  De- 
partment (Iffiiial  Photographer;  Richard  P.  Gaynor, 
Secretaiy  to  Jlr.  I>:niley  ;  Riiphnel  W.  Green,  .\dniinistra- 


tive  Clerk ;  John  P.  Hurndall,  Natural  Resources  Con- 
stiltant ;  Charles  A.  Karl,  Administrative  Assistant :  Ernest 
L.  Klein,  Special  Assistant  to  Mr.  Pauley ;  Edwin  Martin, 
State  Department  Liaison  :  Sgt.  John  Matles,  Interpreter- 
Aide ;  Col.  William  Mayer,  War  Department  Liaison  and 
Adviser  on  China ;  Benjamin  C.  Olsen,  Administrative 
Assistant ;  Gen.  George  Schulgen,  War  Department  Liaison 
and  Consultant;  Earl  L.  Shaner,  Iron  and  Steel  Con- 
sultant; Carleton  E.  Swift,  Petroleum  Geologist;  Norman 
Taylor,  Mechanical  I-^ngineer;  H.  M.  Thorne,  Oil-Shale 
and  Itetining  Engineer. 


822 


DEPARTMENT  OF  STATE  BULLETIN 


Program  for  Philippine 
Rehabilitation  and  Recovery 

STATEMENT  BY  THE  PRESIDENT 

[Released  to  the  press  by  the  White  House  April  30] 

I  have  today  signed  H.R.  5856  and  S.  1610,  the 
two  bills  which  constitute  the  heart  of  the  pro- 
gram for  Philippine  Rehabilitation  and  Recovery. 

On  October  6,  1943,  President  Roosevelt  called 
upon  the  Congress  "to  make  provision  to  deter- 
mine the  adjustments  necessary  in  tlie  existing 
jirovisions  of  law  which  govern  the  economic  rela- 
tions between  the  United  States  and  the  Philip- 
pines so  as  to  assist  in  making  the  Philippines,  as 
an  independent  nation,  economically  secure." 

That  recommendation  was  made  in  the  heat  and 
desperation  of  struggle.  It  climaxed  promises 
made  to  the  people  of  the  Pliilippines  that  not  only 
would  their  land  be  liberated  from  the  tyranny 
of  the  enemy,  but  that  they  would  be  given  their 
full  independence  and  would  be  rehabilitated 
from  the  ravages  of  war. 

The  enactment  of  H.R.  5856  and  S.  1610  into 
law  marks  the  fulfillment  of  the  last  of  these 
promises. 

In  S.  1610,  we  are  making  provision  for  war 
damage  payments  to  those  who  suffered  war  losses 
in  the  Philippines,  and  for  the  reconstruction  and 
rehabilitation  of  public  property.  We  are  also 
undertaking  to  reliabilitate  and  develop  those 
technical  skills  and  services  which  will  be  essential 
for  the  survival  and  growth  of  the  Philippines  as 
an  independent  nation. 

In  H.R.  5856,  we  are  providing  for  the  estab- 
lishment, through  an  executive  agreement,  of  an 
unprecedented  plan  of  preferential  trade  relations 
with  the  Philippines  to  last  for  twenty-eight  years. 
We  have  never  entered  into  similar  agreement 
with  any  foreign  government.  Preferential  trade 
relations  are  alien  to  the  policy  of  this  administra- 
tion. In  substance,  however,  H.R.  5856  is  a  re- 
habilitation act.  Its  sole  purpose  and  guiding 
pliilosophy  is  to  furnish  a  formula  for  the  rehal)ili- 
tation  of  tlie  I'hiiippine  national  economy  tlirougli 
the  encouragement  of  private  enterprise  and  pri- 
vate initiative.  H.R.  5856  provides  an  economic 
function  for  tiie  buildings  and  factories  which  will 
be  restored  and  rebuilt  under  the  terms  of  S.  1610. 


While  it  is  unfortunate  that  the  Congress  saw  fit 
to  provide  in  S.  1610  that  no  war  damage  payment 
in  excess  of  $500  shall  be  made  until  the  executive 
agreement  shall  have  been  entered  into  between 
the  President  of  the  United  States  and  the  Presi- 
dent of  the  Pliilippines  under  the  terms  of  H.R. 
5856,  to  all  practical  purposes  this  provision  is 
surplusage,  as  the  benefits  which  will  flow  under 
the  enactment  of  the  two  bills  are  so  great  as  to  en- 
sure execution  of  the  executiA'e  agreement  by  the 
Republic  of  the  Philippines. 

This  is  unprecedented  legislation  for  tlie  United 
States,  but  the  situation  itself  is  unprecedented. 
We  are  about  to  grant  political  independence  to 
these  people.  Today  we  are  giving  them  a  chance 
to  preserve  and  develop  their  nation  on  a  tem- 
porary economic  basis  of  trade  preferences. 
Political  independence  without  economic  stability 
would  be  totally  ineffective. 

I  am  happy  to  approve  these  two  measures, 
which  give  notice  to  tiie  people  of  the  Philippines 
and  to  the  entire  world  that  we  are  redeeming  our 
promises  to  the  heroic  Philippine  people. 


American  Vessels  To  Transport 
Food  to  Foreign  Countries 

[Released  to  the  press  b.y  the  White  House  May  3] 

Jolin  W.  Snyder,  Director  of  AVar  Mobilization 
and  Reconversion,  on  May  3  took  steps  to  assist 
European,  Middle  East,  and  Far  Eastern  countries 
in  their  food-supply  problems  by  making  available 
to  them  small  American  vessels  for  fishing  and 
food  tran.sport. 

Mr.  Snyder  asked  the  State  Department,  in  co- 
operation with  the  War  Assets  Administration, 
the  War  Shipping  Administration,  and  the  War 
and  Navy  Dejiartments,  to  make  every  effort  to 
see  that  these  countries  and  their  nationals  be 
given  the  opportunity  to  acquire  usable  small  ves- 
.sels  up  to  1,000-ton  capacity  wliich  have  been  or 
can  be  declared  surplus.  These  vessels  can  be  used 
for  fishing,  the  transport  of  food  and  other  com- 
modities between  ports  or  harbors,  and  in  coast- 
wise trade. 


MAY  12,  1946 


823 


Convention  With  Canada  for  the  Development,  Protection, 
and  Conservation  of  the  Fisheries  of  the  Great  Lakes  ^ 


MESSAGE  FROM  THE  PRESIDENT 


The  White  House,  April  22,  WJfi. 
To  the  Senate  of  the  United  States: 

AVith  a  view  to  receiving  the  advice  and  consent 
of  the  Senate  to  ratification,  I  transmit  herewith 
a  convention  between  the  United  States  of  America 
and  Canada  for  the  development,  protection,  and 
conservation  of  the  fisheries  of  the  Great  Lakes, 
signed  at  Washington,  April  2, 1946.     The  conven- 


tion has  the  approval  of  the  Department  of  State 
and  the  Department  of  the  Interior. 

I  transmit  also  for  the  information  of  the  Senate 
a  report  made  to  me  by  the  Secretary  of  State  with 
respect  to  the  convention  and  a  copy  of  the  report 
of  the  International  Board  of  Inquiry  for  the 
(ireat  Lakes  Fisheries. 

Harry  S.  Truman. 


REPORT  OF  THE  SECRETARY  OF  STATE 


April  19,  19^6. 
The  President, 

The  White  House. 

The  undersigned,  the  Secretary  of  State,  has 
the  honor  to  lay  before  the  President,  with  a  view 
to  its  transmission  to  the  Senate  to  receive  the  ad- 
vice and  consent  of  that  body  to  ratification,  if 
liis  judgment  approve  thereof,  a  convention  be- 
tween the  United  States  of  America  and  Canada 
relating  to  the  fisheries  of  the  Great  Lakes  and 
their  connecting  waters,  signed  at  Washington 
April  2, 1946. 

The  convention  lias  been  negotiated  with  the 
objective  of  providing  for  the  development,  pro- 
tection, and  conservation  of  the  fisheries  of  the 
(Jreat  Lakes  through  cooperation  between  and 
juint  action  by  the  governmental  agencies  o,f  the 
United  States  and  Canada  concerned  with  the  ad- 
ministration of  these  fisheries. 

As  a  means  for  achieving  this  objective,  the 
convention  provides  for  the  establishment  of  an 
International  Commission  for  the  Great  Lakes 
Fisheries.  The  establishment  of  the  Commission 
will  provide  an  effective  solution  to  the  need  for 
coordinated  action  by  the  various  governments 
having  responsibilities  relating  to  the  fisheries  of 
(he  Great  Lakes.  At  the  jiresent  time,  11  govern- 
ments have  responsibilities  relating  to  those  fish- 
eries— the  Governments  of  the  United  States  of 
America   and   Canada,   the   governments   of   the 

'  Senate  Executive  C,  79th  Cong. 


States  of  New  York,  Pennsylvania,  Ohio.  Michi- 
gan, Indiana,  Illinois,  Wisconsin,  and  Minnesota, 
and  the  government  of  the  Province  of  Ontario — 
and  there  are  in  existence  no  effective  means  for 
coordinating  their  efforts  to  discharge  these  re- 
sponsibilities. 

For  many  years  the  Governments  of  the  United 
States  of  America  and  Canada,  of  the  eight  States 
of  the  United  States  bordering  on  the  Great 
Lakes,  and  of  the  Province  of  Ontario,  as  well  as 
the  fishermen  of  the  area,  have  been  concerned 
over  the  decline  in  abundance  of  fish  in  the  Great 
Lakes,  particularlj^  the  more  desirable  species. 
Cooperation  of  the  various  governments  con- 
cerned has  long  been  urged  as  indispensable  to 
effective  and  orderly  development  of  the  fisheries, 
not  only  in  promoting  adeciuate  research  into  the 
causes  of  the  decline  in  the  fisheries  but  also  in 
assuring  that  progressive  and  constructive  regu- 
lations founded  on  scientific  research  and  insti- 
tuted by  one  jurisdiction  may  not  be  nullified  by 
failure  of  an  adjacent  jurisdiction  to  adopt  simi- 
lar or  complementary  measures. 

The  need  for  cooperative  action  in  order  to 
preserve  and  develop  the  fisheries  of  the  Great 
Lakes  was  recognized  as  early  as  1875,  when  a 
report  of  the  State  of  Michigan  urged  the  neces- 
sity for  uniform  laws.  During  the  succeeding  71 
years  a  number  of  interstate  and  international 
conferences  have  been  held  with  a  view  to  obtain- 
ing coordination,  but  in  each  case  the  efforts  failed 
to  achieve  the  desired  cooperative  action.     How- 


824 


DEPARTMENT  OF  STATE  BULLETIN 


ever,  persons  interested  in  the  Great  Lakes  con- 
tinnetl  to  urge  tlie  need  for  effective  cooperative 
measures  for  the  benefit  of  the  fisheries,  and  the 
matter  has  received  the  continuing  consideration 
of  the  several  governments  concerned. 

In  1938  the  Council  of  State  Governments 
called  meetings  of  60  State,  Federal,  and  Provin- 
cial officials  to  study  the  problem.  These  meet- 
ings resulted  in  a  recommendation  that  an  inter- 
national board  of  inquiry  be  established  to 
consider  and  I'econnnend  measures  for  the  conser- 
vation of  the  Great  Lakes  fisheries. 

The  Governments  of  the  United  States  of  Amei'- 
ica  and  Canada,  under  an  agreement  signed  Febru- 
ai"y  29,  1940,  established  the  International  Board 
of  Inquiry  for  the  Great  Lakes  Fisheries  to  study 
the  taking  of  fish  in  the  Great  Lakes,  to  make  a  re- 
port of  its  investigations  to  the  two  Governments, 
and  to  make  recommendations  as  to  methods  for 
preserving  and  developing  the  fisheries  of  the 
Great  Lakes.  During  the  course  of  its  investiga- 
tions, the  Board  of  Inquiry  compiled  and  analyzed 
data  on  tlie  take  of  fish,  studied  the  fluctuations  in 
the  fisheries,  and  examined  into  the  possible  causes 
for  the  variations  in  quantities  and  species  of  fish 
taken.  In  addition,  the  views  of  public  officials, 
commercial  fishermen,  and  sportsmen  were  solic- 
ited with  respect  to  fluctuations  in  the  abundance 
of  the  various  species  of  fish  and  the  causes  of  the 
fluctuations,  with  respect  to  the  specific  measures 
which  should  be  taken  l)y  the  governments  to  im- 
prove the  fishing,  and  with  respect  to  the  form  of 
governmental  organization  which  would  be  most 
effective  in  regulating  and  rebuilding  the  fislieries. 
In  all,  29  public  hearings  were  held  throughout  the 
Great  Lakes  region,  in  which  some  1,500  public 
officials,  commercial  fislaermen,  and  sportsmen  par- 
ticipated. On  August  6,  1942,  the  Board  of  In- 
quiry submitted  its  report  to  the  Governments 
of  the  United  States  of  America  and  Canada, 
calling  attention  to  the  need  for  an  effective 
program  for  the  conservation  and  development 
of  the  Gr'eat  Lakes  fisheries  and  recommending 
joint  action  for  that  purpose  by  the  governments 
concerned.  A  copy  of  the  report  of  the  Board 
of  Inquiry  is  transmitted  herewith. 

The  Department  of  State,  in  collaboration  with 
the  Fish  and  Wildlife  Service  of  the  Department 
of  the  Interior,  made  a  careful  study  of  the  report 
and  recommendations  of  the  Board  of  Inquir}'.  It 
was  evident  from  consideration  given  the  matter 
that  measures  with  resj)e(t  to  tlic  fisheries  of  the 


Great  Lakes  could  be  made  effective  only  through 
coordinated  action  of  all  the  governments  con- 
cerned— Federal,  State,  and  Provincial.  At  the 
invitation  of  the  Department  of  State,  representa- 
tives of  the  Governors  of  the  eight  Great  Lakes 
States,  including  State  conservation  and  legal  of- 
ficers, advised  the  Department  at  various  stages 
in  the  development  of  the  convention. 

The  provisions  of  the  convention  may  be  sum- 
marized as  follows : 

Article  I  defines  the  waters  to  which  the  conven- 
tion applies. 

Article  II  provides  for  the  establishment  of  an 
International  Commission  for  the  Great  Lakes 
Fisheries,  to  be  composed  of  a  United  States  sec- 
tion and  a  Canadian  section  and  for  the  appoint- 
ment of  an  advisory  committee  for  each  lake  con- 
sisting of  representatives  designated  by  eacli  State 
or  Province,  as  the  case  may  be,  having  jurisdic- 
tion on  the  lake.  The  Commission,  the  national 
sections,  and  the  advisory  committees  are  to  be  con- 
stituted in  accordance  with  and  governed  by  the 
provisions  of  the  schedule  annexed  to  the  conven- 
tion. 

Article  III  provides  that  the  Commission  shall 
formulate  and  recouunend  specific  research  pro- 
grams of  observations  and  studies  of  the  Great 
Lakes  fisheries  to  be  carried  out  by  the  appropriate 
agencies  of  the  two  Governments  in  collaboration 
with  the  States  of  the  United  States  concerned  and 
the  Province  of  Ontario  as  well  as  with  other  in- 
stitutions and  facilities. 

Article  IV  requires  that  the  Commission  under- 
take to  develop  a  compi'ehensive  plan  for  the  ef- 
fective management  of  the  fishery  resources  of  the 
Great  Lakes  for  the  purpose  of  securing  the  maxi- 
mum use  of  those  resources  consistent  with  their 
Ijerpetuation.  This  article  provides  also  that  the 
Commission  may  make  regulations  fixing — 

(«)   Open  and  closed  seasons ; 

(b)  Open  and  closed  waters; 

(c)  The  size  limits  for  each  species  of  fish; 

( d )  The  time,  methods,  and  intensity  of  fishing ; 

(e)  The  type  and  specifications  of  the  nets, 
gear,  and  apparatus  and  appliances  which  may  be 
used ; 

(/)  The  methods  of  measurement; 
{g)  The  extent  and  natiu'e  of  stocking  opera- 
tions; 

(k)  The  introduction  of  new  species;  and 

(/)   Catch  returns  and  other  statistical  records 


MAY  12,  1946 


825 


as  may  be  iiecessan-  tu  give  effect  to  tiie  purposes 
of  this  convention. 

Pui'suant  to  the  provisions  of  article  IV,  the 
United  States  section  alone,  i.e.,  the  Amei-ican 
members  of  the  Commission,  will  act  in  matters 
relating  to  Lake  Michigan.  Regulations  affecting 
fishii\g  in  United  States  waters  will  not  become 
effective  until  apjjroved  by  the  President  of  the 
United  States ;  and  regulations  affecting  fishing  in 
Canadian  waters  will  not  become  effective  until 
api^roved  by  the  Governor  General  in  Council. 
Paragraph  10  of  the  schedule  annexed  to  the  con- 
A'ention  provides  that  regulations  made  and  ap- 
proved under  article  IV  shall  not  become  effective 
until  1  year  from  the  date  when  the  convention 
comes  into  force. 

Article  V  I'equires  that  the  Governments  of  the 
United  States  of  America  and  Canada  provide  for 
the  enforcement  of  the  regulations  in  their  own 
respective  waters.  It  is  provided,  however,  that 
in  United  States  waters  the  regulations  for  each 
lake  may  be  enforced,  in  the  first  instance,  by  the 
States  bordering  thereon  within  their  respective 
jui'isdictions.  With  respect  to  Canadian  waters 
the  regulations  may  be  enforced  in  the  first  in- 
stance by  the  Province  of  Ontario.  The  Commis- 
sion is  required  to  keep  itself  informed  as  to  the 
effectiveness  of  enforcement  and  to  report  to  the 
two  Governments  on  unsatisfactorj^  conditions  of 
enforcement.  Upon  the  receipt  of  complaints,  the 
Federal  Government  concerned  agrees  to  take  ap- 
jjropriate  action  to  insure  proper  enforcement. 

Article  VI  provides  that  nothing  in  the  conven- 
tion shall  be  construed  as  preventing  any  of  the 
governments  concerned  from  making  or  enforcing 
such  laws  or  regulations  within  their  respective 
jurisdictions  as  will  give  further  protection  to  the 
fisheries  of  the  Great  Lakes  j^rovided  that  such 
laws  or  regulations  are  not  inconsistent  with  the 
provisions  of  the  convention  or  with  the  regula- 
tions made  and  approved  thereunder. 

Article  VII  provides  for  the  prohibition  of  the 
shipment,  transport,  purchase,  sale,  import,  or 
export  of  fish  taken  from  the  Great  Lakes  in  viola- 
tion of  the  regulations  made  and  approved  under 
the  convention. 

Article  VIII  provides  that  licenses  to  fish  in  the 
waters  of  the  Great  Lakes  within  the  juiisdiction 
of  any  State  or  Province  may  continue  to  be  issued 


l)y  such  State  or  Province  in  accordance  with  its 
laws  and  sul>ject  to  such  fees  as  it  may  fix.  If 
licensing  is  necessary  to  give  effect  to  the  regula- 
tions of  the  Connnission.  and  if  any  State  or 
Province  fails  to  establish  or  maintain  adequate 
licensing,  the  appropriate  Federal  Government 
may  take  necessary  measures  to  provide  such 
licensing,  in  addition  to  that  of  the  State  or 
Province,  as  is  recjuired. 

Article  IX  contains  provisions  regarding  the 
enactment  and  enforcement  of  such  legislation  as 
may  be  necessary  to  give  effect  to  the  provisions  of 
the  convention  and  the  regulations  made  and 
approved  thereunder,  with  appropriate  penalties 
for  violations. 

Article  X  provides  for  the  ratification  of  the 
convention,  the  exchange  of  ratifications,  and  the 
entry  into  force  on  the  date  of  the  exchange  of 
ratifications.  This  article  provides  also  for  the 
continuance  in  force  of  the  convention  for  a  period 
of  10  years  and  thereafter  until  1  year  from  the 
day  on  which  either  of  the  high  contracting  parties 
shall  give  notice  to  the  other  high  contracting 
party  of  an  intention  of  ternunating  the  conven- 
tion. 

Eespectfully  submitted. 

James  F.  Byrnes. 

(Enclosures :  (1)  Great  Lakes  fisheries  conven- 
tion, (2)  report  of  the  International  Board  of 
Inquiry  for  the  Great  Lakes  Fisheries.^) 


Prime  Minister  of  Australia 
To  Visit  in  U.S. 

[Released  to  the  press  May  3] 

The  Prime  Minister  of  Australia,  Joseph  Bene- 
dict Chifley,  will  visit  Washington  as  a  guest  of 
the  Government  between  May  6  and  May  10. 

The  Prime  Minister  is  at  present  in  London  at- 
tending the  Conference  of  Prime  Ministei-s  of  the 
British  Commonwealth  and  is  returning  to  Aus- 
tralia by  way  of  the  United  States.  He  will  pro- 
ceed from  Washington  to  Tokyo  to  meet  General 
MacArthur. 

'  Not  printed. 


826 


DEPARTMENT  OF  STATE  BULLETIN 


Consideration  of  Japanese  Reparations 


[Released  to  the  press  April  25] 

The.  United  States  Government  is  currently  en- 
gaged in  jjreparing  proposals  for  submittal  to  the 
member  governments  of  the  Far  Eastern  Com- 
mission with  respect  to  the  handling  of  repara- 
tions from  Japan.  These  proposals  envisage  the 
establishment  of  an  inter-Allied  body  to  allocate 
Japanese  assets  declared  available  for  reparations 
among  the  countries  which  participated  in  the 
war  against  Japan. 

It  is  expected  that,  as  in  the  case  of  Germany, 
Japanese  holdings  abroad  and  certain  industrial 
facilities  in  Japan  will  be  utilized  for  reparations 
purposes.  All  transfers  of  such  industrial  facili- 
ties will  be  made  to  the  governments  whose  claims, 
based  on  war  costs,  war  damage,  and  similar  fac- 
tors, are  recognized. 

In  the  case  of  the  United  States,  as  soon  as 


necessary  congressional  and  other  authority  has 
been  secured,  information  will  be  released  by  the 
State  Department  as  to 

1.  the  classes  of  claims  which  will  be  entitled  to 
compensation  out  of  the  proceeds  of  reparations, 
and  i^rocedure  for  filing  such  claims; 

2.  the  procedure  for  submittal  by  private  per- 
sons and  organizations  of  requests  for  industrial 
equipment  allocated  to  the  United  States  Gov- 
ernment as  reparations; 

3.  the  procedure  for  sales  of  industrial  equip- 
ment and  other  assets  received  by  this  Govern- 
ment as  reparations  from  Japan. 

Until  rei^arations  policies  have  been  agreed  to 
on  an  inter-Allied  basis  no  action  can  be  taken 
by  this  Government  to  secure  and  distribute  Jap- 
anese assets  on  reparations  account. 


The  Department 


Appointment  of  William  L.  Langer  as 
Special  Assistant  to  the  Secretary 

[Released  to  the  press  April  29] 
The  Aetiug  Secretary  of  State  announced  on  April  2& 
the  apiiointment  of  William  L.  Langer  to  be  Special  Assist- 
ant to  the  Secretary  of  State  in  charge  of  Research  and 
Intelligence. 

Appointment  of  Officers 

Carl  B.  Spaeth  and  Gustavo  Duran  as  Special  A.ssistants 
to  the  Assistant  Secretary  for  American  Kepulilic  Affairs, 
effective  December  19,  194.J  and  .Tanuary  18,  194(5,  respec- 
tively. 

Vernon  L.  Phelps  as  Adviser  on  European  Commercial 
Affairs  in  the  Division  of  Commercial  Policy,  effective 
February  25,  1946. 

John  K.  Galbraith  as  Director  of  the  Office  of  Economic 
Security  Policy,  effective  February  1,  1946. 

Charles  P.  Kindlebergei-  as  Chief  of  tlie  Division  of 
German  and  .\ustrian  Economic  Affairs,  effective  Febru- 
ary 1,  1046. 

Ralph  H.  Ackerman  as  Chief  of  the  Division  of  Foreign 
Reporting  Services,  effective  February  25,  1946. 

Carlisle  H.  Humelsine  as  Director  of  the  Office  of  De- 
partmental Administration,  effective  March  11,  1946. 


John  E.  Peurifoy  as  Special  Assistant  to  the  Under 
Secretary,  effective  April  22,  1946. 

G.  Hayden  Raynor  as  Special  Assistant  to  the  Director 
of  the  Office  of  European  Affairs,  effective  April  22,  1946. 

Bennett  Boskey  as  Special  -Vdviser  to  the  Division  of 
Economic  Security  Controls,  effective  IMarch  19, 1946. 

Alan  N.  Steyne  as  Special  Assistant  to  the  Director  of 
the  Office  of  International  Trade  Policy,  effective  April 
29,  1946. 

William  E.  DeCourcy  as  Chief  of  the  Foreign  Service 
Inspectors  Corps,  effective  April  15,  1946. 

George  R.  Fearing,  Jr.,  as  Director  of  the  Office  of  In- 
telligence Collection  and  Dissemination,  effective  April 
29,  1046. 

William  D.  Wright  as  CTilef  of  the  Division  of  Central 
Services,  effective  February  24,  1946. 

Isaac  N.  P.  Stol^es  as  Associate  Chief  of  the  Division  of 
International  Organization  Affairs,  effective  April  29,  1946. 

Haywood  P.  Martin  as  Executive  Officer  in  the  Office  of 
the  Foreign  Service,  effective  April  29,  1946. 

Intelligence  Objectives 

1S.S.5  AdvisoeY  Committee  on  Intelligence  (ACI)  :  (Ef- 
fective 5-1-46) 
I        Functions.    The  Special  Assistant  to  the  Secretary 
for  Research  and  Intelligence  shall  consult  with  ACI  with 
respect  to  tlie: 


MAY  12,  1946 


827 


A  Establishment  iind  oooidination  of  Departmental 
intelligence  objectives  and  policies. 

B  Implementation  of  Depaitmental  iwlicy  with  re- 
spect to  the  National  Intelligence  Authority.' 

C  Participation  by  tlie  Department  in  any  centralized 
operations  or  projects  which  the  Director  of  the  National 
Intelligence  Anthority  may  propose. 

II  Membership.  ACI  is  composed  of  the  Special  Assist- 
ant to  the  Secretary  for  Research  and  Intelligence,  as 
Chairman  :  the  Assi.stant  Secretary  for  European,  Far  East- 
ern, Near  Eastern,  and  African  Affairs;  the  A.ssistant  Sec- 
retary for  American  Kepublic  Affairs;  and  the  Assistant 
Secretary  for  Administration. 

III  Meetings.  The  Committee  will  determine  the  time 
and  place  of  its  meetings  and  its  procedures. 

133.20  Office  of  Inteixigence  Coordination  and  Liaison 

(OCL)  :  (Effective  5-1-46) 
I  FtTNCTioNS.  Subject  to  appropriate  policy  coordina- 
tion by  the  Advisory  Committee  on  Intelligence,  as  provided 
In  Departmental  Regulation  1S;3.5,  OCL  is  responsible,  un- 
der the  general  direction  of  the  Special  Assistant  to  the 
Seeretar.v  for  Research  and  Intelligence,  and  in  collabora- 
tion with  the  Office  of  Intelligence  Collection  and  Dissemi- 
nation (0('D),  for  the  performance  of  the  following  func- 
tions : 

A  Representing  all  interested  elements  of  the  Depart- 
ment on  the  staff  of  the  National  Intelligence  Authority. 

B  Preparing,  in  cooperation  with  the  geographic  and 
economic  Offices,  si>ecial  intelligence  estimates  for  the  Sec- 
retary and  the  Under  Secretary,  the  Assistant  Secretaries, 
and  for  the  National  Intelligence  Authority. 

C  Establishing  and  maintaining  standards  of  research 
and  analysis  throughout  the  Department. 

I)  Formulating,  in  consultation  with  the  geographic 
and  economic  Otfice.s,  a  Departmental  program  for  basic 
research,  and  coordinating  and  stimulating  the  execution 
thereof. 

E  Oi'ganizing  and  supervising  projects  and  research 
cutting  across  the  lines  of  the  geographic  and  economic 
Offices. 

F  Conducting  specialized  research  on  economic  or 
other  technical  subjects. 

G  Maintaining  a  central  clearing  house  of  informa- 
tion i-egarding  research  studies  prepared  or  [tlanned  any- 
where in  the  Department. 

H  Maintaining  liaison  with  other  agencies  of  the  Gov- 
ernment, and  with  private  institutions,  for  the  purpose  of 
utilizing  all  possible  research  resources  to  meet  the  De- 
partment's needs. 

I  Collecting,  evaluating,  analyzing,  and  interpreting 
foreign  maps  and  other  cartograijhic  intelligence ;  main- 
taining a  comprehensive  collection  of  maps,  atlases,  gaz- 
eteers,  and  other  cartographic  research  material ;  and 
preparing  new  maps  as  required. 

133.30  Office  of  Intelligence  Collection  and  Dissemina- 
tion (OCD)  ;  (Effective  1-1-46) 

I  Functions.  OCD  shall  be  responsible,  under  the 
general  direction  of  the  Special  Assistant  to  the  Secretary 
for  Research  and  Intelligence,  for  ; 


A  Acquiring  and  distributing  Intelligence  source 
materials. 

B  Maintaining,  cataloging,  and  indexing  the  central 
collection  of  intelligence  materials  and  reports  of  the 
Department. 

C        Presenting  and  distributing  finished  intelligence. 

II  Organization.  OCD  shall  be  composed  of  the  fol- 
lowing organization  units,  with  routing  symbols  as 
indicated : 

A        Office  of  the  Director  (OCD) 

B        Division  of  Intelligence  Acquisition  and  Distribu- 
tion (IAD) 
C        Intelligence  Reference  Division  ( REF ) 
D        Division  of  Biographic  Intelligence  (BI) 
E        Presentation  Division  (PN) 

III  Functions  of  the  Office  of  the  Direictor.  The 
Office  of  the  Director  of  OCD  shall  be  responsible  for  coor- 
dinating and  directing  the  activities  of  the  component  Divi- 
sions of  the  Office.  In  addition,  it  shall,  in  accordance  with 
assignments  determined  by  tlie  Director  of  OCD  in  coojier- 
ation  with  appropriate  officials,  be  responsible  for  seeing 
that  intelligence  jjersonnel  attached  to  diplomatic  and  con- 
sular posts  are  utilized  in  assembling  data  and  conducting 
research  in  foreign  countries.  Such  assignments  will  also 
be  made  in  close  cooperation  with  the  Office  of  the  Foreign 
Service  (OFS)  in  order  to  achieve  maximum  utilization  of 
the  research  facilities  of  both  the  Foreign  Service  and  the 
intelligence  staff  abroad.     (Revised  5-1-46) 

140.1  Geographic  Offices:   (Effective  5-1-46) 

I  Divisions  of  Research.  The  Divisions  of  re.search 
in  the  several  geograpliic  Offices  are  as  follows : 

A  Division  of  Research  for  Near  East  and  Africa 
(DRN)  in  the  Office  of  Near  Eastern  and  African  Af- 
fairs (NEA). 

B  Division  of  Research  for  Far  East  (DRF)  in  the 
Office  of  Far  Eastern  Affairs  (FE). 

C  Divi-sion  of  Research  for  Europe  (DRE)  in  the 
Office  of  Euroi)ean  Affairs   (EUR). 

D  Division  of  Researeli  for  American  Republics 
(DRA)  In  the  Office  of  American  Republic  Affairs 
(ARA). 

II  Functions.  Each  of  the  Divisions  of  research 
shall  be  responsible,  under  the  general  direction  of  the 
Director  of  its  Office,  for  providing  evaluated  positive  in- 
formation on  the  foreign  countries  under  the  jurisdiction 
of  its  Office  as  an  aid  to  the  formulation  and  implemen- 
tation of  foreign  poli,cy.  In  discharging  this  responsi- 
bility, each  of  the  Divisions  of  research  shall  be  respon- 
sible, specifically  and  within  its  assigned  area,  for: 

A  Preparing  sjiecial  Intelligence  estimates  as  re- 
quired. 

B  Collal>orating  with  the  Office  of  Intelligence  Co- 
ordination and  Liaison  (OCL)  in  tlie  formulation  of  a 
Departmental  program  of  basic  research. 

C  Planning  and  implementing  a  program  of  research 
and  analysis,  integrated  with  the  Departmental  program, 
to  meet  the  neeils  of  its  Office  and  of  the  Department. 

'  Bulletin  of  Feb.  3,  1946,  p.  174. 


828 


D  Maiutainiug  .stamlanls  of  research  and  analysis 
established  by  OCL. 

E  Collaborating  with  OCIj  and  other  Divisions  of 
i-esearch  in  projects  cutting  across  the  lines  of  the  several 
geographic  and  economic  Offices. 

F  Collaborating  with  the  Otflce  of  Intelligence  Col- 
lection and  Dissemination  lOCD)  in  planning  the  De- 
partmental ijrograni  of  information   procurement. 

Ill  Organization.  Each  Division  of  research  .shall  be 
organized  in  geographic  sections  corresponding  to  the 
geographic  Divisions  of  its  Office. 


Confirmations 

On  April  12,  1!)46.  the  Senate  confirmed  the  nomination 
of  William  D.  Pawley  to  be  Ambassador  Extraordinary  and 
Plenipotentiary  of  the  United  States  to  Brazil. 

On  April  22,  1946,  the  Senate  confirmed  the  nomination 
of  George  V.  Allen  to  be  Ambassador  Extraordinary  and 
I'lenipotentiary  of  the  United  States  to  Iran. 

On  April  26,  1&46  the  Senate  confirmed  the  nomina- 
tions of  Joseph  Flack  to  be  Ambassador  Extraordinary 


DEPARTMENT  OF  STATE  BULLETIN 

and  I'lenipotentiary  of  the  United  States  to  Kolivia. 
J.  Rives  Childs  to  be  Envoy  Extraordinary  and  Minister 
Plenipotentiary  of  the  United  States  to  the  Kingdom  of 
Saudi  Arabia,  and  Edwin  P.  Stanton  to  be  Envoy  Ex- 
traordinary and  Minister  Plenipotentiary  of  the  United 
States  to  Siam. 

Ou  April  29,  1946  the  Senate  confirmed  the  nomination 
of  Lowell  C.  Pinkerton  to  be  Envoy  Extraordinary  and 
Minister  Plenipotentiary  of  the  United  States  to  Iraq. 

On  Jlay  1,  1946  the  Senate  confirmed  the  nomination  of 
Prentice  Cooper  to  be  Ambassador  Extraordinary  and 
Plenipotentiary  of  the  United  States  to  Pern. 

Diplomatic  and  Consvilar  Offices 

The  American  I'jmbassy  at  Chungking,  China,  was  closed 
on  April  23,  1946  and  was  reestablished  as  a  combined 
office  at  Nanking,  China,  on  April  24.  The  post  at  Chung- 
king was  reestablished  as  a  Consulate  on  April  26. 

The  Consulate  at  Saigon,  French  Indochina,  was  opened 
to  the  public  on  April  27, 1946. 


Erratum 


In  BiLi.ETiN  of  April  7.  1946,  pages  .">6S  and  570,  in  foot- 
note 1,  substitute  "25th  Meeting  of  the  Security  Council" 
for  "26th  Meeting  of  the  Security  Council". 


PUeilSHED    WITH    APPROVAL    OF    OtRECTOR    OF    BUREAIJ    OF    THE    BUDGET 
U.  S.  GOVERNMENT  PRINTING    OFFICE;   1946 


THE  DEPARTMENT  OF  STATE 

umin 

VOL.  XIV,  NO.  359  MAY  19,  1946 


U.  S.  Responsibilities  in  the  European  Food  Crisis     " 

Articlelby  JAMES  A.  STILLWELL page  831 

Private  International  Air  Law:  14th  Plenary 
Session  of  CITEJA 

Article  ))y  STEPHEN  LATCH  FORI) .       page  835 

The  West  Indian  Conference 

Article  by  ELIZABETH  H.  ARMSTRONG page  840 


For  complete  coutents  ^   v^&^^a^^sM^?    ^ 

see  inside  cover 


U.  o.  iUrtniiiii." 


THE  DEPARTMENT  OF  STATE 


BULLETIN 


Vol.  XIV -No.  359- 


•  Publication  253."^ 


*Nt,<,  o»  "■ 


May  19,  1946 


For  Bale  by  the  Superintendent  of  Documents 

U.  S.  Government  Printing  Office 

Washington  25.  D.  C. 

Subscription: 

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The  Department  of  State  BULLETIK, 
a  weekly  publication  compiled  and 
edited  in  the  Division  of  Research  and 
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provides  the  public  and  interested 
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includes  press  releases  on  foreign 
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JUN  19  1946 


Contents 


U.S.  Responsibilities  in  the  European  Food  Crisis.  Page 

Article  by  James  A.  Stilhvell 831 

Private    International    Air   Law:      14th    Plenary    Session    of 
CITEJA. 
Article  by  Stephen  Latchford 835 

Report  on  the  West  Indian  Conference. 

Article  by  Elizabeth  H.  Armstrong 840 

Trial  of  Far  Eastern  War  Criminals: 

The  Indictment 846 

Japanese  War  Leaders  Indicted  for  Waging  Wars  of  Aggres- 
sion and  Committing  Wholesale  Murder 847 

The  United  Nations 

The  Security  Council: 

Summary  Statement  by  the  Secretary-General  of  Matters 
of  Which  the  Security  Council  is  Seized  and  of  the 

Stage  Reached  in  Their  Consideration 849 

Statement    by   the    Delegations    of    the    Four   Sponsoring 
Governments   on    Voting    Procedure    in    the    Security 

Council 851 

Discussion    of    Soviet-Iranian    Matter    at    40th    Meeting: 

Remarks  by  the  U.S.  Representative 853 

Letter  From  the  Iranian  Ambassador  to  the  President  of 

the  Security  Council 854 

Proposal  by  the  U.S.  for  the  Establishment  of  a  Subcommission 

on  Freedom  of  Information 855 

United    Nations    War    Crimes    Commission:  Resignation    of 

Joseph  V.  Hodgson 855 

International  Organizations  and  Conferences 

Calendar  of  Meetings 856 

Activities  and  Developments: 

First  Meeting  of  the  International  Fund  and  Bank  ....  856 

Conference  on  Non-Repatriable  Victims  of  German  Action  .  857 

PICAO 857 

UNRRA  Council:   Fourth  Session 857 

FAO:  Special  Meeting  on  Urgent  Food  Problems 858 

The  Record  of  the  Week 

First  Anniversary  of  V-E  Day:  Statement  by  the  President  .        859 
The  Inter-American  Military  Cooperation  Act:  Letter  From 

the  President  to  the  Congress 859 

Addresses  of  the  Week 860 

Exchange  of  Messages  on  the  Food  Crisis  in  India: 
Continuation   of   Combined   Food   Board   Operations:   Joint 

Statement  by  the  President  and  the  Prime  Ministers  of 

Great  Britain  and  Canada 861 

International  Short- Wave  Broadcasting  Committee 862 

*Anglo-American  Rice  Commission 863 

♦Agreement  Proposed  With  U.K.  for  Use  of  Leased  Bases  by 

Civil  Aircraft 864 

Invitations  Extended  for  Witness  of  Atomic-Bomb  Tests    .    .        864 
British  Officials  To  Discuss  Food  Crisis  With  the  President  .        864 

*  Treaty  Information. 

(Continued  on  page  87 S) 


U.  S.  Responsibilities  in  the  European  Food  Crisis 


Article  by  JAMES  A.  STILLWELL 


MOKE  THAN  100,000,000  people  in  Europe,  and 
at  least  as  many  in  Asia,  are  now  on  the 
verge  of  starvation.  Unfortunately  the  horrors  of 
war  do  not  end  with  the  shooting,  and  there  can  be 
no  real  peace  in  the  world  before  we  mobilize  to  de- 
feat famine  as  we  mobilized  to  defeat  tyranny. 
The  people  of  Europe  flooded  their  fields  and  de- 
stroyed their  bridges  in  order  to  help  us  defeat  the 
common  enemy.  Allied  air  forces  concentrated 
many  bombs  on  continental  railways  and  high- 
ways, marshaling  yards  and  locomotive  factories, 
so  that  opposition  could  be  smashed  and  our  troops 
could  move  forward.  The  problem  of  helping  our 
Allies  reconstruct  their  devastated  lands  and  de- 
velop an  atmosphere  in  which  the  democratic  spirit 
may  flourish  is  clearly  one  of  joint  responsibility. 

The  world's  food  shortages  are  now  so  serious 
that  every  country  must  survey  its  own  needs  in 
relation  to  those  of  less  fortunate  countries.  The 
world  food  shortage  is  now  so  alarming  that  all 
nations  must  scale  down  the  consumption  and 
shai'e  the  deficit  if  mass  starvation  is  to  be  averted. 

Hungry  jjeople  are  not  reasonable  people.  Their 
thoughts  are  concerned  with  their  own  misery  and 
particularly  with  the  tortured  cries  of  their  hun- 
gry children.  They  are  easy  victims  of  mass  hys- 
teria. When  people  become  frightened  elements 
of  a  mob,  democratic  precepts  mean  nothing. 

Only  a  few  short  months  ago  the  stated  import 
requirements  of  wheat  for  the  deficit  areas  of  the 
world  were  17,000,000  tons  for  the  first  six  months 
of  1946,  but  the  severity  of  the  drought  in  south- 
eastern Europe  and  Mediterranean  countries 
turned  out  to  be  much  greater  than  was  realized. 
Even  greater  has  been  the  disappointment  in  the 
collections  from  farmers  and  the  conunercialization 
of  crops.  Only  a  fraction  of  the  amount  that 
should  have  been  collected  from  farmers  in  order 
to  feed  urban  cities  came  under  government  con- 
trol. Black  markets,  hoarding,  feeding  to  live- 
stock at  a  time  when  maximum  efforts  should  have 


been  made  to  mobilize  supplies  for  feeding  human 
beings,  lack  of  interior  transportation  facilities — 
all  these  were  responsible  for  the  crisis  that  de- 
veloped at  the  end  of  last  year  and  that  threatens 
to  assume  catastrophic  dimensions  this  year. 

Never  during  the  past  40  or  50  years  have  so 
many  areas  been  hit  simultaneously  by  severe 
drought.  During  the  months  of  November,  De- 
cember, January,  and  February  the  crop  news 
from  India,  South  Africa,  and  various  areas  in 
southeast  Asia  became  progressively  worse.  Fail- 
ure of  the  monsoon  in  India  was  accompanied 
by  a  number  of  other  extraordinarily  unfavorable 
developments  which  greatly  reduced  the  prospects 
of  a  favoi'able  crop. 

On  the  other  hand,  exportable  supplies  from 
many  countries  failed  to  materialize  in  antici- 
pated quantities.  As  a  result  the  world  import  re- 
quirements are  now  over  20,000,000  tons  of  grain. 
The  surplus-producing  areas  will  have  to  exert 
extraordinary  efforts  to  provide  even  11,000,000 
tons  before  the  next  liarvest.  This  amount  leaves 
a  total  deficit  of  about  9,000,000  tons.  The  prob- 
lem created  by  this  deficit  is  the  responsibility  of 
the  whole  world.  It  is  obvious  that  the  supply- 
ing nations  cannot  do  the  job  alone.  Distribution 
must  be  improved  in  every  country  and  the  fullest 
use  must  be  made  of  indigenous  stocks  and  pro- 
duction. 

The  United  States,  however,  is  the  largest  wheat- 
surplus  area.  We  are  also  fortunate  to  have  here 
a  variety  of  other  foods  available  for  our  own 
consumption.  As  always,  the  greatest  responsi- 
bility falls  to  those  who  have  the  greatest  re- 
sources. People  in  the  war-torn  areas  who  have 
watched  the  United  States  mobilize  and  send 
across  the  ocean  the  greatest  armada  of  tanks  and 
planes  and  ships  that  the  world  has  ever  seen  can- 
Mr.  Stillwell  is  Adviser  on  Supplies  in  War  Areas  in  the 
OflSce  of  International  Trade  Policy,  Department  of  State. 

831 


832 


DEPARTMENT  OF  STATE  BULLETIN 


not  understand  why  it  is^  not  jxjssible  for  us  to 
ship  them  any  quantity  of  food  that  may  be 
needed.  They  reason  that  since  we  so  successfully 
supplied  the  world's  largest  expeditionary  forces 
and  at  the  same  time  furnished  tremendous  quan- 
tities of  both  military  and  civilian  supplies  to  our 
Allies,  surely  we  can  meet  the  present  civilian  de- 
mands for  food. 

Up  to  now  we  have  done  a  very  creditable  job. 
Since  D-Day  our  total  exports  of  food  and  coal 
alone  have  amounted  to  more  than  28,000,000  tons. 
Coal  is  as  essential  to  economic  existence  in  Europe 
as  wheat.  In  pre-war  times  the  United  States 
shipped  less  than  50,000  tons  of  coal  a  year  to 
Europe;  in  the  month  of  March  we  shipped 
2,040,000  tons  to  the  same  area.  In  the  first  three 
months  of  1946  we  have  shipped  over  5,500,000 
tons  of  coal  to  the  war-torn  areas.  To  ship  tliat 
amount  we  have  had  to  utilize  port  facilities  that 
were  not  designed  for  loading  coal  ships.  We  are 
even  shipping  coal  from  Utah  via  Long  Beach. 
California,  to  Euroj^e.  Unfortunately,  our  ship- 
ments of  coal  for  April  dropped  to  less  than  800,- 
000  tons. 

Even  though  we  are  exporting  more  wlieat  a 
month  now  than  we  exi)orted  a  year  before  the 
war  it  is  not  enough.  Last  December  we  an- 
nounced our  intentions  to  provide  6,000,000  tons 
of  wheat  to  the  deficit  areas  in  the  first  six  months 
of  1946.  That  is  1,000,000  tons  a  month,  but 
in  the  first  three  months  our  shipments  totaled 
only  2,630,000  tons  and  our  shipments  in  April 
were  only  582.000  tons.  In  ordinary  times  a 
shortage  of  650,000  tons  in  the  shipment  of 
wheat — spread  over  a  four-month  period — would 
not  be  so  bad,  but  today  it  is  tragic.  In 
January  it  was  anticipated  that  the  other  major 
supplying  countries  would  ship  at  least  5,000,000 
tons  of  wheat  in  the  first  half  of  this  year.  It 
appears  now  that  both  Canada  and  Australia  will 
achieve  their  quotas  but  Argentina  has  not  ex- 
ported the  amount  anticipated.  Even  if  all  the 
supplying  countries  succeed  in  sliipjiing  the  total 
of  the  original  quotas,  the  world  import  deficit 
would  still  be  about  9,000,000  tons.  Unless  this 
deficit  can  be  greatly  decreased  mass  starvation 
will  most  certainly  develop  in  some  areas. 

None  of  us  would  be  willing  to  accept  the  task 
of  deciding  who  shall  starve.  It  has  always  been 
the  policy  of  this  Govermnent  to  feed  our  Allies 
first — but  we  cannot  sentence  our  enemies  to 
starvation. 


The  food  crisis  threatens  to  undermine  the  very 
foundation  of  order  upon  which  we  hoped  to  build 
world-wide  peace.  There  is  only  one  prevention 
for  this  threatening  catastrophe — the  shipment  of 
every  possible  ton  of  food  to  the  areas  of  most 
urgent  need  during  the  next  few  months.  All 
supplying  countries,  then,  must  greatly  increase 
the  present  rate  of  shipments.  Certainly  the 
United  States  must  not  fail  to  meet  its  moral  ob- 
ligations. The  American  people  have  shown  an 
overwhehning  willingness  to  do  the  job.  Every 
jjublic-opinion  jjoll  has  clearly  indicated  that  will- 
ingness. Moreover,  most  of  the  citizens  realize 
that  the  meat  consumj^tion  in  this  country  has 
increased  about  33l^  percent  and  that  bread  con- 
smnption  lias  increased  by  about  15  percent  over 
the  pre-war  level.  They  are  willing  to  reduce 
consumption  to  pre-war  levels,  but  they  need  the 
(iovernment's  help.  This  help  is  already  being 
given  in  the  case  of  fats  and  oils  and  meats  where 
the  Government  sets  aside  a  certain  proportion  of 
production  for  foreign  exi:)ort. 

For  the  purpose  of  establishing  an  emergency 
conservation  program  in  this  country,  President 
Truman  requested  several  outstanding  citizens  in- 
cluding former  President  Hoover  and  the  former 
War  Food  Administrator,  Chester  Davis,  to  estab- 
lish a  Famine  Emergency  Committee.  The  state- 
ment of  world  import  requirements  has  grown  by 
leaps  and  bounds  because  of  continued  droughts  in 
the  various  crop-growing  areas  of  the  world  until 
it  now  appears  that  over  21,000,000  tons  of  grain 
will  have  to  be  shipped  into  the  deficit  areas  in 
order  to  maintain  a  very  minimum  diet  until  the 
next  crops  are  harvested.  Under  present  condi- 
tions it  is  apparent  that  the  major  supplying 
countries  will  be  able  to  procure  and  ship  no  more 
than  11,000,000  tons.  Under  present  circum- 
stances this  deficit  amounts  to  10,000,000  tons  even 
in  the  event  that  some  of  the  importing  countries 
might  possibly  reduce  their  rations  still  further 
and  thereby  cut  down  their  requirements  for  im- 
ported grain.  It  is  not  conceivable  that  the  total 
requirements  could  be  reduced  l)y  more  than 
1,000,000  or  2,000,000  tons. 

The  fact  that  it  now  appears  that  we  will  export 
less  than  5,000,000  tons  of  grain  from  the  United 
States  during  the  first  lialf  of  1046  is  proof  enough 
that  real  action  is  necessary  not  only  on  the  part 
of  the  Government  but  also  on  the  part  of  every 
citizen  of  this  country.  The  Famine  Emergency 
Committee  has  asked  the  American  people  to  re- 


i 


MAY  19,  1946 


833 


duce  their  consumption  of  bread  and  other  cereal 
pro(hicts  by  40  jjercent  and  to  reduce  their  con- 
sumption of  fats  and  oils  by  20  percent  in  order 
that  there  may  be  enough  supplies  left  in  our 
stocks  to  meet  our  export  commitments. 

This  committee  has  formulated  guiding  prin- 
ciples for  the  voluntary  conservation  of  food.  The 
Department  of  Agriculture's  Information  Section 
has  published  information  which  will  be  of  help, 
not  only  for  the  conservation  of  wheat,  but  also- 
for  fats  and  oils  and  other  foods  as  well.  This 
information  is  designed  for  various  groups  and 
makes  valuable  suggestions  to  farmers,  house- 
wives, wholesalers,  and  retailers  who  want  to  co- 
operate. Suggestions  are  made  on  how  bread  may 
be  conserved,  for  if  every  American  will  save  two 
slices  of  bread  a  day,  there  will  be  enough  to  give 
20,000,000  starving  people  their  daily  bread  for 
the  next  six  months.  Suggestions  are  made  on  the 
saving  of  fats  and  oils,  for  it  is  estimated  that  a 
teaspoon  of  fat  a  day  saved  by  every  man,  woman, 
and  school  child  in  the  United  States  will  mean 
a  total  saving  of  at  least  1,000,000  pounds  of  fat 
a  day  which  could  be  exported  to  the  war-torn 
areas. 

The  American  people,  no  doubt,  are  both  will- 
ing and  anxious  to  make  more  sacrifice.s  in  order 
to  provide  additional  food  to  the  starving  people. 
The  American  people  are  not  going  to  be  satisfied 
with  anything  short  of  the  maximum  effort  on 
the  part  of  our  Goveiiiment  and  every  citizen  of 
the  United  States  to  provide  and  transport  every 
possible  ton  of  food  to  the  people  of  the  war-torn 
areas  between  now  and  the  time  the  new  crops  are 
harvested. 

Grains  are  the  backbone  of  a  large  pait  of  the 
world's  diet.  In  addition  to  the  question  of  prefer- 
ence, grains,  particularly  wheat,  are  much  easier 
to  ship  than  other  foods.  From  the  financial  point 
of  view  they  are  also  cheaper.  Increased  grain 
shipments  are,  therefore,  the  only  way  of  solving 
the  short-run  problem,  that  is,  the  problem  of 
preventing  starvation  between  now  and  the  next 
harvest. 

This  short-run  problem  is  the  one  about  which 
President  Truman  spoke  on  February  6,^  and  which 
Mr.  Hoover  and  the  Famine  Emergency  Commit- 
tee are  striving  to  solve  through  the  conservation 
campaign.  It  is  important  that  we  cooperate  to 
the  fullest  with  this  voluntary  campaign.  It  is 
also  important  that  we  do  not  allow  our  remain- 


ing wheat  stocks  to  become  dissipated.  The  time 
is  too  short  to  institute  a  rationing  system  for  the 
mid-summer.  It  will  be  necessary  to  withdraw 
grain  from  the  distribution  level  if  we  are  to 
prevent  a  further  excessive  dissipation  of  our 
dwindling  supplies. 

Even  with  these  new  measures,  however,  a  most 
vigorous  ixirchasing  program  must  be  carried  di- 
rectly to  the  farms  on  a  house-to-house  canvass 
basis  if  the  quantities  of  wheat  and  corn  required 
are  to  be  secured.  In  addition,  the  full  coopera- 
tion of  the  millers,  food  processors  and  bakers,  as 
well  as  all  of  the  farmers  of  this  country,  is  essen- 
tial to  assure  the  successful  attainment  of  the  ex- 
port goals  announced. 

We  must  not  overlook  the  longer-range  prob- 
lem— a  world  food  shortage  is  likely  to  exist  for  the 
next  two  or  more  years.  Even  though  nature  may 
be  kinder  to  us  next  year  than  this  year,  the  short- 
age of  fertilizer  and  seed  and  the  problem  of  soil 
depletion  and  lack  of  adequate  machinery  and  man- 
power are  such  that  subnormal  crops  must  be 
expected.  The  Emergency  Economic  Committee 
for  Europe,  an  emergency  organization  of  the 
governments  of  westein  Europe,  has  been  meet- 
ing in  London  with  the  Director  General  of  the 
United  Nations  Food  and  Agriculture  Organiza- 
tion in  an  effort  to  tackle  some  of  the  long-run, 
as  well  as  the  immediate,  problems.  They  have 
been  discussing  informally  the  best  means  of  col- 
lecting, analyzing,  and  disseminating  statistical, 
economic,  and  scientific  information  pertinent  to 
the  work  of  the  Food  and  Agriculture  Organiza- 
tion. Only  the  European  area  has  been  consid- 
ered at  this  meeting,  but  similar  meetings  are 
jjlanned  in  other  parts  of  the  world  to  discuss 
problems  of  other  areas  such  as  the  Far  East  and 
the  Americas. 

The  United  Nations  Food  and  Agriculture  Or- 
ganization plans  to  meet  in  Washington  beginning 
May  20  with  a  view  to  coordinating  efforts  to  meet 
world  food  needs  in  the  winter  of  1946-47  and 
throughout  the  following  year. 

To  speed  the  movement  of  wheat  from  the  farms 
in  this  country,  the  Department  of  Agriculture 
on  April  3  announced  that  it  would  buy  wheat 
from  farmers,  for  immediate  delivery  to  the  Com- 
modity Credit  Corporation,  at  the  market  price  on 
any  later  date  the  seller  might  elect  on  or  before 
March  31, 1947 ;  and  on  April  19  it  added  a  bonus  of 

'  Bulletin  of  Feh.  17, 1946,  p.  246. 


834 


DEPARTMENT  OF  STATE  BULLETIN 


30  cents  a  bushel  if  delivered  before  May  25.  This 
should  eliminate  any  tendency  to  hold  present 
wheat  stocks  in  anticipation  of  higher  prices.  I 
believe  that  most  of  our  American  farmers  would 
release  their  wheat  without  consideration  for 
price — if  they  realized  the  seriousness  of  the 
situation. 

Accordingly,  the  Secretary  of  Agriculture  has 
announced  additional  Government  restrictions 
which  are  designed  to  make  it  possible  for  this 
Government  to  ship  a  total  of  3,300,000  tons  of 
grain  to  the  deficit  areas  by  June  30.  These  new 
measures  include  further  restriction  upon  the  in- 
ventories of  millers  and  food  manufacturers  and 
provide  for  the  Government's  securing  any  stocks 
in  excess  of  21  days'  supply  which  such  manufac- 
turers may  hold.  The  new  orders  also  limit  the 
amount  of  wheat  that  can  be  used  for  domestic 
food  processing  to  75  percent  of  the  amount  so 
processed  in  comparable  months  of  last  year.  This 
order  will  directly  reduce  the  amount  of  bread 
which  is  being  made  available  to  the  American 
consumer  by  over  25  percent  since  the  mills  of  this 
country  are  presently  operating  at  a  higher  rate 
than  they  were  in  the  same  period  last  year. 

Tlie  recent  order  issued  by  the  Department  of 
Agriculture  on  April  19  will  reduce  the  domestic 
consumption  of  wheat  in  this  country.  This  order 
does  not  affect  the  production  of  flour  for  export, 
but  will  limit  the  amount  of  flour  to  be  distributed 
domestically  in  all  channels  to  75  percent  of  nor- 
mal. 

The  first  of  these  measures  will  bring  more 
wheat  to  market.  The  second  will  reduce  the 
amount  of  flour  available  to  the  American  con- 
sumer. These  two  measures  supi^lement  the  Presi- 
dent's nine-point  program  of  February  6  and  the 
measures  taken  to  implement  it.  The  President's 
nine-point  program  includes : 

1.  Campaign  to  conserve  food — e specially 
bread — by  consumers,  retailers,  and  bakers. 

2.  Stopping  use  of  wheat  and  limiting  use  of 
other  grains  for  alcohol  and  beer.  Saving :  20,000,- 
000  bushels  of  grain  by  June  30. 

3.  Extracting  more  flour  from  wheat  (80  per- 
cent instead  of  72  percent)  and  limiting  distribu- 
tion of  flour.  Saving :  25,000,000  bushels  of  wheat 
by  June  30. 

4.  Control  over  inventories  of  wheat  and  flour. 

5.  Rail  priorities  for  wheat,  corn,  meat,  and 
other  essential  foods. 


6.  Control  over  exports  of  wheat  and  flour. 

7.  Export  of  365,000  tons  of  fats  and  oils,  1.6 
billion  pounds  of  meat,  and  increase  in  exports  of 
dairy  products,  particularly  cheese  and  evaporated 
milk. 

8.  Additional  shipping  for  food  to  Europe  and 
for  movement  of  Philippine  copra  (for  cocoanut 
oil). 

9.  Conservation  of  grain  used  for  feeding  live- 
stock. 

The  following  measures  were  announced  on 
April  19 : 

1.  The  Government  is  requiring  millers  to  re- 
duce the  production  of  wheat  flour  for  use  in  this 
country  to  75  percent  of  the  amount  they  dis- 
tributed for  that  purpose  in  the  corresponding 
months  last  j'ear. 

2.  Food  manufacturers  are  required  to  limit 
their  use  of  wheat  to  75  percent  of  the  amounts 
they  used  in  the  same  months  of  1945. 

3.  Millers  and  food  manufacturers  having  in- 
ventories of  wheat  in  excess  of  an  amount  neces- 
sary to  operate  21  days  will  not  be  permitted  to 
grind  unless  they  make  this  excess  wheat  or  flour 
equivalent  available  to  the  Government. 

4.  The  fourth  measure,  a  bonus  of  30  cents  a 
bushel  on  wheat  delivered  under  the  certificate 
plan  before  May  25,  is  to  encourage  immediate 
delivery  of  increased  amounts  of  wheat.  Our  ship- 
ments abroad  lagged  badly  in  April — and  we  are 
detei'mined  to  meet  our  goals. 

5.  The  Department  of  Agriculture  is  inaug- 
urating a  corn-purchase  program  in  order  to  divert 
more  corn  from  use  as  livestock  feed  to  use  as 
human  food.  In  buying  for  this  purpose,  the 
Department  will  pay  producers,  until  fui'ther 
notice,  a  bonus  of  30  cents  a  bushel  above  the  mar- 
ket price  on  the  date  of  delivery. 

6.  This  Government  ofi^ers  to  buy  an  unlimited 
amount  of  oatmeal  from  the  millers  of  the  United 
States.  Whole  oats  will  also  be  purchased  for 
relief  shipment. 

In  addition  the  Office  of  Defense  Transportation 
has  given  transportation  priorities  to  foods  that 
are  to  be  shipped  abroad. 

The  Office  of  Price  Administration  has  agreed 
to  a  10-percent  reduction  in  the  weight  of  bread 
with  no  lowering  of  bakers'  price  ceilings.  How- 
ever, the  sale  of  "underweight"  bread  in  many 
(^Contiiiiicd  on  page  So}) 


MAY  19,  1946 


835 


Private  International  Air  Law: 
Fourteenth  Plenary  Session  of  CITEJA 

Article  by  STEPHEN  LATCHFORD  ' 


THE  14TII  PLENARY  SESSION  of  the  CITEJA 
meetings  which  were  held  in  Paris  from  Janu- 
ary 22  to  29,  1916 — was  tlie  first  session  to  be  held 
by  the  CITEJA  since  the  outbreak  of  the  war.=  An 
unusually  large  number  of  countries  were  repre- 
sented. Prior  to  the  war,  the  average  attendance 
was  by  representatives  of  from  15  to  20  countries. 
According  to  a  list  fui-nished  by  the  Secretary 
General  of  the  CITEJA,  34  countries  were  repre- 
sented at  the  Januarj'  1946  meetings  as  follows: 
Afghanistan,  Argentina,  Australia,  Belgium,  Bra- 
zil, Bulgaria,  Canada,  Chile,  China,  Czechoslova- 
kia, Denmark,  Dominican  Republic,  Egypt, 
France,  Great  Britain,  Greece,  Haiti,  Iran,  Italy, 
Lebanon,  Luxembourg,  Mexico,  the  Netherlands, 
Peru,  Poland,  Portugal,  Rumania,  Spain,  Sweden, 
Switzerland,  Syria,  Turkey,  United  States,  and 
Yugoslavia.^  Of  the  countries  listed,  Afghanis- 
tan, Australia,  Brazil,  Mexico,  Rumania,  and  Yu- 
goslavia were  represented  by  observers.  Albert 
Roper,  Secretary  General  of  PICAO  and  o,f 
CINA,  and  E.  R.  Marlin,  liaison  officer  of  PICAO, 
also  participated  in  the  meetings. 

The  United  States  Delegation  consisted  of  the 
following  members: 

Stephen  Latchford,  Chairman  of  the  Delega- 
tion ; 

Arnold  W.  Knauth,  Member  of  the  United  States 
Section  of  CITEJA,  and  Chairman  of  the  Ad- 
visory Committee  to  the  United  States  Section; 

Emory  T.  Nunneley,  Jr.,  Assistant  General 
Counsel,  Civil  Aeronautics  Board; 

Howard  B.  Railey,  Civil  Air  Attache,  American 
Embassy,  Paris. 

The  large  attendance  at  the  January  194G  meet- 
ings of  the  CITEJA  was,  it  is  believed,  the  result 
of  two  factors :  First,  Resolution  No.  VII  of  the 
International  Civil  Aviation  Conference  held  in 
Chicago  in  November  and  December  1944,  in  which 


it  was  recommended  that  the  various  countries  rep- 
i-esented  at  Chicago  give  consideration  to  the  de- 
sirability of  bringing  about  the  resumption  of  the 
CITEJA  sessions  and  of  appointing  legal  experts 
to  attend  the  CITEJA  meetings ;  and  second,  spe- 
cial efforts  made  by  the  T'rench  Government  to  in- 
terest as  many  countries  as  possible  in  having  rep- 
resentation at  the  January  1946  meetings. 

The  CITEJA  had  an  unusually  extensive  agenda 
because  of  the  fact  that  it  considered  not  only  im- 
portant questions  affecting  the  reorganization  of 
the  CITEJA  activities,  but  also  the  provisions  of 
proposed  international  conventions  dealing  with 
specific  jDroblems  in  connection  with  the  develop- 
ment of  private  international  air  law.  The 
CITEJA  develops  its  projects  through  four  com- 
missions, known  as  the  First,  Second,  Third,  and 
Fourth  Commissions,  which  are,  in  effect,  subcom- 
mittees. Several  projects  wei-e  completed  by  some 
of  these  conunissions  at  their  meetings  in  January 
1946,  and  immediately  thereafter  proposed  inter- 
national conventions  based  on  these  completed 
projects  were  adopted  by  the  CITEJA  in  plenary 
session. 

Resolution  VII  of  the  Chicago  Civil  Aviation 
Conference  of  1944  also  recommended  that  con- 

'  Mr.  Latchford  is  Adviser  ou  Air  Law,  Aviation  Divi- 
sion, Office  of  Transport  and  Communications  Policy,  De- 
partment of  State,  and  Chairman  of  the  United  States 
Section  of  the  CITEJA. 

''The  Comity  International  Technique  d'Experts  Juri- 
diques  A6riens  (usually  referred  to  as  the  CITEJA)  is 
ti-anslated  in  the  United  States  as  the  International  Tech- 
nical Committee  of  Aerial  Legal  Experts. 

'  The  CITEJA  has  been  engaged  in  the  development  of - 
,  a  code  of  private  international  air  lave  since  1926.  See 
article  by  Mr.  Latchford  entitled  "Private  International 
Air  Law",  BtnxETiN  of  Jan.  7,  194.5,  p.  11.  For  the  reor- 
ganization of  the  United  States  section  of  CITEJA  and 
the  organization  of  an  advisory  committee  to  the  United 
States  Section,  see  Bm-LEriN  of  Feb.  3,  1946.  p.  169, 


836 


DEPARTMENT  OF  STATE  BULLETIN 


sideration  be  given  by  the  various  governments  to 
tlie  desirability  of  coordinating  the  activities  of 
CITEJA  with  those  of  the  -Provisional  Inter- 
national Civil  Aviation  Organization  (PICAO) 
and  with  those  of  the  permanent  International 
Civil  Aviation  Organization  provided  for  in  the 
Convention  on  International  Civil  Aviation,  drawn 
np  at  Chicago  on  December  7,  1944,  after  the  per- 
manent organization  comes  into  existence.  The 
CITEJA  at  its  January  meeting  took  up  for  con- 
sideration a  resolution  adopted  by  the  Interim 
Council  of  PICAO  at  Montreal  in  November  1945, 
in  which  the  Council  went  on  record  as  being  in 
favor  of  establishing  a  procedure  for  considering 
CITEJA  matters  in  coordination  with  CITEJA, 
for  maintaining  liaison  with  that  organization  so 
that  the  Council  might  be  kept  fully  informed  on 
all  mattei-s  under  consideration  by  CITEJA,  and 
for  having  the  Assembly  of  PICAO  hereafter  con- 
sidered as  the  international  conference  to  consider 
CITEJA  draft  international  conventions  instead 
of  having  a  government  call  an  international  con- 
ference for  that  purpose  as  has  been  the  prac- 

'  At  a  meeting  of  the  Interim  Council  of  PICAO  at  Mon- 
treiil  on  Nov.  23,  1945,  tlie  Council  approved  the  following 
i-ecommendation  of  its  Air  Transport  Committee : 

"That,  with  respect  to  .  .  .  matters  under  consideration 
by  CITEJA,  or  which  ma.v  arise  in  the  future,  the  President 
and  the  Secretariat  establish  a  procedure  for  considering 
such  matters  in  coordination  with  CITEJA,  and  for  the 
purpose  of  maintaining  liaison  with  CITEJA  so  as  to  keep 
fully  informed  on  all  matters  under  consideration  by 
CITEJA,  and  that  hereafter  the  Assembly  should  be  con- 
sidered as  the  international  conference  to  consider  CITEJA 
draft  conventions  instead  of  calling  special  conferences  for 
that  purpose." 

The  Air  Transport  Committee  also  recommended  that 
upon  the  coming  into  force  of  the  International  Convention 
on  Civil  Aviation  adopted  at  the  International  Civil  Avia- 
tion Conference  at  Chicago  in  1944,  steps  should  be  taken 
to  bring  about  the  merger  of  CITEJA  with  the  new  Inter- 
national Civil  Aviation  Organization  established  by  that 
convention  so  that  all  matters  relating  to  international 
aviation  may  be  under  the  jurisdiction  of  a  single  world 
organization  as  far  as  pos.sible.  The  Council  at  its  meeting 
on  November  23,  1945  took  no  action  on  this  recommenda- 
tion. It  is  understood  that  the  Council  felt  that  such  action 
would  be  premature.  However,  the  CITEJA  provided  in 
a  resolution  adopted  by  it  at  its  Fourteentli  Plenary  Session 
in  January  1946  for  a  study  of  the  conditions  under  which 
the  CITEJA  might  eventually  be  brought  within  the  frame-  " 
work  of  the  International  Civil  Aviation  Organization. 

°  See  article  by  Mr.  Latehford  entitled  "Coordination 
of  CITE,JA  with  the  New  International  Civil-Aviation 
Organizations,  Bitlletin  of  Feb.  25,  1945,  p.  310. 


tice  in  tlie  past.^  Under  this  iDrocedure  the  As- 
sembly would  take  such  action  on  the  CITEJA 
drafts  at  it  might  deem  appropriate.  The  dele- 
gates to  the  Assembly  might  adopt  and  sign  con- 
ventions based  on  a  study  of  the  CITEJA  drafts, 
after  which  the  conventions  would  be  subject  to 
ratification  or  adherence  by  the  interested  govern- 
ments, or  they  might  decline  to  take  any  action 
on  the  CITEJA  drafts  or  refer  them  back  to 
CITEJA  for  further  study. 

The  United  States  delegation  at  the  CITEJA 
meetings  in  January  1946  urged  that  the  CITEJA 
concur  in  the  PICAO  resolution  and  made  par- 
ticular reference  to  the  desirability  of  having  the 
CITEJA  draft  conventions  acted  on  by  the  As- 
sembly of  PICAO.  The  following  were  among 
the  arguments  advanced  in  support  of  this  plan. 
The  proposed  procedure  would  make  it  unneces- 
sary to  wait  for  several  years  after  the  adoption 
of  CITEJA  projects  for  a  government  to  call  a 
diplomatic  conference  on  private  air  law  for  the 
purpose  of  acting  on  the  CITEJA  draft  conven- 
tions, and  would  tend  to  avoid  the  criticism  that 
some  of  the  CITEJA  projects  do  not  fully  take 
into  consideration  the  problems  of  the  air  trans- 
port carriers  or  are  not  sufficiently  coordinated 
with  the  problems  arising  under  international 
public  air  law  which  have  a  vevy  important  rela- 
tion to  the  drafts  developed  by  CITEJA.  The 
plan  proposed  would  also  avoid  the  expense  in- 
curred by  various  governments  in  the  past  in 
sponsoring  or  sending  delegates  to  international 
conferences  on  private  air  law.^  The  CITEJA 
adojDted  a  resolution  agreeing  in  principle  to  liai- 
son and  cooperation  with  PICAO  and  to  having 
the  PICAO  call  international  conferences  for  the 
purpose  of  giving  consideration  to  draft  conven- 
tions adopted  by  CITEJA,  but  expressed  the  wish 
that  such  conferences  be  open  to  the  largest  possi- 
ble number  of  states.  In  other  words,  it  was  felt 
that  the  states  participating  in  the  development 
of  a  code  of  private  international  air  law  should 
not  necessarily  be  limited  to  those  which  are  mem- 
bers of  PICAO.  There  appeared  to  be  a  reltic- 
tance  on  the  part  of  certain  members  of  CITEJA 
to  the  bringing  about  of  any  radical  departure 
from  the  procedure  heretofore  followed  in  calling 
international  conferences  on  private  international 
air  law  for  completing  action  on  CITEJA  drafts, 
and  these  members  thought  that  the  past  pro- 
cedure should  in  principle  be  retained.    However, 


MA\    19,  1946 


837 


in  view  of  tlie  discussions  at  the  January  meetings, 
it  is  believed  that  tliis  point  of  view  would  be  sub- 
stantially met  if  the  Assembly  of  PICAO  should 
at  some  stage  of  its  proceedings  resolve  itself  into 
an  international  conference  for  the  specific  pur- 
pose of  taking  action  on  CITEJA  matters.'^ 

The  CITEJA  resolution  also  provides  for  a 
study  through  its  Secretariat,  in  collaboration  with 
the  Secretariat  of  the  PICAO,  of  the  feasibility  of 
eventually  bringing  the  CITEJA  within  the 
framework  of  the  International  Civil  Aviation 
Organization,  which  would  presumably  be  the 
permanent  organization  under  the  Chicago  civil 
aviation  convention  after  it  comes  into  force.  The 
minutes  of  the  CITEJA  meetings  included  a  state- 
ment indicating  that  the  plan  of  liaison  and  co- 
operation with  PICAO  as  agreed  to  by  CITEJA 
would  not  be  limited  to  the  Provisional  Interna- 
tional Civil  Aviation  Organization  but  would  ap- 
ply equally  to  the  permanent  International  Civil 
Aviation  Organization  after  the  Chicago  civil 
aviation  convention  comes  into  force. 

Prior  to  the  war  the  various  governments  rep- 
resented on  the  CITEJA  contributed  only  a  nom 
inal  amount  toward  the  expenses  of  the  Secretariat. 
In  order  to  make  it  possible  for  the  CITEJA  to 
function  in  a  satisfactory  and  effective  manner, 
particularly  in  connection  with  the  new  duties 
which  it  will  assume,  including  collaboration  with 
PICAO,  the  CITEJA  at  the  January  meetings 
agreed  upon  a  larger  budget.  For  the  purpose  of 
contribution  the  participating  countries  will  be 
divided  into  groups  paying  diiferent  quotas,  in- 
stead of  each  country's  contributing  the  same 
amount,  as  has  been  the  practice  in  the  past.  The 
United  States  will  be  placed  in  the  groujj  expected 
to  contribute  about  $1,800  a  year.  The  increased 
budget  is  subject,  of  course,  to  the  willingness  of 
the  governments  to  appropriate  the  necessary 
funds. 

Proposed  Conventions  Adopted  at  the  January 
1946  CITEJA  Sessions 

Prior  to  the  war  the  CITEJA  had  under  con- 
sideration a  proposed  convention  conferring  upon 
CITEJA  the  power  to  interpret  private  air  law 
conventions  as  adopted  at  international  confer- 
ences on  private  international  air  law  and  to  pre- 
pare texts  of  execution  or  application  of  sucli 
conventions.  The  United  States  delegations  to  tlie 
CITEJA  meetings  in  the  past  have  been  opposed  to 


the  project  on  the  ground  that  interpretation  of 
conventions  was  principally  a  matter  for  decision 
by  courts  in  appropriate  cases  and  was  not  a  func- 
tion that  should  be  performed  by  an  international 
drafting  connnittee  concerned  with  the  prepara- 
tion of  preliminary  texts.  At  the  January  meet- 
ings the  reporter  for  this  subject  proposed  three 
separate  projects  conferring  upon  CITEJA  cer- 
tain powers  of  (1)  interpretation,  (2)  preparation 
of  texts  of  execution  of  rules  of  international  air 
law  and  (3)  arbitration  of  disputes  concerning  the 
application  of  a  rule  of  international  air  law.  The 
United  States  delegation  participated  with  others 
in  the  discussion  of  these  projects  with  the  result 
that  certain  objectionable  provisions  were  elim- 
inated, including  those  which  would  have  con- 
ferred upon  the  CITEJA  authority  to  make  inter- 
pretations, and  to  prepare  texts  of  execution,  with 
resiDect  not  only  to  private  air  law  but  to  public 
air  law  as  well.  These  projects  were  amended  so  as 
to  have  the  powers  of  interpretation  and  execution 
apply  only  to  private  air  law  conventions.  The  re- 
poi-ter's  projects  as  submitted  by  him  to  the  Janu- 
ary meetings  provided  that  the  CITEJA  could 
render  an  opinion  or  prepare  texts  of  execution  at 
the  request  of  any  state,  or  international  organiza- 
tion, national  public  authority,  or  interested  in- 
dividual. These  provisions  were  amended  in  order 
to  eliminate  the  reference  to  interested  individuals, 
and  an  additional  provision  was  inserted  provid- 
ing for  the  making  by  CITEJA  of  recommenda- 
tions on  the  interpretation  of  any  international 
regulation  on  air  law  if  requested  by  the  Pro- 
visional International  Civil  Aviation  Organiza- 
tion or  by  the  International  Commission  for  Air 
Navigation,  which  is  still  functioning  under  the 
Paris  Air  Navigation  Convention  of  1919.  Witli 
respect  to  interpretation  and  execution,  the 
projects  adopted  at  the  January  meetings  provide 
that  the  CITEJA  would  act  only  in  a  consultative 
capacity  and  that  its  recommendations  would  not 
of  themselves  have  any  binding  force.  The  proj- 
ects on  intei'pretation  and  execution  as  adopted  by 
CITEJA  in  January  1946  have  been  submitted  by 

"Since  the  iu'eparation  of  tlii.s  article,  the  Department- 
of  State  has  been  informed  tiy  the  United  States  Repre- 
sentative on  the  Interim  Council  of  PICAO  that  it  is 
considered  to  be  impracticable  to  have  a  separate  interna- 
tional conference  alongside  of  the  meeting  of  the  Assem- 
bly of  PICAO,  which  is  scheduled  to  hold  sessions  at 
Montreal  beginning  on  May  21,  1046.  Therefore,  the  proj- 
ects developed  by  CITEJA  and  referred  to  PICAO  will  Vie 
considered  as  a  part  of  the  agenda  of  the  Asseml)Iy, 


838 


DEPARTMENT  OF  STATE  BULLETIN 


CITEJA  to  the  PICAO  Secretariat  for  action  by 
an  international  conference  on  private  air  law. 
The  project  on  arbitration  was  held  over  for  fur- 
ther study  by  the  CITEJA. 

When  the  CITEJA  was  organized  in  1926,  pur- 
suant to  a  resolution  adopted  at  the  First  Inter- 
national Conference  on  Private  Air  Law  at  Paris 
in  1925  recommending  the  establishment  of  a  per- 
manent international  committee  to  prepare  the 
preliminary  texts  of  private  international  air  law 
projects,  it  adopted  on  its  own  initiative  the  regu- 
lations defining  its  functions  and  setting  forth 
its  rules  of  procedure.  However,  at  the  meetings 
last  January  the  CITEJA  adopted  a  proposed 
statute  defining  its  functions.  This  contemplated 
statute  is  in  the  form  of  a  proposed  international 
convention  which  includes  the  following  provi- 
sions :  the  establishment  of  CITEJA  on  a  perma- 
nent basis;  the  maintenance  of  French  as  the  offi- 
cial language  of  CITEJA,  but  publication  of  docu- 
ments and  resolutions  in  English,  French,  and 
Spanish  instead  of  French  only  as  at  present ;  the 
rendering  of  opinions  on  questions  of  pi-ivate  in- 
ternational air  law  submitted  to  CITEJA  by  gov- 
ernments, official  international  organizations,  or 
national  public  administrations;  the  granting  by 
each  party  to  the  proposed  convention  to  the  ex- 
perts of  the  other  parties  of  the  privileges  and 
immunities  necessary  for  the  exercise  of  their 
functions,  and  to  the  Secretary  General  and  all  the 
other  personnel  of  the  privileges  and  immunities 
which  are  accorded  to  corresponding  personnel 
of  other  public  international  organizations.  The 
draft  convention  contains  also  an  interesting  pro- 
vision to  the  effect  that  the  quarters  occupied  by 
the  CITEJA,  its  functions  or  its  meetings,  as  well 
as  its  archives,  shall  be  inviolable.  The  proposed 
statute  as  adopted  by  CITEJA  in  January  has 
been  transmitted  to  the  PICAO  Secretariat  for 
appropriate  action  by  an  international  conference 
on  private  air  law. 

Prior  to  the  interruption  of  the  CITEJA  meet- 
ings as  a  result  of  the  war,  one  of  the  CITEJA 
commissions  had  on  its  agenda  a  proposed  conven- 
tion relating  to  assistance  and  salvage  of  aircraft 
on  land.  This  draft  set  forth  the  conditions  under 
which  the  commander  of  an  aircraft  would  have  a 
limited  obligation  to  go  to  the  assistance  of  other 
aircraft  in  distress,  and  it  set  forth  the  rules  for 
the  payment  of  remuneration  and  indemnity  to  the 
salvor  rendering  assistance.     It  also  included  pro- 


visions whereby  a  government  might  designate 
certain  danger  areas,  such  as  desei't  regions  or  un- 
inhabited areas,  which  aircraft  could  not  enter 
without  satisfactory  arrangements  having  been 
made  with  the  local  authorities  for  assistance  in 
case  the  aircraft  should  be  in  distress.  A  draft  con- 
vention on  land  salvage  was  adopted  by  CITEJA 
in  plenar}^  session  in  January,  but  during  the  dis- 
cussions on  this  draft,  the  United  States  delegation 
called  attention  to  the  fact  that  Annex  L  of  the 
technical  regulations  drawn  up  in  provisional  form 
at  the  Chicago  aviation  conference  contained  pro- 
visions relating  to  search  and  rescue  of  aircraft  in 
distress  and  that  a  new  set  of  international  stan- 
dards and  recommended  practices  dealing  with 
the  subject  of  search  and  rescue,  based  upon  a  study 
of  the  search  and  rescue  provisions  of  Annex  L, 
has  been  developed  in  comiection  with  the  delib- 
erations of  the  Interim  Council  of  PICAO.  In 
that  connection  the  delegation  suggested  the  de- 
sirability of  having  close  collaboration  between  the 
CITEJA  and  PICAO  in  the  development  of  a  pro- 
ject on  land  salvage,  so  that  if  an  international 
convention  on  land  salvage  within  the  field  of 
private  international  air  law  is  to  be  adopted  and 
signed,  it  would  not  be  in  conflict  with  any  rules 
on  search  and  rescue  developed  as  the  result  of  the 
studies  of  the  Interim  Council  at  Montreal.  It 
was  agreed  that  such  collaboration  would  be  nec- 
essary. 

The  draft  convention  on  land  salvage  adopted 
by  CITEJA  at  the  meeting  in  January  has  been 
submitted  by  CITEJA  to  the  Interim  Council  of 
PICAO  with  an  understanding  to  the  effect  that  it 
is  to  be  submitted  to  an  international  conference 
provided  that  no  modification  in  the  draft  is  made 
by  PICAO  befoi-e  its  submission  to  such  confer- 
ence. In  view  of  the  fact  that  heretofore  the  del- 
egates to  international  conferences  on  private  air 
law  are  understood  to  have  been  free  to  take  such 
action  as  they  deemed  appropriate  on  draft  con- 
ventions on  their  agenda  which  were  adopted  by 
CTTEJxV  in  plenary  sessions,  or  to  make  recom- 
mendations concerning  the  disposition  of  other 
CITEJA  drafts,  this  reservation  on  the  part  of 
CITEJA  appears  to  require  some  explanation.  It 
is  believed  from  a  study  of  the  proceedings  of  the 
CITEJA  meetings  in  January  that  that  organiza- 
tion had  in  mind  the  fact  that  a  study  of  search 
and  rescue  had  been  instituted  under  the  auspices 
of  the  Interim  Council  at  Montreal  and  that  the 
CITEJA  felt  that  if  the  Interim  Council  con- 


MAY  19,  1946 


839 


sideied  that  as  a  result  of  that  study  and  of  a 
further  study  of  the  matter  some  modification 
should  be  made  in  the  CITEJA  project  on  land 
salvage,  the  CITEJA  should  have  an  opportunity 
to  reexamine  its  project  in  the  light  of  any  observa- 
tions that  might  be  made  by  the  Interim  Council 
before  it  is  submitted  to  an  international  confer- 
ence on  private  air  law  for  final  adoption  and 
signature.  It  appears  then  that  CITEJA  con- 
siders that  where  its  projects  are  placed  by  PICAO 
on  the  agenda  for  an  international  conference  such 
projects  should  be  submitted  to  the  conference  in 
the  form  developed  by  CITEJA. 

The  Warsaw  Convention  of  1929  contains  pro- 
visions relating  to  the  liability  of  the  air  trans- 
port operator  for  damages  to  persons  and  prop- 
erty in  international  transportation.  This  Con- 
vention was  prepared  by  CITEJA  in  preliminary 
form,  and  the  CITEJA  project  was  referred  for 
final  adoption  and  signature  to  the  Second  Inter- 
national Conference  on  Private  Air  Law  (a  dip- 
lomatic conference)  held  in  Warsaw  in  October 
1929.  The  Convention  as  adopted  at  Warsaw  has 
been  ratified  or  adhered  to  by  many  countries,  in- 
cluding the  United  States.  At  its  plenary  ses- 
sion in  January  1946  the  CITEJA  adopted  a  pro- 
posed revision  of  the  Warsaw  Convention,  and  the 
amendments  have  been  transmitted  by  the 
CITEJA  to  the  Secretariat  of  PICAO  ,for  submis- 
sion to  an  intei'national  conference  on  jjrivate  air 
law. 

The  delegates  to  the  Chicago  aviation  confer- 
ence adopted  a  resolution  recommending  that  con- 
sideration be  given  to  the  early  calling  of  an  in- 
ternational conference  for  the  purpose  of  adopt- 
ing a  convention  dealing  with  the  transfer  of  title 
to  aircraft  and  that  such  conference  include  in 
the  bases  of  discussions  two  draft  conventions 
adopted  by  CITEJA  in  1931  relating  to  (1)  air- 
craft mortgages  and  (2)  the  setting  up  of  an  aero- 
nautic i-egister  or  airciaft  property  record  ,for 
recording  the  transfer  of  jiroperty  rights  in  air- 
craft.    Since  it  was  considered  highly  desirable 
t      to  have  in  force  as  soon  as  possible  conventions 
i      on  aircraft  mortgages  and  the  aircraft  property 
I     record,  in  view  otthe  anticipated  increase  in  the 
I     sales  of  aircraft  in  international  trade,  the  Gov- 
ernment of  the  United  States,  shortly  after  the 
Chicago  aviation  conference,  requested  the  heads 
of  United  States  diplomatic  missions  to  ascertain 
whether  the  governments  to  which  they  were  ac- 


credited would  authorize  signature  of  the 
CITEJA  1931  drafts  with  some  modifications  that 
were  suggested  by  the  Government  o,f  the  United 
States.  However,  in  view  of  the  PICAO  resolu- 
tion adopted  in  November  1945,  in  which  the  In- 
terim Council  at  Montreal  went  on  record  as  being 
in  favor  of  having  draft  conventions  adopted  by 
CITEJA  in  plenary  sessions  referred  to  the  As- 
sembly of  PICAO — a  procedure  agreed  to  in  prin- 
ciple by  CITEJA  at  its  January  1946  sessions— 
tlie  1931  CITEJA  draft  conventions  on  mort- 
gages and  the  aircraft  property  record  have  been 
included  by  the  CITEJA  with  the  draft  conven- 
tions adopted  at  the  January  meetings  and  trans- 
mitted by  the  CITEJA  to  the  Secretariat  of 
PICAO  for  consideration  by  an  international  con- 
ference on  private  air  law. 

The  CITEJA  still  has  the  following  subjects  on 
its  agenda : 

1.  Liability  of  air  transport  operators  in  the 
event  of  aerial  collisions; 

2.  Aviation  insurance; 

3.  Abandonment; 

4.  Legal  status  of  the  aircraft  navigating  per- 
sonnel ; 

5.  Legal  status  of  the  commander  of  the  air- 
craft ; 

6.  Arbitration; 

7.  Global  limitation  of  liability; 

8.  Chartering  of  aircraft; 

9.  Tourist  aircraft; 

10.  General  average. 

Most,  if  not  all,  of  these  subjects  will  be  con- 
sidered by  CITEJA  commissions  which  are  sched- 
uled to  meet  in  Paris  on  Jlily  9, 1946. 

Witli  reference  to  the  subject  of  abandonment, 
it  is  understood  that  in  maritime  practice  the  term 
has  to  do  with  the  action  of  the  insured  in  abandon- 
ing damaged  or  lost  property  to  the  public  au- 
thorities as  a  constructive  total  loss,  and  it  is 
assumed  that  it  is  the  intention  of  the  CITEJA  to 
consider  the  extent  to  which  the  maritime  practice 
can  be  made  applicable  to  aircraft. 

The  term  global  limitation  of  lixibility  is  mider- 
stood  to' refer  to  a  possible  situation  whereby  an 
air  transport  operator  might  have  an  accumulation 
of  liability  as  a  result  of  a  single  accident  involv- 
ing liability  of  the  operator  under  several  of  the 
conventions  developed  by  CITEJA,  such  as  the 

(Continued  on  page  871) 


840 


DEPARTMENT  OF  STATE  BULLETiy 


Report  on  the  West  Indian  Conference 


Article  by  ELIZABETH  H.  ARMSTRONG' 


THE  SECOND  SESSION  of  the  West  Indian  Con- 
ference, under  the  auspices  of  the  Caribbean 
Commission,  was  lield  at  St.  Thomas,  Virgin  Is- 
lands of  the  United  States,  from  February  21  to 
March  13,  1946.  This  Conference  is  notable  for 
the  fact  that  it  constitutes  the  only  international 
conference  participated  in  by  governments  in 
which  the  people  of  colonies  and  overseas  terri- 
tories are  directly  represented  and  in  which  the 
views  and  aspirations  of  the  peoples  of  such  terri- 
tories are  freely  expressed.  Of  the  29  delegates, 
16  represented  elected  bodies  or  portions  of  elected 
bodies  and  23  were  natives  of  the  Caribbean. 

The  first  session  of  the  West  Indian  Conference 
was  held  in  Barbados  in  March  1944  under  the 
auspices  of  the  Anglo-American  Caribbean  Com- 
mission, which  in  December  1945  was  expanded  to 
include  France  aiid  tlie  Xetherlands  in  its  member- 
ship and  was  renauied  the  Caribbean  Commission. 
The  Coinmissioners  and  their  advisers  attended 
plenary  sessions  of  the  Conference,  but  the  com- 
mittee and  subcommittee  meetings  were  conducted 
exclusively  by  the  delegates. 

Two  delegates  from  each  of  the  following  15 
Caribbean  territories,  accompanied  by  advisory 
staffs,  participated  in  the  second  session : 

France — French  Guiana.  Guadeloupe,  Mar- 
tinique 
Netherlaxds — CuraCj'ao,  Surinam 
United  Kingdom — Bahamas,  Barbados,  Bri- 
tish Guiana,  British  Honduras,  Jamaica, 
Leeward   Islands,   Trinidad,  AVindward 
Islands 
United  States — Puerto  Rico,  Virgin  Islands 
There  was  also  a  Canadian  observer  present. 

In  a  letter  of  February  7,  1946  to  Charles  W. 

'  Miss  Armstrong  is  Assistant  in  the  Division  of  Inter- 
national Organization  Affairs,  Oftieo  of  Special  Political 
.^It'airs,  Department  of  State. 

=  Bulletin  of  Mar.  3,  194G,  p.  332. 

'  Bulletin  of  Mar.  3,  1946,  p.  333. 


Taussig,  U.S.  Co-Chairman  of  the  Caribbean  Com- 
mission and  chairman  of  the  second  session  of  the 
Conference,  which  was  read  to  the  Conference  and 
very  favorably  received,  President  Truman  set 
forth  a  message  which  established  the  tone  of  the 
Conference.-  He  made  it  clear  that  the  policy  of 
the  United  States  with  respect  to  the  governments 
and  peoples  of  the  Caribbean  region  would  be 
guided  by  the  following  basic  tenets : 

1.  Encouragement  of  the  effective  application 
by  all  practicable  means  of  the  fundamental  prin- 
ciples set  forth  in  chapter  XI  of  the  Charter  of 
the  United  Nations  to  the  end  that  the  progressive 
development  of  the  peoples  of  the  region  in  politi- 
cal, economic,  educational,  and  social  matters 
should  be  insured,  this  Government  noting  with 
particular  satisfaction  that  in  all  such  non-self- 
governing  territories  the  interests  of  the  inhabi- 
tants are  to  be  regarded  as  paramount. 

2.  Support  of  the  work  of  the  Caribbean  Com- 
mission to  the  end  that  problems  of  the  region  may 
be  approached  as  a  whole  and  not  piecemeal,  the 
Government  of  the  United  States  looking  with 
satisfaction  on  the  recent  expansion  of  the  Carib- 
bean Commission  to  include  the  Governments  of 
France  and  the  Netherlands  and  anticipating  in- 
creasing participation  in  the  work  of  that  Com- 
mission by  the  peoples  of  the  territories  of  the 
four  countries  concerned. 

3.  Assistance  by  a^Dpropriate  action  in  carrying 
out  the  economic  objectives  recommended  by  the 
first  session  of  the  West  Indian  Conference  held  in 
Barbados  in  March  1944. 

4.  Support  for  anj^  suitable  plan  which  would 
bring  the  non-self-governing  territories  of  the 
Caribbean  region  into  closer  cooperation  with  eacli 
other,  with  a  view  to  developing  the  educational, 
social,  and  cultural  institutions  of  the  region,  im- 
proving the  standards  of  living  of  the  people,  and 
strengthening  the  foundations  upon  which  self- 
governing  institutions  may  be  developed. 

Mr.  Taussig  in  his  opening  speech  ^  stated  that 


MAY  ]9.  J<)4b 


841 


tlie  objective  before  the  delegates  was  the  uchieve- 
ment  of  "social,  economic,  and  political  progress" 
and  that  these  practical  reforms  might  easily  be- 
come mere  palliatiA'es  unless  built  on  the  founda- 
tion of  essential  human  rights.  He  pointed  out 
tliat  the  only  real  defense  against  the  misuse  of 
atomic  energy  would  be  found  in  the  spiritual 
awakening  of  mankind,  and  that  the  people  of  the 
Caribbean  in  particular  reciuired  two  well-defined 
charters  which  should  be  basic  for  all  that  men 
strive  to  attain.  One  of  these  charters  would  be  a 
bill  of  human  rights,  a  simple  statement  of  what 
an  individual  might  require  of  his  fellow  man  to 
live  his  life  in  security  and  happiness;  the  other 
would  be  a  bill  of  human  obligations,  a  statement 
of  the  sacrifices  that  must  be  made  by  an  indi- 
vidual to  assure  these  basic  rights  to  his  neighbor. 

The  Plenary  Session 

The  first  10  days  of  the  Conference  were  devoted 
to  plenary  sessions  in  which  delegates  took  the 
opportunity  to  consider  regional  problems  along 
broad  and  general  lines.  There  was  considerable 
discussion  of  press  policy  for  the  Conference.  It 
was  decided  to  admit  the  press  to  all  plenary  ses- 
sions and  committee  meetings  but  to  limit  subcom- 
mittee discussions  to  their  own  membership.  The 
Conference  also  discussed  the  question  of  proce- 
dure and  voluntarily  decided  to  limit  speeches  to 
eiglit  minutes. 

In  the  course  of  these  plenary  meetings,  the  Dele- 
gation of  Puerto  Rico  proposed  that  the  Confer- 
ence should  set  up  a  committee  to  draft  a  charter 
of  human  rights  and  obligations  for  the  Carib- 
bean that  should  express  the  aspirations  and  hopes 
of  the  peoples  of  the  area  on  economic,  social,  and 
political  matters.  The  proposal  led  to  consider- 
able controversy  among  the  delegates.  The  French 
claimed  that  the  proposed  charter  bordered  on  the 
political  field  and  thus  would  be  beyond  the  terms 
of  reference  of  the  Commission.  The  Netherlands 
Delegation  argued  that  they  were  unprepared  to 
discuss  this  new  item.  The  British  West  Indian 
Delegations  were  rather  evenly  divided  as  to  the 
wisdom  of  bringing  up  the  matter.  When  it  be- 
came evident  that  the  discussion  of  the  proposed 
charter  would  lead  to  considerable  controversy 
and  delay,  the  Puerto  Rican  Delegation  agreed  to 
table  its  resolution  .  It  was  decided  that  the  matter 
would  not  again  come  up  at  that  session  save  by  a 
majority  decision  of  the  entire  Conference,  but 
during  the  later  plenary  meetings  the  delegates 


agreed  to  discuss  the  question  at  the  next  session 
of  the  Conference. 

The  Meetings  of  Committees 

On  the  conclusion  of  the  first  series  of  plenary 
sessions  the  Conference  split  up  into  three  main 
committees  and  12  subcommittees:  Committee  I 
dealt  with  organization  matters;  Committee  II 
considered  certain  basic  problems  of  the  area ;  and 
Committee  III  took  up  recommendations  for  spe- 
cific action. 

The  principal  recommendations  of  Committee  I 
(Organization  Matters)  were: 

1.  That  the  West  Indian  Conference  should 
meet  biannually. 

2.  Tliat  a  central  secretariat  headed  by  a  sec- 
retary general  should  be  created. 

3.  That  all  the  territories  of  the  region  should 
be  fully  consulted  as  to  the  proposed  agenda  well 
in  advance  of  the  o]3ening  of  any  session  of  the 
Conference  and  that  the  territories  should  seek 
suggestions  from  theii'  representative  legislative 
bodies  or  general  councils,  the  final  agenda  thus 
being  based  on  the  comments  received  from  the 
region. 

4.  That  the  Caribbean  Research  Council  should 
undertake  a  study  of  the  economic  potentialities 
of  the  mainland  territories  of  the  Guianas  and 
British  Honduras,  with  a  view  to  the  solution  of 
their  problems  of  underpopulation. 

It  is  interesting  and  significant  to  note  that  there 
was  considerable  j^ressure  in  Committee  I  and  later 
during  a  jiublic  debate  in  the  plenary  session  for 
a  resolution  proposed  by  the  Delegate  from  Bar- 
bados, himself  an  elected  member,  providing  that 
only  elected  members  of  the  legislative  bodies  or 
general  councils  should  be  eligible  as  delegates 
to  any  future  sessions  of  the  West  Indian  Confer- 
ence. The  resolution  received  considerable  sup- 
port, especially  from  the  more  politically  ad- 
\'anced  delegates  from  the  British  territories,  and 
was  finally  submitted  as  a  minority  recommenda- 
tion in  the  committees'  report  to  the  entire 
Conference. 

Committee  II  (Consideration  of  Certain  Basic 
Problems  of  the  Area)  had  six  subcommittees 
which  dealt  with: 

a.  Agricultural  diversification 

b.  Industrial  diversification 
r.  Trade  and  transportation 


842 


DEPARTMENT  OF  STATE  BULLETIN 


d.  Health 

e.  Plant  and  animal  quarantine 
/.  Research 

Committee  II  made  the  following  recommenda- 
tions : 

1.  Endorsed  the  specific  recommendations  on 
agricultural  diversification  made  at  the  first  ses- 
sion of  the  West  Indian  Conference  in  Barbados. 

2.  Recommended  that  soil  surveys  should  be 
immediately  initiated  in  those  territories  in  which 
this  work  had  not  been  begun. 

3.  Recommended  that  a  conference  on  industrial 
development  be  convened  by  the  Caribbean  Com- 
mission not  later  than  February  1947,  and  that  a 
survey  on  industrial  diversification  should  be  made 
prior  to  the  calling  of  such  a  conference. 

4.  Suggested  that  the  terms  of  reference  of  the 
conference  on  industrial  development  should  be 
extended  to  cover  trade  and  transportation  within 
the  Caribbean. 

5.  Expressed  the  opinion  that  consideration 
should  be  given  by  the  appropriate  authorities  to 
the  possibility  of  inviting  those  territories  not  at 
present  associated  with  the  work  of  the  Caribbean 
Commission  (including  the  countries  on  the  South 
and  Central  American  seaboards  of  the  Caribbean 
as  well  as  Canada)  to  participate  in  the  proposed 
industrial  conference. 

6.  Recommended  that  conferences  of  individuals 
concerned  with  health  education  should  be  pro- 
vided for  by  the  Caribbean  Commission  and  that 
it  should  consider  the  advisability  of  appointing  a 
committee  on  health  education  with  a  view  to  for- 
mulating a  regional  health-training  program  and 
establishing  training  centers  in  the  region. 

7.  Suggested  that  a  survey  should  be  made  to 
determine  the  nutritional  needs  of  all  children 
whether  in  school  or  not. 

8.  Made  a  number  of  minor  recommendations  on 
the  subject  of  quarantine  for  humans  as  well  as 
for  plants  and  animals. 

9.  Recommended  that  members  of  the  Caribbean 
Research  Council  should  be  appointed  by  the  Car- 
ibbeafi  Commission  from  panels  of  suitable  can- 
didates submitted  by  both  metropolitan  and  terri- 
torial governments  (primary  consideration  being 
given  to  the  technical  qualifications  of  the  can- 
didates), that  the  secretariat  of  the  Caribbean 
Research  Council  should  be  a  section  of  the  Com- 
mission's Central  Secretariat,  and  that  the  Carib- 
bean Research   Council  should  be  bi'ought  into 


formal  relationship  with  the  United  Nations  Edu- 
cational, Scientific  and  Cultural  Organization. 

Committee  III  (Consideration  of  Suggestions 
Recommended  for  Specific  Action)  dealt  with: 

a.  The  tourist  project 
h.  Local  crafts 

c.  Sociological  aspects  of  the  Caribbean  prob- 
lems 

d.  Conference  of  soil  scientists 

Committee  III  made  the  following  recommenda- 
tions : 

1.  Suggested  that  the  feasibility  of  creating  a 
regional  (tourist)  organization  should  be  consid- 
ered in  detail. 

2.  Supported  the  recommendation  made  by  the 
Anglo-American  Caribbean  Commission  for  a  con- 
ference of  Caribbean  tourist  interests  and  sug- 
gested that  the  proposed  conference  should  be  held 
in  New  York  not  later  than  June  30, 1946. 

3.  Stressed  that  "an  unusual  opportunity  exists 
for  the  post-war  development  of  a  major  tourist 
industry  in  the  Caribbean  area"  and  endorsed  the 
so-called  "regional  approach"  to  Caribbean  tourist 
development,  believing  that  such  an  approach 
pointed  the  way  to  collective  action  by  Caribbean 
governments. 

4.  Recommended  that  the  Caribbean  Commis- 
sion should  arrange  for  the  creation  of  a  special 
and  permanent  subcommittee  of  the  Committee  on 
Industrial  Technology  of  the  Caribbean  Research 
Council  to  compile  a  bibliography  of  handicrafts 
in  the  Caribbean,  investigate  the  uses  of  plants  and 
trees  for  handicraft  industries,  et  cetera. 

5.  Suggested  that  certain  special  studies  on  such 
subjects  as  the  variation  in  the  course  and  levels 
of  living  in  the  various  Caribbean  territories,  over- 
population and  its  remedies,  unemployment,  and  i 
producers'  and  consumers'  cooperative  movements  \ 
in  the  region  should  be  recommended  to  the  Carib- 
bean Commission  and  the  Caribbean  Research 
Council  and  that  the  problem  of  standardizing  the 
methods  of  reporting  on  social  and  economic 
matters  be  studied. 

6.  Suggested  that  the  Caribbean  Commission 
convene  an  informal  meeting  of  soil  scientists. 

Proposals  for  Future  Agenda 

At  a  plenary  session  held  on  March  8,  1946,  the        ' 
Conference  appointed  an  ad  hoc  committee  whose 
duty  it  was  to  consider  proposals  for  future  agenda 


MAY  19,  1946 


843 


and  to  make  recommendations  to  the  Conference. 
After  the  delegates  had  made  suggestions  for  fu- 
ture agenda  to  this  Committee,  the  Conference  as 
a  whole  accepted  all  of  the  recommendations  except 
one,  a  Puerto  Rican  suggestion  for  studies  on  bank- 
ing investment  opportunities  in  the  Caribbean.  At 
a  further  plenary  session  held  on  March  11  the 
Conference  accepted  proposals  for  the  agenda  of 
the  next  session  of  the  Conference,  which  included 
consideration  of  problems  of : 

1.  Health  and  sanitation 

2.  Trade,  including  desirable  trade  agreements 
within  the  area 

3.  Welfare,  including  child  delinquency,  public 
assistance,  social  insurance 

4.  Distribution  and  movement  of  population 
within  the  area 

5.  Labor  conditions 

6.  Education 

7.  Housing  and  city  planning 

8.  The  consideration  and  formulation  of  a  bill 
of  human  rights  and  obligations  by  the  next  ses- 
sion of  the  Conference.  (It  was  agreed  that  the 
Caribbean  Commission  should  compile  useful  con- 
tributions of  thought  and  opinion  on  this  question 
from  all  sources  within  the  area  to  be  made  avail- 
able to  the  next  session  as  a  part  of  the  documenta- 
tion on  this  item  and  that  a  proposed  bill  of  human 
rights  and  obligations  based  on  this  infoi'mation 
should  be  formulated  under  the  direction  of  the 
Commission  to  serve  as  a  basis  for  the  deliberations 
of  the  Conference.) 

Meetings  of  the  Caribbean  Commission 

In  the  course  of  the  Conference,  the  Caribbean 
Commission  itself  held  frequent  meetings  at  which 
it  considered  such  matters  as  the  establishmeiit  of 
a  central  secretariat,  the  organization  of  future 
West  Indian  Conferences,  the  functioning  of  the 
Caribbean  Research  Council,  and  budgetary  ar- 
rangements for  the  Commission,  as  well  as  for  its 
two  principal  auxiliary  organizations,  the  West 
Indian  Conference  and  the  Caribbean  Research 
Council. 

The  Commission  appointed  a  subcommittee  on 
organization  matters  under  the  chairmanship  of 
Ralph  J.  Bunche,  United  States  Commissioner. 
This  subcommittee,  consisting  of  four  Commis- 
sioners, one  from  each  member  nation,  and  three 
advisers  from  the  United  Kingdom,  France,  and 
the  United  States  respectively,  made  the  following 


important  recommendations,  which  were  later 
unanimously  adopted  by  the  Commission  as 
recommendations  to  the  respective  metropolitan 
governments : 

1.  That  the  secretariat  should  have  its  head- 
quarters in  the  region,  that  it  should  be  inter- 
national in  character,  and  that  the  Secretary  Gen- 
eral and  the  members  of  the  staff  should  be 
responsible  to  the  Commission  and  should  not  seek 
or  receive  instruction  from  any  government  or 
from  any  other  authority  external  to  the 
Commission. 

2.  That  each  member  of  the  Commission  should 
respect  the  international  character  of  the  respon- 
sibility of  the  Secretary  General  and  his  staff  and 
should  not  seek  to  influence  them  in  the  discharge 
of  their  responsibility. 

3.  That  the  Secretary  General  should  be  ap- 
pointed by  the  Commission,  be  its  chief  adminis- 
trative officer,  and  be  selected  on  the  basis  of  the 
highest  qualifications  for  the  office. 

4.  That  the  personnel  of  the  secretariat  should 
be  selected  on  the  basis  of  equitable  representation 
of  the  four  nations  which  are  members  of  the  Com- 
mission, having  due  regard  for  the  highest  stand- 
ards of  efficiency,  competency,  and  integrity,  and 
should  be  recruited  to  the  greatest  extent  prac- 
ticable from  the  people  of  the  region. 

5.  That  the  Secretary  General  should  be  respon- 
sible for  the  preparation  of  an  annual  budget  cov- 
ering the  expc:i«es  of  the  Commission,  its  auxiliary 
bodies,  and  the  secretariat,  which  should  be  sub- 
mitted to  the  Commission  for  its  approval  and  for 
eventual  approval  by  the  four  metropolitan  gov- 
ernments. 

6.  That  the  Commission  should  recommend  to 
the  metropolitan  governments  that,  for  the  pur- 
pose of  meeting  these  expenses,  an  adequate  joint 
fund  be  established,  which  would  be  financed  by 
contributions  from  the  four  member  nations  of 
the  Commission  in  such  proportion  as  might  be 
determined  from  time  to  time. 

7.  That  the  Secretary  General  should  prepare 
such  reports,  publications,  memoranda,  or  other 
papers  as  might  be  required  by  the  Commission,  as 
well  as  agenda  for  meetings  and  conferences,  and 
should  be  responsible  for  the  official  records  of  all 
meetings. 

The  Committee  on  Organization  Matters  also 
recommended  to  the  Commission  that  the  secre- 
tariat should  consist  initiallv  of  the  Secretary 


844 


DEPARTMENT  OF  STATE  BULLETIN 


General;  four  assistants  to  the  Seci'etary  General, 
responsible  respectively  for  the  Caribbean  Re- 
search Council,  administration,  social  problems, 
and  economic  matters ;  two  research  secretaries  for 
the  Caribbean  Research  Council;  one  adminis- 
trative assistant;  one  librarian;  two  translators; 
clerical  and  other  staff — a  total  of  21  persons. 

In  its  recommendations  relating  to  the  West 
Indian  Conference  the  Committee  on  Organization 
Matters  noted  that  the  West  Indian  Conference 
was  an  auxiliary  of  the  Caribbean  Commission  de- 
signed to  provide  consultation  with  representatives 
of  the  Caribbean  territories  and  colonies  of  the 
four  member  nations.  It  was  agreed  that  each 
Caribbean  territory,  colony,  or  group  of  colonies 
of  the  four  member  nations  should  be  entitled  to 
send  two  delegates  and  such  advisers  as  it  might 
consider  necessary  to  each  session  of  the  Confer- 
ence. The  Conference  should  meet  biannually,  and 
the  location  of  each  session  should  be  based  on  the 
principle  of  rotation  of  the  four  member  govern- 
ments of  the  Commission  in  the  English  alphabet- 
ical order.  The  chairman  of  each  session  of  the 
Conference  should  be  the  co-chairman  representing 
the  metropolitan  government  in  the  territory  in 
which  the  session  is  held. 

The  Committee  also  made  suggestions  to  the 
Commission  in  matters  arising  directly  from  the 
establishment  of  the  secretariat  and  the  expansion 
of  the  Commission  itself.  The  most  important  of 
these  recommendations  were : 

1.  That  the  present  system  of  co-chairmen 
should  be  retained,  and  that  each  co-chairman 
should  preside  over  Commission  meetings  accord- 
ing to  the  English  alphabetical  order  of  the  Com- 
mission, irrespective  of  where  the  Commission 
meeting  is  held. 

2.  That  the  Commission  should  hold  not  less 
than  two  meetings  a  year  and  that  such  meetings 
should  be  held  at  the  headquarters  of  the  secre- 
tariat unless  decided  otherwise. 

3.  That  during  the  periods  between  meetings  the 
Secretary  General  should  obtain  approval  from  the 
four  co-chairmen  before  taking  action  on  impor- 
tant matters. 

4.  That  the  Commission  should  proceed  as  far  as 
possible  on  the  basis  of  unanimous  agreement  of 
all  the  commissioners  present.  If  this  should 
prove  impossible,  the  decision  or  recommendation 
should  be  by  unanimity  of  the  four  member  na- 
tions.   Decisions  on  procedural  matters  should  be 


considered  approved  if  agreed  to  by  at  least  three 
of  the  four  member  nations. 

The  Committee  on  Organization  Matters  also 
considered  procedures  for  future  Conference 
agenda  and  held  several  meetings  with  the  Con- 
ference subcommittee  dealing  with  the  same  sub- 
ject. As  a  result  of  this  happy  collaboration,  the 
proposals  for  future  Conference  agenda  eventually 
adopted  in  plenary  session  represented  the  common 
views  of  the  Commission  and  of  the  delegates 
themselves. 

At  the  end  of  the  Conference,  Mr.  Bunche  in  a 
speech  pointed  out  that  it  was  clear  that  certain 
fundamental  principles  for  future  sessions  of  the 
West  Indian  Conference  had  been  established  by 
general  agreement.  He  stated  that  the  most  im- 
portant of  these  principles  were: 

1.  That  there  should  be  full  and  free  expression 
of  opinion  by  freelj'  selected  representatives  of 
the  people  of  the  region  within  the  bounds  only  of 
reason,  responsible  utterance,  and  regional  interest. 

2.  That  there  should  be  prompt  review  of  the 
recommendations  of  the  Conference  by  the  metro- 
politan governments  concerned,  combined  with  ef- 
fective action  by  these  governments  on  the  accept- 
able recommendations,  as  well  as  public  explana- 
tion of  the  grounds  for  any  rejection. 

3.  That  there  should  be  open,  public,  and  well- 
organized  deliberations. 

i.  That  there  should  be  general  agreement  on 
an  unshakable  determination  that  the  Caribbean 
people  must  enjoy  higher  standards  of  living, 
greater  income,  better  housing,  health,  sanitation, 
clothing,  education,  and  free  political  institutions, 
as  well  as  equal  apportionment  of  respect  for  the 
individual  of  whatever  race,  color,  creed,  or  sex. 

At  the  conclusion  of  the  discussions  by  the  tliree 
main  committees  their  recommendations  were  sub- 
mitted to  the  Conference  as  a  whole  and  unani- 
mously adopted  in  the  plenary  session  held  on 
March  12,  1946.  Considerable  discussion  took 
place  concerning  a  proposal  that  the  legislative 
bodies  of  all  the  Caribbean  territories  should  pass 
laws  forbidding  any  kind  of  racial  discrimination 
in  hotels  and  other  facilities  open  to  tourists.  Some 
of  the  delegates  argued  that  such  legislation  was 
unnecessary  and  perhaps  even  undesirable,  but 
there  was  general  agreement  that  it  would  be  in 
line  with  the  accepted  idea  that  the  West  Indians 
themselves  should  have  the  same  free  access  as  for- 
eign visitors  to  all  tourist  facilities. 


MAY  19,  1946 


845 


The  Conference  closed  in  the  same  atmosphere 
of  mutual  understanding  and  harmony  which  had 
marked  all  of  its  meetings.  The  great  majority  of 
delegates  and  advisers  seemed  to  feel  that  this 
second  session  of  the  West  Indian  Conference  had 
been  instrumental  not  only  in  bringing  together 
representatives  of  all  the  Caribbean  territories 
but  also  in  laying  some  conci'ete  foundation  for 
the  future  collaboration  of  the  territories  them- 
selves, as  well  as  of  the  metropolitan  governments 
concerned. 

Governor  Tugwell  of  Puerto  Kico,  United  States 
Commissioner,  stirred  the  delegates  to  enthusiasm 
at  the  final  session  when  he  said :  "If  there  are  those 
who  hope  quietly  to  assassinate  your  proposals  and 
to  embalm  them  in  the  vastness  of  minutes  and 
pigeon-holes,  I  warn  them  from  long  experience 
that  this  time  the  old  methods  will  not  work." 
He  spoke  of  surging  demands  raised  by  the  masses 
of  the  peoples  everywhere  for  greater  participa- 
tion in  the  making  of  their  own  future  and  pointed 
out  that  this  was  particularly  true  of  colonial 
peoples  and  those  who,  for  one  historical  reason  or 
another,  possess  something  less  than  full  self-gov- 
ernment. He  added  that  the  Caribbean  Commis- 
sion and  the  West  Indian  Conference  were  not 
governing  bodies,  had  no  legislative,  executive,  or 
judicial  powers,  but  were  nevertheless  important 
as  a  consultative  and  advisory  body,  as  the  reposi- 
tory of  local  tradition  and  achievements,  and  as 
the  standard  conscience  of  the  region.  Through 
it  pride  might  come  to  the  most  progressive  and 
shame  to  the  most  backward,  and  this  in  itself 
might  lead  to  progress.  In  closing.  Governor 
Tugwell  expressed  the  hope  that  colonial  oiEces 
and  chancellories  would  see  in  this  institution  not 
a  threat  to  their  private  prerogative  and  a  crass 
disturbance  of  their  established  methods  but  rather 
a  convenient  device  for  meeting  demands  and  as- 
pirations which  would  otherwise  overwhelm  them 
with  their  volume  and  persistence. 

In  his  closing  speech,  Chairman  Taussig  ex- 
pressed his  admiration  for  the  high  type  of  repre- 


sentation present  at  this  second  session  of  the  West 
Indian  Conference.  He  traced  the  evolution  of 
the  Anglo-American  Commission  through  the  diffi- 
culties and  strains  of  war,  paying  particular  trib- 
ute to  the  high  caliber  and  vision  of  the  men  sent 
to  Washington  by  the  Government  of  the  United 
Kingdom  to  assist  in  the  establishment  of  the 
Commission.  Mr.  Taussig  ended  by  expressing 
his  unbounded  faith  in  the  future  of  the  newly 
expanded  four-power  Commission  and  spoke  of 
the  urgent  necessity  of  cooperation  between  the 
four  metropolitan  governments  in  the  era  of  peace 
now  opening  before  the  world. 

The  West  Indian  Conference  provided  a  clear 
demonstration  of  the  utility  of  regional  commis- 
sions in  such  areas  as  the  Caribbean,  inhabited 
largely  by  non-self-governing  peoples  living  under 
adverse  social  and  economic  conditions.  No  one 
who  was  present  at  the  recent  conference  failed  to 
be  impressed  not  only  with  the  urgent  need  for 
social  and  economic  reform  but  also  with  the  rea- 
sonable spirit  in  which  demands  for  social  reforms 
were  jiresented  by  the  great  majority  of  the  dele- 
gates. Tlie  West  Indian  Conference  and  the  Carib- 
bean Connnission  itself  can  serve  as  an  extremely 
useful  channel  for  the  expression  of  the  hopes  and 
desires  of  all  the  peoples  of  the  West  Indies.  The 
very  existence  of  these  institutions  constitutes  a 
considerable  guaranty  of  peaceful,  orderly,  and 
evolutionary  development.  Their  existence  and 
their  functioning  should  do  away  with  the  old 
cycle  of  neglect,  riots,  and  disturbances,  investiga- 
tions, and  again  neglect  which  has  marked  the 
course  of  West  Indian  history  for  too  many  years. 
If  the  Caribbean  Commission,  properly  supported 
by  the  four  metropolitan  governments  and  by  the 
peoples  of  the  territories  themselves,  can  make  at 
least  a  beginning  in  the  task  of  improving  the 
shockingly  bad  economic  and  social  conditions  of 
the  West  Indies,  its  work  will  be  an  excellent 
augury  for  the  establishment  of  regional  commis- 
sions in  other  disturbed  areas  of  the  world,  oc- 
cupied largelj'  b}'  non-self-governing  peoples. 


694315—46- 


846 


DEPARTMENT  OF  STATE  BULLETIN 


Trial  of  Far  Eastern  War  Criminals 


THE  INDICTMENT 


Statement  by  Joseph  B.  Keenan  ^ 

The  Charter  ^  divides  the  crimes  over  which  the 
Tribunal  is  given  jurisdiction  into  three  cate- 
gories: (a)  "Crimes  Against  Peace",  (b)  "Con- 
ventional War  Crimes"  and,  (c)  "Crimes  against 
Humanity".  Wliile  this  division  is  followed  in 
the  indictment,  it  will  be  contended  that  the  basic 
justification  for  all  of  them  is  the  same.  It  is  that 
breaches  of  international  law,  whether  established 
by  custom  or  treaty,  are  crimes  for  which  the  per- 
sonal responsibility  lies  not  only  upon  the  humbler 
individuals  who  actually  commit  specific  breaches 
of  the  laws  of  war.  That  has  always  been  recog- 
nized, but  on  the  same  legal  principle  it  lies  also 
upon  those  in  higher  positions  who  by  their  de- 
cisions bring  about  breaches  of  international  law 
and  treaties.  The  time  has  come  to  put  into  action 
this  principle  which  has  been  boldly  asserted  and 
firmly  established.  The  indictment  involves  no 
new  law. 

The  charges  are  divided  into  three  groups. 

In  each  case  the  charges  are  laid  under  the  Char- 
ter of  the  Tribunal,  which  is  a  restatement  of  in- 
ternational law,  and  in  the  case  of  Group  Two,  also 
under  the  domestic  laws  of  the  countries  concerned 
including  Japan. 

Group  One:  The  charges  are  laid  both  under 
article  5  (a)  and  5  (b)  of  the  Charter.  All  the 
counts  allege  wai's  both  of  aggression  and  in  viola- 
tion of  international  law,  treaties,  agreements,  and 
assurances.  On  the  facts  of  this  case  it  will-  be 
contended  that  the  distinction  is  immaterial.  The 
first  five  counts  charge  conspiracies  to  wage  such 
wars ;  the  first  comprehensively  covering  the  whole 
plan  as  one  conspiracy,  the  remaining  four  deal- 

'  Chief  of  Counsel  for  the  Prosecution. 

-  For  the  text  of  the  Charter  of  the  International  Mil- 
itary Tribunal  for  the  Far  East  see  Bulletin  of  Mar.  10, 
1946,  p.  361. 


ing  separately  with  various  phases  of  it  as  it  is 
alleged  to  have  developed. 

Counts  G  to  17  inclusive  charge  the  defendants 
with  the  crime  of  planning  and  preparing  such 
war  separately  against  each  nation. 

Counts  18  to  26  inclusive  charge  the  crime  of 
initiating  such  wars  separately  against  certain 
parties. 

Counts  27  to  36  inclusive  charge  the  crime  of 
waging  such  wars  separately  against  certain 
parties. 

Groivp  Two:  The  charges  of  murder  are  laid 
under  all  the  paragraphs  of  article  5  of  the  Char- 
ter. It  will  be  contended  that  the  intentional  kill- 
ing of  a  human  being  without  lawful  justification 
is  murder  by  the  law  of  every  civilized  country 
including  Japan,  by  whose  law  even  the  intention 
is  unnecessary.  Lawful  belligerency,  i.e.,  fighting 
a  war  of  defense  according  to  the  laws  of  war,  is 
such  a  justification,  but  Counts  37  and  38  allege 
that  the  belligerency  of  Japan  was  unlawful  be- 
cause it  was  in  breach  of  treaties  and  aggressive 
in  nature ;  in  Count  37,  owing  to  the  absence  of  a 
declaration  of  war,  and  in  Count  38,  by  reason  of 
breaches  of  treaties  forbidding  such  aggression. 
Counts  39  to  43  inclusive  apply  these  contentions 
to  si^ecific  instances  of  murder,  in  the  various  sur- 
prise attacks  made  on  December  7th-8th,  1941. 

Count  44  charges  a  conspiracy  to  procure  or 
permit  wholesale  murder  of  prisoners  of  war  and 
civilians  on  land  and  sea.  Counts  45  to  50  in- 
clusive are  specific  charges  of  murder  in  some  of 
the  most  notorious  of  such  cases,  the  "Rape  of 
Nanking",  and  other  cities  in  China.  Counts  51 
and  52  contain  similar  charges  with  regard  to  at- 
tacks on  territories  of  the  U.S.S.R.  Examples 
of  such  wholesale  murders  during  the  wars  which 
began  in  December  1941  are  too  numerous  to  be 
made  the  subject  of  separate  counts. 

It  may  seem  strange  to  include  charges  of  mur- 
der in  an  indictment  before  an  international  tri- 


MAY  19,  1946 


847 


bunal.  But,  it  is  liigli  time,  and  indeed  was  so  be- 
fore this  war  began,  that  tlie  promoters  of  aggres- 
sive, ruthless  war,  and  treaty-breakers  should  be 
stripped  of  the  glamour  of  national  heroes,  and 
exposed  as  wliat  tlie}'  reall)'  are — plain,  ordinary 
murderers. 

Group  Three:  Tlie  charges  are  laid  under  para- 
graphs (&)  and  (c)  of  article  5  of  the  Charter, 
and  it  will  be  contended  that  paragraph  (5)  is 
adequate  to  cover  them  all.  They  allege  con- 
sijiracy  to  commit  and  the  actual  commission  of 
large  numbers  of  breaches  of  the  laws  and  customs 
of  war,  contained  in  or  proved  by  tlie  practice  of 
civilized  nations  and  the  various  conventions  gov- 
erning the  conduct  of  hostilities,  the  treatment  of 
prisoners  of  war,  and  of  persons  and  property  in 
occupied  territories.  It  appears  that  those  who 
framed  the  conventions  never  contemplated  the 
l^ossibility  of  sucli  outrages  as  are  alleged  against 
Japan  in  the  conduct  of  her  wars  from  1931  to 
1945,  and  dealt  with  under  the  charge  of  nuirder  in 
Counts  44  to  52  inclusive.  So  far  as  the}^  are  re- 
ferred to  in  this  group  tliey  have  to  be  dealt  with 
under  such  mild  phrases  as  appear  in  the  conven- 
tions, e.g.,  "inhumane  treatment",  "failure  to  re- 
spect individual  life",  etc. 

The  defendants  named  in  these  counts  are  al- 
leged to  be  responsible  for  all  these  atrocities  both 
because  they  initiated  tlie  policies  which  led  to 
them,  sometimes  directly  ordered  their  commission, 
and  in  all  cases  recklessly  neglected  the  duty  which 
lay  upon  them  to  take  adequate  steps  to  prevent 
them,  in  spite  of  numerous  warnings. 

In  the  particulars  of  breaches  under  this  group 
in  Appendix  D,  it  is  alleged  that  Japan  habitually 


violated  almost  every  article  of  the  conventions 
and  every  known  law  of  war. 

There  are  five  Appendices.  Appendix  A  gives, 
under  ten  subject-heads,  an  outline  of  the  story 
which  will  be  related  to  the  tribunal  with  regard 
mainly  to  the  charges  in  Group  One.  Appendix  B 
gives  the  text  of  the  principal  articles  of  treaties 
which  it  is  alleged  that  Japan  violated  in  the  course 
of  wars  which  she  planned,  prepared,  initiated, 
and  waged  between  1931  and  1945.  Appendix  C 
gives  a  list  of  assurances  similarly  alleged  to  have 
been  broken.  Appendix  D  gives  an  outline  of  the 
main  laws  of  war,  conventions,  and  assurances  al- 
leged to  have  been  violated  by  Japan  in  the  charges 
in  Group  Three,  as  well  as  the  particulars  of 
breaches  above-mentioned.  Appendix  E  gives  as 
against  each  individual  defendant  particulars  of 
the  principal  grounds  on  which  he  is  included  in 
the  indictment,  based  mainly  on  the  positions 
which  he  held  and  the  activities  with  which  he  was 
connected  during  the  period,  especially  during 
1941. 

It  should  be  clearly  understood  that  the  omission 
of  any  name  from  tlie  indictment  in  no  sense  im- 
plies that  the  individual  is  exonerated  from  com- 
plicity in  the  charges  or  may  not  be  charged  here- 
after.  For  convenience  and  clarity  in  presenting 
tlie  case  it  was  found  necessary  to  limit  the  num- 
bers in  this  trial.  Many  of  the  principals  are  al- 
ready dead.  One,  General  Terauchi,  has  been 
omitted  solely  on  the  ground  that  his  mental  and 
physical  condition  makes  it  impossible  to  try  him. 
But  the  indictment  includes  the  survivors  of  those 
who,  on  the  evidence  at  present  available,  appear 
to  have  the  major  responsibility  for  most  of  the 
phases  and  activities  which  contributed  to  the 
crimes  alleged  against  Japan. 


JAPANESE  WAR  LEADERS  INDICTED  FOR  WAGING  WARS  OF  AGGRESSION  AND 

COMMITTING  WHOLESALE  MURDER 


Twenty-eight  military  and  political  leaders  of 
Japan  during  the  period  from  January  1,  1928 
to  September  2,  1945  are  charged  with  planning, 
preparing,  initiating,  and  waging  wars  of  aggres- 
sion in  violation  of  international  law  and  treaties, 
committing  wholesale  murder,  and  instigating 
numerous  "crimes  against  humanity",  in  a  55-count 
indictment  presented  on  April  29  to  the  Inter- 
national Military  Tribunal  for  the  Far  East. 

The  indictment,  submitted  by  Joseph  B.  Keenan, 


Cliief  of  Counsel  for  the  prosecution,  was  signed 
by  Mr.  Keenan  on  behalf  of  the  United  States  and 
by  associate  counsel  representing  10  other  nations 
with  which  Japan  was  at  war :  China,  United  King- 
dom, Union  of  Soviet  Socialist  Republics,  Aus- 
tralia, Canada,  France,  Netherlands,  New  Zealand, 
India,  and  Philippines. 

All  28  defendants  are  accused  of  paxticipating 
as  "leaders,  organizers,  instigators  or  accomplices" 
in  formulating  or  executing  a  conspiracy  with  Ger- 


848 


DEPARTMENT  OF  STATE  BULLETIN 


many  and  Italy  to  "secure  the  military,  naval, 
political  and  economic  domination  of  the  whole 
world,  each  having  special  domination  in  its  own 
sphere".  The  accused  are  held  responsible  for  "all 
acts  performed  by  themselves  or  by  any  person  in 
execution  of  this  plan". 
The  defendants  are : 

Sadao  Araki,  former  general,  War  Minister, 
member  of  the  Supreme  War  Council,  and  Educa- 
tion Minister. 

Kenji  Dohihaka,  former  general,  commander 
of  Special  Service  Section  in  Manchuria,  chief 
adviser  to  the  North  China  autonomous  govern- 
ment, and  Inspector  General  of  Military  Training. 

KiNGORO  Hasiiijioto,  couimander  of  an  artillery 
regiment  at  the  rape  of  Nanking  and  of  Japanese 
forces  which  shelled  the  Ladyhird  and  the  Panay, 
a  founder  of  the  Imperial  Rule  Assistance  Asso- 
ciation, and  alleged  to  have  been  a  promoter  of 
plots  to  remove  politicians  not  considered  suffi- 
ciently aggressive. 

Shunroku  Hata,  former  general,  member  of 
Supreme  War  Council,  War  Minister,  and  com- 
mander in  chief  of  the  expeditionary  force  in 
central  China  from  July  11)40  to  1944. 

KiiCHiRO  HiRANUMA,  Prime  Minister  in  1939, 
former  president  of  the  Privy  Council,  and  cabi- 
net minister  under  Konoye. 

KoKi  HiROTA,  Prime  Minister  from  March  193G 
to  February  1937,  and  Foreign  Minister  under 
Saito,  Okada,  and  Konoye. 

Naoki  Hoshino,  chief  of  general  affairs  in  Man- 
chukuo  in  July  1937,  president  of  the  Planning 
Board  under  Konoye  and  Chief  Secretary  and 
Minister  of  State  under  Tojo. 

Seishiro  Itagaki,  former  general,  chief  of  staff 
of  Kwantung  army,  and  War  Minister  under 
Konoye  and  Hiranuma. 

Okinori  Kaya,  Minister  of  Finance  under 
Konoye  in  1937  and  1938,  president  of  the  North 
Cliina  Development  Company,  and  Finance  Min- 
ister under  Tojo. 

Koiciii  Ktdo,  cabinet  minister  under  Konoye 
and  Hiranuma,  Lord  Keeper  of  the  Privy  Seal 
from  1940  to  1945,  chief  confidential  adviser  to  the 
Emperor  and  cliairman  of  meetings  of  ex- 
premiers. 

Heitaro  Kimura,  former  general,  chief  of  staff 
of  the  Kwantung  army.  Vice  War  Minister  under 
Konoye  and  Tojo,  and  commander  in  chief  of  the 
Japanese  Army  in  Burma  in  1944. 


KuxiAKi  Koiso,  former  general.  Prime  Minister 
from  July  1944  to  April  1945,  chief  of  staff'  of  the 
Kwantung  army.  Overseas  Minister  under  Hira- 
numa and  Yonai,  and  Governor  General  of  Korea 
in  1942. 

IwANE  Matstti,  former  general,  commander  in 
chief  of  Japanese  forces  in  central  China  in  1937 
and  1938,  member  of  the  Cabinet  Advisory  Coun- 
cil in  1938  and  1939,  and  president  of  the  Greater 
East  Asia  Development  Society. 

YosuKE  Matsuoka,  Foreign  Minister  under 
Konoye  in  1940  and  1941,  chief  delegate  to  the 
League  of  Nations  Assembly  in  1933,  and  president 
of  the  South  Manchurian  Railway  from  1935  to 
1939. 

Jiro  Mixami,  former  general,  member  of  the 
Privy  Council  from  1942  to  1945,  War  Minister 
in  1931,  and  commander  in  chief  of  Kwantung 
army  from  1934  to  193G. 

Akiua  Muto,  chief  of  the  Military  Affairs  Bu- 
reau of  the  War  Ministry  from  1939  to  1942,  and 
chief  of  staff'  of  the  14th  Area  Army  in  the  Philip- 
pines under  Yamashita  in  1944. 

OsAJii  Nacjano,  former  admiral.  Navy  Minister 
under  Hii'ota,  commander  in  chief  of  the  combined 
fleet  in  1937,  and  member  of  the  Supreme  War 
Council  in  1940. 

Takasumi  Oka,  former  vice  admiral,  chief  of 
the  General  and  Military  Affairs  Bureau  of  the 
Navy  from  1940  to  1944,  and  Vice  Navy  Minister 
under  Koi.so  in  1944. 

SiiUMEi  Okawa,  an  officer  of  the  South  Man- 
churian Railway  alleged  to  have  been  an  organizer 
of  the  Mukden  incident  on  September  18,  1931, 
and  a  propagandist  for  the  expulsion  of  the  white 
races  from  Asia  by  aggressive  war. 

HiRosiii  OsiiiMA,  Ambassador  to  Germany  in 
1938  and  1939  and  from  1941  to  1945. 

Kenryo  Sato,  former  lieutenant  general,  chief 
of  the  Military  Affairs  Bureau  of  the  War  Minis- 
try from  1942  to  1944. 

Mamoru  Shigemitsu,  Foreign  Minister  under 
Tojo  and  Koiso  from  April  1943  to  April  1945, 
and  former  Ambassador  to  U.S.S.R.,  Great  Brit- 
ain, and  puppet  government  of  Nanking. 

Shigetaro  Siiiii ADA,  former  admiral,  Navj'  Min- 
ister under  Tojo  in  1941,  and  member  of  Supreme 
War  Council  in  1944. 

Tosiiio  SiiiRATORi,  Ambassador  to  Italy  in  1939 
and  adviser  to  the  Japanese  Foreign  Office  in  1940. 
(Continued  on  page  853) 


The  Security  Council 


SUMMARY  STATEMENT  BY  THE  SECRETARY-GENERAL  OF  MATTERS  OF  WHICH 
THE  SECURITY  COUNCIL  IS  SEIZED  AND  OF  THE  STAGE  REACHED  IN  THEIR 
CONSIDERATION 


Pursuant  to  Rule  11  of  the  Provisional  Rules  of 
Procedure  of  the  Security  Council,  I  submit  the 
following  Summary  Statement  of  matters  of 
which  the  Security  Comicil  is  seized  and  of  the 
stage  reached  in  their  consideration  on  29  April 
1946. 

1.  The  Iranian  Question. 

The  Iranian  application,  dated  19  January  1946, 
was  considered  at  the  third  and  fifth  meetings  of 
the  Security  Council  in  London.  At  the  fifth 
meeting,  a  resolution  was  unanimously  adopted 
I'equesting  the  parties  to  inform  the  Comicil  of  any 
results  achieved  in  negotiations  between  them. 
The  Council  in  the  meanwhile  retained  the  right 
at  any  time  to  request  information  on  the  progress 
of  the  negotiations. 

The  Iranian  question  was  further  considered  at 
the  twenty-fifth,  twenty-sixth,  twenty-seventh, 
twenty-eighth,  twenty-ninth  and  thirtieth  meet- 
ings, and  after  various  procedural  decisions,  it  was 
resolved  by  nine  votes  (the  representative  of  the 
U.S.S.R.  being  absent  and  the  representative  of 
Australia  abstaining)  that 

".  .  .  the  Council  defer  further  proceedings 
on  the  Iranian  apjilicatioii  until  6  IMay,  at  which 
time  the  Soviet  Government  and  the  Iranian  Gov- 
ernment are  requested  to  report  to  the  Council 
whether  the  withdrawal  of  all  Soviet  troops  from 
tlie  whole  of  Iran  has  been  completed  and  at  which 
time  the  Council  shall  consider  what,  if  any,  fur- 
ther proceedings  on  the  Iranian  aj^peal  are  re- 
quired ; 

"provided,  however,  that  if  in  the  meantime 
either  the  Soviet  Government  or  the  Iranian  Gov- 
ernment or  any  member  of  the  Security  Council  re- 
ports to  the  Secretary-General  any  developments 

694315—46 4 


which  may  retard  or  threaten  to  retard  the  prompt 
withdrawal  of  Soviet  troops  from  Iran,  in  accord- 
ance with  the  assurances  of  the  Soviet  Union  to 
the  Council  the  Secretary-General  shall  immedi- 
ately call  to  the  attention  of  the  Council  such  re- 
ports which  shall  be  considered  as  the  first  item  on 
the  agenda."  (Pages  458-459,  Security  Council 
■Journal  No.  24) } 

By  letter  dated  6  April  1946  and  addressed  to 
the  President  of  the  Council,  Ambassador  A.  A. 
Gromyko  proposed  that  the  Iranian  question  be 
removed  from  the  agenda  of  the  Council. 

By  letter  dated  9  April  1946  and  addressed  to  the 
Secretary-General,  the  Iranian  Ambassador  op- 
posed this  jjroposal. 

By  letter  dated  15  April  1946  and  addressed  to 
the  President  of  the  Council,  the  Iranian  Ambas- 
sador communicated  the  text  of  a  telegram  from 
his  Government  stating  that  it  withdrew  its  com- 
plaint from  the  Council. 

At  the  thirty-third  meeting  the  Secretary-Gen- 
eral submitted  a  memorandum  to  the  President  of 
the  Council  concerning  tlie  legal  effect  of  the  above 
letters  from  Ambassador  A.  A.  Gromyko  and  the 
Iranian  Ambassador.  The  Council  referred  this 
memorandum  to  the  Committee  of  Experts. 

At  the  tliirty-third  meeting  Mr.  Bonnet  moved 

".  .  .  that  the  Security  Council  request  the 
Se^-retary-General  to  collect  the  necessary  infor- 
mation in  order  to  complete  the  Security  Council's 
report  to  the  Assembly,  in  accordance  with  Article 
24  of  the  Charter,  on  the  manner  in  which  it  dealt 
with  the  case  placed  on  its  agenda  on  26  March 
last  at  the  request,  not  withdrawn,  of  the  Govern- 
ment of  Iran." 


'  Bulletin  of  Apr.  24,  1946,  p.  621. 


8'19 


850 


DEPARTMENT  OF  STATE  BULLETIN 


At  tlie  thii'ty-sixth  meeting,  the  Council  consid- 
ered the  Eepoit  of  Dr.  H.  Saba,  Chairman  of  the 
Committee  of  Experts,  setting  out  the  conclusions 
of  the  Committee  of  Experts  after  consideration 
f)f  the  Secretarv-General's  memorandum.  The 
Council  continued  its  discussion  of  the  issues 
raised  in  the  above  letters  from  Amba.ssador  A.  A. 
Gromyko  and  tlie  Iranian  Ambassador.  Mr. 
Gromyko  associated  himself  with  the  above  Reso- 
lution proposed  by  Mr.  Bonnet.  Mr.  Bonnet's 
Resolution  received  three  votes  ( France,  Poland, 
and  U.S.S.R.)  and  was  declared  lost.  Mr. 
tii-omyko  said  that  the  decision  of  the  Council 
to  retain  the  Iranian  question  on  its  agenda  was 
contrary  to  the  Charter.  Accordingly,  the  Soviet 
delegation  did  not  consider  it  possible  to  take  any 
further  part  in  the  discussion  of  the  Iranian  ques- 
tion in  the  Council. 

2.  7'ke  Spanish  /Situation. 

By  letters  dated  8  April  1946  and  10  April  194G 
addressed  to  the  Secretary-General,  the  Polish 
Ambassador,  under  Articles  'M  and  35  of  the 
Chai-ter,  requested  the  Security  Council  to  place 
on  its  agenda  the  situation  arising  from  the  exist- 
eiire  and  activities  of  the  Franco  regime  in  Spain 
for  considei'ation  and  for  adoption  of  sucli  meas- 
ures as  are  i)rovided  for  in  the  Charter. 

At  the  tliirty-fourth  and  thirty-fifth  meetings 
the  Council  considered  this  application  and  resolu- 
tions suV)mitted  by  the  Polish  and  Australian  rep- 
resentatives. 

At  the  thirty-seventh  and  thirty-eighth  meet- 
ings the  Council  considered  the  resolutions  and 
amendments  submitted  by  several  representatives. 

At  the  thirty-ninth  meeting  the  Australian  reso- 
lution, as  amended,  was  adopted  by  ten  votes,  the 
Soviet  representative  abstaining.  By  this  resolu- 
tion the  Comicil  appointed  a  sub-committee  of 
five  of  its  members  and  instructed  this  sub-com- 
mittee to  report  before  the  end  of  May.  It  was 
agreed  that  the  sub-committee  should  be  formed 
of  the  representatives  of  Australia  (Chairman), 
Brazil,  China,  France  and  Poland.  Dr.  Lange 
said  that  he  did  not  withdraw  his  earlier  resolu- 
tion demandiiig  collective  breaking  of  diplomatic 
relations  with  Spain.  He  understood  that  his 
earlier  resolution  would  again  be  considered  after 
the  sub-connnittee  had  presented  its  report. 


The  sub-connnittee  held  its  first  meeting  on  29 
April  1946. 

3.  Special  Agreements  under  Article  43  of  the 
Charter. 

At  its  second  meeting  tlie  Council  adopted  the 
provisional  agenda  for  its  first  meetings  recom- 
mended by  the  Preparatoi-y  Commission.  It  de- 
ferred consideration  of  Item  10  of  that  provisional 
agenda : 

"Discussion  of  the  best  means  of  arriving  at  the 
conclusion  of  the  special  agi-eements  referred  to 
in  Article  43  of  the  Charter." 

The  question  is  being  examined  by  the  Military 
Staff  Coimnittee. 

4.  Rules  of  Procedure  of  the  Security  Council. 
As  instructed  l)y  the  Council  at  its  first  and 

twenty-third  meetings,  the  Conunittee  of  Experts 
submitted  revised  provisional  Rules  of  Procedure 
at  the  thirty-first  meeting,  together  with  recom- 
mendations concerning  communications  from  pri- 
vate individuals  and  non-governmental  bodies. 

After  minor  amendments  the  Security  Council 
adopted  these  Rules  of  Procedure  and  reconnnen- 
dations,  the  approved  text  being  reproduced  in 
Document  S/35. 

It  was  agreed  that  the  Committee  of  Experts 
should  fornuilate  additional  rules  of  procedure 
for  submission  to  the  Council,  and  this  work  is 
proceeding. 

:").  Statute  (Did  Rules  of  Procedure  of  the  Military 
Staff  Committee. 

At  the  twenty-third  meeting  it  was  agreed  to 
postpone  consideration  of  the  Report  of  the  Mil- 
itary Staif  Committee  concerning  its  Statute  and 
Rules  of  Procedure  (Document  S/10) .  The  Com- 
mittee of  Exjierts  was  instructed  to  examine  the 
Report.  It  was  also  agreed  that  pending  the  ap- 
jn-oval  by  the  Council  of  the  Report  of  the  Military 
Staff  Conunittee,  the  Military  Staff  Committee 
was  authorized  to  carry  on  its  business  along  the 
lines  suggested  in  its  Report. 

At  the  twenty-fifth  meeting  considei-ation  of  the 
Report  was  further  postponed  pending  examina- 
tion by  the  Conunittee  of  Experts.  The  Com- 
mittee of  Experts  has  been  engaged  in  considera- 
tion of  the  Provisional  Rules  of  Procedure  for  the 
Security  (Council  and  has  not  yet  examined  the 
Report  of  the  Military  Staff  Committee. 


MAY  19,  1946 


851 


G.   77ie  Application  for  the  Admission  of  Alhania 
(IK  a  Memher  of  t/ie  United  ^^^ations. 

By  letter  addressed  to  the  Acting  Secretary- 
General,  Mr.  Edvard  Kardelj,  Vice-Premier  of 
Yiiijoslavia  requested  that  the  Security  Council 
reconnnend  to  the  General  Assembly  the  admission 
of  Albania  as  a  Member  of  the  United  Nations. 
The  letter  enclosed  a  telegram  from  Colonel-Gen- 
eral Enver  Hoxa,  President  of  the  Peoples'  Re- 
public of  Albania,  addressed  to  the  President  and 
Vice-Presidents  of  the  General  Assembly  applying 
for  the  admission  of  Albania  as  a  Member  of  the 
United  Nations. 


At  tiie  third  meeting  it  was  agreed  without  ob- 
jection that  this  application  be  placed  on  the 
agenda  (page  47,  Security  Council  Journal  No.  5). 
At  the  eighteenth  meeting,  Mr.  Stettinius  made  the 
following  proposal : 

''I  move  that  this  item  be  kept  on  our  agenda, 
but  disposition  be  deferred  pending  further  study 
until  the  Security  Comicil  convenes  at  the  tem- 
porary headcjuarters"  (page  216,  Security  Council 
Journal  No.  14). 

Seven  -delegations  voted  in  favour  of  this  pro- 
posal and  the  President  declared  that  it  was 
adopted. 


STATEMENT  BY  THE  DELEGATIONS  OF  THE  FOUR  SPONSORING  GOVERNMENTS  ON 
VOTING  PROCEDURE  IN  THE  SECURITY  COUNCIL 


Specific  questions  covering  the  voting  procedure 
in  the  Security  Council  have  been  submitted  by 
a  Sub-Committee  of  the  Conference  Connnittee  on 
Structure  and  Procedures  of  the  Security'  Council 
to  the  Delegations  of  the  four  Governments  spon- 
soring the  Conference — the  United  States  of  Amer- 
ica, the  United  Kingdom  of  Great  Britain  and 
Noithern  Ireland,  the  Union  of  Soviet  Socialist 
Republics,  and  the  Republic  of  China.  In  dealing 
with  tliese  cpiestions,  the  four  Delegations  desire 
to  nndce  the  following  statement  of  their  general 
attitude  towards  the  whole  question  of  vnianimity 
of  i)ermaneut  members  in  the  decisions  of  the 
Security  Council. 


1.  The  Yalta  voting  formula  recognizes  that  the 
Security  Council,  in  discharging  its  responsibil- 
ities for  the  maintenance  of  international  peace 
and  security,  will  have  two  broad  groups  of  func- 
tions.^ Under  Chapter  VIII,  the  Council  will  have 
to  make  decisions  which  involve  its  taking  direct 
measures  in  connection  with  settlement  of  disputes, 
adjustment  of  situations  likely  to  lead  to  disputes, 
determination  of  threats  to  the  peace,  removal  of 
threats  to  the  peace,  and  suppression  of  breaches 
of  the  peace.  It  will  also  have  to  make  decisions 
wliich  do  not  involve  the  taking  of  such  measures. 
The  Yalta  formula  jDrovides  that  the  second  of 
these  two  groups  of  decisioiis  will  be  governed  by 
a  procedural  vote — that  is,  the  vote  of  any  seven 
members.     The  first  group  of  decisions  will  be 


governed  by  a  qualified  vote — that  is,  the  vote  of 
seven  members,  including  the  concurring  votes  of 
the  five  permanent  members,  subject  to  the  proviso 
that  in  decisions  under  Section  A  and  a  part  of 
Section  C  of  Chapter  VIII  parties  to  a  dispute 
shall  abstain  from  voting. 

2.  For  example,  under  the  Yalta  formula  a  pro- 
ceduial  vote  will  govern  the  decisions  made  under 
the  entire  Section  D  of  Chapter  VI.  Tliis  means 
tliat  the  Council  will,  by  a  vote  of  any  seven  of  its 
membei-s,  adopt  or  alter  its  rules  of  procedure; 
determine  the  method  of  selecting  its  President; 
organize  itself  in  such  a  way  as  to  be  able  to  func- 
tion continuously;  select  the  times  and  places  of 
its  regular  and  special  meetings;  establish  such 
bodies  or  agencies  as  it  may  deem  necessary  for 
the  performance  of  its  functions;  invite  a  mem- 
ber of  the  Organization  not  represented  on  the 
Council  to  participate  in  its  discussions  when  that 
Member's  interest  are  especially  affected ;  and  in- 
vite any  state  when  it  is  a  party  to  a  dispute  being 
considered  by  the  Council  to  participate  in  the 
discussion  relating  to  that  dispute. 

3.  Further,  no  individual  member  of  the  Council 
can  alone  ^jrevent  consideration  and  discussion  by 
the  Council  of  a  dispute  or  situation  brought  to  its 
attention  under  paragraph  2,  Section  A,  Chapter 
VIII.  Nor  can  parties  to  such  dispute  be  pre- 
vented by  these  means  from  being  heard  by  the 
Council.  Likewise,  the  requirement  for  unanim- 
ity of  the  permanent  members  cannot  prevent 

'  BxTLLETiN  of  Mar.  11,  194.5,  p.  304. 


852 

any  member  of  the  Council  from  reminding  the 
members  of  the  Organization  of  their  general  ob- 
ligations assumed  under  the  Charter  as  regards 
peaceful  settlement  of  international  disputes. 

4.  Beyond  this  point,  decisions  and  actions  by 
the  Security  Council  may  well  have  major  political 
consequences  and  may  even  initiate  a  chain  of 
events  wliich  might,  in  the  end,  require  the  Council 
under  its  responsibilities  to  invoke  measures  of 
enforcement  under  Section  B,  Chapter  VIII. 
Tliis  chain  of  events  begins  when  the  Council  de- 
cides to  make  an  investigation,  or  determines  that 
the  time  has  come  to  call  upon  states  to  settle  their 
differences,  or  makes  recommendations  to  the 
parties.  It  is  to  such  decisions  and  actions  that 
unanimity  of  the  permanent  members  applies  with 
the  important  proviso,  referred  to  above,  for  ab- 
stention from  voting  by  parties  to  a  dispute. 

5.  To  illustrate:  in  ordering  an  investigation, 
the  Council  has  to  consider  whether  the  investi- 
gation— which  may  involve  calling  for  reports, 
heai'ing  witnesses,  dispatching  a  commission  of 
inquiry,  or  other  means — might  not  farther  aggra- 
vate the  situation.  After  investigation,  the  Coun- 
cil must  determine  whether  the  continuance  of  the 
situation  or  dispute  would  be  likely  to  endanger 
international  peace  and  security.  If  it  so  deter- 
mines, the  Council  would  be  under  obligation  to 
take  further  steps.  Similarly,  the  decision  to  make 
recommendations,  even  when  all  parties  request 
it  to  do  so,  or  to  call  upon  parties  to  a  dispute  to 
fulfill  their  obligations  under  tlie  Charter,  might 
be  the  first  step  on  a  course  of  action  from  which 
the  Security  Council  could  withdraw  only  at  the 
risk  of  failing  to  discharge  its  responsibilities. 

G.  In  appraising  the  significance  of  the  vote 
required  to  take  such  decisions  or  actions,  it  is  use- 
ful to  make  comparison  with  the  requirements  of 
the  League  Covenant  with  reference  to  decisions 
of  the  League  Council.  Substantive  decisions  of 
the  League  of  Nations  Council  could  be  taken  only 
by  the  unanimous  vote  of  all  its  members,  whether 
permanent  or  not,  with  tlie  exception  of  parties 
to  a  dispute  under  Article  XV  of  the  League 
Covenant.  Under  Article  XI,  under  which  most 
of  the  disputes  brought  before  the  League  were 
dealt  with  and  decisions  to  make  investigations 
taken,  the  unanimity  rule  was  invariably  inter- 
preted to  include  even  the  votes  of  the  parties  to 
a  dispute. 


DEPARTMENT  OF  STATE  BULLETIN 

7.  The  Yalta  voting  formula  substitutes  for  the 
rule  of  complete  unanimity  of  the  League  Council 
a  system  of  qualified  majority  voting  in  the  Secu- 
rity Council.  Under  this  system  non-permanent 
members  of  the  Security  Council  individually 
would  have  no  "veto".  As  regards  the  permanent 
members,  tliere  is  no  question  under  the  Yalta 
formula  of  investing  them  with  a  new  right, 
namely,  the  right  to  veto,  a  right  whicli  the  per- 
manent members  of  the  League  Council  always 
had.  The  formula  proposed  for  the  taking  of 
action  in  the  Security  Council  by  a  majority  of 
seven  would  make  the  operation  of  the  Council 
less  subject  to  obstruction  than  was  the  case  under 
the  League  of  Nations  rule  of  complete  unanimity. 

8.  It  should  also  be  remembered  that  under  the 
Yalta  formula  the  five  major  powers  could  not  act 
by  themselves  since  even  under  the  unanimity  re- 
quirement any  decisions  of  the  Council  would  have 
to  include  the  concurring  votes  of  at  least  two  of 
the  non-permanent  members.  In  other  words,  it 
would  be  possible  for  five  non-permanent  members 
as  a  group  to  exercise  a  "veto".  It  is  not  to  be 
assumed,  liowever,  that  the  permanent  members, 
any  more  than  the  non-permanent  members,  would 
use  their  "veto"  power  wilfully  to  obstruct  the 
operation  of  the  Council. 

9.  In  view  of  the  primary  responsibilities  of  the 
permanent  members,  they  could  not  be  expected, 
in  the  present  condition  of  the  world,  to  assume 
the  obligation  to  act  in  so  serious  a  matter  as  the 
maintenance  of  international  peace  and  secui'ity 
in  consequence  of  a  decision  in  which  they  had  not 
concurred.  Therefore,  if  a  majority  voting  in  the 
Security  Council  is  to  be  made  possible,  the  only 
practicable  method  is  to  provide,  in  respect  of  non- 
procedural decisions,  for  unanimity  of  the  per- 
manent members  plus  the  concurring  votes  of  at 
least  two  of  the  non-permanent  members. 

10.  For  all  these  reasons,  the  four  sponsoring 
Governments  agreed  on  the  Yalta  formula  and 
have  presented  it  to  this  Conference  as  essential 
if  an  international  organization  is  to  be  created 
through  which  all  peace-loving  nations  can  effec- 
tively discharge  their  common  responsibilities 
for  the  maintenance  of  international  peace  and 
security. 

n 

In  tlie  light  of  the  considerations  set  forth  in 
Part  I  of  this  statement,  it  is  clear  what  the  an- 


MAY  19,  1946 


853 


swers  to  the  questions  submitted  by  the  Sub- 
coiniuittee  shouhl  be,  with  the  exception  of  Ques- 
tion 1!).    The  iinswer  to  that  question  is  as  follows : 

1.  In  the  opinion  of  the  Delegations  of  the  Spon- 
soring Governments,  the  Draft  Charter  itself  con- 
tains an  indication  of  the  application  of  the  voting 
l)rocedures  to  the  various  functions  of  the  Council. 

•2.  In  this  case,  it  will  be  unlikely  that  there 


will  arise  in  the  future  any  matters  of  great 
impoi-tance  on  which  a  decision  will  have  to  be 
made  as  to  whether  a  procedural  vote  would  apply. 
Should,  however,  such  a  matter  arise,  the  deci- 
sion regarding  the  preliminary  question  as  to 
whether  or  not  such  a  matter  is  procedural  must 
be  taken  by  a  vote  of  seven  members  of  the  Security 
Council,  including  the  concurring  votes  of  the  per- 
manent members. 


DISCUSSION  OF  SOVIET-IRAJNIAN  MATTER  AT  40TH  MEETING 


Remarks  by  the  U.S.  Representative  - 


The  Securit}'  Council,  in  its  resolution  of 
April  4.  requested  the  Soviet  Government  and 
the  Iranian  Government  to  report  to  the  Council 
on  ]\Iay  6  whether  the  withdrawal  of  all  Soviet 
troops  from  the  whole  of  Iran  had  been  completed. 

The  Soviet  Union  has  not  conqjlied  with  the  re- 
quest of  the  Council.  The  Iranian  Government ,  on 
its  part,  has  comi^lied  with  the  request,  but  only  in 
a  preliminary  manner,  and  apparently,  as  fully  as 
conditions  have  permitted.  In  its  report,  the 
Iranian  Government  stated  that  it  was  not  possi- 
ble, at  this  time,  for  its  representatives  to  make  a 
complete  report  because  it  had  had  no  op[)ortunity 
to  ascertain  through  its  own  officials  the  conditions 
prevailing  in  the  Province  of  Azerbaijan. 

In  view  of  this  statement  of  the  Iranian  Govern- 
ment that  it  will  report  promptly  to  the  Council 
the  true  state  of  affairs  in  Azerbaijan  as  soon  as  it 
is  able,  and  to  ascertain  the  facts  through  its  own 
official  representatives,  and  recognizing  the  com- 
munication and  the  travel  difficulties  in  that  re- 
mote area,  I  wish  to  submit  to  the  Council,  for  its 
consideration,  a  resolution  which  I  woidd  like  to 
read  to  you  at  this  time : 

"The  Security  Council  resolves,  in  view  of  the 
statement  made  by  the  Iranian  Government  in  its 
preliminary  report  of  May  6,  submitted  in  com- 
pliance with  the  resolution  of  April  4,  1946,  that 
it  was  not  able  as  of  May  6  to  state  whether  the 
withdrawal  of  all  Soviet  troops  fi'oni  the  whole  of 
Iran  had  been  comi^leted, 

to  defer  further  proceedings  on  the  Iranian 
matter  in  order  that  the  Government  of  Iran  may 


have  time  in  which  to  ascertain  through  its  official 
rejjresentatives  Miiether  all  Soviet  troops  have 
been  withdrawn  from  the  whole  of  Iran ; 

that  the  Iranian  Government  be  requested  to 
submit  a  complete  report  on  the  subject  to  the 
Security  Council  immediately  upon  the  receipt  of 
the  information  which  will  enable  it  so  to  do;  and 
that  in  case  it  is  unable  to  obtain  such  information 
by  May  20,  it  report  on  that  date  such  information 
as  is  available  to  it  at  that  time; 

and  that  immediately  following  the  receipt 
from  the  Iranian  Government  of  the  report  re- 
quested, the  Council  shall  consider  what  further 
pi'oceedings  are  required."  ^ 


WAR  CRIMINALS— ConiinMed  from  page  848. 

Tehchi  Suzuki,  president  of  the  Cabinet  Plan- 
ning Board  and  Minister  Without  Portfolio  under 
Konoye  and  Tojo  from  1941  to  1943. 

Shigenori  Togo,  Foreign  Minister  under  Tojo 
from  October  1941  to  March  1942  and  under 
Suzuki  in  1945. 

HiDEKi  Tojo,  former  general,  Premier  and  War 
Minister  from  December  2,  1941  to  July  1944. 

YosHiJiRO  Umezu,  former  general,  Vice  War 
Minister  from  1936  to  1938,  connnander  of  the 
Kwantung  army  from  1939  to  1944,  and  chief  of 
the  general  staff  in  1944  and  1945. 

'Held  on  Ma.v  8.     The  Secunt.y  Council  has  been   in 
.session  in  New  York,  N.  Y.,  since  Mar.  25.  1946. 
•  Edward  R.  Stettinius,  Jr. 
"Adopted  at  -10th  meeting. 


854 


DEPARTMENT  OF  STATE  BULLETIN 


LETTER  FROM  THE  IRANIAN  AMBASSADOR  TO  THE  PRESIDENT  OF  THE 

SECURITY  COUNCIL 


6  May  1946 
Sir: 

On  4  April  194C>  the  Security  Council  resolved 
"that  the  Council  defer  further  proceedings  on  the 
Iranian  appeal  until  G  May  194G  at  which  time  the 
Soviet  Govei'nment  and  the  Iranian  Government 
are  requested  to  report  to  the  Council  whether 
the  withdrawal  of  all  Soviet  troops  from  the  whole 
of  Iran  has  been  completed  and  at  which  time  the 
Council  shall  consider  what,  if  any,  further  pro- 
ceedings on  tlie  Iranian  appeal  are  required.  .  .  .'" 

The  Iranian  appeal  set  forth  in  the  letter  of 
18  March  194G  related  to  two  matters  which  it  was 
stated  were  likely  to  endanger  international  peace 
and  security.  The  first  of  these  referred  to  the 
maintenance  of  Soviet  troops  on  Iranian  territory 
after  2  March  194G;  and  the  second  (which  was 
first  presented  to  the  Council  at  its  meetings  in 
London)  referred  to  Soviet  interferences  in  the 
internal  affairs  of  Iran. 

With  respect  to  the  withdrawal  of  the  troops, 
the  Soviet  Union  has  oflicially  informed  the  Se- 
curity Council  that  the  evacuation  would  be  com- 
pleted during  a  pei'iod  of  one  and  one  half  niontlis 
from  24  March  194G. 

For  the  reasons  hereinafter  stated  it  is  impossi- 
ble for  me  to  make  a  complete  report  at  this  time. 
On  the  basis  of  the  infoimation  received  by  me 
from  my  Government  up  to  five  o'clock  this  after- 
noon, I  am  able,  however,  to  present  to  the  Council 
the  following  report : 

Soviet  troops  have  now  been  completely  evacu- 
ated from  the  Provinces  of  lOiorassan,  Gorgan, 
Mazanderan  and  Gilan.  This  information  is  based 
upon  investigations  made  by  responsible  officials 
of  the  Government  of  Ii'an. 

So  far  as  the  Province  of  Azerbaijan  is  con- 
cerned, the  Government  lias  been  informed  through 
other  sources  that  the  evacuation  of  Soviet  troops 
from  that  Province  has  been  going  forward  and 
it  is  said  will  have  been  completed  before  7  May 
1946.  These  reports  have  not  been  verified  by  di- 
rect observations  of  officials  of  the  Iranian  Govern- 
ment. The  reason  for  this  is  that,  as  isreviously 
pointed  out  to  the  Council,  the  Iranian  Govern- 
ment has  been  unable  because  of  the  interferences 
complained  of,  to  exercise  effective  authoi'ity 
within  Azerbaijan  since  7  November  1045,  and 


from  that  time  to  the  present  has  had  no  oppor- 
tunity to  ascertain  through  its  own  officials  what 
are  tlie  conditions  prevailing  throughout  that 
Province.  While  it  is  hoped  that  arrangements 
can  be  made  which  will  remove  the  unfortunate 
results  of  the  interferences  complained  of,  it  is 
impossible  to  forecast  at  this  time  with  certainty 
wliat  tlie  subsequent  developments  will  be. 

As  soon  as  the  Iranian  Government  is  able  to 
ascertain  through  its  official  representatives-  the 
true  state  of  affairs  in  the  Province  of  Azerbaijan 
the  facts  will  be  reported  promptly  to  the  Council. 

I  have  the  honor  [etc.] 

Hussein  AlxV 
Iranian  Ambassador 
His  Excellency, 

Dr.  H.\FEZ  Afifi  Pasha, 

PresMrnt  of  the  Security  Council 

STILLWELL— Con/ijiued  from  page  834. 
areas  violates  the  State  and  the  local  weights  and 
measures  laws.  Secretary  Anderson  has  asked 
governors  of  all  States  to  work  out  a  plan  whereby 
underweight  bread  can  be  sold.  Bread  mislabeled 
as  to  weight  puts  the  baker  in  violation  of  the 
Federal  Food  and  Drug  Act.  The  baking  indust  ry 
has  ]jointed  out  the  impossibility,  in  the  short  time 
remaining,  of  having  wrappers  printed  showing 
the  actual  weiglit.  The  Department  of  Agri- 
culture is  working  with  the  Federal  Security 
Agency  on  means  of  complying  with  both  the  law 
and  the  objectives  of  the  President's  program. 

Tlie  Commodity  Credit  Corporation  will  con- 
sider the  purchase  of  dehydrated  white  potatoes 
produced  from  raw  potatoes  which  are  under  loan 
to  the  Commodity  Credit  Corporation  under  the 
price-support  program  in  Idaho,  Oregon,  Ne- 
braska, Colorado,  Minnesota,  North  and  South 
Dakota,  and  Wyoming.  Dehydrated  potatoes  pur- 
clmsed  are  intended  for  resale  to  India  and  other 
deficit  areas  to  help  relieve  the  food  shortages. 

There  are  many  more  ways  in  which  we  can 
conserve  food.  None  should  be  overlooked  for  we 
must  supply  every  possible  ton  of  essential  food 
whicli  can  be  moved  and  shipped  during  the  next 
few  months. 

We  cannot  afford  the  extravagance  of  too  little — 
too  late. 


MAY  19,  1946 


855 


Proposal  by  the  United  States  for  the  Establishment  of  a 
Subcommission  on  Freedom  of  Information ' 


[Released  to  the  press  May  8] 

The  Commission  on  Human  Rights  has  beefl 
(lii-ectecl  by  the  Economic  and  Social  Council  to 
undertake  among  its  first  tasks  the  preparation 
and  submission  of  proposals,  recommendations, 
and  reports  to  the  Coimcil  on  freedom  of  informa- 
tion. 

It  is  tlie  view  of  tlie  Government  of  the  United 
States  that : 

(a)  material  progress  toward  the  ultimate  at- 
tainment of  miiversal  freedom  of  information  is 
of  tlie  utmost  importance  if  tlie  United  Nations 
is  to  achieve  the  purposes  for  which  it  has  been 
established;  (h)  the  Commission  on  Human 
Rights  will  require  special  advice  and  assistance 
in  carrying  out  its  responsibilities  toward  the 
fulfillment  of  this  important  and  complex  task. 

It  is  therefore  proposed  that  the  Commission  on 
Human  Rights  recommend  to  the  Economic  and 
Social  Council  the  establishment,  at  the  Council's 
next  session,  of  a  Subcommission  on  Freedom  of 
Information.  This  Subcommission  should  consist 
of  from  ten  to  fifteen  members,  who  need  not  lie 
members  of  the  Commission  on  Human  Rights,  to 
be  appointed  by  the  Council  and  serving  in  an  in- 
dividual capai'ity.  The  following  terms  of  ref- 
erence are  suggested  for  tlie  Subcommission  : 

1.  The  Subcommission  should  submit  proposals, 
recommendations  and  reports  to  the  Commission 
on  Human  Rights  regarding  freedom  of  informa- 
tion. In  the  discharge  of  this  function,  the  Sub- 
commission  should 

a.  determine  what  rights,  obligations  and  prac- 
tices should,  in  the  Subcommission's  opinion, 
lie  included  in  the  concept,  freedom  of  informa- 
tion; 

h.  consider  and  report  on  the  extent  to  which 
freedom  of  information  as  thus  defined  is  accorded 
to  the  peoples  of  the  United  Nations ;  and  the  na- 
ture and  extent  of  obstacles  thereto; 


c.  examine  proposals  for  jnomoting  or  facil- 
itating freedom  of  information  and  eliminating 
obstacles  thereto; 

d.  make  recommendations  to  the  extent  deemed 
appropriate  for  action  by  the  United  Nations,  by 
member  states,  and  by  UNESCO  and  other  special- 
ized agencies; 

c.  assume  continuing  responsibilities  for  dis- 
cussing and  preparing,  with  the  assistance  of  the 
Secretariat,  a  draft  provision  on  freedom  of  infor- 
mation to  be  incorporated  in  a  bill  of  rights. 

2.  In  the  discharge  of  its  fimctions  the  Subcom- 
mission should  maintain  close  working  relations 
with  UNESCO  and  other  specialized  agencies 
whose  activities  may  be  related  to  the  field  of  its 
competence. 

3.  Tlie  Subcommission  may  submit  proposals  to 
the  Council,  through  the  Commission  on  Human 
Riglits,  regarding  its  teiTns  of  reference. 


United  Nations  War  Crimes 
Commission 

RESIGNATION  OF  JOSEPH  V.  HODGSON 

In  a  letter  to  Lt.  Col.  Joseph  V.  Hodgson  dated 
May  4.  194G,  tiie  President  accepted  his  resigna- 
tion as  United  States  Commissioner  on  the  United 
Nations  War  Crimes  Commission.  For  texts  of 
I  lie  letters  exchanged  between  tlie  President  and 
Lieutenant  Colonel  Hodgson,  see  White  House 
press  release  dated  May  G,  1946. 

'Transmitted  by  the  United  States  Delegation  to  the 
United  Nations  on  May  S  to  the  Seci'etary-General  for 
reference  to  the  Commission  on  Human  Rights,  for  con- 
sideration during  the  Commission's  current  meetings  in 
New  Yorlj. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers : 
Meeting  of  Deputies 

Meeting  of  Foreign  Ministers 
Far  Eastern  Commission 

Allied-Swiss  Negotiations  lor  German  External  Assets 
International  Office  of  Public  Health 
PICAO : 

European  anil  Mediterranean  Air  Route  Services  Conference 

Annual  Meeting  of  the  Assembly 
International  Labor  Organization  :  Metal  Trades  Committee 
International  Cotton  Advisory  Committee 
rxURA  Council:   Fourth   Session 
FAG:  Special  Meeting  on  Urgent  Food  Problems 
The  United  Nations : 

Security   Council 

Military   Staflf  Committee 

Special  Committee  on  Refugees  and  Displaced  Persons 

International  Court  of  Justice 

Commissions  of  the  Economic  and  Social  Council 

Economic  and  Social  Council 

Intel-national   Health   Conference 

General  Assembly :  Second  Part  of  First  Session 


London 


January     18 — temporar- 
ily adjourned 


Paris 

April  25 

Washington 

Febniary  26 

Washington 

March  18 

Paris 

April  24 

Paris 

April  24 

Montreal 

May  21 

Toledo 

May  2 

Washington 

May  7 

Washington 

May  9 

Washington 

May  20-28 

New  York 

March  25 

New  York 

March  25 

London 

April  8 

The  Hague 

April  18 

New  York 

April  29 

New  York 

May  25 

New  Yoi-k 

June  19 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  May  12. 


Activities  and  Developments 


First  Meeting  of  the  International  Fund  and 
the  International  Bank.  The  Executive  Direc- 
tors of  the  International  Monetary  Fund  held 
their  first  meeting  on  May  6,  and  tlie  International 
Bank  on  May  7.  These  first  meetings  have  been 
concerned  with  organizational  matters.  The  fol- 
lowing Executive  Directors  liave  been  named  to 
the  respective  organizations : 

For  the  International  Monefari/  Fund  . 

Belgium,  Camille  Gutt 

Brazil,  Francisco  Alves  dos  Santos-Filho 

Canada,  Louis  Rasminsky 

China,  Y.  C.  Koo 

Czechoslovakia,  J.  V.  Mladek 

Kgypf,  Ahmed  Zaki  Bey  Saad 

France,  Pierre  Mendes-France 

India,  J.  V.  Joshi 


Mexico.  Kodrigo  Gomez 
The  Netherlands,  G.  W.  J.  Bruins 
United  Kingdom,  George  Bolton 
Unilcil  States,  Harry  D.  Wliite 

For  the  International  Bank 

Belgium,  Louis  Gotlin  (alternate) 

Canada,  R.  B.  Bryce 

Chile,  Victor  Moller 

China,  Yuen-Ting  Shen 

Cnl)a,  Luis  Machado 

France,  Leonard  B.  Rist 

Greece,  Kyriakos  Varvaressos 

India,  N.  Sundaressan 

The  Netherlands,  J.  W.  Beyen 

Crena  de  Jong  (alternate) 
Poland.  Dr.  Leon  Baranski 
United  Kingdom.  Robert  Brand 
United  States.  Emilio  CoUado 


856 


MAY  19,  1946 

Conference  on  Non-Repatriable  Victims  of  Ger- 
man Action.^  The  State  Department  anBounced 
on  May  9  the  appointment  by  the  President  of  Dr. 
Eli  Ginzberg  of  Cohnnbia  University  as  tlie 
United  States  representative  at  the  forthcoming 
conference,  whicli  will  convene  in  Paris  about  the 
end  of  May. 

The  Agreement  on  Reparation  from  Germany, 
which  was  signed  in  January,-  made  special  provi- 
sion for  those  victims  of  German  action  who  can- 
not be  repatriated.  The  details  of  a  plan  to  re- 
settle these  refugees  will  be  worked  out  in  Paris 
at  a  five-power  conference  among  representatives 
of  the  United  Kingdom,  France,  Czechoslovakia, 
Yugoslavia,  and  the  United  States. 

The  Agreement  on  Reparation  provided  that  a 
sum  of  25  million  dollars  should  be  made  available 
from  German  assets  in  neutral  countries  and  all  of 
the  non-monetary  gold  found  in  Germany  should 
likewise  be  available  for  the  rehabilitation  and 
resettlement  of  refugees.  In  addition,  the  assets 
in  neutral  coimtries  of  victims  who  died  without 
heirs  should  also  be  made  available. 

This  Government  considei-s  that  the  first  25 
million  dollars  realized  from  German  assets  in 
neutral  countries  should  be  made  available  to 
speed  work  of  rehabilitating  and  resettling  these 
refugees.  Negotiations  ai'e  currently  under  way 
with  the  Swiss  Government  on  the  subject  of  Ger- 
man assets  in  Switzerland. 

Dr.  Ginzberg  has  been  loaned  for  this  mission 
to  the  State  Department  by  the  War  Department, 
where  he  has  been  serving  as  special  assistant  to 
the  Surgeon  General. 

Irwin  Mason  and  Jacob  Kaplan  of  the  Depart- 
ment of  State  will  assist  Dr.  Ginzberg  at  this 
conference. 

PICAO.  In  a  letter  to  Gerald  B.  Brophy  dated 
ilay  4,  194:6,  the  President  accepted  his  resigna- 
tion, effective  at  the  close  of  business  on  June  30, 
1946,  as  the  United  States  Representative  to  the 
Interim  Council  of  the  Provisional  International 
Civil  Aviation  Organization.  For  texts  of  the 
letters  exchanged  between  the  President  and  Mr. 
Brojjhy,  see  "White  House  press  release  dated  May 
6, 1946. 

UNRRA  Council :  Fourth  Session.   The  Council 

meeting  is  a  resumption  of  the  Fourth  Session  held 
in  Atlantic  City,  which  adjourned  on  March  29. 


857 

As  one  of  its  final  acts  in  March,  the  Council  ad- 
journed subject  to  a  report  from  the  new  Director 
General,  to  be  made  after  he  had  had  the  oppor- 
tunity to  consult  with  the  supplying  goveiaiments 
and  the  Combined  Food  Board  upon  the  availabil- 
ity of  food  for  those  countries  in  Europe  and  Asia 
which  UNRRA  is  feeding. 

Mr.  La  Guardia  has  been  almost  constantly  in 
session  with  the  principals  of  the  food-supplying 
nations  of  the  world,  in  an  endeavor  to  accelerate 
the  flow  of  bread  grains,  fats  and  oil,  and  fertilizers 
to  the  famine-stricken  areas  and  to  establish  the 
fundamental  facts. 

The  Council  resolution  of  March  requested  the 
Director  General  "to  consult  immediately  and 
continuously  as  long  as  the  emergency  lasts  with 
representatives  of  the  supplying  governments  and 
with  the  Combined  Food  Board  to  consider  the 
effectiveness  of  the  steps  being  taken  and  to  report 
thereon  to  the  Central  Committee  and  the  Council." 

The  resolution  further  provided : 

"In  view  of  the  gravity  of  the  present  situa- 
tion, the  Fourth  Session  of  the  Council  will  remain 
in  session  and,  upon  completion  of  its  meeting  in 
Atlantic  City,  will  be  convened  at  "Washington, 
D.C.,  as  soon  as  the  Director  General  can  report 
on  the  outcome  of  his  consultations  .  .  .  but 
in  time  to  allow  the  Council  to  assess  the  position 
regarding  scarce  supplies  to  be  made  available  to 
UNRRA  to  meet  the  grave  emergency  of  this 
spring  and  early  summer." 

Resolution  on  Food  ^ 

"Whereas  :  Resolution  89  instructed  the  Director 
General  to  consult  with  representatives  of  the 
supplying  governments  and  with  the  Combined 
Food  Board  to  consider  the  effectiveness  of  the 
steps  being  taken  to  meet  the  present  food  crises 
and  to  report  thereon  to  the  Central  Committee 
and  to  the  Council, 

Whereas  :  The  Director  General  has  submitted 
to  the  Council  a  report  which  indicates  that,  in 
spite  of  his  vigorous  and  forceful  efforts  to  secure 
adequate  quantities  of  essential  foods,  and  despite 
the  adoption  of  emergency  measures  by  the  gov- 


'  Released  to  the  press  May  9. 
'  BtJLLETiN  of  Jan.  27,  1946,  p.  114. 

'  Adopted  at  the  Foiu-th  Council  Session  in  Washington 
on  May  9. 


858 


DEPARTMENT  OF  STATE  BULLETIN 


ei-nments  concerned,  the  situation  lias  nevertlieless 
become  increasingly  grave, 

Whereas:  The  Council  has  noted  the  reconi- 
mendattons  of  the  Director  General  in  this  report, 

Whereas  :  The  Council  has  been  informed  that 
the  governments  principally  concerned  are  now  in 
consultation  regarding  plans  to  improve  the  inter- 
national machinery  for  the  allocation  of  foodstuffs 
in  short  supply  and  regarding  the  development  of 
more  adequate  measures  for  implementing  allo- 
cations, and 

Whereas  :  At  the  forthcoming  special  meeting 
of  FAO  on  May  20th  there  will  be  considered :  "the 
desirability  of  making  recommendations  to  Gov- 
ernments regarding  a  four  or  five  year  plan,  de- 
signed to  carry  the  world  through  the  present 
crises  and  to  assist  in  effecting  a  smooth  transition 
trom  emergency  measures  to  a  permanent  world 
food  policy." 

Eesol\t.d:  The  Council  recommends  that,  in 
view  of  the  prospect  of  continuing  serious  world 
food  shortages,  the  supplying  and  importing  gov- 
ernments concerned  develop  immediately  plans  for 
the  improvement  of  international  machinery  for 
the  allocation  of  foodstuffs  in  short  supply. 

The  Council  recommends  further  that  the  gov- 
ernments concerned,  in  view  of  the  present  emer- 
gency, develop  immediately  more  adequate  machin- 
ery for  making  effective  all  allocations. 

The  Council  recommends  fuilher  that  in  making 
allocations  the  allocating  authorities  should  con- 
stantly seek  to  achieve  a  fair  and  equitable  dis- 
tribution of  supplies  among  all  the  United  Nations 
according  to  their  needs. 

FAO:  Special  Meeting  on  Urgent  Food  Prob- 
lems. The  meeting  is  being  convened  by  the  Food 
and  Agriculture  Organization  as  an  outcome  of 
discussions  in  the  United  Nations  Assembly  in 
London  early  this  year.  It  will  not  deal  with  the 
present  phase  of  the  emergency,  which  is  being 
handled  by  existing  agencies,  but  will  be  a'^^ked 


tu  look  ahead  to  the  winters  of  1946— i7  and 
1947^8. 

Governments  that  have  major  contributions  to 
make  to  the  solution  of  the  world  food  crisis  have 
been  invited  to  send  ministers  or  other  responsible 
officials  to  the  May  20  meeting,  which  will  be  held 
in  the  Chamber  of  Commerce  building,  Washing- 
ton. 

The  international  organizations  invited  to  send 
repiesentatives  are  the  Combined  Food  Board, 
UNRRA,  the  Emergency  Economic  Committee  for 
Europe,  and  the  United  Nations.  The  Interna- 
tional Bank  for  Reconstruction  and  Development 
and  the  International  Labor  Office  have  been  in- 
vited to  send  observers. 

The  Director  General  has  proposed  the  follow- 
ing agenda,  enclosed  with  his  letter,  for  the  May 
20  meeting : 

I.  (a)  The  implications  of  the  factual  picture 
that  has  been  jDrepared  by  working  groups 
drawn  from  the  organizations  dealing  with 
the  food  crisis. 
.  (b)  Means  whereby  FAO  with  the  coojjera- 
tion  of  other  organizations  and  governments 
can  keep  the  situation  under  continuous  re- 
view and  report  to  governments  concerned 
on  changes  in  harvest  prospects  in  any  part 
of  the  world,  and  any  other  factors  affect- 
ing the  production  or  distribution  of  food,  so 
that  the  necessary  action  can  be  taken  with 
a  minimum  of  delay. 
II.  (a)  Measures  that  can  be  taken  to  husband 
the  food  available  from  the  1946  and  1947 
harvests  and  to  insure  that  it  is  used  to  the 
best  advantage. 

(6)  Measures  to  insure  maximum  output 
from  the  1047  harvest  in  all  countries. 
III.  The  desirability  of  making  recommendations 
to  governments  regarding  a  four-  or  five-year 
l^lan,  designed  to  carry  the  world  through  the 
jjresent  crisis  and  to  assist  in  effecting  a 
smooth  transition  from  the  emergency  meas- 
ures to  a  jjermanent  world  food  policy. 


The  Record  of  the  Week 


First  Anniversary  of  V-E  Day 

STATEMENT  BY  THE  PRESIDENT 


[Released  to  the  press  by  the  White  House  May  8] 

On  the  first  anniversary  of  V-E  Day  the  people 
of  the  United  States  remember  with  grateful  pride 
the  men  and  the  women  of  the  United  Nations 
whose  luistinted  sacrifices  made  the  victory  pos- 
sible. The  year  that  has  passed  has  made  us  real- 
ize with  greater  awareness  the  nature  of  their  gift 
to  this  and  succeeding  generations.  They  gave  us 
not  justice  but  the  ojiportunity  to  achieve  it,  not 
security  but  the  opportunity  to  win  it,  not  peace 
but  the  opportunity  to  make  it.  Let  each  of  us 
judge  for  himself  how  well  in  the  past  year  we 
have  used  what  came  to  us  at  such  great  price. 


These  opportunities  will  not  be  ours  forever. 
Unless  we  take  advantage  of  them  fully,  quickly, 
and  selflessly,  they  will  slip  from  our  grasp.  A 
year  after  V-E  Day,  the  opportunities  that  it 
brought  to  build  a  just,  secure,  and  peaceful  world 
are  still  with  us.  To  the  extent  that  we  maintain 
our  unity  within  ourselves  and  with  other  peoples, 
and  to  the  extent  that  we  dedicate  ourselves  wholly 
and  unselfishly  to  the  mighty  tasks  confronting 
us,  they  will  become  on  succeeding  anniversaries 
not  narrowing  but  expanding  vistas  of  the  hopes 
of  man. 


The  Inter-American  Military  Cooperation  Act 

LETTER  FROM  THE  PRESIDENT  TO  THE  CONGRESS 


[Released  to  the  press  by  the  White  House  May  6] 

To  the  Congress  of  the  United  States  : 

I  submit  herewith  for  the  consideration  of  the 
Congress  a  bill  to  be  entitled  "The  Inter- American 
Military  Cooperation  Act"  authorizing  a  program 
of  military  collaboration  with  other  American 
States  including  the  training,  organization,  and 
equipment  of  the  armed  forces  of  those  countries. 
I  recommend  that  the  Congress  give  this  bill  its 
favorable  consideration  and  enact  it. 

For  several  years  our  Army  and  Navy  have 
maintained  cordial  relations  of  collaboration  with 
the  armed  forces  of  other  American  republics 
witliin  tlie  framework  of  the  Good  Neighbor  Pol- 
icy. Under  authorization  of  the  Congress,  mili- 
tai'y  and  naval  training  missions  have  been  sent  to 
various  American  republics.  During  the  recent 
war,  even  prior  to  Pearl  Harbor,  this  collaboration 
was  intensively  developed  on  the  basis  of  inter- 


American  undertakings  for  hemisphere  defense. 
Training  activities  were  expanded,  and  under  the 
Lend-Lease  Act  limited  amounts  of  military  and 
naval  equipment  were  made  available  to  the  other 
American  republics  as  part  of  the  hemisphere 
defense  program.  Forces  from  two  of  the  Amer- 
ican republics  participated  in  combat  overseas,  and 
others  joined  in  the  defense  of  the  shores  and  seas 
of  the  Americas  at  a  time  when  the  danger  of 
invasion  of  our  continents  was  all  too  great. 

More  recently  the  American  republics  have  as- 
sumed new  responsibilities,  for  their  mutual  de- 
fense and  for  tlie  maintenance  of  peace,  in  the 
Act  of  Chapultepec  and  the  Charter  of  the  United 
Nations.  The  close  collaboration  of  the  American 
republics  provided  for  in  the  Act  of  Chapultepec, 
the  proposed  treaty  to  be  based  upon  that  Act,  and 


'  H.  Doc.  548,  79th  Cong. 


859 


860 


DEPARTMENT  OF  STATE  BULLETIN 


otlier  basic  inter-American  documents,  makes  it 
liiglily  desirable  to  standardize  military  organiza- 
tion, training  methods  and  equipment  as  has  been 
recommended  by  the  Inter- American  Defense 
Board. 

Under  the  bill  transmitted  herewith,  the  Army 
nnd  Navy,  acting  in  conjunction  with  the  Depart- 
ment of  State,  would  be  j^ermitted  to  continue  in 
the  future  a  general  program  of  collaboration  witli 
the  armed  forces  of  our  sister  republics  with  a  view 
to  facilitating  the  adoption  of  similar  technical 
standards.  Certain  additional  training  activities, 
not  covered  by  existing  legislation,  would  be  per- 
mitted. The  President  would  also  be  authorized 
to  transfer  military  and  naval  equipment  to  the 
(xovernments  of  other  American  States  by  sitle  or 
other  method. 

The  collaboration  authorized  by  the  bill  could 
lie  extended  also  to  Canada,  whose  cooperation 
with  the  United  States  in  matters  affecting  their 
common  defense  is  of  particular  importance. 

A  special  responsibility  for  leadership  rests 
upon  the  United  States  in  this  matter  because  of 
the  preponderant  technical,  economic  and  military 
resources  of  this  country.  There  is  a  reasonable 
and  limited  purpose  for  which  arms  and  military 
equipment  can  rightfully  be  made  available  to  the 
other  American  States.  This  Government  will 
not,  I  am  sure,  in  any  way  approve  of,  nor  will  it 
jiarticipate  in,  the  indiscriminate  or  unrestricted 
distribution  of  armaments,  which  would  only  con- 
tribute to  a  useless  and  burdensome  armaments 
race.  It  does  not  desire  that  operations  under  this 
bill  shall  raise  unnecessarily  the  quantitative  level 
of  armament  in  the  American  republics.  To  this 
end  tlie  bill  specifies  that  amounts  of  non-standard 
material  shall  be  sought  in  exchange  for  United 
States  equipment. 

It  is  my  intention  that  any  operations  under  this 
Bill,  which  the  Congress  may  authorize,  shall  be 
in  every  way  consistent  with  the  wording  and 
spirit  of  the  United  Nations  Charter.  The  bill 
lias  been  drawn  up  primarily  to  enable  the  Ameri- 
can nations  to  carry  out  their  obligations  to  coop- 
erate in  the  maintenance  of  inter-American  peace 


and  security  under  the  Charter  and  tlie  Act  of 
Chapultepec  which  is  intended  to  be  supplanted 
by  a  permanent  Inter-American  Treaty. 

It  is  incumbent  upon  this  Government  to  see 
that  military  developments  in  which  we  have  a 
part  are  guided  towards  the  maintenance  of  peace 
and  security  and  that  military  and  naval  estab- 
lishments are  not  encouraged  beyond  what  security 
considerations  require.  In  this  connection  the  bill 
provides  that  operations  thereunder  are  subject 
to  any  international  agreement  for  the  regulation 
of  armaments  to  which  the  United  States  may  be- 
come a  party.  In  addition  provision  will  be  made 
for  continuing  coordination  of  the  actual  opera- 
tions under  the  legislation  with  developing  plans 
and  policy  in  the  field  of  armaments  regulation. 

In  executing  this  progi'am  it  will  be  borne  in 
mind,  moreover,  that  it  is  the  policy  of  this  Gov- 
ernmeirt.  to  encourage  the  establishment  of  sound 
economic  conditions  in  the  other  American  repub- 
lics which  will  contribute  to  the  improvement  of 
living  standards  and  the  advancement  of  social 
and  cultural  welfare.  Such  conditions  are  a  pre- 
requisite to  international  peace  and  security.  Op- 
erations under  the  proposed  legislation  will  be 
conducted  with  full  and  constant  awareness  that 
no  encouragement  should  be  given  to  the  imposi- 
tion upon  other  people  of  any  useless  burden  of 
armaments  which  would  handicap  the  economic 
impx'ovement  which  all  countries  so  strongly  de- 
sire. The  execution  of  the  program  authorized 
by  the  bill  will  also  be  guided  by  a  determination 
to  guard  against  placing  weapons  of  war  in  the 
hands  of  any  groups  who  may  use  them  to  oppose 
the  peaceful  and  democratic  principles  to  which 
the  United  States  and  other  American  nations  have 
so  often  subscribed. 

In  entering  into  agreements  with  other  Ameri- 
can States  for  the  provision  of  training  and  equip- 
ment as  authorized  by  the  bill,  the  purposes  of  this 
program  will  be  made  clear  to  each  of  the  other 
governments. 

Harry  S.  Truman 

The  WnriE  House 
May  6, 1946 


Addresses  of  the  Week 


Frank  Whitsoii  Fetter 

Chief  of  the  Division  of  Investment 
;ind    Economic    Development. 


Rebnilding  Multilateral  Trade;  see 
Dep;irtment  of  State  press  release 
321  of  May  11. 


Made  at  the  UniTersity  of  Michigan 
in  Ann  Arbor,  Mich.,  on  May  1.3. 


MAY  19,  1946 


861 


Exchange  of  Messages  on  the  Food  Crisis  in  India 


(Released  to  the  press  May  12] 

From  the  Viceroy  of  India  {Lord  Wavell)  to  the 
President  dated  April  15, 19^6 

Eeports  indicating  that  quantities  of  wheat  pro- 
grammed for  India  by  the  Combined  Food  Board 
are  being  cut  down  have  caused  great  anxiety  here. 
I  sincerely  trust  they  are  ill  founded,  and  would 
be  grateful  for  an  assurance.  The  impression 
seems  to  have  got  about  that  late  rains  in  northern 
India  have  changed  the  whole  position.  This  is 
entirely  incorrect.  The  rain  came  too  late  to  pre- 
vent serious  damage,  and  the  total  rainfall  for  the 
cold  weather  was  about  one-third  to  one-half  of 
the  average.  If  the  yields  have  improved  in  any 
part  of  the  country  as  compared  with  our  estimates 
(which  remains  to  be  seen)  procurement  cannot  be 
affected  in  any  case  until  the  second  half  of  19-16. 
Our  demands  for  the  first  half  of  1946  relate  to 
the  previous  harvest  in  which  our  estimated  de- 
ficiency is  3  million  tons  against  the  1.4  million  tons 
programmed  for  India  by  the  Combined  Food 
Board.    I  can  personally  assure  you  that  this  quan- 


tity of  1.4  million  tons  is  urgently  required  to 
prevent  serious  famine  here.  And  I  am  sure  you 
will  appreciate  our  feelings  about  any  proposal 
to  transfer  food  grains  so  urgently  needed  in  India 
to  ex-enemy  countries. 

From  the  President  to  the  Viceroy  of  India  dated 
May  3, 19Jfi 

I  have  received  through  the  Indian  Agent  Gen- 
eral in  Washington  your  personal  message  with 
regard  to  the  critical  food  situation  in  India.  You 
may  be  sure  that  the  gravity  of  the  food  shortage 
in  India  is  thoroughly  recognized  by  the  United 
States  Government  and  is  receiving  the  fullest  and 
most  sympathetic  consideration  on  the  highest 
levels  of  the  Government.  I  am  aware  that  the 
rains  which  occurred  in  some  sections  of  India  in 
the  latter  part  of  February  have  done  little  to 
ameliorate  the  seriousness  of  the  situation  as 
pointed  out  to  me  by  the  distinguished  Chairman 
of  the  Indian  Food  Delegation  which  recently  vis- 
ited this  country. 


Continuation  of  Combined  Food  Board  Operations 

JOINT  STATEMENT  BY  THE  PRESIDENT  AND  THE  PRIME  MINISTERS  OF  GREAT 

BRITAIN  AND  CANADA^ 


[Released  to  the  press  by  the  White  House  May  8] 

Statement  issved  by  tfie  President  of  the  United 
States  and  the  Prim^  Ministers  of  Great  Britain 
and  Canada  on  May  8 

We  announced  on  December  10,  1945  plans  to 
terminate  two  of  the  combined  supply  boards  but 
stated  that  the  food  shortages  continued  to  be  such 
that  the  Combined  Food  Board  could  not  then  be 
dissolved.-  It  was  thought  at  that  time  that  the 
Combined  Food  Board  might  finish  its  work  by 
June  30,  194<).  More  recently  we  have  decided 
that  this  Board  should  be  continued  until  Decem- 
ber 31,  1946,  because  of  the  deterioration  that  has 
occurred  in  the  world  food  situation  in  recent 
months  and  the  need  to  continue  to  control  the  dis- 

'  Released  simultaneously  in  London,  Ottawa,  and  Wash- 
ington. 

*  Bulletin  of  Dec.  16.  194-5,  p.  975. 


tribution  of  many  foods  with  a  view  to  preventing 
widespread  suffering  and  starvation.  The  question 
of  whether  it  will  be  necessary  to  continue  the 
Board  beyond  the  end  of  this  year  will  be  reviewed 
after  the  food  outlook  for  1947  becomes  clearer. 

The  recent  deterioration  in  the  world  food  situa- 
tion has  been  due  primarily  to  drought  in  many 
countries  and  to  the  fact  that  grain  was  consumed 
during  the  latter  half  of  1945  at  a  faster  rate  than 
was  justified  by  actual  supply.  These  develop- 
ments came  at  a  time  when  the  food  situation  had 
already  been  undermined  by  factors  attributable 
to  the  war.  During  recent  months  it  has  become 
apparent  that  serious  shortages  of  basic  foodstuffs 
probably  will  continue  beyond  the  coming  harvest. 
Under  these  circumstances  it  is  essential  that  the 
Combined  Food  Board  should  continue  its  opera- 
(Continiifd  on  nc.rt  poge) 


862 


DEPARTMENT  OF  STATE  BULLETIN 


International  Short-Wave 
Broadcasting  Committee 

[Released  to  the  press  May  11] 

On  May  11  Assistant  Secretary  of  State  Benton 
announced  the  appointment  of  a  committee  to  ad- 
vise him  and  tlie  State  Department  on  the  content 
of  the  international  short-wave  broadcasting  of  the 
United  States. 

The  committee,  which  will  meet  for  the  first 
time  on  May  13  (Monday)  in  New  York,  will  con- 
sist of  eight  or  nine  members  and  two  consultants. 
It  will  apprise  the  content  of  the  overseas  "Voice 
of  America"  broadcasting,  which  is  now  carried 
on  in  24  languages  and  totals  over  400  program- 
hours  a  week.  It  will  study  this  broadcasting  in 
terms  of  the  quality,  effectiveness,  and  objectivity 
of  tlie  programs. 

The  members  of  the  committee  are : 

Mark  Ethridge,  publisher  of  the  Louisville 
Courier- Journal  and  former  president  of  the  Na- 
tional Association  of  Bi-oadcasters. 

Don  Francisco,  vice  president  and  director  of 
the  J.  Walter  Thompson  Advertising  Agency,  and 
formerly  Assistant  Coordinator  of  Inter-Ameri- 
can Affairs,  in  which  position  he  developed  and 
directed  the  broadcasting  activities  of  that  office. 

Gardner  Cowles,  Jr.,  publisher  of  the  Des 
Moines  Register  and  Tribune,  president  of  the 
Cowles  Broadcasting  Company,  and  formerly  di- 
i-ector  of  OWI's  domestic  information  progi-um. 

Roy  E.  Larsen,  president  of  Time,  Inc.,  who  pio- 
neered in  broadcasting  through  the  development 
of  the  "March  of  Time"  broadcast  series. 

Professor  Harold  Lasswell,  School  of  Law, 
Yale  University,  director  of  War  Communications 
Eesearch,  Library  of  Congress,  from  1941  to  1944, 
author  of  Democracy  Through  Puhlic  Opinion 
and  other  studies  of  communications  and  public 
opinion. 

Sterling  Fisher,  Assistant  Public  Service 
Counselor,  National  Broadcasting  Company,  di- 
rector of  the  "NBC  University  of  the  Air",  and 
director  of  the  "NBC  United  Nations  Project". 

The  Reverend  Robert  I.  Gannon,  president, 
Fordham  Universitv,  and  trustee  of  Town  Hall, 
New  York,  N.  Y. 

Edward  R.  Murroav,  vice  president  of  the  Co- 


lumbia Broadcasting  System,  in  charge  of  public 
affairs,  formerly  chief  of  CBS  European 
Operations. 

The  consultants  of  the  Committee  are : 
Philip  Cohen,  supervisor  of  radio  and  televi- 
sion, Ruthrauff  and  Ryan  Advertising  Agency, 
formerly  director  of  the  American  Broadcasting 
Station  in  Europe,  and  formerly  radio  director, 
U.  S.  Office  of  Education. 

Victor  Hunt,  jjolicy  coordinator.  Office  of 
International  Information  and  Cultural  Relations, 
Dejiartment  of  State. 

Short-wave  broadcasting  is  one  of  the  principal 
methods  by  which  a  full  and  fair  picture  of 
America  can  be  projected  to  the  peoples  of  other 
lands,  Mr.  Benton  pointed  out  in  announcing  the 
formation  of  the  committee. 

"It  is  estimated  that  there  are  now  more  than 
20  million  radio  sets  outside  the  United  States 
capable  of  receiving  short  wave."  He  said,  "This 
number  is  bound  to  multiply.  In  many  areas  there 
is  no  other  means  of  getting  information  directly 
from  the  United  States.  It  is  obviously  important 
to  the  cause  of  international  understanding  and 
peace  that  foreign  peoples  should  get  an  accurate, 
balanced  picture  of  American  life,  and  of  the  aims 
and  policies  of  the  United  States  Government. 
Broadcasting  is  a  vital  medium  to  this  end. 

"I  am  gTatified  that  this  distinguished  group 
has  agreed  to  advise  the  State  Department  on  the 
content  of  the  'Voice  of  America'  broadcasting." 

FOOD  BOARD— Contmued  Jrom  page  861. 
tions  in  order  to  promote  the  best  possible  utiliza- 
tion of  world  food  supplies. 

The  commodity  committees,  which  carry  on  the 
day-to-day  work  of  the  Board,  consist  of  represent- 
atives of  major  exporting  and  importing  countries. 
These  coimnittees  provide  a  forum  in  which  the 
greatest  possible  measure  of  agreement  is  sought 
concerning  the  maximum  of  food  which  can  be 
made  available  for  export  and  the  pattern  of  its 
distribution.  The  Board  and  the  committees  will 
continue  to  provide  a  forum  for  the  integration  of 
national  programs  and  the  assembly  of  the  fullest 
information  on  supplies  and  requirements  for  the 
jjurpose  of  recommending  allocation  to  the  govern- 
ments affected. 


MAY  19,  1946 


863 


Anglo-American  Rice 
Commission 

[Kelcasfil  tii  tlio  pross  May  "J  I 

On  May  6  there  was  signed  at  Bangkok  a  tri- 
partite agreement  between  the  Governments  of 
the  United  States,  United  Kingdom,  and  Siam 
whereby  there  is  established  at  Bangkok  an  Anglo- 
American  Rice  Commission  to  assist  the  Siamese 
Government  in  stimulating  the  production  of  rice 
and  to  expedite  the  exj3ort  of  rice.  The  Commis- 
sion will,  in  agreement  with  the  Siamese  Govern- 
ment, determine  the  scale  of  prices  to  be  paid  for 
various  grades  of  rice  and  will  have  authority 
over  all  actual  exportation.  The  agreement  pro- 
vides that  all  exports  shall  be  in  accordance  with 
allocations  recommended  by  the  Combined  Food 
Board  at  Washington.  The  American  and  British 
Governments  agree  to  support  Siamese  member- 
ship on  the  Rice  Committee  of  the  Combined  Food 
Board.  The  agreement  runs  to  September  1,  1946 
but  is  renewable  at  the  request  of  the  United  States 
and  British  Governments  for  two  further  periods  ■ 
of  six  months  each.  The  United  States  believes 
that  the  Rice  Commission  will  greatly  accelerate 
the  movement  of  rice  from  Siam  to  deficit  areas 
in  the  Far  East. 

In  this  connection  the  United  States  Govern- 
ment welcomes  the  recent  action  of  the  British 
Government  in  abandoning  the  provision  included 
in  the  British-Siamese  agreement  signed  at  Singa- 
pore, January  1, 1946,  requiring  Siam  to  contribute 
free  of  cost  to  countries  designated  by  the  British 
an  amount  of  rice  equal  to  the  amount  of  surplus 
rice  in  Siam  at  the  conclusion  of  the  war  but  not 
exceeding  1,500,000  tons.  This  Government  from 
the  first  regretted  the  principle  embraced  in  this 
free-rice  demand  and  has  long  felt  that  this  was 
one  of  the  most  serious  impediments  which  has 
delayed  the  procurement  of  Siamese  rice  so 
urgentlj'  needed  in  India,  China,  Malaya,  the  Phil- 
ippines, and  other  areas  in  the  Far  East.  This 
delay  has  been  especially  unfortunate  as  Siam  is 
the  only  country  in  the  Far  East  with  any  sub- 
stantial exportable  surplus  of  rice. 

The  new  arrangement  between  Great  Britain 
and  Siam  provides  that  Siam  will  export  1,200,000 
tons  of  rice  between  May  1,  1946  and  May  1, 1947. 
All  such  rice  will  be  paid  for,  but  if  the  full 
amount  stated  is  not  exported  Siam  will  make 
a   free   contribution  the   following  year   of   the 


amount  by  which  exports  fall  short  of  the  target 
figure. 

In  consultation  with  the  Siamese  Government 
and  American  representatives  in  Bangkok,  a  basic 
price  for  35  percent  broken  rice  has  been  estab- 
lished at  the  equivalent  of  12  pounds  14  shillings 
ex  mill  (approximately  $51)  a  ton.  In  addition, 
as  an  added  incentive  for  prompt  exports,  a  pre- 
mium of  3  pounds  ($12)  a  ton  is  to  be  paid  for  all 
rice  delivered  before  June  1,  and  of  1  pound  10 
shillings  ($6)  a  ton  for  all  rice  delivered  between 
June  1  and  June  15.  Thereafter,  it  is  intended 
that  prices  for  Siamese  rice  will  remain  unchanged 
at  least  until  about  March  1,  1947,  by  which  time 
most  of  the  1946-47  crop  will  have  been  sold. 
Dealers  and  farmers  will  thus  have  assurance  as 
to  the  prices  which  they  may  expect  for  their 
rice. 

Another  factor  which  has  retarded  the  export 
of  Siamese  rice  is  the  uncertainty  in  Siam  as  to 
exchange  rates  and  the  lack  of  consumer  goods 
and  transportation  equipment.  It  is  understood 
that  official  exchange  rates  are  being  established  by 
the  Siamese  Government  in  accordance  with  which 
10  Siamese  baht  or  tical  will  equal  approximately 
one  United  States  dollar. 

Recognizing  the  urgent  Siamese  need  for  sup- 
plies, this  Government  recently  approved  a  sur- 
plus-property contract  of  $10,000,000  with  20-year 
credit  at  2%  percent  and  with  a  provision  for  an 
additional  $10,000,000  if  items  needed  by  Siam  can 
be  seciu-ed  from  surplus  property  abroad.  On 
April  19  all  Siamese  assets  in  this  country  were 
unfrozen.  This  Government  has  completed  ar- 
rangements for  the  sale  of  war-surplus  garments 
urgently  needed  by  Siamese  farmers  and  has  taken 
steps  to  arrange  for  the  sale  to  the  Siamese  Gov- 
ernment on  long-term  ci-edit  of  a  number  of  meter- 
gage  locomotives  and  cars  now  in  India  which 
had  been  lend-leased  to  the  British  Government 
during  the  war. 

The  British  Government  is  also  arranging  for 
the  importation  into  Siam  of  large  quantities  of 
textiles,  medical  supplies,  and  hand  farm  tools. 

The  Siamese  authorities,  recognizing  the  ur- 
gency of  world  food  shortages,  have  pledged  their 
utmost  efforts  to  expedite  the  export  of  Siamese 
rice,  and  this  Government  hopes  that  the  steps  now 
being  taken  will  start  the  flov?  of  surplus  rice, 
which  has  been  delayed  so  long,  from  Siam  to  the 
other  countries  of  the  Far  East  where  serious 
famine  exists. 


864 

Agreement  Proposed  With 
U.K.  for  Use  of  Leased  Bases 
by  Civil  Aircraft 

[Released  to  the  press  May  7] 

Dean  Aclieson.  Acting  Secretary  of  State,  an- 
nounced on  May  7  that  the  British  Government 
has  confirmed  its  willingness  to  conclude  a  formal 
agreement  based  on  the  proposed  arrangement 
negotiated  at  the  Bernuida  Aviation  Conference 
witli  respect  to  opening  the  99-year  leased  bases 
to  civil  airci-aft.  Agreement  was  reached  at  Ber- 
nuida on  virtually  all  aspects  of  the  problem,  but 
a  few  matters  were  reserved  for  further  study  by 
the  two  Governments.^ 

Following  conversations  which  have  taken  place 
since  the  Bermuda  conference,  notes  were  ex- 
changed on  May  6  between  the  Department  of  State 
and  the  British  Embassy  in  which  pending  ques- 
tions were  settled  in  substance.  It  has  been  ar- 
ranged that  a  formal  agreement  should  be  con- 
cluded in  the  very  near  future,  and  it  is  expected 
that  a  British  delegation  will  shortly  arrive  in  this 
country  to  work  out  the  final  details.  The  agree- 
ment will  cover  bases  in  the  Caribbean  area  and 
Bermuda. 

The  United  States  has  made  a  reservation  to 
tlie  effect  that  the  agreement  will  not  become  ef- 
fective luitil  satisfactory  arrangements  are 
reached  with  the  Governments  of  Canada  and 
Newfoundland  regarding  the  civil  use  of  four  air- 
fields in  Newfoundland  and  Labrador,  two  of 
which  are  included  in  the  99-year-base  category. 
Discussions  are  proceeding  with  the  Canadian  and 
Newfoundland  authorities,  and  agreement  is  ex- 
pected shortly. 

The  Department  of  State  also  calls  attention  to 
paragraph  8  of  the  Final  Act  of  the  conference, 
which  reads: 

"(8)  That  duly  authorised  United  States  civil 
air  carriers  will  enjoy  non-discriminatory  'Two 
Freedom'  privileges  and  the  exercise  (in  accord- 
ance with  the  Agreement  or  any  continuing  or 
subsequent  agreement)  of  commercial  traffic  rights 
at  airjjorts  located  in  territory  of  the  United  King- 
dom which  have  been  constructed  in  whole  or  in 
part  with  United  States  funds  and  are  designated 
for  use  by  international  civil  air  cai-riers." 

■  BTJLLETtN  of  Apr.  7,  1946,  p.  .'593. 


DEPARTMENT  OF  STATE  BULLETIN 

Invitations  Extended  for 
Witness  of  Atomic-Bomb  Tests 

[Released  to  the  press  May  7] 

The  Acting  Secretary  of  State  announced  on 
May  7  that,  by  authority  of  the  President,  invi- 
tations are  being  extended  to  all  nations  having 
membership  in  the  United  Nations  Atomic  Energj' 
(.Commission  to  have  governmental  and  press  ob- 
servers in  attendance  to  witness  the  atomic-bomb 
tests,  known  as  "Operation  Crossroads".  These 
tests  will  be  conducted  during  the  months  of  July 
and  August  1946  at  Bikini  Atoll  in  the  :Marshal!s 
Group,  subject  to  the  prior  approval  by  Congress 
of  the  allocation  of  naval  ships  for  tliis  purpose. 

The  test  is,  in  its  entirety,  an  undertaking  of  tlie 
United  States  Government  and  is  not  a  combined 
or  international  operation. 

The  United  Nations  Atomic  Energy  Commis- 
sion is  composed  of  those  nations  members  of  the 
United  Nations  Security  Council,  plus  Canada, 
as  follows: 


Australia 

Netherlands 

Brazil 

Poland 

Canada 

Union  of  Soviet  Social 

China 

ist  Republics 

Egypt 

United  Kingdinu 

France 

United  States 

Mexico 

British  Officials  To  Discuss 
Food  Crisis  With  the  President 

[Released  to  the  press  by  the  White  House  May  8] 

Herbert  Morrison  has  been  charged  by  the  Brit- 
ish Government  with  a  mission  to  the  President  to 
discuss  the  world  food  crisis  with  the  President 
and  his  advisers  and  to  explore  further  measures 
which  might  be  taken  to  meet  the  situation.  The 
President  has  indicated  that  he  would  welcome  the 
proposed  mission.  Mr.  Morrison,  who  will  be  ac- 
companied by  officials  of  the  British  departments 
concerned,  is  Lord  President  of  the  Council  in  the 
British  Cabinet.  He  is  expected  to  leave  England 
by  air  on  May  10  or  11. 


MAY  19,  1946 


865 


Publication  of  Rej3ort  of 
Allied  Mission  to  Observe 
Greek  Elections 

[Released  to  the  press  liy  the  White  House  ^Fny  10] 

There  Mas  made  available  to  the  public  on  ]May 
10  the  complete  text  of  the  unanimous  report  of 
the  Allied  Mission  to  Observe  the  Greek  Elec- 
tions/ which  was  signed  in  Athens  on  April  10, 
ten  days  after  the  Greek  national  elections,  by  rep- 
resentatives of  the  three  Governments  which  had 
participated  in  the  fi'iendly  task  of  assisting  an 
Ally  to  restore  democratic  processes  after  many 
years  of  jiolitical  inactivity  and  enemy  occupation. 
Simvdtaneously  this  report  was  released  by  the 
Britisli  Government  in  London  and  by  the  Frencli 
(iovernment  in  Paris,  and  a  copy  is  being  presented 
on  behalf  of  the  three  Governments  to  the  Greek 
Government  in  Athens. 

Tlie  Allied  Mission  to  Observe  the  Greek  Elec- 
tions created  a  precedent  in  the  diplomatic  history 
of  free  and  independent  countries.  Following 
the  Yalta  declaration  on  liberated  Europe  of  Feb- 
luary  11,  1945,  in  which  the  three  participating 
powers  assumed  responsibility  for  assisting  liber- 
ated nations  to  facilitate,  where  necessary,  the 
holding  of  free  elections  to  establish  governments 
responsive  to  the  will  of  the  people,  the  British, 
French,  and  United  States  Governments  accepted 
an  invitation  from  the  Greek  Government  to  ob- 
serve the  Greek  elections  and  to  report  the  results 
of  their  observation  to  the  world. 

For  three  months  prior  to  the  Gi-eek  elections 
on  March  31,  an  Allied  organization  of  approxi- 
mately 1.200  persons  made  preparations  for  a  sci- 
entific observation  of  election  procedures';  for 
several  weeks  before  and  about  one  week  after 
the  elections,  Allied  observation  teams  traveled 
throughout  Greece  and  the  Greek  islands,  examin- 
ing election  lists,  questioning  officials  and  party 
representatives,  collecting  other  pertinent  infor- 
mation, and  reporting  to  the  central  office  of  the 
Mission  any  irregularities  which  warranted  the 
attention  of  the  Greek  Government. 

Although  the  report  as  released  contains  the 
complete  text  of  the  signed  report  and  several  im- 
portant appendixes,  it  has  not  been  feasible  to  in- 


clude in  it  all  supplementary  documentation, 
charts,  maps,  tables,  and  lists.  It  is  contemplated 
that  at  some  time  in  the  future  the  report  will  be 
published  in  volume  form  with  full  documentation 
as  a  valuable  contribution  to  specialists  in  inter- 
national affairs. 


'  Department  of  State  publication  2522,  copips  of  which 
may  be  obtained  from  tlie  Division  of  Research  and  Pub- 
lication, Department  of  State. 


Comments  on  U.S.  Proposals 
for  New  Agency  To  Handle 
Resettlement  of  Displaced 
Persons 

At  Acting  Secretary  Acheson's  press  and  radio 
news  conference  on  May  3  a  correspondent  asked 
for  comment  on  press  dispatches  from  London 
that  the  United  Nations  Committee  on  Refugees 
voted  12  to  6  to  recommend  the  United  States 
proposal  for  creation  of  a  new  agency  outside  of 
the  LTnited  Nations  framework  to  handle  reset- 
tlement of  displaced  persons  still  on  the  UNRRA 
rolls.  Mr.  Acheson  replied  that  George  L.  Warren, 
Adviser  on  Refugees  and  Displaced  Persons  in  the 
Department  of  State,  attended  the  London  meet- 
ing which  opened  April  8,  and  at  the  meeting  he 
proposed  on  behalf  of  the  United  States  that  a 
new  agency  be  created  which,  although  fostered 
by  the  United  Nations,  would  be  entirely  separate 
from  that  organization  and  financed  separately. 
The  United  States  proposal,  he  said,  is  for  a  new 
agency  to  take  over  the  problem  of  displaced  per- 
sons and  refugees  from  the  Intergovernmental 
Committee  on  Refugees,  from  UNRRA  when  it 
terminates  the  limited  work  it  is  doing  in  this 
field,  and  from  the  High  Commissioner's  Office  of 
the  League  of  Nations  on  Displaced  Persons  and 
Refugees.  He  added  that  the  United  States  pro- 
posal had  been  apjDroved  by  a  vote  of  12  to  6  and 
that  the  action  presumably  would  be  referred  to 
the  meeting  of  the  Economic  and  Social  Council 
of  the  United  Nations  which  opens  May  25  in  New 
York.  This  conference  recommendation,  in  turn, 
would  be  passed  on  to  the  General  Assembly  when 
it  opens  September  3.  Mr.  Acheson  commented 
that  it  was  a  very  discouraging  job  in  connection 
with  the  resettlement  of  the  refugees ;  that  we  had 
been  working  on  it  for  years  and  had  made 
discouragingly  little  progress. 

A  correspondent  asked  whether  it  would  be  the 


866 


DEPARTMENT  OF  STATE  BULLETIN 


policy  of  the  United  States  to  encourage  immigi-a- 
tion  to  other  countries  of  displaced  persons,  sug- 
gesting that  many  of  them  would  go  to  Latin 
American  counti'ies  if  the  individual  countries 
would  be  willing  to  receive  them.  Mr.  Acheson 
replied  that  he  thought  it  would  not  only  be  the 
policy  but  tliat  the  United  States  would  be  most 
grateful  for  people  who  would  coo^Derate  in  that 
effort.  Asked  if  he  would  be  willing  under  such 
circumstances  to  have  some  sort  of  arrangement 
whereby  their  transportation  costs  would  be  shared 
on  a  like  basis  instead  of  being  borne  by  the  coun- 
tries to  which  they  were  to  go,  Mr.  Acheson  replied 
that  he  thought  something  could  be  worked  out, 
that  we  had  a  temporary  arrangement  which  was 
voted  in  the  last  UNRRA  Council  meeting  by 
which  they  would  bear  the  transportation  expenses 
of  resettlement. 


Estimate  for  UNRRA 
Appropriation 

PRESIDENT'S    LETTER    OF   TRANSMITTAL 
TO  CONGRESS  1  . 

The  White  House, 
Washington,  May  1, 1946. 
The  Speaker  of  the  House  of  Representatives. 

Sir  :  I  have  the  honor  to  transmit  herewith  'for 
the  consideration  of  Congress  a  supplemental  es- 
timate of  appropriation  for  the  fiscal  year  1946 
in  the  amount  of  $600,000,000  for  the  United  Na- 
tions Relief  and  Rehabilitation  Administration. 

The  details  of  this  estimate,  the  necessity  there- 
for, and  the  reasons  for  its  submission  at  this  time 
are  set  forth  in  the  letter  of  the  Director  of  the 
Bureau  of  the  Budget,  transmitted  herewith,  in 
whose  comments  and  observations  tliereon  I 
concur. 

Respectfully  yours, 

Harry  S.  Truman 

[Enclosure] 


'  H.  Doc.  543,  79th  Cong. 


Executive  Office  of  the  President, 

Bureau  of  the  Budget, 
Washington  25,  D.  C,  Ap7yl  30, 1.946. 

The  President, 

The  White  House. 
Sir:  I  have  the  honor  to  submit  herewith  for 
your  consideration  a  suijplemental  estimate  of  ap- 
propriation for  the  fiscal  year  1946  for  the  further 
pai'ticipation  of  the  United  States  in  the  work  of 
the  United  Nations  Relief  and  Rehabilitation 
Administration  in  the  fiscal  years  1946  and  1947 
in  the  amount  of  $600,000,000  as  follows: 

united  nations  relief  and  rehabilitation 
administration 

For  an  additional  amount  to  enable  the 
President  to  carry  out  the  provisions  of 
the  Act  of  March  28,  1944  (Public  Law 
267),  as  amended,  to  be  consolidated  with 
the  appropriations  for  the  same  purix>se  in 
the  United  Nations  Relief  and  Rehabilita- 
tion Administration  Participation  Appro- 
priation Act,  1945,  the  United  Nations 
Relief  and  Rehabilitation  Administration 
Participation  Act,  1946,  and  the  First  De- 
ticiency  Appropriation  Act,  1946,  $600,- 
000,000,  to  remain  available  until  June 
30,  1947:  Provided,  That  said  consoli- 
dated funds  may  be  expended  witho\it  re- 
gard to  the  limitations  in  the  proviso 
clause  of  the  first  paragraph  of  the 
United  Nations  Relief  and  Rehabilita- 
tion Administration  Participation  Act, 
1946 $600,  000,  000 

The  United  Nations  Relief  and  Rehabilitation 
Administration  is  in  urgent  need  of  additional 
funds  at  this  time  in  order  to  continue  its  program. 

Congress  has  authorized  the  appropriation  of 
$2,700,000,000  for  United  States  participation  in 
the  UNRRA  activities,  of  which  amount  $2,100,- 
000,000  have  already  been  appropriated.  The 
$600,000,000  herein  requested  will  complete  the  au- 
thorized contribution. 

The  foregoing  supplemental  estimate  of  appro- 
priation is  made  necessary  by  reason  of  contingen- 
cies which  have  arisen  since  the  transmission  of 
the  Budget  for  the  fiscal  year  1946.  I  recommend 
that  it  be  transmitted  to  the  Congress. 
Very  resjiectf  uUy  yours, 

Harold  D.  Smith, 
Director  of  the  Bureau  of  the  Budget. 


MAY  19,  1946 


867 


Visit  of  Manuel  Roxas 
to  United  States 

STATEMENT  BY  THE  PRESIDENT 

[Releaseil  to  the  press  by  the  White  House  May  10] 

I  was  happy  to  meet  today  the  newly  elected 
President  of  the  Philippine  Commonwealth,  who 
will,  on  July  4,  be  proclaimed  President  of  the 
Republic  of  the  Philippines. 

General  Roxas  will  have,  as  President  Osmeiia 
has  had,  the  full  and  heart-felt  cooperation  of  the 
United  States  Government  in  the  many  mutual 
concerns  of  Philippjne-American  relations.  The 
United  States  is  committed  to  the  advancement  of 
the  national  welfare  of  the  infant  Republic.  We 
sympathize  with  the  plight  of  the  heroic  Philip- 
pine people.  We  shall  continue  to  do  wdiatever 
we  can  to  help  them  on  the  road  to  economic  re- 
covery and  national  prosperity. 

We  discussed  some  of  the  more  immediate  needs 
of  the  Commonwealth.  President-elect  Roxas  was 
authorized  by  President  Osmeiia  to  speak  for  the 
Philippine  nation  in  these  discussions.  I  expect  to 
see  General  Roxas  again  befoi'e  he  leaves.  The 
discussions  will  go  forward  with  other  officials  of 
this  Government. 


Visit  of  Bolivian  Educator 

[Released  to  the  press  May  a] 

Enrique  Baldivieso,  professor  of  constitutional 
law  and  of  Greek  philosophy  in  the  University  of 
La  Paz,  Bolivia,  is  visiting  the  United  States  at 
the  invitation  of  the  Department  of  State. 

While  in  the  United  States  Dr.  Baldivieso  plans 
to  visit  some  of  the  universities,  especially  their 
law  schools,  industrial  establishments,  and  certain 
Government  agencies.  He  is  interested  in  a  study 
of  the  social-security  and  social-service  programs 
of  the  United  States  and,  in  connection  with  his 
visit  to  the  Department  of  Labor,  hopes  also  to  be 
able  to  visit  a  State  Labor  Department. 

During  his  three  months  in  the  United  States, 
Dr.  Baldivieso  will  visit  New  York,  New  Haven, 
Boston,  Buffalo,  Niagara  Falls,  Detroit,  Ann  Ar- 
bor, Chicago,  and  Washington. 


Protocol  for  Extension  of  Inter- 
American  Coffee  Agreement 

[Released  to  the  press  May  9] 

President  Truman  on  May  7, 1946  proclaimed  the 
protocol  for  the  extension  of  the  Inter- American 
Coffee  Agreement  for  one  year  from  October  1, 
1945.  The  protocol  was  open  for  signature  at 
Washington  from  October  1,  1945  to  November  1, 
1945,  and  during  that  period  was  sign^ed  for  the 
United  States  of  America  (subject  to  ratification) 
and  the  14  other  American  republics  parties  to  the 
Inter- American  Coffee  Agreement  of  November  28, 
1940,  namely:  Brazil,  Colombia  (ad  referendum), 
Costa  Rica,  Cuba  (subject  to  ratification  by  its 
Senate),  Dominican  Republic,  Ecuador  (ad  refer- 
endum). El  Salvador,  Guatemala  (ad  referen- 
dum), Haiti,  Honduras,  Mexico,  Nicaragua  (ad 
referendum),  Peru  (ad  referendum),  and  Vene- 
zuela (ad  referendum).  The  protocol  was  ap- 
proved by  the  Senate  on  April  11,  1946  and  was 
ratified  by  the  President  on  April  29.  The  instru- 
ment of  ratification  by  the  United  States  was  de- 
posited with  the  Pan  American  Union  on  May  1, 
1946. 

The  protocol  retains  the  framework  of  the  Inter- 
American  Coffee  Agreement  for  a  one-year  period 
but  suspends  the  provisions  of  ai'ticles  I  to  VIII, 
inclusive,  of  that  agreement,  which  relates  to  cof- 
fee quotas,  with  the  exception  that  under  emer- 
gency conditions  those  articles  of  the  agreement 
shall  again  become  effective  upon  a  motion  ap- 
proved by  at  least  95  percent  of  the  total  vote  of 
the  Inter-American  Coffee  Board. 

Article  3  of  the  protocol  provides  that  during 
the  one-year  period  for  which  the  protocol  extends 
the  agreement  the  Inter-American  Coffee  Board 
shall  undertake  to  prepare  a  thorough  analysis  of 
the  world  coffee  situation  and  shall  formulate  rec- 
ommendations, for  the  consideration  of  the  govern- 
ments now  participating  in  the  agreement  and  of 
other  governments  which  might  be  interested  in 
participating  in  a  revised  agreement,  regarding 
the  type  of  international  cooperation  that  appears 
most  likely  to  contribute  to  the  development  of 
sound,  prosperous  conditions  in  international  trade 
in  coffee  equitable  for  both  producers  and  consum- 
ers. Those  recommendations  are,  however,  to  take 
account  of  any  general  principles  of  commodity 
policy  embodied  in  any  agi-eement  which  may  be 
concluded  under  the  auspices  of  the  United  Nations 
prior  to  the  submission  of  the  recommendations. 


868 


DEPARTMENT  OF  STATE  BULLETIN 


Costa  Rican  Journalist 
Visits  U.S. 

[Reloaspd  to  the  press  April  10] 

Otilio  Ulate,  owner  and  publisher  of  the  Diai'io 
de  Costa  Rica,  largest  newspaper  in  Costa  Rica, 
and  the  evening  paper,  La  Hora,  both  published 
in  San  Jose,  Costa  Eica,  is  in  the  United  States 
at  the  invitation  of  the  Department  of  State  under 
its  travel-grant  xerogram.  Mr.  Ulate,  for  many 
years  a  distinguished  journalist  and  writer  in  his 
country,  has  recently  returned  from  Europe, 
where  he  spent  several  months  as  a  war  corre- 
spondent accredited  by  the  United  States  War 
Dejiartment. 

Mr.  Ulate  M-ill  spend  two  months  in  the  United 
States,  during  which  time  he  will  visit  Washing- 
ton, New  York,  Knoxville,  Chicago,  San  Fran- 
cisco. Los  Angeles,  Xew  Orleans,  and  Miami. 


Visit  of  Argentine 
Mathematician 

[Released  to  the  press  May  10] 

Cortes  Pla.  who  has  been  for  many  years  Vice 
Rector  of  the  University  of  the  Litoral,  Santa  Fe, 
Argentina,  and  dean  of  the  faculty  of  mathematical 
sciences  in  that  institution,  is  visiting  the  United 
States  to  observe  university  administration  and  or- 
ganization and  to  confer  with  colleagues  in  mathe- 
matics and  physics,  at  the  invitation  of  the  De- 
partment of  State. 

Dr.  Pla  was  president  of  the  Association  of  Pro- 
fessors of  the  University  of  the  Litoral.  In  1937 
he  went  to  Rio  de  Janeiro  as  ifelegate  to  the  South 
American  Engineering  Congress. 

During  his  three  months  in  the  United  States 
Dr.  Pla  plans  to  visit  the  following  universities: 
Johns  Hopkins,  Princeton,  Columbia,  Cornell, 
Yale,  Harvard,  Massachusetts  Institute  of  Tech- 
nology. Michigan,  Illinois,  and  Wisconsin. 


Agreement  With  Turkey  for  Final  Settlement  of  Lencl-Lease 


[Released  to  the  press  May  8] 

The  United  States  and  Turkey  on  May  7  signed 
an  agreement  providing  for  the  final  settlement 
of  Turkey's  lend-lease  account.  The  agreement, 
which  was  negotiated  in  Ankara  by  United  States 
Ambassador  Edwin  C.  Wilson,  calls  for  cash  pay- 
ment by  Turkey  of  $-1,500,000  within  30  days. 
Turkey  thus  becomes  the  first  country  which  re- 
ceived substantial  quantities  of  supplies  as  lend- 
lease  aid  to  agree  with  this  Government  on  an  im- 
mediate cash  liquidation  of  its  entire  financial  ob- 
ligation for  lend-lease  suiDplies. 

To  strengthen  Turkey's  capacity  to  resist  Axis 
pressure  and  to  meet  such  demands  for  Turkish 
assistance  as  Allied  strategy  might  require,  the 
United  States  and  Great  Britain  delivered  sub- 
stantial (juantities  of  war  material  to  Turkey  dur- 
ing the  war.  Under  the  authority  of  the  Lend- 
Lease  Act,  the  United  States  delivered  nearly 
$90,000,000  worth  of  military  equipment  under 
straight  lend-lease.  Additional  quantities  of  sup- 
plies for  the  civilian  economy  were  delivered  to 
Turkey  under  cash-reimbursement  lend-lease  for 
which  the  Turks  paid  at  the  time  of  shipment. 

Under  the  settlement  just  negotiated,  Turkey  is 
to  pay  for  lend-lease  equipment  of  a  civilian  nature 


now  located  in  Turkey,  and  receives  full  title  to 
this  equipment,  which  had  an  original  cost  value 
of  $5,728,000.  INIilitary  items  still  in  the  possession 
of  the  Turkish  armed  forces  are  not  being  paid 
for,  but  are  subject  to  the  right  of  recapture,  al- 
though the  United  States  stated  in  the  agreement 
that  it  does  not  intend  generall}'  to  exercise  this 
right.  The  settlement  made  with  Turkey  also 
covers  all  outstanding  claims  between  the  two 
Governments  arising  from  the  war.  The  agree- 
ment is  expected  to  receive  final  ratification  by  the 
Turkish  Grand  National  Assembly  within  a  few- 
days. 

All  unsold  United  States  Army  surpluses  lo- 
cated in  Turkey,  which  had  an  original  cost  value 
of  just  under  $700,000,  were  purchased  late  last 
month  by  the  Turkish  Government  for  $500,000. 
Turkey  has  also  recently  concluded  an  agreement 
with  the  United  States  covering  civil-aviation 
riglits.  containing  terms  i-egarded  as  satisfactory 
by  the  Department  of  State.  Turkey  is  a  member 
of  the  United  Nations  and  the  United  Nations 
Relief  and  Rehabilitation  Administration,  and  has 
applied  for  membership  in  the  International  Bank 
and  tlie  International  Monetary  Fund. 


MAY  19,  19-16 


869 


Entry  Into  Force  of  Protocols  Prolonging  the  1944 
Sanitary  Conventions 


[Released  to  the  press  May  3] 

On  April  30,  IDiO  protocols  prolonging  the  In- 
torncational  Sanitary  Convention,  1944,  and  the  In- 
ternational Sanitary  Convention  for  Aerial  Navi- 
gation, 1944,  beyond  the  expiration  date  of  July 
15, 1946,  came  into  force  between  the  Governments 
of  Australia,  Canada,  China,  France,  Greece, 
Haiti,  Luxembourg,  Nicaragua,  New  Zealand,  and 
the  United  Kingdom  of  Great  Britain  and  Nortli- 
ern  Ireland  on  behalf  of  which  tliev  were  signed. 


The  two  protocols  were  signed  also,  with  a  reserva- 
tion requiring  ratification,  on  behalf  of  Belgium, 
Ecuador,  and  the  United  States  of  America.  These 
protocols  were  opened  for  signature  in  the  Depart- 
ment of  State  on  Api'il  23,  1946. 

The  two  protocols  are  identical  with  the  excep- 
tion of  the  titles  and  references  to  the  respective 
conventions  to  which  they  relate.  Following  is 
the  English  text  of  the  Protocol  to  Prolong  tlie 
International  Sanitary  Convention,  1944 : 


Protocol  To  Prolong  the  Interxational  Saxitaky  Convention,  1944 
Modifying  THE  International  Sanitary  Convention  of  June  21,  192G 


The  Governments  signatory  to  the  present  Pro- 
tocol, 

Considering  that,  unless  prolonged  in  force  by 
action  taken  for  that  purpose  by  the  interested 
Governments,  the  International  Sanitary  Conven- 
tion, 1944,  Modifying  the  International  Sanitary 
Convention  of  June  21,  1926,  will  expire  on  July 
15,  1946,  the  expiration  of  eighteen  months  from 
the  date  on  which  the  said  1944  Convention  en- 
tered into  force ;  and 

Considering  that  it  is  desirable  that  the  said 
1944  Convention  shall  be  prolonged  in  force  after 
July  15,  1946  between  the  Governments  parties 
thereto ; 

Have  appointed  their  respective  Plenipotenti- 
aries who,  having  deposited  their  full  powers, 
found  in  good  and  proper  form,  have  agi'eed  as 
follows : 

Article  I 

Subject  to  the  limitation  provided  for  in  Article 
II  of  the  present  Protocol,  the  International  Sani- 
tary Convention,  1944,  Modifying  tlie  Interna- 
tional Sanitary  Convention  of  June  21, 1926,  shall 
be  prolonged  in  force  on  and  after  July  15, 1946,  in 
resj^ect  of  each  of  the  Governments  parties  to  the 
present  Protocol,  until  the  date  on  which  such 
Government  shall  become  bound  by  a  further  Con- 
vention amending  or  superseding  the  said  1944 
Convention  and  the  said  1926  Convention. 


Article  II 

The  United  Nations  Eelief  and  Eehabilitation 
Administration  (hereinafter  referred  to  as 
UNRRA)  shall  continue  to  perform  the  duties  and 
functions  assigned  to  it  by  the  said  1944  Conven- 
tion, as  prolonged  by  the  present  Protocol,  until 
such  time  as  a  new  International  Health  Organiza- 
tion shall  be  established,  at  which  time  such  duties 
and  functions  shall  be  transferred  to  and  shall  be 
assumed  by  such  new  International  Health  Or- 
ganization, provided  that  if  the  new  International 
Health  Organization  has  not  been  formed  or,  hav- 
ing been  formed,  is  unable  to  perform  the  above 
duties  and  functions  by  the  date  on  which  UNRRA, 
owing  to  the  termination  of  its  activities  in  Europe 
or  for  any  other  reason,  ceases  to  be  able  to  perform 
them,  those  duties  and  functions  shall  be  entrusted 
to  the  Office  International  d'Hygiene  Publique  and 
the  countries  signatory  to  this  Protocol  will,  in 
that  event,  make  appi'opriate  financial  provisions 
so  as  to  enable  the  Office  to  perform  those  duties 
and  functions. 

Article  III 

The  present  Protocol  shall  remain  open  for  sig- 
nature until  May  1, 1946. 

Article  IV 

The  present  Pi'otocol  shall  come  into  force  when 
it  has  been  signed  without  reservation  in  regard  to 
ratification,  or  instruments  of  ratification  have 


870 


DEPARTMENT  OF  STATE  BULLETIN 


been  deposited  or  notifications  of  accession  have 
been  received  on  behalf  of  at  least  ten  governments. 
The  present  Protocol  shall  come  into  force  in  re- 
spect of  each  of  the  other  signatory  Governments 
on  the  date  of  signature  on  its  behalf,  unless  such 
signature  is  made  with  a  reservation  in  regard  to 
ratification,  in  which  event  the  present  Protocol 
shall  come  into  force  in  respect  of  such  Govern- 
ment on  the  date  of  the  deposit  of  its  instrument  of 
ratification. 

Abticle  V 

After  May  1, 1946,  the  present  Protocol  shall  be 
open  to  accession  by  any  Government  which  is  a 
party  to  the  1944  Convention  and  is  not  a  signatory 
to  the  present  Protocol.  Each  accession  shall  be 
notified  in  writing  to  the  Government  of  the  United 
States  of  America. 

Accessions  notified  on  or  before  the  date  on 
which  the  present  Protocol  enters  into  force  shall 
be  effective  as  of  that  date.  Accessions  notified 
after  the  date  of  the  entry  into  force  of  the  present 
Protocol  shall  become  effective  in  respect  of  each 
Government  upon  the  date  of  the  receipt  of  that 
Government's  notification  of  accession. 

In  witness  whereof,  the  undersigned  Plenipo- 
tentiaries sign  the  present  Protocol,  on  the  date 
indicated  opposite  their  respective  signatures,  in 
the  English  and  French  languages,  both  texts  be- 
ing equally  authentic,  in  a  single  original  which 
shall  be  deposited  in  the  archives  of  the  Govern- 
ment of  the  United  States  of  America  and  of  which 
certified  copies  shall  be  furnished  by  the  Govei'n- 
ment  of  the  United  States  of  America  to  each  of 
the  signatory  and  acceding  Governments  and  to 
each  of  the  Governments  parties  to  the  said  1944 
Convention  or  the  said  1926  Convention. 

Done  at  Washington  this  twenty-third  day  of 
April,  1946. 

Sanitary  Conventions 

For  New  Zealand : 

C.  A.  Beebndsen  April  23,  1946 

For  Belgium : 

Sous  reserve  de  ratification. 

SiLVEBCKUYS  April  24,  1946 

For  Canada : 

Lester  B  Pearson  April  25,  1946 

For  Nicaragua : 

Alberto  Seviixa  Sacasa  April  2G,  1946 

For  the  United  Kingdom  of  Great  Britain  and  Northern 
Ireland : 

Halifax  April  29,  1946 


For  the  United  States  of  America : 
Subject  to  ratification. 
Dean  Acheso.n 
For  Greece : 

P.  ECONOMOU-GOURAS 

For  China : 

Wei  Tao-Min(; 
For  Luxembourg : 

HUGUES  Le  Gallais 
For  Ecuador : 

Subject  to  ratification. 

L.  N.  Ponce 
For  Australia : 

Subject  to  the  reservations  with 

ceded  to  the  1944  Convention  to 

relates. 

J.  B.  Brigden 

Haiti : 

Dantes  BeU-BGARDE 

France : 

H  Bonnet 


For 


For 


April  30, 1946 

April  30,  1946 
April  30, 1946 
April  30,  1946 

April  30, 1946 

which  Australia  ac- 
which  this  Protocol 

April  30, 1946 

April  30, 1946 

April  30,  1946 


Venezuelan  Tuberculosis 
Specialist  Visits  United  States 

Dr.  Pedro  Iturbe,  president  of  the  Federation 
of  Associations  for  the  Prevention  of  Tuberculosis 
in  Venezuela,  is  visiting  in  this  country  at  the  invi- 
tation of  the  Department  of  State.  He  will  confer 
with  colleagues  and  observe  recent  developments 
in  his  special  field  of  interest. 

He  was  president  of  the  Second  Venezuelan 
Congress  for  Tuberculosis  and  attended  the  Sixth 
Pan  American  Congi'ess  on  Tuberculosis.  In  1940 
he  attended  a  conference  for  hospital  administra- 
tors held  in  Puerto  Rico- 


Safety  Consultant  Arrives 
in  Uruguay 

John  W.  Welch  of  Lincoln,  New  Hampshire, 
has  arrived  in  Montevideo,  Uruguay,  to  serve  as 
consultant  to  the  Banco  Nacional  de  Seguros. 
He  will  work  with  them  on  training  factory  in- 
spectors and  developing  safety  education  methods 
for  management  and  woi-kers.  Mr.  Welch  is  one 
of  a  group  of  distinguished  educators  who  have 
received  travel  grants,  under  the  program  admin- 
istered by  the  Department  of  State  for  the  ex- 
change of  professors  and  technical  experts  be- 
tween this  country  and  the  other  American 
republics. 


MAY  19,  1946 


871 


LATCHFOim— Continued  from  page  839. 
Warsiiw  Convention  of  1929  relating  to  the  lia- 
bility of  air  transport  operators  for  damages  to 
persons  and  property  in  international  transporta- 
tion, the  Air  Salvage  at  Sea  Convention  of  1938 
under  which  the  operators  of  aircraft  would  be 
liable  for  the  payment  of  salvage  awards,  the  Rome 
Convention  of  1933  relating  to  damages  caused  by 
aircraft  to  persons  and  property  on  the  surface, 
and  the  proposed  convention  relating  to  the  lia- 
bility of  the  air  transport  operator  in  the  event  of 
aerial  collisions.  The  question  arises  in  this  in- 
stance whether,  in  the  event  there  should  be  an 
accident  in  which  the  air  transport  operator  might 
be  liable  under  a  series  of  these  conventions, 
it  would  be  feasible  to  scale  down  the  operator's 
over-all  liability  in  order  to  relieve  him  of  the  full 
burden  of  an  accumulated  liability  under  the 
terms  of  several  conventions. 

It  is  understood  from  the  proceedings  of  the 
January  1946  sessions  of  CITEJA  that  the  sub- 
ject of  arbitration  mentioned  on  the  agenda  has 
to  do  with  a  proposal  to  confer  upon  CITEJA  the 
power  to  arbitrate  disputes  as  to  the  application  of 
a  rule  of  international  air  law  when  such  disputes 
arise  between  governments,  and  under  certain  con- 
ditions between  individuals. 

Although  it  is  difficult  to  give  a  satisfactory 
brief  definition  of  the  term  general  average,  in 
maritime  practice  the  principle  of  general  average 
is  that  the  voluntary  loss  of  one  interest  resulting  in 
saving  other  interests  from  loss  is  apportioned 
among  all  the  interests.  It  is  understood  that  the 
CITEJA  will  consider  the  extent  to  which  the 
maritime  principle  of  general  average  might  be 
made  applicable  to  air  navigation. 

The  CITEJA  decided  in  January  1946  to  hold 
its  next  plenai-y  session  at  Cairo  beginning  on  No- 
vember 4,  1946.  It  is  expected  that  the  CITEJA 
will  then  pass  upon  such  projects  as  may  be  ready 
for  submission  by  the  appropriate  CITEJA  com- 
missions. It  has  been  the  practice  in  the  past  for 
one  or  more  of  the  commissions  to  meet  at  the  time 
of  the  holding  of  the  plenary  session  of  the 
CITEJA.  It  is  altogether  likely  therefore  that 
some  of  the  CITEJA  commissions  to  which  sub- 
jects on  the  agenda  have  been  assigned  will  con- 
sider some  of  these  subjects  at  Cairo  before  they 
are  finally  referred  to  the  CITEJA  in  plenary 
session. 


Atomic  Energy  Act  of  1946.  S.  Rept.  1211,  79th  Cong., 
to  accompany  S.  1717.  125  pp. 

Department  of  State  Appropriation  Bill  for  1947 :  Hear- 
ings Before  the  Subcommittee  of  the  Committee  on  Appro- 
priations, House  of  Representatives,  Seventy-ninth  Con- 
gress, second  session,  on  the  Department  of  State  Appro- 
priation Bill  for  1947.  ii,  700  pp.  [Indexed.] 

Second  Deficiency  Appropi'iation  Bill,  1946.  S.  Rept.  1236, 
79th  Cong.,  to  accompany  H.  R.  5S90.  11  pp.  [Department 
of  State,  pp.  9-10.] 

An  Act  To  authorize  the  President  to  appoint  Lieuten- 
ant General  Walter  B.  Smith  as  Ambassador  to  the  Union 
of  Soviet  Socialist  Republics,  without  affecting  his  mili- 
tary status  and  perquisites.  Approved  March  15,  1946. 
H.  R.  5020.     Private  Law  428,  79th  Cong.     1  p. 

Lt.  Gen.  Walter  B.  Smith.  S.  Rept.  1040,  79th  Cong.,  to 
accompany  H.  R.  5520.  3  pp.  [Department  of  State,  p.  2.] 
[Favorable  report.] 

Providing  For  the  Detail  of  United  States  Military  and 
Naval  Missions  to  Foreign  Governments.  H.  Rept.  1753, 
79th  Cong.,  to  accompany  H.R.  5433.  6  pp.  [Favorable 
report.] 

Authorizing  the  Use  of  Naval  Vessels  To  Determine 
the  Effect  of  Atomic  Weapons  Upon  Such  Vessels.  S. 
Rept.  1071,  79th  Cong.,  to  accompany  H.J.  Res.  307.  4  pp. 
[Favorable  report.] 

An  Effective  Wool  Program.  Letter  from  Hon.  Harry 
S.  Truman,  President  of  the  United  States,  to  Hon.  Joseph 
C.  O'Mahoney,  a  Senator  from  the  State  of  Wyoming, 
Chairman,  Special  Committee  To  Investigate  Production, 
Transportation,  and  Marketing  of  Wool,  Submitting  a 
Memorandum  on  the  Proposed  Wool  Program.  S.  Doc. 
140,  79th  Cong.,  ii,  6  pp. 

Hearings  on  Science  Legislation  (S.  1297  and  Related 
Bills)  :  Hearings  Before  a  Subcommittee  of  the  Commit- 
tee 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  the  possibilities  of  better  mobilizing  the  na- 
tional resources  of  the  United  States.  Part  5,  including 
statements  submitted  for  the  record,  November  1  and  2, 
1945.  vii,  272  pp.  Part  6,  March  5,  1946,  Testimony  of 
Science  Talent  Search  Finalists,     ii,  14  pp. 

National  Science  Foundation  :  Report  from  the  Commit- 
tee on  Military  Affairs,  United  States  Senate,  pursuant  to 
S.  1850,  a  bill  to  promote  the  progress  of  science  and  the 
useful  arts,  to  secure  the  national  defense,  to  advance  the 
national  health  and  welfare,  and  for  other  purposes.  S. 
Rept.   1136,  79th  Cong.,   iii,  56  pp.      [Favorable  report.] 

Philippine  Trade  Act  of  1946.  H.  Rept.  1821,  79th  Cong., 
to  accompany  H.  R.  5856.     69  pp.     [Favorable  report.] 

Implementation  of  the  Financial  Agreement  Dated  De- 
cember 6,  1945,  Between  the  United  States  and  the  United 
Kingdom.  S.  Rept.  1144,  79th  Cong.,  to  accompany  S.J. 
Res.  138.     23  pp.     [Favorable  report.] 


872 


DEPARTMENT  OF  STATE  BULLETIN 


Providiug  for  Membership  by  the  United  States  in  the 
United  Nations  Educational,  Scientific,  and  Cultural  Or- 
ganization. H.  Kept.  1927,  79th  Cong.,  to  accompany  H.J. 
Res.  305.  10  PP-  [Department  of  State,  p.  2.]  [Favor- 
able report.] 

Second  Deficiency  Appropriation  Bill,  1946.  H.  Rept. 
1817,  79th  Cong.,  to  accompany  H.R.  5S90.  27  pp.  [De- 
partment of  State,  pp.  9,  24.] 

State,  Justice,  Commerce,  and  the  Judiciary,  Appropria- 
tion Bill,  Fiscal  Year  1947.  H.  Rept.  1890,  79th  Cong.,  to 
accompany  H.R.  6056.  47  pp.  [Department  of  State,  pp. 
5-15;  33-37.] 

Second  Deficiency  Appropriation  Bill  for  1946:  Hearings 
Before  the  Subcommittee  of  the  Committee  on  Appropria- 
tions, United  States  Senate,  Seventy-ninth  Congress,  Sec- 
ond Session,  on  H.R.  5890,  an  act  making  appropriations 
to  supply  deficiencies  in  certain  appropriations  for  the 
fiscal  year  ending  June  30,  1946,  and  for  prior  fiscal  years, 
to  provide  supplemental  appropriations  for  the  fiscal  year 
ending  June  30,  1946,  and  for  other  purposes,  ii,  299  pp. 
[Indexed.]      [State  Department,  pp.  174-204;  290-91.] 

Atomic  Energy  Act  of  1946:  Hearings  Before  the  Special 
Committee  on  Atomic  Energy,  United  States  Senate, 
Seventy-ninth  Congress,  second  session,  on  S.  1717,  a  bill 
for  the  development  and  control  of  atomic  energy.  Part 
1,  January  22  and  23,  1946.  iii,  100  pp.  Part  2,  January 
25,  28,  29,  30,  31,  and  February  1,  1946.  iii,  179  pp.  Part 
3,  February  7,  8,  11,  13,  and  14,  1946.  iii,  140  pp.  Part  4, 
January  24,  1946.    ii,  9  pp. 

Atomic  Enei-gy  :  Hearings  Before  the  Special  Committee 
on  Atomic  Energy,  United  States  Senate,  Seventy-ninth 
Congress,  Second  Session,  pursuant  to  S.  Res.  179,  a  resolu- 
tion creating  a  special  committee  to  investigate  problems 
relating  to  the  development,  use,  and  control  of  atomic 
energy.     Part  5,  February  15,  1946.     iii.  111  pp. 

Foreign  Educational  Benefits  and  Surplus  Property : 
Hearing  Before  a  Subcommittee  of  the  Committee  on 
Militarv    Affairs.    United    States    Senate.    Seventy-ninth 


Congress,  second  session,  on  S.  1-140,  a  bill  authorizing 
use  of  credits  established  through  the  sale  of  surplus 
properties  abroad  for  the  promotion  of  international  good 
will  through  the  exchange  of  students  in  the  fields  of 
education,  culture,  and  science,  and  S.  1636,  a  bill  to  amend 
the  Sun)his  Property  Act  of  1944  to  designate  the  Depart- 
ment of  State  as  the  disposal  agency  for  surplus  property 
outside  the  continental  United  States,  its  territories  and 
possessions,  and  for  other  purposes.  February  25,  1946. 
vli,  56  pp. 


The  Foreign  Service 


Consular  Offices 

The  American  Consulate  at  Taipei  (Taihoku),  Taiwan 
(Formosa),  which  was  reestablished  on  April  11,  1946,  is 
now  being  administered  as  a  part  of  China  (rather  than 
of  Japan  as  prior  to  the  end  of  the  war). 

The  status  of  the  Consulate  at  Casablanca,  Morocco,  was 
changed  to  that  of  Consulate  General  on  May  4,  1946. 

Reference  is  made  to  a  previous  notice  of  the  establish- 
ment of  an  American  Consulate  General  at  Berlin,  Ger- 
many, on  March  1,  1946.  The  Department  of  State  has,  in 
view  of  recently  received  recommendations  from  the  Po- 
litical Adviser  at  Berlin,  now  decided  to  consider  that  a 
consular  sectifm  of  the  Office  of  the  U.  S.  Political  Adviser 
on  German  Affairs  was  established  on  March  1,  rather 
than  a  separate  ollice. 

The  American  ( 'onsulate  at  Foynes,  Ireland,  was  closed 
on  April  30, 1946  and  removed  to  Limerick.  The  Consulate 
at  Limerick  is  considered  to  have  been  established  on 
May  1. 

The  American  Consulate  at  Bremen,  Germany,  was 
opened  on  Jlay  1,   1946. 


Contents— Continued 

Page 
Publication  of  Report   of  Allied   Mission  to  Observe   CJreek 

Elections 865 

Comments  on  U.S.  Proposals  for    New  Agency    To    Handle 

Resettlement  of  Displaced  Persons 865 

Estimate  for  UNRRA  Appropriation:  President's  Letter  of 

Transmittal  to  Congress 866 

Visit  of  Manuel  Roxas  to  United  States:  Statement  by  the 

President 867 

Visit  of  Bolivian  Educator 867 

*Protocol  for  Extension  of  Inter- American  Coffee  Agreement.  867 

Costa  Rican  Journalist  Visits  United  States 868 

Visit  of  Argentine  Mathematician 868 

♦Agreement  With  Turkey  for  Final  Settlement  of  Lend-Lease  .  868 
*Entry  Into  Force  of  Protocols  Prolonging  the  1944  Sanitary 

Conventions 869 

Venezuelan  Tuberculosis  Specialist  Visits  United  States  .    .    .  870 

Safety  Consultant  Arrives  in  Uruguay 870 

The  Congress 871 

The  Foreign  Service: 

Consular  Offices 872 

*  Treaty  Information. 

PUBLISHED    WITH    APPROVAL    OF    DIBECTOR    OF    BOBEAU    OF    THE    BUDGET 
U.  S.  GOVERNMENT  PRINTING   OFFICE:  1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  .^60 


MAY  26.  1946 


Recommendations  for  the  Council  of  Foreign 
Ministers 

statement  bv  THE  SECRETARY  OF  STATE page  891 


Former  Proclaimed  List  Nationals  and  American  Foreign 
Trade 


Article  by  GEORGE  N.  MONSMA 


pase  875 


Germany  and  the  Occupation 

A  RADIO  BROADCAST        .        .        .        . 


page  910 


American  Strength:  Our  Share  in  World  Peace 

By  ACTING  SECRETARY  ACHESON page  893 


For  complete  contents 
see  inside  cover 


THE   DEPARTMENT  OF  STATE 

BULLETIN 


^.  8.  SUPeRlNTENDENT  Of  DOCUMENT* 

JUN  19  1946^0  Mfe /Its 


_^^«NT    O*. 


Voi.XIV'No.  36r» 


Publication  2538 


*>•<„,  o'  ' 


May  26,  1946 


For  sale  by  llie  Superintendent  of  DocumentB 

XJ.  S.  Governn-ent  Printing  Oflfice 

Wa8binglon25,  D.  C. 

Subscripiion: 

52  iB8ue«.  J3.50;  single  copy,  10  cents 

Special  offer:  13  weeks  for  S 1-00 
(renewable  only  on  yearly  basis) 


The  Department  of  State  BVLLETIIS, 
a  xjceehly  publication  compilftl  and 
edited  in  the  Division  of  Researt  h  and 
Publication,  Office  of  Public  Affairs, 
provides  the  public  and  interested 
agencies  of  the  Covernment  uith 
information  on  developments  in  the 
field  of  foreign  relations  and  on  the 
uork  of  the  Department  of  State  and 
the  Foreign  Service.  The  BVLLtllN 
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  uell  as 
special  articles  on  various  phases  of 
international  affairs  and  the  functions 
of  the  Department.  Information  con- 
cerning treaties  and  international 
agreements  to  uhich  the  United  States 
is  or  may  become  a  party  and  treaties 
of  general  international  interett  is 
included. 

Publications  of  the  Department,  cu- 
mulative lists  of  uhich  are  published 
at  the  end  of  each  quarter,  as  uell  as 
legislative  material  in  the  field  of  inter- 
national relations,  are  listed  currently. 


General  Policy 

Recomniciidations  for  the  Council  of  Foreign  Ministers 

Statement  by  tlie  Secretary  of  State 

President-Elect  of  Coloml^ia  To  Visit  United  States.    .    .    . 
American  Strength:   Our  Share  in  W  orld  Peace 

By  Acting  Secretary  Aclieson 

U.   K.-U.    S.    Guiding   Principles   for   Solving   World   Food 

Problems 

Famine  Report  to  the  President 

Re]3ort  of  the  Hoover  Mission 

Request  to  Yugoslavia  for  Submitting  Testimony  in  Trial 

of  General  Mikhailovich 

Reply  to  View  of  Arab  Countries  on  Anglo-American  Com- 
mittee of  Inquiry  Report 

Diplomatic  and  Commercial  Agreement  With  the  Yemen.    . 

Economic  Affairs 

Former  Proclaimed  List  Nationals  and  American  Foreign 
Trade 

Article  by  George  N.  Monsma 

U.  S.  Delegation  to  PICAO 

The  Fifth  Meeting  of  the  International  Cotton  Advisory 

Committee 

Final  Resolution  of  the  Fifth  Meeting  of  the  International 

Cotton  Advisory  Committee 

Principles  of  Trade  for  Peace  and  Prosperity 

Statement  by  the  Secretary  of  State 

Policy   on    Trade    Privileges   in   Ex-Enemy    States:   Corre- 
spondence   

Lend-Lease  and  Surplus  Property  Settlement  With  India   . 

Occupation  Matters 

Far  Eastern  Commission:   Policy  Statements 

Charter  of  the  International  Military  Tribunal  for  the  Far 
East: 

Changes  Made  in  Text     . 

Admiral  Leahy  Consults  with  British  Chiefs  of  Staff 
Germany  and  the  Occupation.  A  Radio  Broadcast. 
Policy  on  Japanese  Internal  Political  Activities.  .  . 
Summations  of  Activities  on  Japan  and  Korea  .    .    . 


Page 
891 

892 

893 
895 
897 
909 


International  Information 

Status    of    American    International    Broadcasting:    Corre- 
spondence   

International  Broadcasting — A  National  Responsibility 
Article  by  W  illiam  T.  Stone 

The  United  Nations 

Proposed  Resolution  on  Membership  Applications 

Letter  from  U.  S.  Representative  to  Secretary-General  .    . 

Progress  Made  by  Subcommittee  on  Franco 

Functions  of  International  Organizations 

International  Organizations  and  Conferences 

Calendar  of  Meeting 

Activities  and  Developments 

The  Department 

Statements,  Addresses,  and  Broadcasts  of  the  \\  eek     .    .    . 
{Continued  on  page  920) 


917 
917 


875 
886 

887 

888 

892 

908 
916 

884 


890 
892 
910 
915 
915 


900 
905 


881 
881 
882 

884 
884 

920 


Former  Proclaimed  List  Nationals  and 
American  Foreign  Trade 


Article  by  GEORGE  N.  MONSMA  ^ 


THE  Department  of  State  on  March  29,  1!)46. 
issued  a  statenient  on  behalf  of  the  Govern- 
ment ufiencies  concerned  with  the  Proclaimed  List 
of  Ccrfahi  Blocl'ed  Nationals  informing  Ameri- 
can businessmen  tliat  before  establishing  or  resum- 
ing commercial  or  financial  relations  abroad  with 
ex  -  Proclaimed  List  nationals  they  may  check 
with  the  Commercial  Intelligence  Branch  of  the 
Commerce  Dejaartment  as  to  the  desirability  of 
such  relations.- 

To  understand  fully  this  Government's  service 
in  this  regard  it  would  be  well  to  trace  the  origin 
and  growth  of  the  Proclaimed  List,  its  purposes, 
and  its  contribution  to  the  war  eilort. 

Establishment  of  the  Proclaimed  List 

As  the  sunnner  of  194 1  was  apprt)aching.  various 
agencies  of  this  Government  were  administering 
controls  related  to  the  economic  defense  of 
this  country.  The  agencies  administering  these 
controls  naturally  took  into  account  the  persons 
who  miglit  be  involved  in  the  transactions  subject 
to  control.  For  example,  the  Office  of  the  Admin- 
istrator of  Export  Control  when  deciding  whether 
to  license  or  not  to  license  a  particular  transaction 
was  interested  in  the  pei'sons  abroad  who  were 
parties  to  the  transaction  ;  similarly,  the  Treasury 
Department  in  administering  Executive  Order 
No.  8389  and  other  foi'eign  funds  controls  was  in- 
terested in  the  persons  abroad  who  were  party  to 
any  particular  transaction  which  might  be  under 
consideration  by  the  Treasurj'  Department.  Thus, 
various  departments  and  agencies  of  this  Govern- 
ment were  becoming  increasingly  interested  in  the 
political  sympathies  and  activities  of  persons 
abroad  as  they  related  to  the  defense  of  this  coun- 
try.   Various  sources  of  information  were  avail- 


able to  the  agencies  requiring  information  con- 
cerning persons  abroad,  but  there  was  no  ma- 
chinery for  coordinating  the  views  of  the  various 
agencies  concerning  such  individuals  nor  was  there 
a  list  which  could  guide  American  businessmen  in 
theii'  dealings  with  persons  abroad.  It  thus  be- 
came evident  that  it  would  be  necessary  to  specify 
2>ublicly  those  persons  whom  this  Government  con- 
sidered undesirable  and  with  respect  to  whom  all 
transactions  with  the  United  States  would  be  sub- 
ject to  control  by  the  United  States  Govermnent. 
Under  the  President's  proclamation  of  July  17, 
1941  such  a  list  Mas  established  and  has  since  been 
known  as  the  Proclaaned  List  of  Certain  lilocked 
Nationals.^  The  President  of  the  United  States 
acting  under  and  by  virtue  of  authority  vested  in 
him  by  Section  5  (b)  of  the  Act  of  October  G,  1917 
(40  Stat.  415)  as  amended  and.  Section  6  of  the  Act 
of  July  -J,  1940  (54  Stat.  714)  as  amended  and  by 
virtue  of  all  other  authority  vested  in  him  and  by 
virtue  of  the  existence  of  a  jaeriod  of  unlimited 
national  emergency  and  finding  that  the  j)roclama- 
tion  was  necessary  in  the  interest  of  national  de- 
fense ordered  the  Secretary  of  State  acting  in  con- 
junction with  the  Secretary  of  the  Treasury,  the 
Attorney  General,  the  Secretary  of  Commerce,  the 
Administrator  of  Export  Control,  and  the  Cooixli- 
nator  of  Commercial  and  Cultural  Relations  be- 
tween the  American  Republics  to  cause  to  be  pre- 
Ijared  an  approjDriate  list  of  "(a)  certain  persons 
deemed  to  be,  or  to  have  been  acting  or  purporting 
to  act,  directly  or  indirectly,  for  the  benefit  of,  or 
under  the  direction  of,  or  under  the  jurisdiction 

'  Mr.  Monsnia  is  Acting  Assist.Tiit  Chief  of  tlie  Division 
of  Economic  Seeurit.v  Controls,  Office  of  Economic  Security 
Policy,  Department  of  Slate. 

-  Bulletin  of  Apr.  7,  1946,  p.  .579. 

'  Bulletin  of  July  19,  1941,  p.  42. 


875 


876 


DEPARTMENT  OF  STATE  BULLETIN 


of.  or  oil  behalf  of,  or  in  collaboration  with  Ger- 
many or  Ital}'  or  a  national  thereof;  and  {b)  cer- 
tain persons  to  whom,  or  on  whose  behalf,  or  for 
whose  acconnt,  the  exportation  directly  or  indi- 
rectly of  any  article  or  material  exported  from  the 
United  States  is  deemed  to  be  detrimental  to  the 
interest  of  national  defense."  The  proclamation 
also  provided  that  additions  to  and  deletions  from 
the  list  should  be  made  from  time  to  time. 

On  the  same  day,  July  17.  ID-tl,  the  departments 
and  agencies  of  the  Government  mentioned  in  the 
proclamation  issued  the  original  Proclaimed  List 
consisting  of  1,834  names.  Several  supplements 
containing  additions  to  and  deletions  from  the  list 
were  made  before  Pearl  Harbor.  On  December  9, 
1941,  just  two  days  after  Pearl  Harbor,  the  Pro- 
claimed List  authorities  issued  a  supplement  add- 
ing 505  Japanese  names  to  the  Proclaimed  List. 
With  the  attack  on  Pearl  Harbor  and  the  entry  of 
the  United  States  into  the  war,  economic  defense 
changed  to  economic  warfare,  and  the  list  became  " 
an  instrument  of  economic  warfare  rather  than 
economic  defense.  The  first  indication  of  this 
change  was  the  publication  of  the  Japanese  supple- 
ment two  days  after  Pearl  Harbor. 

During  the  first  half  year  of  the  operation  of  the 
Proclaimed  I.iist  it  contained  only  names  of  persons 
in  the  Western  Hemisphere.  On  January  14,  1942 
a  supidement  was  issued  which  contained  for  the 
first  time  names  of  persons  in  the  Eastern  Hemi- 
sphere. At  that  time  1,824  names  of  persons  and 
concerns  in  the  Eastern  Hemisphere  were  added  to 
the  list.  The  British  had  been  maintaining  for 
some  time  a  list  similar  to  the  Proclaimed  List 
known  as  the  Statutory  List.  Fi-om  this  time  on 
the  British  and  American  authorities  cooperated 
very  closely  in  the  issuance  of  their  respective  lists 
so  that  the  lists  have  been  virtually  identical.* 

•The  Depiirtiiient  of  State  issues  periodically  all  revi- 
sions and  cuniulative  supplements  of  tbe  Proclaimed  List 
of  Certain  Blocked  Nationals.  Since  the  list  was  proniul- 
Siited  on  July  17.  1041,  the  DPiiartnient  has  issued  tlie 
orisinal  list  and  its  Supplements  1-7  which  have  been 
sui)erseded  l>y  Revision  I ;  Revision  I  and  its  Supplements 
1— t,  by  Revision  II:  Revision  II  and  its  Supplements  l-."i, 
by  Revision  III;  Revision  III  and  its  Supplements  1-4,  by 
Revisicm  IV :  Revision  IV  and  its  Supplements  1-6,  by 
Revision  V:  Revision  V  and  its  Supplements  1-6,  by  Re- 
vision VI;  Revision  VI  and  its  Supplements  1-6,  by  Revi- 
sion VII ;  Revision  VII  and  its  Supplements  1-6,  by  Revi- 
sion VIII ;  Revision  VIII  and  its  Siuiplements  1-6.  by 
Revision  IX  ;  Revision  IX  and  its  Supplements  1-8,  by 
Revision  X  and  its  current  supiilements. 


The  Proclaimed  List  and  the  Elimination  of 
Axis  Economic  Penetration  in  the  Western 
Hemisphere 

It  is  so  well  known  by  this  time  as  to  l.e  almost 
axiomatic  that  the  Nazi  government  of  Germany 
useil  Genua u  commercial  and  financial  concerns 
abroad  as  a  tool  to  further  tlie  Nazi  cause.  Ger- 
man economic  penetration  into  the  economic  life 
of  the  other  American  republics  was  so  expensive 
as  to  present  a  real  threat  to  the  security  of  the 
Hemisphere,  particularly  in  the  drug  and  pharma- 
ceutical, dye  and  chemical,  and  construction, 
electrical,  and  engineering  fields.  In  these  fields 
such  names  as  Bayer,  Merck,  Schering,  I.  G. 
Farben,  A. E.G..  and  Siemens-Schuckert  have  be- 
come almost  sjaionymous  with  Axis  economic 
penetration.  The  Banco  Aleman  Transatlantico 
and  Banco  Germanico  de  la  America  del  Sud  were 
important  factors  in  the  financial  world  of  the 
AVestern  Hemisphere.  The  Germans  had  also 
made  considerable  inroads  into  the  shipping  and 
air  transportation  fields.  These  thoroughly  Ger- 
man concerns  were  used  as  propaganda  outlets, 
financial  agents,  espionage  centers,  suppliers  of 
critically  needed  foreign  exchange,  soui'ces  for 
smuggling  of  urgently  needed  war  materials  to 
German}',  and  in  many  other  ways  were  the  mis- 
sionaries of  the  Nazi  gospel  and  supporters  of  the 
Nazi  cause.  These  prominent  German  enterprises 
with  their  numerous  subsidiaries  and  affiliates  also 
exerted  influence  over  many  other  enterprises 
which  supported  the  German  concerns  thus  in- 
creasing the  economic  penetration  to  a  consider- 
able extent.  Concerns  owned  by  locally  resident 
Germans  also  represent  part  of  the  German  eco- 
nomic strength  which  in  many  cases  could  and  did 
aid  the  Nazi  machine. 

The  American  republics  early  realized  the  ex- 
isting and  jjotential  danger  in  this  German  eco- 
nomic penetration  and  in  Resolution  5  of  the 
Fiiuil  Act  of  the  Third  Meeting  of  Ministers  of 
Foreign  Affairs  of  the  American  Republics  held 
at  Rio  de  Janeiro,  Brazil,  in  February  1942  rec- 
ommended that  tb.e  American  republics  adopt 
immediately  measures  nece.s.sarv  to  cut  off  all  com- 
mercial and  financial  intercourse  between  the 
Western  Hemisphere  and  the  Axis  and  to  eliminate 
all  other  financial  and  commercial  activities  preju- 
dicial to  the  welfare  and  security  of  the  American 
republics.  Resolution  (i  of  the  same  meeting  rec- 
ommended  that   a   conference  of  re|)iesentatives 


MAY  26,  7946 


877 


■  of  the  central  hanks  or  anah)>zous  institutions  of 
the  American  repuhlics  he  convoked  for  the  pur- 

>  pose  of  drafting-  standards  of  procedure  for  eco- 
nomic and  financial  control.  Such  a  conference 
was  held  from  June  3(1  to  July  10,  1942.  at  Wash- 
ington, D.  C.  Resolution  7  of  this  conference  rec- 
ommended that  each  of  the  American  repuhlics 
ado])t  all  necessary  measures  as  soon  as  possible 
to  eliminate  from  the  commercial,  agricultural, 
industrial,  and  financial  life  of  the  American  re- 
publics all  influence  of  governments,  nations,  and 
jiersons  within  such  nations  who  by  any  means 
were  acting  against  the  political  or  economic  in- 
dependence or  security  of  the  American  republics. 
To  implement  this  recommendation  the  resolution 
recommended  that  the  business  and  projierty  of 
persons  or  concerns  acting  against  the  political 
and  economic  independence  or  security  of  the 
American  republics  be  subjected  to  forced  transfer 
or  total  liquidation,  or  in  some  cases  to  blocking, 
occupation,  or  intervention.  The  Final  Act  of 
the  Inter-American  Conference  on  War  and  Peace 
held  in  Mexico  City  during  Feliruary  and  March 
1945  reaffirms,  with  respect  to  (Tcrmany  and  Ja- 
pan, Resolution  5  of  the  Third  Meeting  of  Minis- 
ters of  Foreign  Aii'airs  of  the  American  Republics 
as  later  developed  in  the  Inter-American  Confer- 
ence on  Systems  of  Economic  and  Financial  Con- 
trol held  in  Washington  in  June  and  Jidy  1942. 

On  the  basis  of  these  resolutions  the  American 
republics  initiated  extensive  programs  for  the  elim- 
ination oi  Axis  economic  penetration.  The  elim- 
ination of  these  interests  is  usually  accomplished 
by  liquidation  of  the  business  if  it  is  not  essential 
to  the  economy  of  the  country  or  forced  sale  to 
unobjectionable  interests  if  the  concern  is  an  es- 
sential part  of  the  economy  of  the  country.  Where 
part  of  an  enterprise  is  owned  or  controlled  by 
undesirable  interests  and  the  other  part  is  in  the 
hands  of  unobjectionable  interests,  the  enterprise 
is  usually  reorganized  to  eliminate  only  the  objec- 
tionable interests.  The  programs  for  economic 
and  financial  control  and  elimination  of  Axis  eco- 
nomic penetration  have  come  to  be  known  as  the 
"local  controls  programs"  or  "replacement  pro- 
grams". This  Government  has  repeatedly  indi- 
cated to  the  other  American  republics  that  it  de- 
sii'es  to  coordinate  its  Proclaimed  List  policy  with 
the  local  controls  programs  of  the  various  Ameri- 
can republics.  It  was  only  logical  that  such  coor- 
dination should  be  made.  When  any  country 
eliminated  an  Axis  concern  it  was  possible  to  de- 


lete not  only  the  name  of  this  concern  but  also  the 
names  of  any  persons  or  firms  which  had  lieen 
included  in  the  list  primarily  because  of  theii' 
association  with  or  activities  on  behalf  of  the  major 
Proclaimed  List  entity.  Since  the  major  Pro- 
claimed List  entity  was  eliminated,  the  reason  for 
the  listing  of  such  names  no  longer  existed  and 
accordingly  such  names  could  be  I'emoved  from 
the  list.  Moreover,  as  the  local  controls  programs 
progressed  it  was  possible  in  some  cases  to  remove 
certain  of  the  lesser  offenders  even  though  not 
primarily  listed  for  connection  with  one  of  the 
large  or  spearhead  Axis  entities,  because  the  secu- 
rity reasons  for  listing  changed  as  the  local  controls 
program  in  any  given  country  became  more  effec- 
tive. The  coordination  of  the  Proclaimed  List 
policy  with  the  local  controls  programs  was  so 
effective  that  the  Proclaimed  List  for  many  West- 
ern Hemisphere  countries  had  already  been  con- 
siderably reduced  when  the  cessation  of  hostilities 
in  the  European  theater  occurred. 

Post-Hostilities  Listing  Policy 

In  the  summer  of  1944  the  authorities  charged 
with  the  maintenance  of  the  Proclaimed  List  gave 
extensive  consideration  to  the  policy  which  should 
be  followed  upon  the  .successful  termination  of  hos- 
tilities in  the  European  theater.  The  list  had 
been  keyed  more  particularly  to  the  war  in  Europe 
than  to  the  war  in  the  Pacific.  It  was  therefore 
inevitable  that  a  decision  with  respect  to  the  con- 
tinuation of  the  list  would  have  to  be  made  once 
hostilities  had  ceased  in  the  European  theater. 
As  a  result  of  these  deliberations  it  was  decided 
that  the  list  should  continue  after  cessation  of  hos- 
tilities in  Europe,  and  a  public  statement  was  is- 
sued by  this  Government  and  the  British  Govern- 
ment on  September  26,  1944  announcing  this  deci- 
sion.^ There  were  many  reasons  why  it  was  de- 
cided to  continue  the  list  after  ces.sation  of  hostili- 
ties in  Europe.  One  important  consideration  was 
the  fact  that  certain  concerns  in  neutral  European 
countries  felt  that  they  could  trade  with  Germany 
with  impunity  during  the  war,  and  that  immedi- 
ately upon  cessation  of  liostilities  they  could  con- 
tinue trading  with  Germany  if  it  should  be  the 
victor  or  could  turn  to  trade  with  the  United  Na- 
tions if  Germany  should  be  defeated.  On  the  othei' 
hand,  firms  in  neutral  countries  who  refused  to 
engage  in  war  trade  with  Germany  were  faced 

'  Bulletin  of  Oct.  1,  1944,  p.  340. 


878 


DEPARTMENT  OF  STATE  BULLETIN 


with  a  possible  boycott  by  Germany  if  she  should 
be  victorious.  Moreover,  in  the  event  of  a  German 
defeat  the  firms  which  were  willing  to  forego  large 
profits  in  war  trade  with  Germany  during  the  war 
because  of  friendliness  to  the  United  Nations' 
cause  would  have  to  compete  for  United  Nations' 
trade  with  enterprises  which  had  flourished  during 
the  war  through  extensive  trade  with  Germany. 
Thus  these  friendly  concerns  stood  to  lose  after  the 
war  no  matter  which  side  won,  unless  some  means 
were  contrived  to  give  them  the  first  opportunity 
to  obtain  a  substantial  share  in  the  revived  post- 
hostilities  United  Nations'  trade.  If  such  means 
could  be  devised,  friendly  firms  would  have  some 
incentive,  in  addition  to  their  loyalty  to  the  dem- 
ocratic cause,  to  refrain  from  establishing  war 
trade  with  Germany.  This  was  a  strong  i-eason  for 
the  announcement  in  September  26,  1944  that  the 
Proclaimed  List  would  continue  after  the  cessa- 
tion of  hostilities  in  Europe,  thus  giving  firms 
friendly  to  the  democratic  cause  the  edge  over  firms 
which  had  gone  out  of  their  way  to  assist  the  enemy 
during  the  war.  Among  the  other  reasons  why  it 
was  decided  the  list  should  go  on  in  the  post-hostil- 
ities period  was  the  fact  that  considerable  German 
assets  were  leaving  Germany  and  seeking  safe 
haven  in  neutral  countries  in  Europe  and  to  some 
extent  in  the  Western  Hemisphere.  Some  of  these 
assets  represented  the  funds  of  important  German 
officials  and  commercial  enterprises ;  others  repre- 
sented assets  looted  in  the  German-occupied  terri- 
tories. It  was  felt  that  the  list  could  serve  a  useful 
purpose  in  connection  with  the  uncovering  and 
identifying  of  such  assets.  It  was  also  felt  that 
the  list  could  serve  a  useful  purpose  in  controlling 
subsidiaries  of  German  enterprises  whose  head 
office  would  be  placed  under  Allied  control  at  the 
termination  of  hostilities. 

At  the  same  time  it  was  felt  that  after  V-E  Day 
the  changed  security  situation  made  revision  of 
the  list  desirable.  This  revision  actually  took 
place  in  two  stages.  Following  the  cessation  of 
hostilities  in  Europe  the  names  of  minor  offenders 
were  culled  from  the  list  and  deleted  in  June  194.5. 
The  announcement  issued  at  the  time  these  names 
were  deleted  indicated  that  the  names  were  deleted 
only  because  of  the  changed  security  situation  and 
that  their  deletion  did  iu)t  constitute  any  change 
in  attitude  of  this  Government  with  respect  to 
their  undesirability.''     The  second  phase  of  this 

"  Bulletin  of  June  24,  1945,  p.  1167. 


post-hostilities  revision  consisted  of  a  thorough 
review  of  the  facts  of  every  case  remaining  on  the 
list  and  the  selection  of  the  worst  offenders  to 
remain  on  the  list.  After  this  "hard  core  of  worst 
offenders"  had  been  selected  on  the  basis  of  the 
case-by-case  study,  all  other  names  were  removed 
from  the  list  in  November  of  194,5. 

The  November  supplement  contained  5,081  de- 
letions, which  left  6,053  names  on  the  "hard  core"' 
list.  This  figure  represents  a  substantial  reduc- 
tion of  the  list  from  its  peak  of  15,446  names. 
Since  the  November  supplement,  there  have  been 
relatively  few  deletions  from  the  list,  wluch  is 
only  natural  in  view  of  the  fact  that  the  whole 
list  was  reviewed  case-by-case  before  the  issuance 
of  the  November  supplement.  The  list,  however, 
is  not  a  frozen  list,  which  is  attested  by  the  fact 
that  there  have  been  some  deletions  and  even  more 
by  the  fact  that  there  have  been  additions  to  the 
list.  It  is  not  contemplated  that  this  Government 
will  ever  wish  to  operate  a  frozen  list.  It  may 
be  expected  that  there  will  always  be  additions 
and  deletions  to  the  list  where  good  reason  exists. 
It  is  not  hard  to  understand,  however,  that  dele- 
tions will  be  few  since  the  list  has  been  reduced 
to  a  "hard  core  of  worst  offenders.'' 

From  the  foregoing,  it  is  obvious  that  there  are 
two  types  of  deletions :  the  one  based  on  the  merits 
of  the  individual  case;  the  other,  on  the  changed 
.security  situation  following  the  cessation  of  hos- 
tilities or  the  effectiveness  of  the  local  controls 
programs  of  the  country  where  the  individual  is 
resident  or  the  concern  is  located.  The  so-called 
"merit''  deletions  occur  after  a  reorganization 
eliminating  undesirable  elements  in  the  firm  or 
after  it  has  been  demonstrated  on  the  merits  of  the 
case  that  listing  is  no  longer  necessary.  Deletions 
of  the  second  type  do  not  depend  on  the  facts  of 
the  individual  case  nearly  so  nuich  as  on  the 
changed  security  situation  or  the  local  controls  of 
a  given  country.  Such  deletions  are  referred  to 
as  "group"  deletions.  As  far  as  deletion  in  such 
cases  has  any  reference  to  the  merits  of  the  indi- 
vidual case,  it  simply  indicates  that  the  Pro- 
claimed List  authorities  do  not  consider  the  person 
or  concern  to  be  one  of  the  worst  offenders. 

Attitude  Toward  Former  Proclaimed  List 
Nationals 

Since  some  firms  were  deleted  from  the  list  for 
merit  and  some  for  reasons  other  than  the  merits 
of  the  individual  case,  it  was  inevitable  tliat  the 


MAY  26,  1946 


879 


question  of  the  attitude  which  should  be  adopted 
toward  persons  or  firms  deleted  from  the  Pro- 
claimed List  for  reasons  other  than  merit  should 
arise.  In  the  first  place,  American  exporters 
wished  to  know  whether  there  was  any  objection 
to  American  business  reestablishing  previous  trade 
connections  and  forming  new  trade  connections 
with  former  Proclaimed  List  nationals.  At  the 
same  time,  questions  were  arising  abroad.  Obvi- 
ously, there  was  no  problem  where  a  firm  had  been 
deleted  for  merit.  The  problem  arose  in  connection 
with  firms  which  wei-e  deleted  for  reasons  other 
than  the  merits  of  the  individual  case.  It  was 
felt  by  many  that  persons  who  had  worked  against 
us  all  during  the  war  should  not  immediately  upon 
the  cessation  of  hostilities  be  received  back  into  the 
family  of  American  business  enterprise  and  that 
the  concerns  which  had  been  friendly  to  us  all 
during  the  war  when  supplies  were  limited  should 
have  the  first  opportunity  for  establishing  or  re- 
establishing trade  connections  with  American 
business  in  the  post-war  period  when  supplies  were 
increasing.  As  indicated  previously,  one  of  the 
reasons  for  continuing  the  list  was  to  give  friendly 
firms  the  first  opportunity  to  obtain  American 
business  contacts.  For  similar  reasons  it  was  felt 
that  firms  which  had  been  friendly  to  us  all  during 
the  war  should  also  have  an  advantage  over  the 
concerns  deleted  for  reasons  other  than  merit. 

If  the  American  firms  wei'e  to  give  agencies  to 
former  Proclaimed  List  nationals  deleted  for  rea- 
sons other  than  merit,  the  general  public  in  a 
friendly  country  would  scarcely  understand  how 
this  could  occur.  Suppose,  for  example,  that  a 
firm  which  represented  important  United  States 
firms  had  been  included  in  the  Proclaimed  List 
during  the  major  portion  of  the  war,  the  firm  then 
being  deleted  in  a  group  deletion.  If  the  United 
States  firm  were  to  reestablish  its  connection  with 
this  agent  or  business  representative  the  sequence 
of  events  would  not  be  hard  to  imagine.  The 
ex-Proclaimed  List  concern  would  immediately 
advertise  extensively  its  reinstatement  to  a  sur- 
prised public.  The  business  establishment  would 
soon  have  a  lai-ge  sign  advertising  the  American 
connection,  and  our  friends  in  that  republic  would 
not  be  able  to  understand  how  the  leopard  had 
changed  its  spots. 

Not  only  is  the  general  public  in  a  friendly 
country  concerned  with  the  policy  which  this 
Government  follows  with  regard  to  former  Pro- 


claimed List  nationals  but  cooperative  and 
friendly  govermnents  which  have  imposed  vigor- 
ous wartime  controls  to  effect  the  elimination  of 
the  Axis  war  potential  from  their  countries  also 
have  a  live  interest  in  this  subject.  When  Axis 
firms  are  liquidated,  reorganized,  or  sold  by 
friendly  governments,  it  is  frequently  necessary  to 
discharge  former  employees  who  were  actively  en- 
gaged in  pro-Axis  activities.  Many  of  such  dis- 
charged employees  liave  been  deleted  from  the 
Proclaimed  List  in  group  deletions.  If  such  em- 
ployees should  be  placed  in  charge  of  local  sales 
organization  of  a  United  States  firm,  it  would  ob- 
viously be  difficult  indeed  for  the  cooperative  gov- 
ernments to  understand  such  an  appointment. 

There  are  indications  that  German  businessmen 
abroad  feel  that  now  that  Germany  has  been  de- 
feated it  is  for  them  to  preserve  (ierman  assets, 
technical  skills,  culture,  and  ideologies  against  the 
day  when  the  homeland  can  rise  again.  In  some 
countries  the  Nazis  are  doing  their  work  surrepti- 
tiously; in  others  there  is  a  bold,  outspoken,  public 
program.  Obviously,  American  firms  do  not  wish 
to  assist  this  smouldering  flame  of  Nazism  by  ac- 
cepting its  proponents  into  the  bosom  of  American 
foreign  commerce,  allowing  the  profits  derived 
therefrom  to  be  used  for  such  nefarious  ends. 

From  a  purely  commercial  standpoint  former 
Proclaimed  List  nationals  are  not  the  most  desir- 
able trade  contacts.  Many  have  suffered  consid- 
ei-ably  during  the  war  years  by  being  on  the  Pro- 
claimed List  so  that  their  ability  to  properly  rep- 
resent American  firms  has  been  greatly  impaired. 
Many  have  lost  the  respect  of  their  neighbors  and 
the  good-will  of  their  community  because  they 
have  been  publicly  identified  as  unfriendly  to  the 
United  Nations  during  the  war.  Both  of  these  fac- 
tors would  impair  their  sales  ability.  There  is  evi- 
dence too  that  former  Proclaimed  List  nationals 
are  willing  to  disparage  American  products  and 
praise  German  products  and  to  sabotage  Ameri- 
can commercial  interests  by  approaching  their  cus- 
tomers in  somewhat  the  following  vein.  The  im- 
plication is  sometimes  made  that  the  American 
products  sold  are  inferior  and  a  temporary  line, 
pending  reestablishment  of  "solid"  German  lines. 
It  is  obviously  not  in  the  interests  of  the  United 
States  or  its  manufacturers  to  chance  being  repre- 
sented by  persons  of  this  type — -those  who  are,  in 
truth,  unfriendly  to  the  United  States  and  United 
States  concerns,  though  professing  friendship. 


880 


DEPARTMENT  OF  STATE  BULLETm 


After  careful  consideration  of  facts  such  as  the 
foregoing  it  was  felt  that  the  most  feasible  ap- 
proach to  this  jirohleni  would  be  to  inform  Ameri- 
can businessmen  ui)on  their  request  whether  or  not 
a  former  Pioclaimed  List  national  had  been  de- 
leted on  the  merits  of  the  individual  case.  Ameri- 
can ex])(irters  had  indicated  that  they  desired  this 
information  and  that  they  were  eager  to  cooperate 
in  this  regard.  The  logical  agency  of  the  Govern- 
,ment  to  furnish  such  information  is  the  Depart- 
ment of  Commerce,  which  has  for  many  years  pro- 
vided commercial  information  to  the  American 
businessman  and  has  during  the  war  been  a  great 
help  to  American  businessmen  by  furnisliing  infor- 
mation concerning  and  explaining  various  Govern- 
ment wartime  controls.  The  Commerce  Dei)art- 
ment,  in  the  Foreign  Commerce  Weekly  of  August 
4, 1945,  stated  that  the  Commerce  Department  was 
prepared  to  furnish  this  service  to  American  busi- 
nessmen. The  service  has  been  in  operation  since 
that  time. 

The  statement  mentioned  in  the  first  paragraph 
of  this  article  was  issued  on  March  20  in  order 
to  give  wider  jjublicity  to  the  fact  that  this  service 
is  available.  In  this  statement  American  business- 
men are  informed  that  before  establi.shing  or  re- 
suming commercial  or  financial  relations  abroad 
with  former  Proclaimed  List  nationals  they  may 
check  with  the  Commercial  Intelligence  Branch 
of  the  Department  of  Commei'ce  as  to  the  desira- 
bility of  such  relations.  The  statement  goes  on  to 
say  that  such  connections  with  former  Proclaimed 
List  individuals  and  firms,  except  those  who  have 
been  deleted  from  tlie  Proclaimed  List  without 
prejudice,  would  have  to  be  a  factor  considered 
in  cases  arising  for  the  protection  of  American 
interests  abroad  and  that  while  our  Government 
always  will  protect  the  legitimate  rights  and  in- 
terests of  American  business  abroad  it  would  not 
wish  to  take  any  action  which  would  assist  those 
who  had  formerly  worked  against  our  vital  na- 
tional interests  and  who  might  do  so  again  if  op- 
portunity offered. 

It  should  be  noted  tluit  the  program  with  respect 
to  former  Proclaimed  List  nationals  is  essentially 
a  service.  American  business  enterprises  are  not 
prohibited  from  dealing  with  former  Proclaimed 
List    nationals.     Rather    information     is    made 


available  to  American  businessmen  and  their  co- 
operation is  solicited. 

It  should  also  be  noted  that  the  program  is  not 
designed  to  prevent  American  goods  reaching  the 
1  ands  (if  former  Proclaimed  List  nationals  de- 
leted for  reasons  other  than  merit.  Tiie  program 
is  not  designed  to  prevent  such  former  Proclaimed 
List  nationals  from  riding  in  American-made  au- 
tomobiles, smoking  American-made  cigarettes,  or 
wearing  American-made  shirts.  The  program  is 
not  aimed  at  preventing  individual  sales  to  such 
ex-Proclaimed  List  nationals.  The  program  is 
rather  aimed  at  agency  relationships,  representa- 
tions, distributorships,  and  similar  continuing 
trade  connections  or  contacts.  Although  the  pro- 
gram is  not  designed  to  prevent  ex-Proclaimed  List 
nationals  deleted  for  reasons  other  than  merit 
from  buying  American  goods,  it  is  aimed  at  dis- 
couraging and  if  possible  preventing  a  situation 
where  the  nationals  of  a  friendly  and  cooperative 
country  nuist  go  to  such  persons  to  obtain  Ameri- 
can goods.  The  program  is  designed  to  prevent 
such  persons  from  being  accepted  into  the  family 
of  American  business  and  being  in  on  the  money- 
making  side  of  American  business.  Thus  the 
new  program  is  not  a  trade  barrier.  It  does  not 
stop  the  flow  of  American  merchandise  abroad.  It 
does  not  atfect  the  flow  of  American  merchandise; 
it  affects  only  the  channel  which  this  flow  takes.  It 
does  not  involve  export  controls,  nor  does  the  plan 
interfere  with  trade  promotion  policy  or  programs. 
It  is  based  on  the  conviction  of  government  and 
business  that  it  is  more  desirable  from  all  points  of 
view  to  have  American  goods  distributed  by  per- 
s(Mis  or  ctincerns  friendly  to  American  democratic 
ideals  and  institutions  rather  than  to  have  such 
goods  distributed  abroad  by  persons  who  were  un- 
friendlj'  toward  us  during  the  recent  conflict  and 
who  might  be  unfriendly  toward  us  again  if  op- 
l)ortunity  afforded. 

It  took  a  great  deal  of  "blood,  sweat,  and  tears" 
to  defeat  the  Nazi  and  Japanese  war  machines  in 
Europe  and  the  Pacific,  and  a  great  deal  of  time, 
energ}',  and  money  has  gone  into  the  effort  to  elimi- 
nate Axis  economic  penetration  abroad.  Of  these 
facts  the  American  foreign  trader  is  well  aware, 
and  it  is  believed  that  when  establishing  trade 
contacts  abroad  he  will  wish  to  act  accordingly. 


The  United  Nations 


Proposed  Resolution  on  Membership  Applications 

LETTER    FROM    UNITED    STATES    REPRESENTATIVE  TO  SECRETARY-GENERAL  ' 


10  May  1946. 
My  Deak  Mr.  Secretary-General  : 

On  instructions  from  my  Government.  I  liave 
the  honour  to  request  that  the  matter  of  establish- 
ing general  arrangements  whereby  the  Security 
Council  may  receive  and  consider  membership  ap- 
jilications  with  a  view  toward  reconnnending  to 
the  General  Assembly  at  its  forthcoming  meeting 
on  September  3.  194(),  the  admission  of  any  quali- 
fied apjilicant  States  to  membership  pui'suant  to 
Article  i  of  the  Charter,  be  placed  on  the  agenda 
of  the  next  meeting  of  the  Security  Council. 

I  attach  hereto  a  copy  of  a  resolution  -  which  I 
shall  propose  for  the  consideration  of  the  Security 
Council. 

Sincerely  yours, 

E.  R.  Stettinius 
The  Security  Council 

taking  into  account  the  fact  tliat,  under  Article 
4  of  the  Charter,  membership  in  the  United  Na- 
tions is  open  to  all  peace-loving  states  which  accept 


the  obligations  contained  in  the  Cliarter,  and,  in 
tiie  judgment  of  the  Organizations,  are  able  and 
willing  to  carry  out  these  obligations;  and 

taking  into  account  the  fact  that  the  General 
Assembly,  which' acts  to  admit  applicant  states  to 
membership  on  the  recommendation  of  the  Secu- 
i-ity  Council,  will  meet  for  the  second  part  of  its 
first  session  on  September  3,  1946, 

Resolves  that : 

1.  Applications  for  membership  wliich  have 
been  or  may  be  received  by  the  Secretary-General 
shall  be  considered  by  the  Security  Council  at  a 
meeting  or  meetings  to  be  held  in  August  1946  for 
this  specific  purpose. 

2.  Applications  for  membership  which  have 
been  or  may  be  received  by  the  Secretary-General 
not  later  than  July  15.  1946;  shall  be  referred  to  a 
committee  composed  of  a  representative  of  each 
of  the  members  of  the  Security  Council  for  exam- 
ination and  report  to  the  Council  not  later  than 
August  1,  1946. 


Progress  Made  by  Subcommittee  on  Franco 


The  subcommittee  on  Franco  at  its  meeting  on 
May  10  concluded  its  jjreliminary  studies  on  the 
scope  of  evidence  necessary  and  the  method  of  con- 
ducting the  inquiry  entrusted  to  it  by  the  Security 
Council. 

To  date  the  following  communications  had  been 
sent  b_\  the  Secretary-General  on  the  instruction 
of  the  subcommittee  to  member  governments  of 
the  United  Nations  and  to  inter-Allied  bodies  re- 
questing information  on  the  Franco  regime: 

1.  Apnl  i25  Letter  containing  general  request  to 
and  30     all  members  of  the  United  Nations 

for  information  on  Spain. 

2.  May  3     Cable  to  the  Chairman  of  the  United 

Nations  War  Crimes  Commission  in 

695136—46 2 


London  requesting  information  re- 
garding the  presence  of  German  war 
criminals  on  Spanish  territory. 
3.  May  6  Letter  enclosing  the  "Statement  of 
and  7  the  Nature  of  the  Evidence  Required 
by  the  Sub-Committee"  to  all  the 
United  Nations,  asking  for  all  rele- 
vant information  to  the  questions  in- 
cluded in  the  statement. 

'  S/.56,  JIa.v  10,  1946. 

"This  resolution  was  adopted  unaiiimousl.v  Ij.v  the  Se- 
curity Council  at  its  42d  meeting  on  Ma.v  17, 1946. 
been  or  may  be  received  by  the  Secretary-General 

''  Established  by  the  Security  Council  by  its  resolution  as 
adopted  at  its  39tli  meeting  on  Apr.  29.  1946.  For  test  of 
the  resolution  see  Bulletin  of  May  12,  1946,  p.  796. 

881 


882 


DEPARTMENT  OF  STATE  BULLETIN 


■i.  May  8  Cable  to  the  cliief  prosecutors  of  the 
U.S.A.,  U.K.,  U.S.S.R.,  and  France 
of  the  International  Military  Tribu- 
nal at  Niirnberg-,  requesting  sijecific 
information  concerning  the  attitude 
of  the  Franco  regime  during  the  re- 
cent war  to  the  Axis  powers  and  the 
Allied  powers. 

5.  May  8      Cable  to  the  Chairman,  Allied  Coun- 

cil for  Japan,  Tokyo,  requesting  spe- 
cific information  concerning  the  sub- 
vei'sive  activities  of  Falange  and 
Franco  organizations  in  Japan  on 
former  Japanese  occupied  territories 
directed  against  the  United  Nations. 

6.  May  8      Cable  to  the  Cliairman  of  the  Allied 

Control  Council  in  Germany.  Berlin, 
requesting  specific  information  re- 
garding the  extent  to  which  the 
Franco  regime  continues  to  harbor 


German  agents,  organizations,  war 
criminals,  etc.,  and  the  attitude  of 
the  Franco  regime  during  the  recent 
war  to  the  Axis  powers  and  the  Al- 
lied powers. 

7.  May  8      Cable  to  the  League  of  Nations  in 

Geneva  requesting  unpublished  docu- 
ments and  information  in  regard  to 
Spain,  including  records  of  private 
sessions  of  commissions  and  commit- 
tees. 

8.  May  8      Cable  to  the  Chairman  of  the  Allied 

Commission  for  Italy,  Rome,  request- 
ing information  regarding  the  atti- 
tude of  the  Franco  regime  during  the 
recent  war  to  the  Axis  powers  and 
the  Allied  powers. 

9.  May  9      Letter  to  the  United  States  Govern- 

ment requesting  specific  information 


Functions  of  International  Organizations  ^ 


FUNCTIONS 

I.  L.  O. 

F.  A.  0. 

UNESCO 

WORLD  HEALTH 

ORGANIZATIONS 
(Proposed) 

!.  Collect    and    disseminate 
information. 

Collects  and  publishes  in- 
formation. 

Collects,    analyzes,    interprets, 
and  disseminates  information. 

Uses  all  means  of  mass  com- 
munication. 

Maintain       epidemiological 
and  statistical  service  for 
collection    and    dissemina- 
tion of  information. 

2.  Conduct  special  studies. 

Makes  investigations. 

Scientific,  technological,  social, 
and  economic  research  relating 
to  nutrition,  food,  and  agiicul- 
ture.    Initiates  special  studies 
and  surveys  on  specific  prob- 
lems related  to  welfare  of  rural 
people. 

Seel. 

Promote  research  in  the  field 
of  health. 

3.  Issue   reports   on   specific 
subjects  within  scope  of 
organization. 

Issues  special  reports. 

Makes  reports. 

Seel. 

Central  information  services. 

4.  Hold  conferences  on  sub- 
jects   within    scope    of 
organization. 

Holds  conferences. 

Organization  includes  a  confer- 
ence. 

Has  a  general  conference.   The 
general      conference     shall 
summon  international  con- 
ferences on  education,  etc. 

Hold  world  conferences. 

5.  Develop  standards. 

Adopts  statements  on  prin- 
ciples. 

Formulates  policies. 

Recommends  to  the  nations 
concerned     the     necessary 
international  conventions. 

Develop  international  stand- 
ards. 

6.  Formulate     recommenda- 
tions, draft  conventions, 
and  international  agree- 
ments. 

Adopts     recommendations, 
resolutions,   and   conven- 
tions. 

Adopts  international  premises. 

Adopts  recommendations,  in- 
ternational conventions,  and 
agreements. 

Promote  conventions,  regula- 
tions, and  agreements. 

7.  Provide    technical    assist- 
ance: 

a.  to  other  international 
organizations; 

b.  to  governments. 

Gives  technical  assistance. 

Furnishes  such  technical  assist- 
ance   as    governments    may 
request. 

Collaborates  with   members, 
at  their  request,  in  the  de- 
velopment   of   educational 
activities. 

Furnish  appropriate  techni- 
cal assistance. 

'  Document  E/TSC/19,  May  7,  liltfi. 


MAY  26,  1946 


^8.3 


10.  Mai/ 8 


coiiceniino;  the  subversive  activities 
of  the  Fahinge  and  other  Franco  or- 
ganizations in  the  Spanish-speaking  11.  -Vr/y  ,v 
it'])iil>lics  of  Cential  and  South 
America  and  in  the  Philippine  Com- 
monwealth; specific  information  on 
jii'odiiction  by  the  Franco  regime  of 
war  materials,  etc. ;  documents  from 
German  and  Italian  archives  con- 
taining information  on  Spain:  docu- 
ments which  served  as  the  basis  of  12.  Moi/  S 
the  preparation  of  the  report  pub- 
lislu'd  by  Foreign  Economic  Admin- 
istration. 

Letter  to  the  Governments  of  all 
Central  Anu'i'ican  and  South  Amer-  13.  M<ii/  0 
ican  republics  and  the  Philippine 
Commonwealth  requesting  specific 
information  concerning  the  attitude 
of  the  Franco  regime  during  the  re- 
cent war  to  the  Axis  powers  and  the 
Allied  powers,  with  particular  ref- 
erence to  any  subversive  activities  of 


the  Falange  and  Franco  organiza- 
tions in  the  countries  mentioned. 
Letter  to  tiie  British  Government 
requesting  s])ecific  information  re- 
garding the  use  during  the  war  of 
Spanish  bases  by  German  subma- 
rines and  concerning  the  documents 
from  German  and  Italian  ai'chives 
CQUtaining  information  relevant  to 
Spain. 

Letter  to  the  Italian  Govermnent 
requesting  information  concerning 
the  attitude  of  the  Franco  regime 
during  the  recent  war  to  the  Axis 
powers  and  the  Allied  powers. 
Letter  to  tlie  Soviet  Government  re- 
ciuesting  information  regarding  the 
participation  of  the  Spanish  "Blue 
Division''  in  the  war  against  the 
Soviet  Union  and  concerning  docu- 
ments from  German  archives  con- 
taining information  relevant  to 
SjDain. 


Functions  of  International  Organizations — Continued 


WORLD  HEALTH 

FUNCTIONS 

I.  L.  0. 

F.  A.  0. 

UNESCO 

ORGANIZATIONS 
(Proposed) 

8.  Promote  international  co- 

Makes international  legisla- 

Promotes and  recommends  in- 

Promotes collaboration  among 

International     collaboration 

operation    and    initiate 

tive  proposals. 

ternational  action. 

the    nations.      Encourages 

and  mutual  a-ssistance;  co- 

inetliods of  collaboration 

cooperation  among  the  na- 

ordinating authority. 

among  nations. 

tions  in  all  branches  of  in- 
tellectual activity. 

9.  Cooperate  with  other  in- 

Has had  liaison  otScers  on 

Cooperates    with     professional 

Cooperates  with  other  special- 

Establish effective  relation- 

ternational organizations. 

other  committees. 

groups    and    other    organiza- 

ized     inter  -  governmental 

ship     with     inter-govern- 

tions in  rm*al  welfare,  with 

agencies     whose     activities 

mental  and  other  interna- 

specialized international  agen- 

are related  to  its  purposes. 

tional  organizations. 

cies  in  related  fields,  and  with 

other  international  agencies. 

10.  Promote  and  initiate  in- 

Encourages the  international 

Improve  standards  of  teach- 

ternational cooperation 

exchange  of  persons  active 

ing  and  training  by  means 

in    the     training    and 

in  education,  science,  and 

of     fellowships,      courses, 

exchange  of    technical 

culture. 

study  tours,  and  exchange 

personnel. 

of  visits. 

11,  .\dminister  services  and 

Takes  all  appropriate  action  to 

Provide,      upon      request, 

activities. 

implement    the    pm-poses    of 
the  organization. 

health  services  and  facili- 
ties to  special  gi'oups. 
Assist  governments. 

12.  Other. 

Organizes   missions  needed   to 
fulfil  their  obligations  arising 
from  their  acceptance  of  the 
recommendations       of       the 
UNFA  Conference.  Takes  all 
appropriate     action    to    im- 
plement purposes. 

Suggests  educational  methods. 

Give  necessary  aid  at  the  re- 
quest of  governments. 
Take  all  necessary  and 
appropriate  action. 

Calendar  of  Meetings 


Council  of  Foreign  Ministers: 


Meeting  of  Deputies 

London 

January  18 — • 
t  emporarily 
adjourned 

Meeting  of  Foreign  Ministers 

Paris 

April  25— ad- 
journed on 
May  16  un- 
til June  15 

Far  Eastern  Commission 

Washing- 
ton 

February  26 

Allied-Swiss    Negotiations    for 

Washing- 

March 18 

German  External  Assets 

ton 

International  Labor  Organiza- 

Toledo 

Mav  2-1 1 

tion:  Metal   Trades  Com- 

mittee 

International  Office  of  Public 

Paris 

April        24- 

Health 

Mav  6 

PICAO: 

European  and  Mediterranean 

Paris 

April  24 

Air  Route  Services  Con- 

ference 

Meeting  of  the  First  Annual 

Montreal 

Mav  21 

Assembly 

International  Cotton  Advisory     Washing-     May  7-14 
Committee  ton 


The  dates  in  the  calendar  are  as  of  May  19. 


FAO:  Special  Meeting  on  LTr- 
gent  Food  Problems 

International  Labor  Office: 
Ninety-eighth  Session  of 
the  Governing  Body 

The  United  Nations: 
Security  Council 
Military    Staff    Committee 
Special   Committee  on   Ref- 
ugees   and     Displaced 
Persons 
International  Court  of  Justice 
Conunissions  of  the  Economic 

and  Social  Council 
Economic  and  Social  Council 
International    Health    Con- 
ference 
General     Assembly:  Second 
Part  of  First  Session 


Washing-     May  20-28 
ton 

Montreal     May  23-28 


New  York  March  25 
New  York  March  25 
London        April  8 

The  Hague  April  18 

New  York    Ajiril  29 

New  York   May  25 
New  York  June  19 

New  York  Septembers 


Activities  and  Developments 


I.  The  Far  Eastern  Commission  unaiiiinoiisly 
approved  on  May  13  two  initial  policy  statements 
■which  will  form  parts  of  the  over-all  Interim 
Reparations  Policy  for  Japan,  which  the  Commis- 
sion is  still  considering.  (Texts  printed  below.) 
Both  of  these  policies  are  based  on  the  original 
Pauley  report  to  the  President  recommending  an 
Interim  Reparations  Removal  Program  for  Japan. 
The  statement  on  Army  and  Navy  arsenals,  air- 
craft industrj',  and  light-metals  industry  is  a 
modification  of  a  proposal  submitted  to  the  Com- 
mission by  the  ITnited  States  Government.  This 
policy  should  be  understood  as  constituting  but  one 
part  of  an  Interim  Reparations  Program;  the 
Reparations  Committee  has  for  several  weeks  been 
considering  other  industries  too,  such  as  machine 
884 


tools,  iron  and  steel,  and  shipbuilding,  and  the 
Commission  will  i-elease  additional  policies  on 
these  as  agreement  is  reached. 

II.  The.  second  of  these  policy  .statements  (Re- 
moval of  Facilities  From  Japan  for  Reparations — 
Priority  According  to  Ownership  or  Control)  was 
also  proposed  to  the  Commission  by  the  United 
States  Government  and.  after  modification,  was 
agreed  to  by  the  Commission.  This  statement  re- 
lates reparations  removals  to  the  general  policy 
under  which  the  Suprente  Commander  for  the 
Allied  Powers  has  been  directed  to  dissolve  mo- 
nopolies, cartels,  and  combinations  of  economic 
power.  The  present  statement,  of  course,  is  only 
an  incidental  part  of  the  complete  program  to  be 
determined  with  respect  to  the  Zaibatsu. 


MAY  26,  1946 

III.  The  CDinmission  also  unanimously  ap- 
proved the  attaelied  policy  with  respect  to  criteria 
for  the  adoption  of  a  new  Japanese  Constitution. 
(Text  printed  below.)  The  Commission  is  study- 
ing the  matter  of  the  Constitution  further  with 
the  view  of  reaching  agreement  on  additional  poli- 
cies in  this  regard. 

/.  Interim    Reparations    Removal    Program    Army    and 
Navy  Arsenals;  Aircraft  Industry:  Light  Metals  Industry 

The  action  specified  below  should  be  taken  with 
respect  to  facilities  identified  in  the  three  listed 
categories  of  Japanese  industry.  !Such  action,  un- 
der tlie  Interim  Reparations  Removal  Program, 
should  be  taken  without  prejudice  to  further  re- 
movals that  may  be  ordered  under  a  final  repara- 
tions program. 

1.  Army  and  Navy  Arsenals 

(  Definitions :  "Plants  and  establishments  owned 
and  operated  by  the  Japanese  Army  or  Navy  en- 
gaged in  the  development,  production,  mainte- 
nance, testing  or  storage  of  equipment  or  supplies 
for  use  in  war  or  warlike  purposes.  (Arsenals  as 
defined  herein  embraces  a  broad  category  of  facili- 
ties distinguished  by  their  ownershij)  rather  than 
by  the  nature  of  the  operation  and  departs  from 
the  more  usual  connotation  of  ordnance  manufac- 
the  more  usual  connotation  of  ordnance  manufac- 
in  a  separate  paper.") 

(I.  All  facilities  within  this  category  should  be 
made  available  for  claim,  subject  to  the  following 
limitations: 

(i)  Special  Purpose  Machinery  and  Equipment 
All  nuxchinery,  equipment  and  accessories  which 
by  virtue  of  initial  design,  construction,  or  major 
structural  change  are,  as  individual  items,  special 
purpose  in  nature  and  functionally  limited  to  use 
in  connection  with  equipment  or  supplies  for  war 
or  warlike  purposes,  should  be  held  pending  fur- 
ther instructions  concerning  their  disposition. 

(2)  Shipyards 

Shipbuilding  and  ship  repair  facilities  should 
be  disposed  of  in  accordance  with  policy  to  be  de- 
cided later. 

(S)  Non-annament  Facilities 

Those  facilities  which  have  been  engaged  in  the 
production  of  such  non-durable  consumer  goods 
as  textiles,  clothing,  processed  foods,  and  pharma- 
ceuticals, should  be  left  for  disposal  under  the  final 
reparations  program,  and  not  be  made  available 


885 

for  claim  luider  the  Interim  Reparations  Removal 
Program. 

(  4 )   Fertilizer  and  Fuel  Facilities 

Those  facilities  which  can  be  readily  used  in  the 
jn-oduction  of  fertilizer  and  fuel,  other  than  syn- 
thetic oil,  should  be  left  for  disposal  later  and  not 
be  made  available  immediately  for  claim  under  the 
Interim  Reparations  Removal  Program. 

2.  Aircraft  Industry 
(Definitions :  "Plants  and  establishments  prima- 
lily  engaged  in  the  manufacture  or  assembly  of 
finished  aircraft,  airframes,  aircraft  engines,  and 
aircraft  propellers,  or  in  supplying  fabricated 
materials  semi-finished,  or  finished  parts,  com- 
ponents, or  accessories,  (exclusive  of  arms  and 
armaments,  i  n  s  t  r  u  m  e  n  t  s  and  commimication 
equipment)  especially  designed  for  incorporation 
in  finished  aircraft.") 

a.  All  facilities  in  plants  and  establishments 
originally  designed,  constructed,  and  equipped,  or 
converted  through  major  change  in  the  nature  of 
installed  machinery  and  equipment  to  serve  in  this 
category  should  be  made  available  for  claim. 

b.  Plants  and  establishments  within  this  cate- 
gory, other  than  those  covered  in  (a)  above,  the 
use  of  whose  products  by  the  aircraft  industry 
represents  merely  a  diversion  during  the  war  with- 
out major  change  in  character  of  product  from 
former  peacetime  civil  consumption,  or  in  the  na- 
ture of  installed  machinery  and  equipment,  should 
not  be  made  available  for  claim  pending  Allied 
decision  as  to  the  final  disposition  of  the  industry 
with  which  they  are  normally  associated. 

3.  Light  Metals  Industry 
(Definitions:  "Plants  and  establishments  pri- 
marily engaged  in  the  production  of  alumina,  pri- 
mary or  secondary  alinnimnu  and  magnesium,  and 
in  the  rolling,  extruding,  tlrawing,  forging  and 
casting  of  aluminum  and  magnesium  and  their 
alloys.") 

a.  All  facilities  identified  within  this  category 
should  be  made  available  for  claim,  subject  to  the 
following  limitations : 

(1)  No  facilities  engaged  in  remelting  light 
metal  scrap  into  secondary  ingot  should  be  made 
available  for  claim. 

(2)  In  cement  plants  converted  to  produce 
r.lumina  from  clays  or  shales,  only  the  equipment 
introduced  to  effect  such  conversion  should  be  made 
available  for  claim. 


886 


DEPARTMENT  OF  STATE  BULLETIN 


{3)  Sufficient  rolling  and  drawing  equipment 
should  be  retained  to  handle  15,000  metric  tons  per 
annum  of  fabricated  aluminum.  Such  equipment 
should  be  of  a  general  purpose  character  and  can 
be  obtained  from  any  surplus  available  in  other 
branches  of  the  non-ferrous  metals  industry. 

//.  Removal  of  Facilities  From  Japan  or  Reparations — 
Priority  According  to  Ownership  or  Control 

Among  the  criteria  to  be  employed  in  the  selec- 
tion of  individual  plants  and  items  of  equipment 
for  removal  from  -Japan  as  reparations  should  be 
the  principle  of  reinforcing  the  occupation  ob- 
jective of  dissolving  large  industrial  and  banking 
corporations  which  have  exercised  control  over  a 
great  part  of  Japanese  trade  and  industry. 

The  following  interests,  combinations,  and  con- 
cerns, which  assisted  in  Japanese  aggression,  and 
their  subsidiaries  and  affiliates,  should  be  included 
with  others  which  have  been  or  may  be  designated : 
Mitsui ;  Mitsubishi :  Sumitomo ;  Kuhara ;  Okura ; 
Yasuda;  Mori;  Rikken;  Nissan;  Mangyo;  and 
Nakajima. 

///.  Criteria  for  the  Adoption  of  a  New  Japanese  Consti- 
tution 

1.  The  criteria  for  the  adoption  of  a  new  Con- 
stitution should  be  such  as  to  ensure  that  the 
Constitutit>n,  when  finally  adopted,  is,  in  fact,  a 
free  expression  of  the  will  of  the  Japanese  people. 
To  this  end,  the  following  principles  should  be 
observed : 

a.  Adequate  time  and  ()i)poi,tunity  should  be 
allowed  for  the  full  discussion  and  consideration 
of  the  terms  of  a  new  Constitution. 

b.  Complete  legal  continuity  from  the  Consti- 
tution of  1889  to  the  new  Constitution  should  be 
assured. 

c.  The  new  Constitution  should  be  adopted  in 
such  a  manner  as  to  demonstrate  that  it  affirma- 
tively expresses  the  free  will  of  the  Japanese 
people. 

U.  S.  Delegation  to  PICAO ' 

Dean  Acheson,  Acting  Secretary  of  State,  an- 
nounced on  May  17  that  the  President  had  ap- 
pi-oved  the  composition  of  the  United  States 
Delegation  to  the  First  Annual  Assembly  of  the 
Provisional  International  Civil  Aviation  Organi- 

'  Releasfd  to  the  press  May  17. 


zation  ( PICAO)  scheduled  to  convene  at  Montreal, 
Quebec,  Canada,  May  21,  1946.  This  is  the  first 
anmial  meeting  of  the  Pi-ovisional  Organization 
as  provided  in  the  Interim  Agreement  which  was 
accepted  bj'  the  United  States  on  February  8, 1945. 

The  Assembly  will  review  the  work  of  the  Coun- 
cil and  Secretariat  since  the  organization  was  es- 
tablished last  June  and  will  determine  PICAO's 
financial  arrangements  as  well  as  lay  preparatory 
plans  for  the  permanent  International  Civil  Avia- 
tion Organization  (ICAO).  It  will  also  discuss 
matters  in  the  technical,  economic,  and  legal  fields 
of  international  civil  aviation. 

In  order  that  the  views  of  aviation  labor  and 
industry  may  be  made  properly  available,  invita- 
tions to  participate  as  advisers  to  the  delegation 
have  been  extended  to  the  following:  Air  Trans- 
port Association,  Aircraft  Industries  Association, 
Air  Line  Pilots  Association,  American  Overseas 
Aiiiines,  Pan  American  Airways,  Pan  American- 
Grace  Airways,  Inc.,  and  Trans  World  Airline. 

Membeis  of  the  U.  S.  Delegation  are : 

CliiiiniKiii  : 
William  A.  M.  Burden.  .\.ssistant  Secretary  of  Commerce. 

Mce  Chdirmnii: 
L.  Welch  Pogue,  t'hairmaii,  Civil  Aeronautics  Board. 

Uclc/ates: 

Harllee  Branch,  Member,  Civil  Aeronautics  Board. 
Gerald  B.  Brophy,  U.  S.  Representative  on  the  PICAO 

Council. 
Garri.son  Norton.  Deputy  Director,  Office  of  Transport 

and  Connnnnications  Policy,  Department  of  State. 

Alteniiitr  Dclei/ntts: 

Paul  T.  David,  Assistant  Chief,  Fiscal  Division.  U.  S. 
Bureau  of  the  Budget. 

Stok'eley  W.  Morgan,  Chief,  Aviation  Division,  Dfpiirt- 
ment  of  State. 

George  C.  Neal,  General  Counsel.  Civil  Aeronautics 
Board. 

Lieutenant  Conmiander  Paul  A.  Smith.  Assistant  to 
Director,  USCGS,  and  U.  S.  Air  Navigation  Representa- 
tive to  PICAO. 

Charles  I.  Stanton,  Deputy  Administrator,  Civil  Aero- 
nautics Administration. 

Coiifiiiltdnts: 

John  L.  Sullivan,  Assistant  Secretary  of  the  Navy  for 

Air,  Navy  Department. 
W.  Stuart  Symington,  Assistant  Secretary  of  War  for 
Air,  War  Department. 

Allmnitc  Coiisiiltdiitx: 

Cliarles  O.  Cary,  Office  of  the  Assistant  Secretary  of  the 

Navy  tor  Air,  Navy  Department. 
Colonel  T.  C.  Odom.  Executive  Officer,  Office  of  the  Assist- 
ant  Secretary  of  War  for  Air,  War  Depai'tment, 


MAY  26,  J 946 


887 


Adri!<irs: 

Russell  B.  Adams,  Direetoi-  of  Economic  Dnreau,  Civil 

Aeronautics  Board. 
Lieutenant    Colonel    Morris    R.    Dowd,    Civil    Aviation 
Branch,   Office  .of  the  Assistant  Chief  of   Air   Staff, 
Flans.  War  Department. 
Terrell  Drinkwater,  Vice  President,  American  Overseas 

Airlines. 
R.  E.  Elwell,  General  Counsel,  Civil  Aeronautics  Admin- 
istration. 
Eleanor  H.  Finch,  Assistant  to  the  Adviser  on  Air  Law, 

Aviation  Division,  DeilSrtment  of  State. 
John  J.  Gillen,  Director  of  International  Postal  Service, 

Post  Office  Department. 
Glen  A.  Gilhert,  Consultant  to  the  Administrator,  Civil 

Aeronautics  Administration. 
Frank  K.  Hefner,  Budget  Examiner,  Estimates  Division, 

U.  S.  Bureau  of  the  Budget. 
Robert  D.  Hoyt,  Coordinator  of  International  Regula- 
tions, Civil  Aeronautics  Board. 
Captain  Howard  B.  Hutchinson,  Naval  Air  Transport 
Service,  Office  of  Chief  of  Naval  Operations,  Navy 
Department. 
A.  S.  Koch,  Assistant  Administrator  for  Field  Opera- 
tions, Civil  Aeronautics  Administration. 
Stephen  Liitchford,  Adviser  on  Air  Law,  Aviation  r>ivi- 

sion,  Department  of  State. 
Arthur  L.  Lebel,  Chief,  Aviation  Communications  Sec- 
tion, Aviation  Division,  Department  of  State. 
Lieutenant  Colonel  John  A.  McCrary,  Assistant  Liaison 
Representative  for  Air  Coordinating  Committee,  War 
Department. 
Emory  T.   Nunneley,  Assistant   General   Conn.sel,   Civil 

Aeronautics  Board. 
Lawrence  E.   Ring,   Principal  Budget  Examiner,   Esti- 
mates Division,  U.  S.  Bureau  of  the  Budget. 
Donald  W.  Nyrop,  Official  PICAO  Repre.sentative  for 

Air  Transport  Association. 
Captain  Frank  o'Beirue,  Chief,  Civil  Air  Agencies  Sec- 
tion, ( ifflce  of  Deputy  Chief  of  Naval  Operations  (Air) , 
Navy  Department. 
Lieutenant  Colonel  A.   S.  Raudabaugh,  Civil  Aviation 
Branch,  Office  of  Assistant  Chief  of  Air  Staff,  Plans, 
War  Department. 
John  T.  Shannon,  Vice  President,  Pan  American-Grace 

Airways  Inc. 
John   Sherman,  PICAO  Coordinator  for  Air  Transport 

Matters,  Civil  Aeronautics  Board. 
James  H.  Smith,  Assistant  Vice  President,  I'an  Amer- 
ican Airways. 
Constantin   de   Stackelberg,   Assistant   to   Chairman   of 

Board,  Trans  World  Airline. 
A.   E.   Stockburger,  Assistant  Administrator  for   Busi- 
ness Management,  Civil  Aeronautics  Administration. 
Colonel  Carl  Swyter,  Office  of  Air  Communications  Offi- 
cer, Headquarters,  Arm.v  Air  Forces. 
Colonel  Lawrence  M.  Thomas,  Air  Transport  Connu.ind, 

Army  Air  Forces. 
Stuart    G.     Tipton.    General    Counsel,    Air    Transport 
Association. 


Richard  K.  Waldo,  Special  Assistant  on  I'ICAO  Matters, 

Aviation  Division,  Department  of  State. 
Lieutenant  Colonel   Earl   B.   Yoiuig,   Executive  Officer, 
Office  of  Assistant  Chief  of  Staff,  Plans,  Headquarters, 
Air  Transport  Command. 
Press  Ofpcer: 

Joseph  W.  Reap,  Assistant  to  the  Special  Assistant  to 
the  Secretary  of  State  on  Press  Relations,  Department 
of  State. 
Assistant  to  the  Press  Offieer: 

Virginia  Hudson 
TeclniictiJ  l^ecretarij: 

Alfred  Hand,  Director,   Plans  and  Performance  Staff, 
Civil  Aeronautics  Administration. 

Seeretaries : 

William  L.   Breese,  Division   of  International  Confer- 
ences, Department  of  State. 
Lawrence    W.    Taylor,    American    Consul,     Montreal, 
Canada. 
Assistfiiit  to  Cluiiriiian: 

Mrs.    Giulietta    Metcalfe,    Air    Transport    Economist, 
Office  of  Assistant   Secretary  of  Commerce,  Depart- 
ment of  Commerce. 
Admiiiistnitire  Assistant: 

Miss  Dorothy  King,  Division  of  International  Confer- 
ences, Department  of  State. 

Stenographers: 

Alice  Blucher,  Aviation  Division,  Department  of  State. 
Mrs.  Jewell  Carraway,  Civil  Aeronautics  Board. 
Mary  E.  Hoult,  Office  of  Representative  to  PICAO. 
Yolanda   Kiraly,   Civil  Aeronautics  Administration. 
Olga  Shopa,  Office  of  Representative  to  PICAO. 
Mrs.  Alice  S.tahl,  Coast  and  Geodetic  Survey. 

The  Fifth  Meeting  of  the  International  Cotton 
Advisory  Committee. 

T\venty-seven  of  the  United  Nations  govern- 
ments having  substantial  interests  in  cotton,  as 
exporters  or  importers,  were  represented  at  the 
fifth  meeting  of  the  International  Cotton  Advisory 
Committee  in  Washington,  D.  C,  from  May  7  to  14. 

A  more  formal  and  permanent  organization  for 
the  International  Cotton  Advisory  Committee, 
witli  a  secretariat  in  Washington,  was  provided  for 
in  the  final  act  of  that  meeting. 

The  Committee's  final  resolution  also  found 
"that  although  the  world  cotton  situation  is  cur- 
rently undergoing  improvement,  a  substantial  sur- 
plus of  cotton  still  exists,"  that  the  situation  should 
be  kept  under  review,  and  that  "the  .study  of  pro- 
posals for  international  collaboration  in  respect  to 
the  world  cotton  surplus  should  be  pursued  and 
that  a  medium  should  be  provided  for  the  consid- 
eration of  current  international  cotton  problems."' 

An  executive  committee  consisting  of  represent- 
atives of  six  importing  and  six  exporting  countries 


888 


DEPARTMENT  OF  STATE  BULLETIN 


was  created  to  serve  until  the  next  meeting  of  the 
ICAC.  L.  A.  Wheeler,  Director  of  the  Office  of 
Foreign  Agricultural  Eelations.  U.  S.  Department 
of  Agriculture,  who  continues  as  chairman  of 
ICAC,  was  requested  to  convene  the  executive 
committee. 

The  executive  committee,  upon  acceptance  of 
the  resolution  by  at  least  12  member  governments, 
is  to  set  up  a  secretariat,  draw  up  a  budget  not 
exceeding  $50,000  for  the  fiscal  year  beginning  July 
1,  1946,  propose  a  budget  for  the  following  year 
and  reconnnend  a  basis  for  contributions  by  mem- 
ber governments  in  future  years,  and  fix  the  date 
and  place  of  the  next  meeting  of  the  ICAC.  Each 
member  government  was  requested  to  make  an 
initial  contribution  of  $2,500. 

Governments  whose  representatives  compose  the 
executive  committee  are  Argentina,  Belgiiun, 
Brazil,  Canada,  China,  Czechoslovakia.  Egypt, 
France,  India,  Peru,  the  United  Kingdom,  and 
the  United  States. 

A  subcojnmittee  headed  by  S.  K.  Kirpalani  of 
India  reviewed  and  reported  upon  the  world 
cotton  situation,  calling  attention  to  the  need  for 
"complete  and  accurate  information  on  the  world 
cotton  situation  [as]  a  prime  requisite  for  the 
solution  of  cotton  problems  through  cooperation 
on  an  international  scale.''  Such  information,  it 
was  stated,  "must  be  timel3^  It  should  be  in  terms 
of  comparable  quality  measurements  and  it  should 
be  exjjressed  in  the  same  terms  as  to  quantity  or  be 
in  such  terms  as  can  readily  be  converted  on  a  uni- 
form basis.'' 

A  subcommittee  headed  by  C.  D.  Walker  of  the 
United  States  reported  favorably  upon  ''continua- 
tion of  work  on  international  arrangements  for 
dealing  with  world  cotton  problems."  The  chair- 
man said  the  subcommittee  felt  that  "particular  at- 
tention might  be  given  in  any  continuing  study 
to  the  following: 

"Consumption  of  raw  cotton  and  measures  for 
increasing  it ;  criteria  for  determining  when  a  bur- 
densome surplus  exists;  criteria  for  estimating 
efficiency  of  production  and  methods  for  the  ad- 
justment of  production;  claims  of  producers  of 
special  staples  to  be  outside  any  scheme  of  quotas; 
basis  for  establishing  quota  shares  including  con- 
sideration of  seasonal  and  shipping  factoi's;  buffer 
stock  ojierations;  freedom  of  markets  in  presence 
of  a  quota  scheme;  development  of,  and  competi- 
tion from,  substitute  fibers." 


The  subcommittee  headed  by  R.  D.  Fennelly  of 
tJie  United  Kingdom  reported  upon  the  form  of 
organization  which  the  ICAC  accepted  and  agreed 
to  reconnnend  to  member  governments. 

Governments  represented  at  the  fifth  meeting 
were:  Argentina,  Australia,  Belgium,  Bolivia, 
Brazil,  Canada,  Chile,  China,  Colombia,  Cuba, 
Czechoslovakia,  Egypt,  France,  Greece,  India, 
Iran,  Mexico,  the  Netherlands,  Nicaragua,  Para- 
guay, Peru,  Turkey,  the  Union  of  Soviet  Socialist 
Republics,  the  United  Kingdom,  the  United  States, 
Venezuela,  and  Yugoslavia. 

Opening  and  closing  sessions  of  the  committee's 
meeting  were  held  in  the  State  Depai'tment,  other 
sessions  in  the  Department  of  Agriculture.  The 
delegates  at  the  opening  session  were  welcomed 
by  Mr.  Wheeler  on  behalf  of  the  Government  of  the 
United  States.  At  the  session's  close,  on  a  motion 
by  Cuba's  delegation,  the  committee  expressed 
thanks  for  the  facilities  made  available  and  serv- 
ices rendered  by  the  United  States  and  by  the 
committee  officials  and  chairmen  of  the  subcom- 
mittees. 

Final  Resolution  of  the  Fifth  Meeting  of  the 
International  Cotton  Advisory  Committee 

Whereas  : 

It  has  been  fovnid  that  although  the  world  cot- 
ton situation  is  currently  undergoing  improve- 
ment, a  substantial  surplus  of  cotton  still  exists, 
and, 

Whereas  : 

There  are  found  to  be  present  conditions  which 
make  it  desirable  that  the  world  cotton  situation  be 
kept  under  continuous  review,  and, 

Whereas  : 

It  is  believed  that  the  study  of  proposals  for 
international  collaboration  in  respect  to  the  world 
cotton  surplus  should  be  pursued  and  that  a  medi- 
um should  be  provided  for  the  consideration  of 
current  international  cotton  problems. 

It  is  resolved: 

1.  That  an  Executive  Committee  con.sisting  of 
representatives  of  12  member  governments  divided 
equally  between  cotton  exporting  and  importing 
countries  be  established;  and  that  8  members  of 
the  Executive  Committee  shall  constitute  a 
quorum. 


MAY  26,  1946 


889 


2.  That  the  niemhers  of  the  Executive  Com- 
mittee who  shall  serve  until  the  next  meeting  of  the 
International  Cotton  Advisory  Committee  shall 
be  lepresentatives  designated  by  the  Govern- 
ments of 


Argentina 

Belgiiun 

Brazil 

Canada 

Cliina 

Czechoslovakia 


Egypt 

France 

India 

Peru 

United  Kingdom 

United  States  of  America 


and  that  these  Governments  be  requested  to  com- 
numicate  in  writing  to  the  Chairman  of  the  In- 
ternational Cotton  Advisory  Committee  through 
appropriate  diplomatic  channels  the  names  of 
their  representatives  on  the  Executive  Committee. 

3.  That  the  Executive  Committee  be  authorized 
to  fill  vacancies  in  its  own  membership,  having  in 
mind  the  principle  that  the  governments  of  export- 
ing and  importing  countries  should  be  equally 
represented. 

4.  That  the  Chairman  of  the  International  Cot- 
ton Advisory  Committee  be  requested  to  convene 
the  Executive  Committee  in  its  first  meeting. 

5.  That  upon  the  approval  of  this  Resolution 
by  not  less  than  12  member  governments  of  the 
International  Cotton  Advisory  Committee,  the 
powers  and  duties  of  the  Executive  Committee 
shall  l)e: 

a.  To  establish  practical  cooperation  with 
the  Food  and  Agi-iculture  Organization 
of  the  United  Nations  and  with  other 
international  organizations  concerned 
with  the  world  cotton  situation; 

h.  To  provide  a  medium  for  exchange  of 
views  in  regard  to  current  developments 
in  the  international  cotton  situation ; 

e.  To  develop  further  the  work  on  an  in- 
strument of  international  collaboration 
to  deal  with  the  world  cotton  situation; 

(/.  To  create  and  maintain  at  Washington 
a  secretariat  for  the  purpose  of  supply- 
ing complete,  authentic,  and  timely 
statistics  on  world  cotton  production, 
trade,  consumption,  stocks,  and  prices; 


e.  To  employ  sucii  staff  as  it  may  deem 
necessary  for  the  purpose,  having  in 
mind  the  desirability  of  drawing  quali- 
fied personnel  as  broadly  as  possible 
from  participating  countries; 

/.  To  determine  the  number,  nature,  and 
distribution  of  reports  to  be  issued; 

ff.  To  receive  contributions  of  funds  from 
member  governments  of  the  Interna- 
tional Cotton  Advisory  Committee;  to 
draw  up  a  budget  for  the  fiscal  year 
beginning  July  1,  1946,  not  to  exceed 
fifty  thousand  ($50,000.00)  dollars; 
and  to  arrange  for  and  supervise  the 
expenditure  of  such  funds ; 

/*.  To  propose  a  budget  for  the  next  fol- 
lowing fiscal  year  and  to  recommend  a 
basis  for  contributions  by  member  gov- 
ernments in  future  years; 

/.  To  determine  and  fix  the  date  and  place 
of  the  next  meeting  of  the  International 
Cotton  Advisory  Committee;  prepare 
the  draft  agenda ;  and  make  recommen- 
dations  as  to  the  composition  of  future 
Executive  Committees. 

6.  That  each  member  government  of  the  Inter- 
national Cotton  Advisory  Committee  be  requested 
to  make  an  initial  contribution  to  the  Executive 
Committee  of  two  thousand  five  hundred  ($2,- 
500.00)  dollars  in  United  States  funds;  that  the 
ultimate  basis  for  the  assessment  of  contributions 
be  decided  upon  by  the  International  Cotton  Ad- 
visory Committee  at  its  next  meeting  following  the 
establishment  of  the  secretariat;  and  that  adjust- 
ments be  made  to  take  account  of  the  initial  pay- 
ment of  $2,500.00  by  any  member  government. 

7.  That  each  member  government  of  the  Inter- 
national Cotton  Advisory  Committee  be  requested 
to  cooperate  fully  with  the  Executive  Committee 
and  the  secretariat  in  developing  and  supplying 
such  national  statistics  as  may  be  essential  to  the 
work  of  developing  and  supplying  complete,  au- 
thentic, and  timely  cotton  statistics  on  a  world 
basis. 

8.  That  the  official  and  working  languages  of 
the  International  Cotton  Advisory  Committee  be 
the  same  as  those  adopted  by  the  United  Nations. 


6931 3(i — 4li- 


890 


DEPARTMENT  OF  STATE  BULLETIN 


Charter  of  the  International  Military  Tribunal  for  the  Far  East 


CHANGES  MADE  IN  TEXT 


General  Orders  No.  1,  General  Headquarters, 
Supreme  Commander  for  the  Allied  Powers,  19 
January  1946,  subject  as  below,  is  superseded. 
The  Charter  of  the  International  Military  Tri- 
bunal for  the  Far  East  established  by  Proclama- 
tion of  the  Suj^reme  Commander  for  the  Allied 
Powers,  19  January  1946,  is  amended,  and  as 
amended,  reads  as  follows : 

[Tlie  following  changes  should  be  made  in  the  text 
of  the  Charter  as  printed  in  the  Bulletin  of  March 
10,  1946,  pp.  361-t.] 

Section  I 
CONSTITUTION  OF  TRIBUNAL 

Article  2.  Members.  The  Tribunal  shall  con- 
sist of  not  less  than  six  members  nor  more  than 
eleven  members,  appointed  by  the  Supreme  Com- 
mander for  the  Allied  Powers  from  the  names 
sul)mitted  by  the  Signatories  to  the  Instrument  of 
Surrender,  India,  and  the  Commonwealth  of  the 
Philippines. 

Article  k-  Convening  and  Quorum,  Voting 
and  Absence. 

a.  Convening  and  Quorum.  When  as  many  as 
six  members  of  the  Tribunal  are  present,  they  may 
convene  the  Tribunal  in  formal  session.  The 
presence  of  a  majority  of  all  members  shall  be 
necessary  to  constitute  a  quorum. 

c.  Absence.  If  a  member  at  any  time  is  absent 
and  afterwards  is  able  to  be  present,  he  shall  take 
part  in  all  subsequent  proceedings;  unless  he  de- 
clares in  open  court  that  he  is  disqualified  by  rea- 
son of  insufficient  familiarity  with  the  proceedings 
which  took  place  in  his  absence. 

From  General  Headquarters,  Supreme  Commander  for 
the  Allied  Powers,  APO  .^00,  26  -April  1946,  General 
Orders  No.  20. 

Section  III 
FAIR  TRIAL  FOR  ACCUSED 

Article  9.  Procediire  for  Fair  Trial.  In  order  to 
insure  fair  tiial  for  the  accused  the  following  pro- 
cedure shall  be  followed: 

a.  Indictment.  The  indictment  shall  consist  of 
a  plain,  concise,  and  adequate  statement  of  each 


offense  charged.  Each  accused  shall  be  furnished, 
in  adequate  time  for  defense,  a  copy  of  the  indict- 
ment, including  any  amendment,  and  of  this 
Charter,  in  a  language  understood  by  the  accused. 

b.  Language.  The  trial  and  related  proceedings 
shall  be  conducted  in  English  and  in  the  language 
of  the  accused.  Translations  of  documents  and 
other  papers  shall  be  provided  as  needed  and 
requested. 

c.  Counsel  for  Accused.  Each  accused  shall 
have  the  right  to  be  rej^resented  by  counsel  of  his 
own  selection,  subject  to  the  disapproval  of  such 
counsel  at  any  time  by  the  Tribunal.  The  accused 
shall  file  with  the  General  Secretary  of  the  Tri- 
l)unal  the  name  of  his  counsel.  If  an  accused  is 
not  represented  by  counsel  and  in  open  court  re- 
quests the  appointment  of  counsel,  the  Tribunal 
shall  designate  counsel  for  him.  In  the  absence  of 
such  request  the  Tribunal  may  appoint  counsel  for 
an  accused  if  in  its  judgment  such  aiDpointment  is 
necessary  to  provide  for  a  fair  trial. 

d.  Evidence  for  Defense.  An  accused  shall  have 
the  right,  through  himself  or  through  his  counsel 
(but  not  through  both),  to  conduct  his  defense,  in- 
cluding the  right  to  examine  any  witness,  subject 
to  such  reasonable  restrictions  as  the  Tribunal  may 
determine. 

e.  Production  of  Evidence  for  the  Defense.  An 
accused  may  apjDly  in  writing  to  the  Tribunal  for 
the  production  of  witnesses  or  of  doctiments.  The 
application  shall  state  where  the  witness  or  docu- 
ment is  thought  to  be  located.  It  shall  also  state 
the  facts  proposed  to  be  proved  by  the  witness  of 
the  document  and  the  relevancy  of  such  facts  to 
the  defense.  If  the  Tribunal  grants  the  applica- 
tion the  Tribunal  shall  be  given  such  aid  in  ob- 
taining i^roduction  of  the  evidence  as  the 
circumstances  require. 

Article   10.  Applications   and  Motions   before 
7' rial.     All  motions,  applications,  or  other  requests 
addressed  to  the  Tribunal  j^rior  to  the  commence- 
ment of  trial  shall  be  made  in  writing  and  filed 
(Coutimicil  on  i>tiiic  i>0~i ) 


The  Record  of  the  Week 


Recommendations  for  the  Council  of  Foreign  Ministers 

STATEIMENT  BY  THE  SECRETARY  OF  STATE ' 


[Released  to  the  press  May  15] 

The  Council  should  frankly  face  the  facts  -which 
it  confronts.  There  are  several  minor  treaty  prob- 
lems whicli  require  further  study  by  our  deputies 
or  by  special  commissions  which  have  them  under 
inquiry.  There  is  every  prospect  of  agreement 
when  these  studies  are  concluded.  But  decisions 
nuist  invait  this  event.  There  are  also  a  few  major 
treaty  iiroblems  upon  which  the  Council  is  pres- 
ently divided.  Decisions  must  await  further  clari- 
fication and  mutual  studj-  in  a  spirit  of  good  will. 
In  some  instances,  these  decisions  may  be  favorably 
affected  by  the  I'eports  which  we  await  from  our 
deputies.  Our  whole  pui'pose  is  to  seek  and  to  find 
agreement  as  quickly  as  possible. 

Under  these  circumstances,  it  is  likelj-  to  facili- 
tate our  work  if  the  present  session  of  the  Council 
recesses  until  June  15,  permitting  each  of  us  to 
give  undivided  attention  to  reexamination  of  our 
positions  in  the  liope  of  finding  means  of  recon- 
ciling them.  Such  use  of  our  time  is  calculated 
to  be  more  fruitful  than  to  extend  our  present 
session. 

The  American  Delegation  has  made  it  clear  that 
it  believes  we  owe  our  Allied  nations  an  obligation 
to  fix  at  this  time  the  date  of  a  peace  conference. 
At  Moscow,  we  agreed  it  should  be  held  not  later 
than  May  1.  We  did  not  comply  with  that  prom- 
ise. Tlie  United  States  now  urges  the  peace  con- 
ference be  called  either  July  1  or  July  15,  and  that 
we  should  then  submit  our  agreements  and  our 
disagreements,  if  any,  to  the  advice  of  our  war 
partners.  The  Soviet  rej^resentative  has  declined 
so  far  to  agree  to  this  course.  Invitations  to  the 
Conference  cannot  be  sent  except  bj'  unanimous 
agreement.  Therefore,  the  American  delegation 
believes  the  time  has  come  to  recess  the  Council 


until  June  15,  and,  if  we  cannot  agree  on  the  date 
of  the  peace  conference  now,  to  conmiit  to  that 
session  the  responsibility  for  calling  a  peace 
conference. 

Because  we  cannot  hope  for  the  ratification  of 
a  peace  treaty  with  Italy  for  some  months,  we 
should  immediately  sign  the  revised  armistice  with 
Italy  which  was  agi-eed  in  principle  ten  day  ago, 
so  as  to  release  her  recuperative  efforts  as  far  as 
possible. 

We  would  urgently  recommend  also  that  Austria 
be  put  upon  the  June  15  agenda  and  our  deputies 
instructed  to  prepare  a  draft  treaty  for  considera- 
tion of  the  Council  on  June  15,  so  that  it  may  be 
submitted  to  the  peace  conference  along  with  the 
other  treaties. 

If  we  can  agree  to  the  above  and  if  we  also  con- 
template the  wide  area  of  agreement  we  have 
already  reached,  we  may  look  to  the  future  with 
confidence  that  our  indispensable  unity  will  be 
strengthened  and  preserved. 

Therefore,  the  United  States  Delegation 
recommends : 

Fi/'tit.  That,  after  considering  the  German  ques- 
tion, this  session  recess  until  June  15 ; 

Secoml.  That  we  now  call  a  peace  conference 
for  July  1  or  July  15.  If  this  is  not  agreed  to,  that 
we  leave  to  tlie  next  session  of  the  Council  the  deci- 
sion as  to  the  date  of  the  peace  conference ; 

Third.  That  we  immediatel}'  sign  the  revised 
armistice  with  Italy ; 

Fourth.  That  there  be  placed  on  the  agenda  for 
the  June  15  session  the  drafting  of  a  treaty  with 
Austria,  the  deputies  being  instructed  to  prepare 
in  the  meantime  draft  proposals  for  the  considera- 
tion of  tiie  Council. 


'  Made  on  May  14,  1946  at  Paris,  France. 


891 


892 


DEPARTMENT  OF  STATE  BULLETIN 


Principles  of  Trade  for 
Peace  and  Prosperity 

Statement  by  the 
SECRETARY  OF  STATE' 

[Kf'leased  to  the  press  May  18] 

The  interest  of  the  Government  of  the  United 
States  in  foreign  trade  is  twofold. 

First,  tlie  Government  is  interested  in  whatever 
promotes  tlie  peace  of  the  world.  Second,  it  is 
interested  in  whatever  promotes  tlie  prosperity  of 
the  United  States. 

It  is  quite  obvious  that  trade  between  nations 
may  promote  either  peace  and  prosperity  or  their 
oi^posites.  Tlie  kind  of  trade  conducted  by  Nazi 
(xermany  before  the  war  promoted  nothing  but  the 
power  of  the  Nazis  to  make  war. 

Trade  will  certainly  go  on.  Whether  it  pro- 
motes peace  and  prosperity  or  the  reverse  will  de- 
pend on  the  way  in  wliich  it  is  conducted. 

The  responsibilitj'  of  the  United  States  Gov- 
ernment is  not  to  conduct  trading  operations — 
which  under  our  system  is  the  business  of  private 
enterprise — but  to  establish  those  rules  and  prin- 
ciples under  which  trade  will  most  clearly  promote 
peace  and  jirosperity. 

The  rules  which  govern  traders  are  necessarily 
made  by  governments.  Since  all  foreign  trade  in- 
volves at  least  two  countries,  the  laws  of  both  are 
necessarily  involved.  It  is  important,  therefore, 
that  tlie  action  of  governments  affecting  foreign 
trade  should  be  consistent.  That  means  that  they 
should  be  based  upon  agreement. 

After  the  other  war  this  was  not  understood. 
The  United  States  acted  independently  in  the  reg- 
idation  of  its  foreign  trade  and  so  did  other  coun- 
tries. The  results  were  neither  prosperity  nor 
peace. 

Th.e  world  now  has  a  second  chance  to  take  a 
wiser  road.  It  is  essential  that  we  reach  agree- 
ment on  sound  principles  while  conditions  are  still 
fluid. 

It  is  for  this  reason  that  the  United  States  pub- 
lished last  December  the  American  Proposals  for 
Expansion  of  World  Trade  and  Employments  and 
obtained  the  concurrence  of  the  British  Govern- 
ment in  their  main  heads. 

'  Made  on  May  19  in  connection  with  the  observance  of 
Xntional  Foreign  Trade  Week,  May  l{>-25,  1946. 
"  Deiiartnieiit  of  State  ijublu'atioii  2411. 


It  is  for  this  reason  also  that  the  Economic  and 
Social  Council  of  the  United  Nations  has  decided 
to  call  an  International  Conference  on  Trade  and 
Employment,  and  has  appointed  a  preparatory 
committee  to  lay  the  groundwork  for  it.  When 
the  ju'eparatoiy  committee  meets  it  will  have  be- 
fore it  the  American  Projiosals  and  any  other  sug- 
gestions or  recommendations  made  by  any  other 
government. 

In  the  meantime  the  American  Proposals  should 
be  studied  by  every  businessman.  They  state  the 
principles  to  which  it  seems  to  us  nations  should 
agree  if  foreign  trade  is  to  contribute  to  prosperity 
and  peace.  We  need  to  know,  before  international 
negotiations  start,  whether  the  principles  sug- 
gested are  supported  by  the  businessmen  of  the 
United  States. 

The  world  is  at  the  crossroads.  It  might  move 
either  forward  to  an  era  of  better  understanding, 
increased  oj^portunity,  and  peace,  or  backwards 
to  a  new  dark  age. 

Tlie  voice  of  the  United  States  will  not  be  un- 
important in  the  decisions  that  are  taken.  It  is 
essential  that  we  speak  with  wisdom,  firmness, 
moderation,  and  internal  imity. 


Admiral  Leahy  Consults  with 
British  Chiefs  of  Staff 

Fleet  Admiral  William  D.  Leahy,  Chief  of  Staff, 
left  for  England  on  May  !.">  to  consult  with  mem- 
bers of  the  Bi'itish  Chiefs  of  Staff  in  regard  to 
expediting  details  of  complete  withdrawal  of 
American  troops  from  areas  in  the  Pacific  which 
are  now  under  British  Command  and  repatriation 
of  Japanese  in  those  areas. 


President-Elect  of  Colombia 
To  Visit  United  States 

[Releasetl  to  the  press  May  161 

The  President-elect  of  Colombia,  Mariano  Os- 
pina  Perez,  has  been  invited  to  visit  Washington 
to  be  the  guest  of  the  Government  at  Blair  House 
during  his  forthcoming  trip  to  the  United  States. 
The  President-elect  is  expected  in  Washington  on 
June  5.  During  his  visit  he  will  be  received  by 
the  President  and  other  high  officials  of  the 
Government. 


MAY  26,  1946 


893 


American  Strength:  Our  Share  in  Workl  Peace 


BY  ACTING  SECRETARY  ACHESON 


THE  Organizatk)X  for  Rehabilitation  through 
Training  approaches  its  task  of  helping  human 
beings  in  the  world  with  deep  understanding  and 
the  conviction  that  survival  is  not  enough. 

Of  course  that  is  the  right  way  to  approach 
the  task.  Mere  survival  does  not  comprehend  the 
capacities  or  the  aspirations  of  mankind.  Mere 
survival  is  existence  at  the  animal  level,  and  that 
is  not  man's  purpose  on  earth. 

The  standards  by  wiiich  we  act  must  certainly 
be  sufficient  to  measure  the  broader  gage  of  our 
talents  and  our  hopes. 

My  father  once  told  me  of  a  visit  he  had  made 
as  a  minister  of  the  Gospel  to  an  old  man  in  the 
connnunity  who  was  very  ill.  My  father  asked 
if  there  was  anything  the  dying  man  wished  to 
tell  him,  and  he  received  the  surprising  reply  that 
there  was  nothing  to  tell.  The  answer  was  so  un- 
usual that  my  father  said  he  had  never  met  any- 
one before  who  had  led  a  blameless  life  and  that 
he  was  very  glad  to  have  met  one  at  last.  The 
old  man  insisted  that  it  was  true  that  his  life  had 
been  blameless  and  added,  "Why,  I've  never  spent 
a  night  in  jail." 

The  proper  standard  to  apply  in  judging  the 
results  of  a  lifetime  is  variable  as  the  story  indi- 
cates. But  we  can  choose  one  of  many  standards 
in  whatever  field  we  operate.  Certainly  this  is  true 
in  the  conduct  of  foreign  affairs. 

I  know  that  survival  is  not  enougli ;  we  all  want 
to  use  a  much  higher  standard  in  determining  our 
foreign  policy.  However,  we  are  sometimes  com- 
pelled by  events  to  measure  our  achievements  b^' 
the  yardstick  of  an  unpleasant  reality.  I  am 
afraid  that  the  events  of  the  last  decade  and  the 
prospects  of  the  years  just  ahead  present  us  witli 
a  situation  so  disturbing  that  we  must  use  our  ut- 
most strength  to  be  sure  that  tens  of  millions  of 
people  will  survive  at  all. 

Dui'ing  the  years  before  the  war  people  in  some 
parts  of  the  world  planned  and  schemed  for  con- 
quest and  people  elsewhere  lived  in  fear.  These 
threats  and  fears  conununicated  themselves  to  all 
of  our  activities.  Nations  built  concrete  defenses 
and  great  armies  and  navies,  and  they  constructed 


trade  barriers  and  tried  to  hide  behind  them. 
Governments  sought  special  advantages  for  their 
businessmen  and  their  products  and  made  seo'et 
and  discriminatory  deals  to  gain  advantage  at  the 
expense  of  their  neighbors.  Country  after  coun- 
tiy  turned  to  all  of  the  devices  of  economic  war- 
fare in  an  effort  to  pre^Dare  for  the  coming  armed 
conflict.  Germany  and  Japan  converted  their 
economies  to  war  production,  and  other  nations 
out  of  fear  followed  suit.  The  result  of  all  of 
these  things  was  the  lowering  of  living  standards 
and  the  deterioration  of  the  health  standards  of 
millions  of  people. 

And  then  the  war  came,  and  for  five  years  the 
enemy  systematically  plundered  and  starved  enor- 
mous ai'eas  of  the  world.  People  everywhere  lived 
on  less  and  worked  harder  than  ever  before.  Mil- 
lions died,  and  millions  more  suffeied  and  starved. 
When  peace  finally  came,  exhaustion,  malnutri- 
tion, illness,  and  confusion  gripped  the  people  of 
Europe  and  Asia  and  left  them  weakened  and  ill- 
equipped  for  the  task  of  rebuilding  their  countries 
and  again  carrying  on  their  usual  pursuits.  Then 
came  the  crushing  blow  of  drought  in  Europe, 
Africa,  and  Asia. 

The  structure  of  the  New  Order  and  Co-Pros- 
])ei'ity  Sphere  crumbled  away,  but  no  new  struc- 
ture arose  as  if  by  magic  to  take  its  place.  Only 
now  are  the  beginnings  of  a  new  life  emerging 
from  the  chaos;  only  now  are  governments  and 
economies  beginning  again  to  function  and  to 
produce. 

We  had  hoped,  and  I  think  expected,  that  with 
the  end  of  the  war  things  would  change  ra]iidly. 
that  shipments  of  food  would  move  to  the  hun- 
gry, that  raw  materials  would  be  found  to  I'egen- 
erate  industrial  production  and  that  men,  freed 
from  the  necessities  of  war,  would  turn  their  atten- 
tion to  peace  with  vigor  and  alacj'ity.  What  we 
liad  not  counted  on  while  the  war  lasted  was  that 
droughts  would  destroy  the  promise  of  new  liar- 

An  address  delivered  before  the  Women's  American  Or- 
ganization for  Reliahilitation  througli  Training  on  May  13 
in  New  York,  N.  Y.,  and  released  to  the  press  on  tlie  same 
date. 


894 

vests  from  the  Mediterranean  to  the  rice-produc- 
ing areas  of  Asia.  What  we  had  not  counted  on 
was  that  farmers  and  workmen  debilitated  by 
years  of  stringency  and  coercion  could  not  resume 
immediately  their  full  activities,  and  that  a  little 
time  would  be  x-equired  before  they  could  reap  the 
rich  crops  and  produce  the  goods  for  which  the 
woild  waited. 

Only  a  few  days  ago  the  Director  General  of 
the  Food  and  Agriculture  Organization  of  the 
United  Nations  published  a  preliminary  appraisal 
of  the  world  food  situation.  In  that  appraisal 
it  is  stated  that  the  critical  world  food  shortage 
which  we  now  face  will  continue  at  least  until  the 
crops  are  harvested  in  1947. 

Not  until  the  fall  of  1947  is  there  any  hope  that 
world  food  supplies  will  come  into  balance  with 
the  urgent  needs.  The  famine  emergency  will  not 
pass  this  summer;  it  will  not  even  pass  next  sum- 
mer. World  food  stocl<s  have  been  seriously  de- 
pleted in  order  to  meet  the  current  crisis.  Even 
though  some  croji  improvement  is  in  prospect  if 
we  can  assume  average  weather  conditions,  any 
wide-spread  droughts  in  the  months  ahead  may 
be  more  disastrous  than  those  experienced  during 
the  last  year.  But  even  if  this  year's  crops  and 
next  year's  crops  come  up  to  expectations,  and  a 
point  is  reached  at  which  the  supply  of  cereals  is 
sufficient  to  avert  starvation  on  a  large  scale,  the 
report  states,  our  difficulties  will  not  end.  We 
shall  still  be  faced  with  a  serious  shortage  of  ani- 
mal products  because  of  decrease  in  cattle,  and 
it  will  be  several  years  more  before  we  shall  be 
able  to  attain  a  level  of  world  food  supply  even 
equal  to  the  tmsathfaetovy  levels  of  the  years  im- 
mediately preceding  the  war.  At  that  time  we 
may  be  able  to  restore  health  and  working  effi- 
ciency, but  it  will  be  far  from  the  abundance  for 
which  a  hungry  world  yearns. 

Much  of  the  world  went  on  lean  rations  late  in 
the  30's  while  the  Nazis  and  the  Fascists  drove 
towerd  wax*.  For  more  than  five  years  the  fighting 
ran  like  a  prairie  fire  fronx  area  to  area  leaving 
waste  and  starvation  iix  its  path.  And  xxow  we 
face  five  years  of  famine.  These  are  the  dry  and 
barrexx  statistics  of  catastrophe.  The  effects  of 
proloixged  hxmger  in  coxmtries  which  sxxffer  fronx 
conditions  left  unstable  by  the  course  of  war,  aixd 
the  inxpact  of  a  continxiing  food  crisis  on  a  world 
ecoixomic  system  still  shuddering  froixx  assaults 
upoix  it,  ax-e  frightening  to  contemplate. 

No,  sux'vival  is  not  eixough;  but  today  the  ques- 
tioix  tliat  is  overwhelming  in  its  inxplications  is 


un^r/mi  mt,n  1    ur   si/iic^  dul,l,cj.iii 


whether  mankind  can  survive,  whether  civilization  ^ 
can  survive.  Paralyzing  years  of  axx  uxxsteady 
peace,  yeax's  of  war  and  years  of  famine :  these  are  \ 
the  conditions  with  which  we  nxust  deal,  conditions 
under  which  the  Four  Horsemen  of  the  Apocalypse 
x-ide  across  the  areas  of  destruction  and  put  the 
very  existeixce  of  life  in  danger. 

The  compulsions  of  ixxere  survival  shape  and 
guide  ixxuch  of  our  foreigix  policy  today.  These 
compulsions  are  so  sti'ong  that  nearly  eVex-ything 
we  do  is  directed  to  the  preservation  of  life  and 
to  the  preservatioxi  of  society.  In  Italy  aixd 
Gx'eece  and  eastern  Europe  people  approach  the 
verge  of  starvation.  In  India  and  China  faixxine 
creeps  xxpon  the  heels  of  our  efforts  at  relief.  If 
hundreds  of  millions  of  men  must  fight  and  scratch 
for  their  daily  bx-ead,  they  will  cax-e  little  for  the 
aspirations  of  the  United  Nations,  they  will  con- 
tribute little  to  the  plans  for  a  fx-eer  and  more 
secure  world. 

AVe  could  ixot  do  otherwise  thaxx  devote  ourselves 
to  the  task  of  seeing  that  ixxen  live  aixd  that  our 
civilizatioix  survives.     That  must  coixie  first. 

Even  before  the  war  ended,  the  United  States 
took  the  lead  in  the  organization  of  UNRRA.  We 
wanted  to  be  x-eady  to  nxeet  the  requix'ements  of 
relief  aixd  rehabilitation  iix  the  areas  devastated  by 
the  wax-.  For  moi-e  than  a  year  UNRRA  supplies 
have  gone  froixx  the  contributing  countries  to  those 
who  are  suffering,  but  these  needs  have  not  been 
satisfied.  They  could  not  be:  they  are  much  too 
large.  The  President  has  established  the  Famine 
Emergency  Committee  and  called  upoxx  the  Ameri- 
can i:)eople  to  conserve  every  possible  ouxxce  of  food 
in  an  effort  to  meet  the  xxeeds  and  narrow  the  dif- 
ference between  survival  and  extinction.  We  have 
joined  the  Intex-national  Bank  for  Reconstruction 
and  Development  and  ax-e  makixig  a  subscription 
of  billions  of  dollars  to  it  in  ox-der  to  aid  in  the  re- 
coixstruction  and  development  of  the  United  Na- 
tions. We  have  negotiated  an  agreement  for  a 
credit  to  Britain  to  assist  Britain  iix  the  reconver- 
sion of  her  industries  and  the  i-ebuilding  of  her 
economy  so  that  international  trade  can  again  be- 
gin to  spread  and  expand  for  the  prosperity  of 
all  of  the  world.  We  are  a  member  of  the  Food 
and  Agriculture  Oi-ganization  of  the  United  Na- 
tions, whose  task  is  to  study  and  report  on  the  food 
and  agricultui-al  problems  which  clanxor  for  atten- 
tion. The  repox-t  of  the  Dii-ector  General  of  this 
Organization,  which  I  have  already  referred  to, 
will  give  you  some  measure  of  the  problems  we 
shall  have  to  solve. 

(Continued  on  prif/c  Ol.'i) 


MAY  26,  1946 


895 


U.  K.-U.  S.  Guiding  Principles  for  Solving  World  Food  Problems 


[Released  to  the  press  May  17] 

British  and  American  officials  announced 
jointly  on  May  1"  tliat  they  had  reached  agree- 
ment on  guidin<r  principles  which  their  two  Gov- 
ernments should  adojDt  in  their  common  effort  to 
solve  the  many  immediate  and  longer  range  prob- 
lems arising  in  connection  with  the  world  food 
crisis. 

The  announcement  was  made  on  the  departure 
of  Herbert  ^Morrison,  M.P.,  Lord  President  of  the 
Council,  who  had  flown  from  London  early  this 
week  to  discuss  the  wheat  crisis  with  President 
Truman  and  other  high  oiBcials  of  the  United 
States  Government  including  Clinton  Anderson, 
Secretary  of  Agi-iculture,  and  William  Clayton, 
Assistant  Secretary  of  State  for  Economic  Affairs. 
L.  B.  Pearson.  Canadian  Ambassador  in  Washing- 
ton, and  other  Canadian  officials  were  also  present 
at  the  conference.  Herbert  Morrison  is  now  pro- 
ceeding to  Ottawa  where  he  will  discuss  with  the 
Canadian  Government  the  matters  discussed  in 
Washington  and  other  food  problems. 

The  object  of  Mr.  Morrison's  visit  to  Washing- 
ton was  to  review  the  efforts  which  the  two  Gov- 
ernments of  the  United  Kingdom  and  the  United 
States  have  been  making  to  combat  world  famine, 
to  agree  on  general  lines  of  future  policy,  and 
to  solve  certain  -immediate  problems  of  common 
concern. 

The  two  Governments  are  agreed  that  even  more 
energetic  measures  are  needed  throughout  the 
world  to  secure  effective  and  complete  removal  of 
all  threat  of  world  famine  and  that  their  plans  in 
this  respect  must  be  based  on  the  assumption  that 
this  threat  will  continue  at  least  through  the  sum- 
mer harvest  of  1947.  The  two  Governments  are 
further  agreed  to  consult  together  in  the  future, 
as  in  the  past,  on  the  initiation  or  removal  of  any 
measures  of  major  importance  undertaken  by 
them  as  a  contribution  to  the  world  effort  to 
prevent  famine. 

The  two  Governments  have  reviewed  the  re- 
quirements and  availabilities  of  bread  grains  for 
the  jieriod  May-September  1946.  The  maximum 
supplies  presently  in  sight  for  this  period  amount 


to  only  10  million  tons.  The  total  stated  require- 
ments for  this  period  were  13.4  million  tons. 
There  is  an  indicated  deficiency,  therefore,  of  3.4 
million  tons,  or  about  25  percent. 

This  deficiency  makes  it  ijievitable  that  severe 
cuts  should  be  made  in  requirements  previously 
stated.  Eecommendations  to  this  end  will  be  sub- 
mitted to  the  Combined  Food  Board  by  the  two 
Governments.  Even  after  severe  cuts  there  would 
be  a  gap  of  something  under  1  million  tons  be- 
tween such  requirements  and  available  supplies. 
It  will  have  to  be  recognized  that  the  cuts  proposed 
in  the  recommendations  must  inevitably  cause 
hardship,  and  a  risk  of  famine  remains.  This  risk 
can  be  reduced  in  so  far  as  other  sources  of  supply 
can  be  found  in  addition  to  those  at  present  in 
sight  and  the  two  Governments  are  resolved  to 
do  everything  in  their  power  to  secure  these 
additional  supplies. 

The  United  Kingdom  representatives  have  re- 
ported fully  on  the  measures  of  consumer  rationing 
and  other  economies  currently  in  effect  in  the 
United  Kingdom,  which  may  be  briefly  summar- 
ized as  follows : 

Consumer  rationing  has  been  continued,  and  in 
the  case  of  fats,  bacon,  dried  eggs,  meat  and  pre- 
serves, rations  have  been  reduced  below  the  austere 
low  wartime  levels.  Kations  of  the  British  forces 
in  the  United  Kingdom  have  twice  been  cut  since 
V-E  Day. 

Since  the  beginning  of  194G,  the  following  mea- 
sures have  been  introduced : 

(a)  Increase  in  the  extraction  rate  of  flour: 

(i)   from  80  percent  to  821/2  percent  on 
February  24. 

(ii)   from  82i/^  percent  to  85  percent  on 
March  10. 

(iii)   from  85  percent  to  90  percent  during 
the  most  critical  period  May-September. 

(b)  Reduction  in  supplies  of  grain  for  spirit 
distilling  from  300,000  tons  to  130,000  tons. 

(c)  Reduction  in  the  size  of  the  standard  loaf 
from  2  lb.  to  1%  lb. 


896 


DEPARTMENT  OF  STATE  BULLETIN 


(d)  Reduction  of  2.")  ])eiTent  in  production  of 
biscuits  and  similar  products. 

{e)  Reduction  of  production  of  cake  and  flour 
coiifectionery  by  reduction  of  25  percent  in  allo- 
cations of  sugar  and  fats  for  this  purpose. 

(/)  Reduction  of  beer  production  to  00  percent 
of  pre-war  production  in  terms  of  standard  barrels. 

(</)  Inauguration  of  a  caui])aigu  to  secure  a  re- 
duction in  wastage  of  food. 

In  order  to  increase  the  outiuit  of  bread  grains, 
the  United  Kingdom  has  continued  its  wartime 
policy  of  laud  utilization,  croj)  production  and 
disposal  with  the  effect  of  encouraging  cereal  pro- 
duction at  the  expense  of  livestock.  The  feeding 
of  millable  wheat  to  livestock  continues  to  Ije  pro- 
hibited. 

The  following  measui'es  liave  been  introduced 
since  the  beginning  of  194G : 

(i)  Payment  of  a.  grant  of  t'2  ($S)  per  acre  in 
respect  of  the  ploughing  up  for  tlie  1946  harvest 
of  grassland  which  has  been  down  for  three  years 
or  longer. 

(ii)  Increase  of  one  shilling  ninepence  (0.35if) 
per  cwt.  in  price  of  wheat  from  the  1947  harvest. 

(///)  Reintroduction  of  directions  to  grow  wheat 
for  1947  harvest  in  order  to  secure  a  minimum  tar- 
get of  '2.5  million  acres.  This  means  return  to  the 
position  prevailing  up  to  and  including  the  1945 
harvest.  Directions  to  grow  potatoes  and  sugar 
beets  have  been  maintained  thi-oughout. 

{iv)  Reduction  in  rations  for  pigs  and  poultry 
as  from  May  1  from  the  basis  of  one  quarter  of 
pre-war  numbers  to  one  sixth  of  pre-war  numbers 
and  to  one  twelfth  as  from  July  1.  ( It  had  been 
originally  intended  to  increase  the  rations  as  from 
May  1  to  the  basis  of  one  third  of  pre-war  num- 
bers) . 

As  a  part  of  the  measures  necessary  to  reduce 
the  deficit  in  world  supplies,  the  United  Kingdom 
has  agreed  to  reduce  its  stated  requirements,  al- 
ready screened  to  the  minimum  necessary  to  main- 
tain its  lowered  consumption  level,  by  another  200,- 
000  tons.  This  may  involve :  either  a  reduction  in 
l)ipe-line  stocks  to  a  point  at  Miiich  distribution 
may  be  interrupted,  with  consequent  disruption  of 
the  industrial  economy,  or  still  further  restrictions 
on  the  austere  diet  maintained  in  the  United  King- 
dom for  the  six  years  since  the  beginning  of  the 
Mar. 

The  United  States  representatives  reported  on 
the  measures  taken  in  the  United  States  to  achieve 


greater  production  and  to  switch  agricultiu-e  and 
available  supplies  away  from  the  wartime  empha- 
sis on  livestock  products  and  over  to  a  maximum 
i:)roduction  of  bread  grains  directed  to  human  con- 
sumption. Among  other  measures  the  United 
States  has  takeu  the  following  steps  to  attain  maxi- 
nuun  exports  of  grain : 

1.  Substantial  increases  in  the  ceiling  prices  of 
grain  for  export,  to  replace  earlier  export  pre- 
miums of  30  cents  per  bushel  on  Avheat  and  corn. 

2.  Increase  of  the  extraction  rate  of  flour  to 
80  percent. 

.').  Limitation  on  millers'  inventories,  including 
grain  purchased  and  in  transit,  to  a  21-day  supply. 
Actual  inventories  are  in  many  cases  even  less, 
averaging  two  weeks'  supply,  with  some  of  the  big 
mills  already  shut  down. 

4.  Prohibition  of  the  use  of  wheat  and  wheat 
ju'oducts  for  alcoholic  beverages  and  severe  cur- 
tailment of  such  use  of  other  grains,  including  limi- 
tation to  24  hours'  run  per  month  in  the  manufac- 
ture of  alcohol  and  a  cut  in  beer  production  to 
70  percent  of  the  1945  level. 

5.  Restriction  on  the  purchase  of  grain  and  grain 
products  by  livestock  feeders  to  amounts  designed 
to  limit  the  Meiglit  of  hogs  and  cattle  and  the 
numbers  of  poultry. 

6.  Limitation  of  the  use  of  grain  by  mixed-feed 
manufacturers  to  80  percent  of  the  1945  use. 

7.  A  similar  80  percent  limitation  on  the  use 
of  coru  or  sorghum  gi-ain  in  syrups,  etc. 

The  United  States  production  problem  differs 
from  the  British  in  that  it  requires  an  extensive 
change  from  agricultural  policy-  established  to 
meet  wartime  demand,  instead  of  a  further  de- 
velopment along  wartime  lines  as  in  the  case  of 
Great  Britain.  The  measures  recently  adopted  for 
diverting  grains  into  human  consumption  and  for 
cutting  down  consumption  by  livestock  are  oidy 
now  beginning  to  have  their  full  effect. 

The  two  governments  reaffirm  their  belief  that 
connnon  measures  should  be  takeu  in  all  zones 
of  Germany  with  respect  to  the  collection  of  in- 
digenous foodstuffs,  the  setting  of  common  ration 
standards  and  the  adoption  of  a  common  basis  for 
calculating  import  requirements.  Since  the  tim- 
ing of  these  measures  must  be  left  to  agreement 
in  the  fiehl,  the  British  and  American  Zone  com- 
manders will  be  inunediately  requested  to  set  in 
nuition    the    necessarv    consultations    to    achieve 


MAY  26,  1946 


897 


these  objectives  in  their  respective  zones  and  the 
French  Zone  (these  being  the  areas  for  which  the 
Combined  Food  Board  makes  allocations).  It 
was  also  deemed  desirable  that  the  ration  scale  in 
the  British  and  Fi'ench  Zones  of  Germany  should 
be  adjusted  upwards  to  the  level  prevailing  in  the 
United  States  Zone  at  the  earliest  feasible  date 
and  to  this  end  full  and  intensified  efforts  should 
be  continued  in  each  Zone  to  achieve  maximum 
utilization  of  food  resources.  It  is  also  agreed 
that  special  emphasis  should  be  placed  on  miners' 
rations  in  order  to  secure  a  maximum  output  of 
coal. 

The   United   States  Govermuent  lias   reviewed 


the  Japanese  import  program  in  order  to  insure 
that  except  to  the  extent  that  the  Supreme  Com- 
mander of  the  Allied  Powers  determines  that  im- 
ports are  essential  immediately  for  the  safety  of 
the  occupation  forces,  no  imports  shall  be  per- 
mitted which  will  have  the  effect  of  giving  to  the 
Japanese  a  priority  or  preferential  treatment 
over  the  requirements  of  the  people  of  any  Allied 
pf)wer  or  liberated  area.  The  conclusion  has  been 
reached  in  the  discussions  that  the  low  level  of 
feeding  contemplated  by  the  current  program  may 
not  suffice,  even  if  fully  met,  to  provide  the  mini- 
mimi  essential  for  the  safety  of  the  occupation 
forces. 


Famine  Report  to  the  President 


REPORT  OF  THE  HOOVER  MISSION 

[Ueleasfd  to  the  piess  by  the  Depaitment  of  AgricuUure  May  14)  ^^joj^  ^f  bread  CaU  be  assured,  and  as  mucll  fatS  and 

Mai/  13,  19Jf6  children's  food  as  possible,  mass  starvation  can 

Dear  Mr.  President  :  Ije  prevented. 

We  have  completed  vour  instructions  to  survey  At  the  time  of  our  departure,  the  Combined  Food 

the  principal  nations  affected  by  food  shortages  Board's  estimate  of  the  available  cereal  supplies 

which  have  resulted,  or  mav  result,  in  widespread  fi-om  surplus  countries  showed  a  deficit  as  com- 

f amine;  to  evaluate  the  minimum  needs  of  these  Pfn"'^'^  ^^itli  stated  requirements  of  11,000,000  tons, 

areas  until  the  next  harvest ;  and  to  discover  such  ^^  43  per  cent. 

additional  food  resources  as  possible.    In  accord-  Requirements  -  We  attach  hereto  (Table  I)  a 

ance  with  vour  instructions,  we  have  also  presented  country-by -country,    month -by -month    minimum 

the  American  point  of  view  on  the  food  problem  program  of  required  cereal  imports  to  the  deficit 

to  these  nations  and  the  interest  and  understanding  fn^^  famine  areas  from  May  1st  to  September  30th. 

of  our  people  in  their  plight.    Finallv.  we  have  '^^'^'^^  programs  represent  a  considerable  reduc- 

constantly    advised    American    officials    and    the  tion  from  the  hitherto  stated  requirements  of  the 

American  public  as  to  the  situation  as  we  found  it.  various  nations.    The  amounts  have  in  most  cases 

We  have  traveled  some   35,000  miles,  visited  been  agreed  upon  by  their  governments.     In  the 

twenty-two  countries  which  have  a  deficiency  of  case  of  China,  we  regret  to  say  our  program  is  less 

food,  and  informed  ourselves  of  the  situation  in  tl^^'i  minimum  need  but  is  all,  or  more,  than  can 

several  others.    The  only  country  of  large  reported  ^^^  transported  inland  to  the  famine  areas.     The 

deficiency  we  did  not  visit  was  the  Union  of  South  totals  are : 

Africa.    We  visited  five  self-sufficient  or  surplus  Europe 8,  390,  000  tons 

countries  and  informed  ourselves  of  the  situation  Latin  America 1, 000, 000  tons 

in  other  consequential  surplus  nations.  South     Africa      and      New 

The  dominant  need  of  the  world  in  this  crisis  is  Zealand 198, 000  tons 

cereals,  particularly  wheat  and  rice.    There  is  great  Middle  East 100, 000  tons 

need  of  fats  and  special  food  for  children,  but  as  Indian  Ocean  area 2, 886,  000  tons 

cei-eals  can  furnish  8.5  per  cent  of  an  emergency  Pacific  Ocean  area 1,  910,  000  tons 

diet,  we  considered  cereal  requirements  were  the  

first  concern,  and  the  best  indicator.    If  a  foiinda-  Tot.\l 14, 484, 000  tons 


895 

Of  course,  every  country  would  be  better  off  if 
mure  could  be  furnished. 

SuppUe-s  -  AVe  have  found  some  increases  in 
supplies  possible  during  the  crisis  through  de- 
velopment of  certain  new  sources  of  supply; 
through  additional  loans  of  cei-eals  from  early- 
crop  countries  which  ma}'  not  themselves  have  an- 
nual surpluses;  through  substitution  of  other 
cereals  for  wheat  and  rice;  and  as  a  result  of  con- 
servation up  to  this  tijne. 

Our  estimate  (Table  II)  of  Probable  Supplies 
as  of  May  1st  to  September  30th  are : 

From 

United  States 4,220,000  tons 

Canada 2,300.000  tons 

Australia 992.000  tons 

United  Kingdom 200.000  tons 

Argentine 2,375,000  tons 

Brazil 200,  000  tons 

Other  Western  Hemisphere 

States 40.000  tons 

Burma 75.000  tons 

Slam 195,000  tons 

Russia  to  France 300, 000  tons 

Total 10,  897,  OOO  tons 

Therefore  the  gap  in  supplies  between  May  1st 
and  September  30th  can  be  reduced  to  about  3.600,- 
000  tons,  as  against  an  11,000,000  tons  gap  in  the 
earlier  appraisals. 

In  addition  to  the  above  supplies  there  is  a 
"possible"'  about  1,500,000  tons  more,  as  indicated 
in  Table  III. 

We  are  confident  that  if  until  the  end  of  August, 
there  can  be  further  vigorous  conservation  in  sur- 
plus countries,  mainly  wheats  and  fats,  and  more 
energetic  cooperation  between  nations,  the  re- 
maining deficit  can  be  largely  overcome.  The 
cooperation  of  Russia  and  the  Latin  American 
States  would  greatly  aid  in  meeting  the  problem. 
If  mass  starvation  is  to  be  prevented  it  will  re- 
quire constant  effort. 

It  is  of  interest  to  note  that  the  quantities  which 
are  provided  by  UNRRA  as  charity  comprise 
about  20  per  cent  of  the  world's  cei-eal  needs, 
whereas  nations  representing  80  percent  are  being 
financed  by  the  importing  countries  themselves. 
But  the  need  in  these  latter  is  no  less  urgent. 

You  will  recognize  that  these  statements  aie 
estimates.  They,  however,  comprise  a  reasonable 
basis  upon  which  to  formulate  policies. 


DEPARTMENT  OF  STATE  BULLETIN 

We  wish  to  express  our  especial  appreciation  of 
tlie  unfailing  aid  and  courtesy  of  the  Secretaries 
of  Agriculture,  State  and  War,  and  the  American 
officials  abroad.  We  are  also  deeply  indebted  to 
Generals  George  and  Saville  of  the  Air  Transport 
Command,  their  efficient  crews,  and  for  their  pro- 
visions for  our  comfort  and  safety. 
Yours  faithfully, 

Hkhbert  Hoover 
I).  A.  Fitzgerald 
Hugh  Gibson 
AV.  Hallam  TtiCK 
Perrin  C.  Galpin 
Maurice  Pate 


TABLE  I 

Cereal  Requireivients  (Including  Rice) 

EUROPE 

Miuimiini  Arrivals  Required  During  Crisis  Period 

(Loadings  at  seaboard  about  30  days  earlier) 

Based  on  not  to  exceed  300  grams  cereals  per  person  per  day 


Country 

Popu- 
lation 
Mil- 
lions 

(Thousands  of  Tons) 

May 

June 

July 

Aug. 

Sept. 

Total 

■39.1 
12.0 
41.5 
4.2 
1.3.5 
23.5 
3.8 
3.0 
47.5 
8.0 
9.0 

18.0 
23.3 
6.0 

7.0 
26.0 

8.0 

1.0 
16.0 

7.5 

350 
100 
225 

350 

350 

350 

350 

1,750 

100 

225 

225 
30 
60 
85 
25 

100 
30 
60 
85 
40 
30 

40O 
60 

30 
50 

40 
30 
400 
60 
80 

60 
180 
30 

30 

50 
55 

775 

90 

•Czechoslovakia 

60 
85 

60 
85 

290 
340 

•  Finland 

105 

60 

•United  Kingdom 

400 
60 

400 
60 

400 
60 

2,000 
300 

•Holland 

80 

•Germany: 
Am  Zone 

50 
180 
30 

30 
60 
30 

5 
50 
55 

50 
180 

45 
Data 

65 

60 

30 
5 

50 

55 

50 
180 
45 
unkn 
55 
60 
30 
5 
50 
55 

65 
180 
45 
>wn 
65 
60 
30 
5 
50 
56 

275 

900 

195 

Russ.  Zone    -  -- 

•Austria     

225 

240 

120 

20 

260 

•Greece            

275 

Europe  Totals 

317.9 

1,770 

1,710 

1,765 

1,700 

1,445 

8,390 

LATIN  AMERICA 


Latin-America 200        200      200      200        200       1,000 


•Visited  by  the  Mission. 


MAY  26,  1946 

NEW  ZEALAND  AND  SOUTH  AFRICA 


899 


CouDtry  or  Province 

Popu- 
lation 
Mil- 
lions 

(Thousands  of  Tons) 

May 

June 

July 

Aug. 

Sept. 

Total 

Kew  Zealand 

9 
40 

9 

40 

0 
30 

0 
30 

18 

40 

180 

40 

49 

49 

30 

30 

198 

NEAR  EAST 


N'i-;u-  East. 


INDIAN  OCEAN 

{Loiidings  from  Eastern  Hemisphere  1  month  and  Western  Hemisphere  2 
months  earlier) 


•India  (Provinces  af- 
fected)- 

22.0 

7.6 

51.4 

6.5 

1.5 

2.9 

37.9 

57.6 

61.3 

14 
210 
IS 
8 
43 
19 
24  . 

55 
25 
170 
10 
7 
19 
14 

85 
25 
170 
10 
7 
19 
20 

95 
25 

170 
10 
7 
19 
20 
60 

106 
50 
60 

50 

95 
25 

170 
10 
7 
19 
20 
60 

106 
50 
60 

60 

330 

Mysore  - 

114 

890 

Tranv 

58 

Cochin 

36 
119 

Bchar. 

I'n.  Provinces 

93 

144 

Bengal 

Other 

60 
60 

50 

50 
60 

50 

90 
50 
60 

50 

302 

250 

Oe.vlon.. . 

7.0 
3.6 

300 

Malaya  &  Straits  Set- 

250 

TOUL 

496 

460 

586 

672 

672 

2,886 

PACIFIC  OCEAN 


•Philippines 

14.0 

220.0 

75.0 

14.0 

12 

120 

50 

15 

197 

12 
150 
250 

30 
442 

12 
200 
270 

45 
527 

12 
200 
200 

10 
422 

12 
200 
100 

10 
322 

60 

•China  ' 

870 

•.Tapan 

870 

•Korea  2  .   .      

110 

1,910 

2,723 

2,881 

3,147 

3,044 

2,689 

14,  484 

SURPLUS  OR  SELF-SUFFICIENT  COUNTRIES 


'Sweden 

6.2 
3.8 
9.1 

12.1 
6.6 

17.3 
4.0 

14.0 

Rumania. 

•Egypt..   . 

•Siam 

Total 

73.0 

TABLE  n 


Possible  Wokld  Cereal  Supplies  From  Surplus 
Areas  (May  1  to  Sept.  30) 


Second  Quarter  Load- 
ings (April-May- 
June) 

Loadings  in  July  and 
August 

Total 

(Thousands  of  tons) 

Wheat 

Coarse 
grains 

Rice 

Wheat 

Coarse 
grains 

Rice 

U.S. A 

Canada 

2,200 

1,  0.50 

700 

200 

500 

500 
160 

800 
50 

20 
17 

60 

40 
40 

75 

1,400 
400 
275 

275 

100 
100 

4,220 

2,300 

992 

United  Kingdom.  _. 

Argentine 

Brazil 

800 
50 

40 

200 

2,375 

200 

Other  Western 
Hemisphere  States 

40 

35 
.    120 

105 

Russia  to  France 

150 

160 

300 

5,400  1     1,500        252  1     2.  ,500 
Gkand  Total:  (Wheat— 7,900;  Coarse  grains— 2,65C 

1.050 
;  Rict— 

195 
147) 

10, 897 
10,897 

TABLE  III 

Further  Supplies  Possible 


Second  quarter 
loadintis  (April- 
May-June) 

Loading.s  in  July  and 
August 

(Thousands  of  tons) 

Remarks 

-b3 

CO 

CO  a 

a  2 

O 

.  8 

O  M 
O 

s 
« 

Indo-China 

60 

50 

50 
225 
200 

200 
115 

300 

75 
200 

125 

100 
200 

Surplus    Prov- 

Punjab and 

Sind 

100 
30 

300 
75 

100 
50 

inces. 
Could  be  bor- 

Egypt  

United  King- 
dom 

10 

25 

rowed. 
Could  be  bor- 
rowed. 

R  e  I  e"'a  s  e  d 

Russia  to  France 

stocks. 

200 

505 

125 

60 

150 

300 

226 

1,365 
140 

1,  605 

1  utmost  capacity  of  inland  transportation. 

2  American  Zone. 
*Visited  by  the  Mission. 


900 


DEPARTMENT  OF  STATE  BULLETIN 


TABLE  IV 

Provisional  Balance  Sheet  of  AVoklii  Require- 
ments AND  Supplies 

(Tliousands  of  tons) 
Minimum  Cereal  Requirements 

Eui-oi)e S,  390 

Latin-America 1,000 

Southern   rJritish  Empire 198 

Middle    East 100 

Indian    Ocean 2,886 

Pacific   Ocean 1,910 


Cereal  Suiiplies  Probable 

April-May-Juue   Loadings 7,  202 

July-August    Loadings 3,  695 


14,  484 


10,897 


TABLE  V 

Comparison  of  the  Combined  Food  Board  Bal- 
ance Sheet  or  March  1,  1946  (retrospective  to 
Jan.  1,  19-16)  and  Hoo\i;r  Mission  Balance 
Sheet  as  of  May  1st,  1946 


(Thousands  of  tons) 

Stated 
Require- 
ments 

Esti- 
mated 
Supplies 

Deficit 

Defleil 
Percent 

Combined  Food  Board 

2.5.900 
7,000 

14,900 
7,000 

11.000 

42.5 

Original  Balance  as  at  May  1_ 

As  Revised  by  Hoover  Mission: 
May  l-Sept.  1 

18,900 
14,484 

7,900 
10,  900 

11,000 
3,687 

58 
24 

-4,  000 

4-3,000 

-7,  413 

Deficit  Probable 3,  587  tons  or  24  percent 

Further  Possible  Cereal  Supijlies 1,  505 

Thus,  the  requirements  were  revised  doiomoard  bij  4,000,000  tons  and  the  supplies  revised  upward,  through  nerc 
sources  developed,  effect  of  conservation,  drafts  on  earlier  crops  in  some  countries,  etc.,  3,000,000  tons. 
The  estimated  gap  as  of  May  1st,  3,600,000  tons. 


Status  of  American  International  Broadcasting 


[Released  to  the  press  May  18] 

Assistant  Secretary  of  State  William  Benton 
made  public  on  May  18  statements  from  five  radio 
executive.s  on  the  status  of  American  international 
broadcasting  and  the  importance  uf  maintaining 
adequate  programs  in  the  future.  He  released  also 
statements  from  Charles  R.  Denny,  Acting  Chair- 
man of  the  Federal  Connnunications  Commission, 
and  Paul  Porter,  former  Chairman  of  the 
Commission. 

In  releasing  the  statements  Mr.  Benton  pointed 
out  that  the  House  of  Representatives  recently  cut 
the  State  Department's  requested  appropriation 
for  international-information  M'ork  from  $19,284,- 
778  to  $10,000,000.  He  stated  that  if  this  cut  is 
sustained  by  the  Senate  the  Department  will  be 
compelled  to  abandon  all  support  for  international 
short-wave  broadcasting,  because  the  large  fixed 
engineering  costs  cannot  be  fitted  into  the  reduced 
budget. 

Tlie  statements  were  made  in  response  to  an 
inquiry  by  Mr.  Benton  for  reactions  to  this  con- 
tingency. They  have  been  submitted  to  the  Senate 
Appropriations  Committee. 


The  five  radio  executives,  all  of  whom  are  officers 
of  private  licensees  which  have  done  pioneering 
work  in  the  short-wave  field  and  are  now  broad- 
casting under  contract  with  the  State  Department, 
are: 

J.  D.  Shouse,  Vice  President  in  Charge  of  Broad- 
casting, The  Crosley  Corporation,  Cincinnati, 
Ohio. 

Frank  Stanton,  President,  Columbia  Broadcast- 
ing System,  New  York,  N.  Y. 

Philip  D.  Reed,  Chairman  of  the  Board,  General 
Electric  Company,  New  York,  N.  Y. 

Walter  Evans,  Vice  President,  Westinghouse 
Electric  Corporation,  Baltimore,  Md. 

Brig.  Gen.  David  Sarnoff,  Chairman  of  the  Board 
of  the  Radio  Corporation  of  America,  New 
York,  N.  Y. 

"These  are  the  people  who  have  had  the  most 
experience  in  international  short-wave  broad- 
casting, who  have  studied  it  most  carefully  and 
are  in  the  best  position  to  judge  its  value",  Mr. 
Benton  said  in  releasing  the  statements.  The 
statements  follow : 


MAY  26,  1946 


90i 


Letter  from   the   Vice  President  in   Charge   of 
Broadcasting,  The  Crosley  Corporation 

May  6, 19^6. 
Dear  Mr.  Benton  : 

Long  before  Pearl  Harbor  our  Company  liad 
been  deejjly  and  vitally  interested  in  international 
shortwave  broadcasting;.  We  have  been  exceed- 
ingly proud  of  certain  pioneer  contributions  which 
we  have  been  able  to  make  in  the  field  of  high- 
power  broadcasting  in  the  international  band. 

Prior  to  our  entry  into  the  war,  as  a  matter 
of  private  initiative,  we  operated  WIWO,  designed 
and  built  by  our  organization  at  powers  from 
seventy-five  to  one-hundred  kilowatts.  The  oper- 
ation and  programming  of  this  station  was  quite 
expensive,  and  involved  a  loss  to  us  of  between 
.^Ti^OOO  to  $100,000  a  year. 

Shortly  before  our  entry  into  the  war,  we  ad- 
vocated strongly  the  plan  under  which  the  opera- 
tion and  programming  of  the  shortAvave  stations 
in  the  United  States  were  taken  over  by  the  Office 
of  War  Information.  In  the  considered  belief 
that  international  shortwave  broadcasting,  during 
either  times  of  conflict  or  during  times  of  inter- 
national stress,  might  best  be  conducted  as  an  ad- 
junct of  those  agencies  of  our  government  charged 
with  the  official  delineation  of  our  policies,  with 
reference  to  the  other  nations  and  peoples  of  the 
world,  our  Company,  I  feel,  has  made  one  of  its 
great  contributions  to  the  country  during  the  war 
years  in  the  design,  development  and  construction 
of  the  tremendous  transmitting  plant  and  facili- 
ties at  Bethany,  Ohio. 

I  am  writing  this  letter  to  reaffirm  our  belief 
in  the  continuing  importance  of  international 
broadcasting  as  a  matter  of  national  policy.  I  feel 
it  extremely  difficult  to  believe  that  private  indus- 
try can,  at  the.  present  time,  assume  the  terrific 
operating  loss  which  would  ensue  if  international 
broadcasting  were  to  be  turned  back  to  private 
industrj'.  Every  broadcaster  faces  the  likelihood 
and  the  necessity  of  making,  during  these  next  few 
3'ears,  large  capital  investments  in  the  fields  of 
Television  and  Frequency  Modulation. 

I  feel  fearful  that  regardless  of  how  strongly 
some  of  us  may  feel  about  the  need  for  retaining  the 
position  which  our  country  finally  developed  in 
the  field  of  international  broadcasting,  the  finan- 
cial burden  would  be  impossible  for  many  of  us  to 
absorb  without  a  great  and  perhaps  tragic  diminu- 


tion of  the  effectiveness  of  j^ortraying  to  the  rest 
of  the  world  United  States  policy  and  thinking  on 
matters  of  international  import. 

These  international  stations  represent  the  only 
sure  and  certain  means  by  which  this  country  can 
make  sure  that  in  the  years  to  come  the  people  of 
(jtlier  countries  can  learn  directly  what  the  United 
States  stands  for,  what  our  people  believe  in,  and 
why  our  jtosition  on  any  matter  of  international 
misundeistanding  or  controversy  has  been  taken. 
All  other  means  of  mass  communication  are  sus- 
ceptil)le  to  either  censorship  or  can  be  refused 
entry  at  the  border  of  any  country.  This  is  true 
of  cable  communication.  It  would  be  true  of  point 
to  point  connnunication.  It  is  certainly  true  in 
the  case  of  newspapers,  magazines,  pamphlets  and 
periodicals,  as  well  as  in  the  field  of  literature 
itself. 

The  United  States,  from  the  standpoint  of 
radio  broadcasting  as  a  means  of  mass  communi- 
cation, is  already  at  a  tremendous  disadvantage 
geographically.  As  inefficient  and  ineffective, 
perhaps,  as  international  shortwave  broadcasting 
is,  we  still  must  recognize  that  because  of  our  geo- 
graphical position  with  reference  to  both  the 
Asiatic  and  European  popiUation  masses,  we  suffer 
a  tremendous  handicap.  Certainly  England,  in 
her  location  just  off  the  continental  coast,  need  not 
rely  on  international  shortwave  frequencies  to 
propagandize,  in  the  proper  sense  of  the  word,  the 
many  nationalistic  pojiulation  masses  in  Europe. 
Because  of  her  location,  she  can  do  a  much  better 
job  in  the  medium  and  long  wave  bands,  and  no 
continental  government  would  have  very  much 
chance  of  preventing  her  from  using  mediiun  and 
long  wave  transmitters  located  in  England  to 
further  England's  interests,  both  politically  and 
ideologically  on  the  continent. 

The  same  thing,  of  course,  would  apply  to  any 
other  continental  power.  So,  too,  in  the  Far  East. 
Our  ability  to  control,  and  on  long  and  medium 
wave  transmitters  to  reach  the  big  Asiatic  popula- 
tion masses,  is  far  from  being  secure.  This  re- 
duces the  United  States  then  to  the  sole  and  pecu- 
liar position  of  being  forced  to  rely  upon  direct 
international  shortwave  broadcasting — a  poor 
saibstitute,  admittedly,  but  nevertheless  the  only 
broadcasting  facility  completely  in  our  hands  and 
under  our  control. 

Then,  too,  in  times  of  stress,  agreements  which 
migiit  now  be  negotiated  to  provide  for  rebroad- 


902 

casting,  in  any  particular  country,  of  programs 
beamed  point  to  point  from  this  country  might 
be  arbitrarily  withdrawn,  in  which  event,  of 
course,  we  would,  from  a  broadcasting  standpoint, 
be  left  completely  defenseless. 

We,  therefore,  advocate  strongly,  because  of  the 
factors  enumerated  above,  and  as  the  result  of  our 
close  experience  with  and  familiarity  with  the 
field  of  international  transmission,  a  proper  pro- 
vision to  insure  adequate  facilities  in  this  field  for 
the  United  States. 

We  wish  to  assure  you,  as  a  result  of  the  fore- 
going, that  we  have  no  fear,  whatever,  of  our 
government  using  a  continuing  subsidy  of  inter- 
national shortwave  broadcasting  as  a  means  of 
encroaching  upon  our  American  system  in  the 
domestic  field.  Further,  I  am  sure  that  from 
what  I  have  said  my  interest  and  concern  with 
this  problem  is  apparent.  Both  during  the  war 
and  immediately  after  the  war,  I  had  occasion  to 
spend  some  time  in  England.  I  have  had  the  op- 
portunity of  discussing  the  importance  of  inter- 
national shortwave  broadcasting  with  the  repre- 
sentatives of  a  great  many  other  nations,  who 
have,  from  time  to  time,  visited  Cincinnati  to 
study  our  transmission  facilities. 

Feeling  as  strongly  as  I  do  about  this  subject,  I 
wish  to  assure  you  of  my  desire  to  cooperate  with 
your  department  in  any  possible  way  that  might 
be  constructive. 

Very  sincerely, 

J.  D.  Shouse 

Letter  from  the  President,  ColumMa  Broadcasting 

System 

April  30, 1946. 

Deak  Mr.  Bentox  : 

The  Columbia  Broadcasting  Sj^stem  believes 
that  democratic  shortwave  international  broad- 
casting is  important  to  the  United  States  in  its 
world  relations. 

CBS  has  had  a  long  and  continuing  interest  in 
shortwave  international  radio.  Prior  to  the  out- 
break of  World  War  II  it  seemed  to  us  that  a  defi- 
nite and  intelligent  plan  of  regular  broadcast  serv- 
ice to  foreign  countries  could  play  a  most  impor- 
tant part  in  improving  the  world  position  of  the 
United  States.  It  was  with  this  thought  in  mind 
that  Columbia  organized  La  Cadena  de  la  Amer- 
icas, the  Network  of  the  Americas,  and  inaugu- 
rated at  its  own  expense  a  multi-lingual  prewar 


DEPARTMENT  OF  STATE  BULLETIN 

program  service  both  to  Latin  America  and  to 
Europe. 

Columbia's  work  in  the  international  field  dur- 
ing the  war  in  association  with  the  various  services 
of  the  Government  has  further  convinced  ns  thtit 
one  of  the  best  ways  of  enhancing  and  maintaining 
the  prestige  of  the  United  States  among  the  peoples 
of  the  world  is  by  making  available  to  these  peo- 
ples day-by-day  uncolored,  undistorted  and  truth- 
ful information  about  our  own  country  and  our 
own  people.  We  believe  that  shortwave  broad- 
casting is  a  most  essential  instrument  for  the  di- 
rect and  imcensored  dissemination  of  such  infoi- 
mation  in  peace  as  well  as  during  war. 

How  this  instrument  can  be  used  to  the  best  ad- 
vantage of  our  country  may  well  require  further 
study  by  our  Government,  by  the  broadcasting  in- 
dustry and  others  interested  in  the  problem.  It 
seems  to  us  of  paramount  importance,  however, 
that  the  present  scale  of  operations  not  be  aban- 
doned or  diminished  while  a  permanent  peacetime 
plan  of  operation  is  being  developed.  Otherwise 
we  believe  that  the  favorable  position  of  our  coun- 
try in  the  international  field  may  be  seriouslj- 
jeopardized. 

The  dangers  incident  to  even  a  temporary  in- 
terruption of  international  shortwave  broadcast- 
ing are  so  great  that  we  feel  it  both  proper  and 
necessary  for  us  to  make  this  recommendation  to 
you,  even  though  the  present  plan  of  operation  is 
definitely  a  wartime  emergency  system  and  sub- 
ject, perhaps,  to  entirely  i^roper  criticism  on  that 
ground. 

Sincerely  yours, 

Frank  Staxtox 

Letter  from,  the  Chairman  of  the  Board,  General 
Electric  Company 

May  3, 1946. 
Dear  Mr.  Benton  : 

You  have  asked  for  my  view  as  to  the  importance 
of  continuing  the  Government's  foreign  broadcast- 
ing activities  pending  full  consideration  by  the 
Congress  of  the  State  Department's  proposed  pro- 
gram in  the  field  of  foreign  informational 
activities. 

As  you  know,  I  spent  two  and  a  half  years  dur- 
ing the  war  in  the  European  theater  of  operations 
as  Chief  of  the  United  States  Mission  for  Eco- 
nomic Affairs,  in  London.  In  that  connection  I 
had  an  opportunity  to  observe  at  first  hand  the 


MAY  26,  1946 


903 


work  of  our  governint'ut.  both  civilian  and  mili- 
tary, in  the  broadcasting  field.  I  was  able  also  to 
comjjare  it  with  corresponding  activities  of  other 
governments. 

I  am  convinced  that  our  country  must  maintain 
adequate  foreign  information  broadcast  service. 
The  presentation  of  a  factual,  colorful  chiy-to-day 
I^icture  of  the  American  scene  is,  in  my  judgment, 
an  essential  part  of  any  program  for  maintaining 
friendly  relations  abroad.  If  we  do  not  do  so, 
we  shall  fail  to  derive  the  benefits  of  the  tremen- 
dous advances  in  international  communications  to 
the  development  of  which  American  scientists 
have  made  such  notable  contributions. 

I  believe  that  the  operation  of  an  international 
broadcasting  service  should  be  in  private  rather 
than  in  governmental  hands.  The  immediate 
problem  appears  to  be  that  the  private  owners  of 
international  broadcast  facilities  would  be  unable 
to  render  anything  like  an  adequate  foreign  broad- 
cast service  without  incurring  very  large  operating 
deficits.  In  other  words,  program  sponsorship  by 
commercial  organizations  would  not,  in  their  judg- 
ment, produce  sufficient  income  to  cover  more  than 
a  small  fraction  of  the  cost.  This  means  that,  for 
the  present  at  least,  if  an  adequate  broadcasting 
program  is  to  be  maintained  the  Government  will 
have  to  shoulder  most  of  the  cost. 

In  my  judgment  it  would  be  a  great  mistake  to 
discontinue  the  present  foreign  broadcasting  ac- 
tivities pending  careful  study  of  the  entire  problem 
and  adoption  of  a  permanent  plan.  I  very  much 
hope  that  Congress  will  appropriate  sufficient 
funds  to  permit  the  present  service  to  be  continued 
on  an  interim  basis  which  I  would  hope  need  not 
exceed  one  year. 

Sincerely  yours, 

Philip  D.  Reed 

Letter  from  the  Vice  President,  Westinff house 
Electric  Corporation 

May  1,  19Jfi. 
Deae  Me.  Benton  : 

It  has  recently  come  to  my  attention  that  the 
appropriation  requested  by  the  State  Department 
including  an  item  for  shortwave  broadcasting 
has  been  reduced  to  the  point  where  International 
broadcasting  may  have  to  be  eliminated  from  the 
program. 

The  Westinghouse  Company  has  been  operating 
shortwave    International    broadcasting    stations 


since  1925  and  with  these  years  of  experience  we 
are  firmly  convinced  that  shortwave  is  one  of  the 
most  effective  ways  to  reach  the  people  of  other 
nations.  It  would  seem  to  us  to  be  a  great  mistake 
for  the  Government  to  abandon  at  this  time  the 
use  of  shortwave  facilities  which  is  one  of  the  very- 
few  ways  that  wide  coverage  can  be  attained  for 
the  story  which  our  nation  has  to  tell  during 
these  troubled  days. 

Opinions  differ  as  to  the  manner  in  which  these 
stations  should  be  o^jerated.  Whether  or  not  they 
are  maintained  by  private  enterprise,  by  Gov- 
ernment subsidy,  by  a  holding  company  or  by  a 
department  or  bureau  of  the  Government,  we  feel 
that  nevertheless  the  use  of  shortwave  to  reach 
the  people  of  other  nations  should  be  preserved. 
Sincerely  yours, 

Walter  Evans 

Excerpts  from  a  Memorandum  to  the  Secretary 
of  State  in  January  19Jf3  hy  Brig.  Gen.  David 
Sarnoff,  President  of  the  Radio  Corporation  of 
America.  General  Satmoff  reports  that  this 
memorandum  still  represents  his  views. 

If  it  is  good  reasoning  to  conceive  that  in  the 
postwar  world  our  interests  will  require  no  less  an 
effort  than  the  present  one,  and  quite  probably  an 
even  greater  one,  we  shall  need  at  the  start  not  less 
than  $15,000,000  or  $20,000,000  a  year  for  inter- 
national radio  activities,  as  well  as  unification  of 
purpose  and  policy.  Where  can  the  money  come 
from,  and  who  will  unify  our  purpose  and  policy? 

1.  Private  industry  cannot  be  expected  to  sup- 
ply the  necessary  service  on  an  adequate  basis, 
because  it  can  supply  services  only  from  income 
derived  therefrom.  No  such  income  is  foreseeable 
if  the  total  income  of  United  States  concerns  from 
all  international  broadcasting  was  $200,000. 

2.  Moreover,  there  are  many  questions  of  na- 
tional and  international  policy  to  be  considered  in 
financing  international  broadcasting  on  a  basis  of 
commercial  advertising.  Some  nations  do  not  per- 
mit commercial  advertising  on  the  radio  in  their 
own  territory.  They  are,  therefore,  likely  to  re- 
sent the  "importation"  of  such  advertising  when 
they  deny  that  right  to  their  own  nationals  at 
home. 

3.  Those  seeking  to  extend  their  international 
export  markets  are  expected  to  take  local  advertis- 
ing in  the  local  press  and  on  the  local  radio :  hence, 
international  broadcasting  mav  be  considered  to 


904 

be  competing,  and  denyin<>;  revenues  to  the  radio 
and  the  press  of  the  countries  where  the  markets 
are  sought. 

It  does  not  seem  that  international  broadcasting 
with  all  its  national  and  international  implica- 
tions constitutes  a  field, for  private  competition,  or 
even  if  it  did,  that  it  represents  a  field  with  ade- 
quate connnercial  revenue  to  provide  the  very 
large  sums  needed  to  render  a  public  service  of 
genuine  Avorld  magnitude. 

Letter  from  the  Acting  Chairman,  Federal 
Communications  Commission 

May  7, 19Jf6. 
My  Dear  Mr.  Bexton  : 

This  will  confirm  the  conversation  which  I  had 
this  morning  with  Mr.  Bracken  of  your  Depart- 
ment on  the  subject  of  inteimational  broadcasting. 

As  I  told  Mr.  Bracken,  it  appears  to  ns  here  at 
the  Commission  that  the  Congress  must  make  the 
decision  as  to  -whether  the  United  States  shall  en- 
gage in  international  broadcasting,  the  extent  to 
which  such  operations  shall  be  carried  on,  and  the 
proper  agency  for  conducting  such  operations. 
This  particularly  involves  a  settlement  of  the 
question  of  whether  shortwave  broadcasting 
should  in  the  future  be  conducted  by  an  instru- 
mentality of  the  Federal  Government  or  whether 
responsibility  in  this  field  should  be  turned  back 
to  the  radio  broadcast  industry.  I  understand 
that  in  the  near  future  the  State  Department, 
through  the  Bureau  of  the  Budget,  will  recom- 
mend to  the  Congress  specific  legislation  on  this 
point.  While  this  Commission  has  not  yet  been 
asked  to  take  a  position  on  the  specific  proposals 
that  are  to  be  made,  we  do  feel  that  it  is  important 
that  some  concrete  proposal  be  made  jjromptly  to 
the  Congress  so  as  to  afford  a  basis  for  considera- 
tion, discussion  and  settlement  of  these  important 
problems.  In  the  meantime,  that  is  until  Congress 
shall  have  had  an  opportunity  to  consider  the  leg- 
islation which  you  are  about  to  propose,  it  is  the 
view  of  the  Commission  that  it  is  important  that 
Congress  maintain  the  status  quo  by  providing 
sufficient  appropriations  for  the  continuance  be- 
yond June  30,  1946  of  the  present  arrangements 
whereby  the  United  States  Government,  through 
the  De])artment  of  State,  leases  and  programs  this 
country's  shortwave  broadcast  transmitters. 
If  Congress  does  not  provide  for  the  continued 


DEPARTMENT  OF  STATE  BULLETIN 

State  Department  operation  beyond  June  30,  then 
this  Commission  would  on  that  date  be  confronted 
with  the  question  of  whether  it  should  authorize 
a  resumption  of  shortwave  broadcast  operations 
by  the  seven  private  corporations  which  wei'e  li- 
censed ju'ior  to  our  entry  into  the  war  and  whether 
additional  private  operations  should  be  authorized. 
This  would  involve  the  decision  by  the  Commission 
of  a  very  fundamental  cpiestifni  of  policy  which 
we  believe  Congress  to  be  in  the  best  position  to 
decide.  Accordingly,  it  is  our  hope  that  Congress 
provide  for  the  preservation  of  the  status  quo 
until  it  has  had  an  opportunity  to  consider  the 
bill  that  your  Department  is  about  to  present. 
Hearings  on  this  bill  will  afford  an  opportunity 
for  obtaining  the  views  not  only  of  the  State  De- 
partment, the  Commission  and  other  interested 
government  agencies,  but  also  the  views  of  the 
broadcast  industry  and  other  groups  which  are 
interested  in  seeing  the  proper  solution  of  tliis 
very  important  problem. 

The  Commission,  of  course,  is  not  at  this  time 
taking  any  position  on  the  question  of  how  these 
problems  should  ultimately  l)e  resolved,  nor  do 
we  take  any  position  on  the  amount  of  funds  that 
will  be  required  in  order  to  preserve  the  status 
quo  long  enough  to  afford  an  adequate  opportunity 
for  Congress  to  decide  these  questions.  For  the 
l)resent  we  simply  take  the  view  that  the  problems 
are  so  fundamental  and  so  important  that  they 
should  be  decided  by  the  Congress  and  that  in 
the  meantime  the  status  quo  should  be  preserved. 

By  direction  of  the  Commission 

Charles  R.  Denny 

Letter  from    the  Administrator^  Office  of  Price 
Administration 

May  7\  lOIfi. 
Dear  Mr.  Benton  : 

I  believe  that  sufficient  funds  should  be  appro- 
priated to  permit  international  radio  to  continue 
until  such  time  as  the  Congress  has  had  the  oppor- 
tunity for  considering  the  whole  matter  of  inter- 
national broadcasting  through  the  medium  of 
legislation. 

It  is  my  understanding  that  this  legislation  is 
now  being  drafted  for  submission  to  the  Congress 
i)y  the  State  Department. 

Sincerely  yours, 

Paul  Pouter 


MAY  26,  1946 


905 


International  Broadcasting — A  National 
Responsibility 

Article  by  WILLIAM  T.  STONE  ' 


THK  InTEKXATIONAL  BROADCASTING  DIVISION 
of  the  State  Department  is  engaged  in  edu- 
cational radio.  Many  people  today  are  concerned 
principally  with  the  education  of  our  own  people, 
who  shai'e  at  least  a  common  backgi'ound  and 
vocabulary.  Our  international  student  body,  how- 
ever, lacks  the  background  and  the  elementary  in- 
formation which  permit  an  undei-standing  of  even 
the  most  commonplace  aspects  of  American  life. 

From  a  technical  viewpoint,  short-wave  radio 
has  come  of  age  and  is  now  accepted  as  a  reliable 
means  of  broadcasting  over  distances  impossible 
for  medium  wave.  Much  of  the  early  work  done 
on  these  frequency  bands  was  by  experimenters  and 
amateurs  who  in  many  cases  obtained  amazing  re- 
sults. The  potentialities  of  high  frequencies  for 
broadcasting  long  ago  were  recognized  by  com- 
mercial conununication  organizations,  but  until  re- 
cently there  was  no  urgent  need  for  short  wave. 

Before  the  war  short-wave  broadcasting  in  this 
country  was  conducted  by  six  private  licensees 
with  13  transmitters.  In  the  early  stages  of  the 
war  our  Government  recognized  that  short-wave 
broadcasting  was  strategically  important  as  a 
medium  for  expressing  hope  and  encouragement  to 
support  our  war  effort.  New  facilities  were  con- 
structed and  modern,  powerful  installations  were 
built.  Short-wave  transmission  proved  its  abil- 
ity to  serve  remote  parts  of  the  world. 

In  Latin  America  all  of  our  feature  programs — 
that  is,  progiwms  designed  especially  to  inform 
the  listener  of  how  our  Government  operates  and 
of  how  our  people  live — were  rebroadcast  over  the 
130  local  stations  aiRliated  with  the  NBC  and  the 
CBS.  Many  of  our  programs  outstripped  local 
productions  in  popularity  and  brought  a  dramatic, 
realistic  interpretation  of  the  good-neighbor 
polic}'  into  the  homes  of  our  southern  neighbors. 


AVith  tlie  defeat  of  Germany,  we  began  to  swing 
(jur  whole  mechanism  into  dealing  with  post-war 
problems.  As  an  agency  of  peace  inteniational 
broadcasting  became  more  important  than  ever 
before.  Having  proved  its  reliability  through 
contributions  to  the  war  effort,  it  was  in  a  strategic 
position  to  work  for  the  peace. 

The  immense  expansion  of  our  overseas  broad- 
casting during  the  war  gave  us  an  effective  means 
of  reaching  peoples  of  many  lands  regardless  of 
national  boundaries  or  censorship.  Through  in- 
ternational radio  we  express  the  ideals  of  the 
American  people  through  factual  news  and  com- 
mentary, music,  drama,  and  special  events.  We 
explain  the  functioning  of  democracy.  We 
describe  our  customs  and  our  institutions,  and  we 
document  the  myriad  aspects  of  our  everyday  life 
in  city  and  country. 

What  M'ill  hajjpen  to  American  short-wave  radio 
in  the  years  ahead  will  of  course  depend  upon 
our  elected  lawmakers  in  the  Congress.  The  State 
Department  recognizes  the  "Voice  of  America"  as 
an  effective  instrument  of  peace  and  good-will  and 
regards  its  operation  as  a  national  responsibility. 
The  position  that  our  country  has  gained  as  a 
result  of  the  war  charges  us  with  a  responsibility 
which  we  cannot  refuse  to  assume. 

Why  should  we  bother  with  international  broad- 
casting? For  one  thing,  short-wave  radio  is  the 
only  medium  of  information  which  can  operate 
throughout  the  world  without  regard  for  inter- 
national boundaries.  It  is  the  most  effective 
means  of  putting  the  facts  of  America  before  the 

'  This  article  is  luised  on  an  address  tliat  Mr.  Stone  gave 
in  Columbus,  Ohio,  on  May  4,  1946  before  the  Institute 
for  Education  by  Radio.  Mr.  Stone  Is  Director  of  the 
Office  of  International  Information  and  Cultural  Affairs, 
Department  of  State. 


906 


DEPARTMENT  OF  STATE  BULLETIN 


bar  of  world  public  opinion  and  of  conibuting  mis- 
information.    Here  is  an  example : 

Recently  a  Belfji'ade  newspaper  dramatically 
reported  six  million  unemployed  in  the  United 
States.  The  article  pictured  chaos  in  America. 
(Pre-war  Yugoslavia  had  a  population  of  15,703.- 
000  people.)  The  Belgrade  newspaper  did  not 
report  that  we  had  50,000,000  people  gainfully 
employed  in  the  United  States.  In  addition  the 
figure  was  incorrect ;  actual  unemployment  at  the 
time  was  estimated  to  be  2,700,000  by  the  Bureau 
of  Labor  Statistics.  Our  job,  of  course,  was  to 
i-eport  the  facts. 

To  do  a  job  commensurate  with  the  needs  of  the 
American  people,  short-wave  radio  must  be  geared 
to  serve  the  entire  world.  Adequate  global  short- 
wave coverage  requires  a  broad  and  complicated 
language  pattern  and  embraces  mmierous  prob- 
lems of  dialect,  program  types,  and  frequencies  and 
facilities  use.  Many  areas  of  the  world  present 
political  problems  which  have  repercussions  all 
over  the  world  and  with  which  the  United  States 
must  reckon.  Some  of  these  areas  are  now 
shielded  l)y  the  curtain  of  censorship,  through 
which  only  radio  can  pass.  In  many  areas  the 
short-wave  program  represents  the  only  source  of 
news  which  cannot  be  censored  or  controlled  locally 
at  the  receiving  location. 

The  public  interest  requires  that  international 
radio  be  adequately  financed.  As  a  means  of  ex- 
pressing America,  its  culture  and  its  ideals,  short- 
wave radio  will  pay  incalculable  dividends  to  the 
American  taxpayer.  The  United  States  camiot 
afford  to  do  a  second-rate  job  on  a  first-class  medi- 
um of  information  which  other  nations  use  so 
extensively  and  intelligentlj'  to  i)resent  their  views 
to  the  world. 

International  broadcasting  is  not  confined  to  the 
Soviet  Union,  the  British  Empire,  and  the  United 
States.  The  French,  Spanish.  Dutch.  Swedes, 
Finns,  Chinese,  and  Latin  Americans — 49  nations 
in  all — are  in  the  international-broadcasting  field. 
Out  of  18  hours  a  day  beamed  to  North  America, 
the  BBC  originates  specifically  fo;'  the  North 
American  audience  12  hours  and  45  minutes  a  day 
of  programs.  To  do  this,  BBC  uses  nine  trans- 
niitteis  throughout  the  day  beamed  to  the  United 
States.  The  French  are  beaming  1  hour  and  45 
minutes  a  day  on  the  North  American  circuit.  The 
Swedish  radio  beams  1  hour  a  day  on  North  Amer- 
ica, and  the  Finns  have  nearly  5  hours  weekly 
beamed  to  the  United  States. 


Perhaps  most  of  you  are  not  familiar  with  our 
programs.  News — factual  reports  of  the  news  of 
the  day — constitutes  about  15  percent  of  our  out- 
l)ut.  The  balance  of  our  programing  embraces  a 
variety  of  program  types.  News  commentaries^ 
which  are  a  presentation  of  American  opinion 
gleaned  from  editorial  comments  from  throughout 
the  country,  are  dedicated  to  the  purpose  of  prop- 
erly orienting  the  listener  so  that  he  can  evaluate 
the  news  as  factually  given  to  him.  Special  events, 
of  which  the  United  Nations  Security  Council 
broadcasts  are  a  good  example,  give  full  treatment 
of  significant  events  and  of  people  of  importance 
to  the  United  States.  Musical  programs  embrace 
the  finest  music  of  our  country.  Expert  informa- 
tion proyram.s — panels  of  experts  from  American 
business  and  Government — impart  expert  infor- 
mation to  answer  the  questions  of  the  listeners. 
Documentations  of  progress  of  American  science, 
medicine,  arts,  and  crafts  are  presented  by  skilful 
dramatizations.  Special  features,  employing  two 
or  more  voices,  are  designed  to  bring  the  daily  oc- 
currences in  American  life  which  are  of  keen  in- 
tei'est  to  foreign  listeners. 

In  international  bi'oadcasting  we  have  from  the 
beginning  recognized  the  great  potentialities  for 
educational  programs.  During  the  war  there  were, 
of  course,  great  limitations  on  educational  radio 
via  short  wave.  But  even  then  we  were  able  to 
present,  especially  for  our  Latin  American  listen- 
ers, educational  programs  which  were  of  tre- 
mendous influence. 

One  of  our  most  successful  educational  pro- 
grams now  is  Radio  University.  This  program, 
started  in  December  1944,  enjoys  the  enviable  dis- 
tinction of  having  been  on  the  air  350  times.  Radio 
University,  broadcast  by  short  wave  and  relayed 
locally  in  Italy,  consists  of  lectures,  discussions, 
and  round  tables  pi-esented  by  eminent  authorities 
in  the  fields  of  agriculture,  Americana  (biogra- 
phies. Constitution,  courts,  industry.  Government, 
civil  law.  public  law.  philosophy),  art.  books,  eco- 
nomics, education,  international  affairs,  medicine, 
pure  science,  applied  science,  and  social  work. 
Prominent  educators.  Government  experts,  econ- 
omists, writers,  critics,  and  artists  contribute  to 
this  educational  series.  Radio  University  enjoys 
gi-eat  popularity  in  Italy. 

Radio  University  was  introduced  recently  in 
Polish-language  broadcasts  to  Poland,  where 
listener  clubs  carry  on  the  discussion  after  the 
broadcasts,  and  plans  are  complete  now  for  intro- 


MAY  26,  1946 


907 


diiciii<r  Radio  Uiui'cr.sifi/  to  all  other  International 
Broaik'asting  Division  European-language  pro- 
grams and  to  Latin  America. 

We  are  now  broadcasting  once  weekly  in  all 
European  languages  a  script  entitled  Care  of  the 
ChUd.  Prepared  by  a  physician  who  is  acquainted 
with  conditions  in  post-war  Europe,  and  with  the 
counsel  of  UNRRA,  these  scrijits  instruct  Euro- 
pean listeners  on  the  care  of  children  under  ab- 
normal conditions. 

One  of  our  most  popular  dramatic  series  on 
American  literature  was  Cuenfos  de  America 
(Stories  of  America),  which  was  broadcast  to  our 
vast  Latin  American  audience.  Other  important 
educational  programs  on  the  Spanish  American 
beam  are  Ilacia  un  nundo  mejor  (Toward  a  New 
World)  and  Pregunfajs  y  respuestu>i  (Questions  and 
Answers). 

Programs  like  the  French  A  Vos  Ordre^  and  the 
German  Wir  AntwoHen  are  devoted  entirely  to 
answering  questions  received  from  listeners. 

With  our  limited  resources  and  air  time,  we 
have  by  no  means  exhausted  the  potentialities  for 
doing  educational  work  by  international  radio. 
We  have  just  made  a  beginning. 

We  regard  it  as  a  task  of  international  radio  to 
contribute  generously  toward  the  development  of 
good  citizenship  throughout  the  world,  just  as 
domestic  radio  plays  a  leading  role  in  the  develop- 
ment of  good  American  citizenship.  By  educat- 
ing the  vouth  of  the  world  along  such  vital  themes 


as  tolerance,  by  developing  a  broader  understand- 
ing of  each  other  and  each  other's  institutions,  by 
supplying  the  tools  of  education,  the  information, 
the  knowledge,  the  objectivity  of  education — by  a 
carefully  planned  and  systematic  presentation  of 
such  ideas — international  radio  can  help  in  Imikl- 
ing  good  world  citizenship. 

An  important  phase  of  our  operations  is  the 
coverage  of  the  United  Nations  Security  Council 
hearings  in  New  York.  The  International  Broad- 
casting Division  has  established  an  exclusive 
sliort-wave  network  for  this  service.  The  United 
Nations  Network  presents  a  running  translation 
and  description  in  French  and  English.  In  addi- 
tion, our  different  language  programs  with  estab- 
lished short-wave  audiences  throughout  the  world 
have  been  designated  to  cover  the  United  Nations. 
Recapitulations  of  the  day's  Security  Council 
happenings,  background  and  descriptive  material, 
statements  by  delegates  and  other  speakers,  plus 
special  events  are  carried.  The  United  Nations 
Network  embraces  five  stations  using  eight  fre- 
quencies. 

That  is  roughly  the  picture  of  international 
broadcasting  from  the  United  States.  As  we 
stand  now  on  the  threshold  of  peace,  we  recognize 
short-wave  radio  as  a  powerful  instrument  of  in- 
ternational information.  Through  experience  we 
have  obtained  a  perspective  on  international  radio. 
We  know  its  potentialities  and  we  know  how  to 
use  it. 


MILITARY   TRIBUNAL— Co;i^/(»(</  imw  imye  890. 

with  the  General  Secretary  of  the  Tribunal  for 
action  by  the  Tribunal. 


Section  IV 
POWERS  OF  TRIBUNAL  AND  CONDUCT  OF  TRIAL 

Under  Article  13,  Evidence 

d.  Judicial  Notice.  The  Trilnuial  shall  neither 
require  proof  of  facts  of  common  knowledge,  nor 
of  the  authenticity  of  oiRcial  government  docu- 
ments and  reports  of  any  nation  nor  of  the  pro- 
ceedings, records,  and  findings  of  military  or  other 
agencies  of  any  of  the  United  Nations. 

Under  Article  15.  Course  of  Trial  Proceedings 

c.  The  prosecution  and  each  accused  (by  counsel 


only,  if  represented)  may  make  a  concise  opening 
statement. 

e.  The  prosecution  and  each  accused  (by  counsel 
only,  if  represented)  may  examine  each  witness  and 
each  accused  who  gives  testimony. 

/.  Accused  (by  counsel  only,  if  represented)  may 
address  the  Tribunal. 

By  command  of  General  MacArthur : 

RiCH.\RD  J.  Marshall 
Major  General,  General  Staff  Corps.  Chief  of 
Staff. 

Offici.\l  : 

/s/     B  M  FrrcH 
/t/     B.  M.  Fitch. 
Bi-igartier  General.  AGD, 
Adjutant   General. 


908 


DEPARTMENT  OF  STATE  BULLETIN 


Policy  on  Trade  Privileges  in  Ex-Enemy  States 


[Released  to  the  press  May  13] 

Te.vf  of  letter  dated  May  9  from  Acting  Secretary 
of  State  Dean  Acheson  to  Mr.  Jack  Frye,  Presi- 
dent, Transcontinental  a/id  Western  Air,  Incor- 
porated 

My  Dear  j\Ir.  Frye  : 

Keference  is  made  to  correspondence  with  re- 
spect to  tlie  agreement  between  your  company  and 
the  Italian  Government  for  the  organization  and 
ojjeration  of  an  air  line  to  conduct  air  transport 
services  within  Italy. 

The  Department  has  given  very  careful  consid- 
eration to  your  request  that  steps  be  taken  to  pro- 
tect your  interest  in  Italy,  in  the  light  of  the  over- 
all interests  of  the  T'nited  States.  It  has  come  to 
the  conclusion  that  in  view  of  the  policy  of  the 
United  States  Government  which  is  opposed  to 
granting  or  obtaining  of  exclusive  trade  privi- 
leges in  ex-enemy  states  by  the  interests  of  any  one 
power,  the  Department  cannot  intercede  on  behalf 
of  your  company  with  the  Italian  Government  as 
long  as  the  contract  provides  that  Linee  Aeree 
Italiane  will  have  the  exclusive  right  to  conduct 
air  transport  operations  over  the  extensive  routes 
specified  therein. 

In  the  event  that  the  contract  should  be  modi- 
fied to  omit  this  exclusive  feature,  the  Department 
is  prepared  on  behalf  of  the  United  States  Gov- 
ernment to  urge  the  Italian  Government  to  pro- 
ceed with  the  implementation  of  the  agreement. 
The  position  of  the  United  States  in  this  connec- 
tion is  being  made  known  to  the  British  Govern- 
ment. 

Sincerely  yours, 

Dean  Acheson 
.  Acting  Secretary 

[Released  to  the  press  May  13] 

Text  of  note  from  Acting  Secretary  Acheson  to 
the  British  Ambajisador 

The  Acting  Secretary  of  State  presents  his  com- 
pliments to  His  Excellency  the  British  Ambassa- 
dor and  has  the  h(nior  to  refer  to  an  aide-memoire 
from  the  British  Embassy  dated  April  5,  1946  re- 
garding British  particii)ation  in  Italian  civil  avia- 
tion.    The  aide-memoire  expresses  the  hope  that 


the  United  States  Ambassador  at  Kome  will  be 
instructed  to  inform  the  Italian  Government  that 
the  United  States  Government  would  welcome  the 
amendment  of  the  contract  between  the  Italian 
Government  and  Transcontinental  and  Western 
Air,  Inc.,  along  the  lines  suggested  by  the  British 
Government. 

This  Government  understands  that  the  Com- 
bined Chiefs  of  Staff  on  ]\Iarch  16,  19-16  approved 
without  qualification  a  request  by  the  Italian  Gov- 
ernment tluit  Italy  be  allowed  to  resume  internal 
civil  air  transport.  The  effect  of  this  action  was 
in  the  opinion  of  this  Government  to  permit  com- 
plete freedom  of  action  to  the  Italian  Government 
in  the  organization  and  conduct  of  such  operations. 
The  British  Government  suggests  that  this  Gov- 
ernment join  it  in  endeavoring  to  persuade  the 
Italian  Government  that  it  should  modify  the  con- 
tract which  it  has  concluded  with  a  United  States 
carrier  to  provide  for  joint  United  States-British 
participation  with  Italian  interests  in  the  opera- 
tion of  an  air  service.  This  Government  is  advised 
that  the  United  States  carrier  involved  does  not 
consider  that  such  an  arrangement  would  be  prac- 
ticable from  the  point  of  view  of  an  effective  oper- 
ation and  that  it  is  opposed  to  a  mixed  company 
such  as  has  been  suggested.  As  the  British  Gov- 
ernment is  aware,  this  Department  is  without  au- 
thority to  compel  a  private  United  States  corpora- 
tion to  modify  contractual  arrangements  wliich  it 
has  made  legally. 

Xotwithstanding  the  foregoing,  the  United 
States  Government  is  not  prepared  to  exercise  its 
good  offices  with  the  Italian  Government  looking 
toward  the  implementation  of  the  contract  between 
the  Italian  Government  and  Transcontinental  and 
Western  Air,  Inc.,  unless  and  until  the  contract 
has  been  modified  to  omit  the  exclusivity  features, 
which  this  Government  regards  as  objectionable. 
In  the  event  that  the  contract  is  so  modified,  the 
United  States  Government  would  then  feel  justi- 
fied in  advising  the  Italian  Government  that  the 
latter  should  j^roceed  with  the  implementation  of 
its  agreement  with  the  United  States  carrier. 
Once  the  contract  has  been  so  modified,  it  would  be 
possible  for  the  Italian  Government  to  enter  into 


MAY  26,  1946 


909 


such  furtlier  arranjienients  as  it  deemed  advisable 
which  might  provide  iov  the  establishment  of  a 
joint  British  and  Italian  company  to  operate  air 
transport  services  between  points  in  Italy. 

It  is  this  Government's  view  that  the  opportu- 
nity for  participation  in  the  internal  civil  aviation 
of  ex-enemy  states  should  not  be  restricted  to  any 
one  state  or  any  combination  thereof  to  the  exclu- 
sion of  others.  However,  the  United  States  Gov- 
ermnent  does  not  consider  that  such  participation 
necessitates  the  joining  of  foreign  interests  in  a 
single  enterprise. 

Department  or  State, 
Washington 
May  9,  1946 

A])piopriate  instructions  have  been  transmitted 
to  the  American  Emba.ssv  in  Rome. 


Request  to  Yugoslavia  for 
Submitting  Testimony  in  Trial 
of  General  Mikhailovich 

[Released  to  the  press  May  14] 

Note  delivered  to  thi  Yuc/oxhiv  Mln/Kfn/  of  For- 
ei(/n  Affairs  on  Men/  7  hij  the  American  Charge 
(F Affaires  ad  interim  at  Belgrade^  Yugoslavia 

The  American  Embassy  presents  its  compli- 
ments to  the  Ministry  of  Foreign  Affairs  and 
mider  instructions  from  its  Government  has  the 
honor  to  transmit  the  following  reply  to  the  Min- 
istry's note  No.  3663  of  April  4,  1946.i 

On  March  30,  lO-tfi.  the  United  States  Govern- 
ment informed  the  Yugoslav  Government  that  a 
number  of  persons  in  the  United  States  who  were 
closely  associated  with  General  Draza  Mikhailo- 
vich possess  first-hand  knowledge  of  his  activities 
during  the  Axis  occupation  of  Yugoslavia  which 
would  appear  to  l)e  material  to  judicial  determina- 
tion of  General  Mikhailovich's  case.-  The  United 
States  Government  stated  that  it  would  appreciate 
an  indication  of  the  place  and  time  of  trial  of 
General  Mikhailovich  and  of  the  steps  the  Yugo- 
slav Government  was  prepared  to  take  to  facili- 
tate the  presentation  of  such  evidence  by  persons 
who  mieht  so  desire. 


The  Government  of  the  Federal  People's  Repub- 
lic of  Yugoslavia  replied  to  that  connnunicatitm 
under  date  of  April  4,  1946,  stating  that  it  re- 
gretted that  it  is  unable  to  comply  with  the  desire 
of  the  United  States  Government  and  that  it  is 
"solely  up  to  the  military  court,  which  will  deal 
with  this  case,  to  summon  any  witness  whom  it 
might  deem  necessary  and  the  Government  of  the 
Federal  People's  Republic  of  Yugoslavia  are  not 
entitled  to  exercise  any  influence  upon  the  court."' 
The  Yugoslav  Government's  reply  also  contained 
the  statement  which  the  United  States  Govern- 
ment has  difficulty  reconciling  with  the  principle 
of  judicial  determination  of  culpability,  "that  the 
crimes  of  General  Mikhailovich  against  the  people 
of  Yugoslavia  are  far  too  big  and  horrible  that 
it  could  be  or  should  be  allowed  to  be  discussed 
whether  he  is  guilty  or  is  not." 

Meanwhile,  representations  have  been  made  to 
the  United  States  Government  by  various  indi- 
viduals and  groups  in  the  United  States  who  have 
em))hasized  their  readiness  to  testify  on  behalf  of 
General  Mikhailovich.  A  large  majority  of  such 
persons  are  United  States  aviators  who  were  shot 
down  over  Yugoslavia  and  were  rescued  and  re- 
turned to  Allied  lines  by  Mikhailovich's  forces. 
As  an  example,  a  group  of  20  United  States  air- 
men who  thus  parachuted  into  Yugoslavia  between 
January  and  December  1944  have  called  personally 
at  the  Department  of  State  and  have  expressed 
their  desire  to  make  available  the  information 
they  possess  either  by  attending  the  trial  in  person 
or  by  submitting  testimony  in  writing  if  consid- 
ered appi'opriate.  Numerous  approaches  to  the 
same  end  have  also  been  made  by  mail. 

In  the  cii-cumstances,  the  United  States  Govern- 
ment desires  to  renew  its  request  to  the  Yugoslav 
Government  that  arrangements  be  made  whereby 
the  evidence  of  such  persons  may  be  presented  in 
the  trial  of  General  Mikhailovich  and  that  the 
United  States  Government  be  informed  as  a  mat- 
ter of  urgency  concerning  those  arrangements. 

The  Embassy  of  the  United  States  of  America 
takes  the  opportunity  to  renew  to  the  Ministry  of 
Foreign  Affairs  of  the  Federal  People's  Republic 
of  Yugoslavia  the  assurances  of  its  highest  con- 
sideration. 

'  Bulletin  of  Apr.  21,  1946,  p.  669. 
■  Bulletin  of  Apr.  14, 1940,  p.  034. 


910 


DEPARTMENT  OF  STATE  BULLETIN 


Germany  and  the  Occupation 


Excerpts  from  a  discussion  on  our  occupation  policy  in  Germany  by  Assistant  Secretary  of  State  Jolin 
H.  Hilldring  and  Assistant  Secretary  of  War  Howard  C.  Petersen  wfiich  was  broadcast  on  May  18.  The 
broadcast  was  one  in  a  group  of  State  Department  programs  in  the  NBC  University  of  the  Air  series  en- 
titled "Our  Foreign  Policy".  Sterling  Fisher,  Director  of  the  NBC  University  of  the  Air,  was  chairman  of 
their  discussion,  and  Selden  Menefee  adapted  it  for  radio. 


F18JIER:  How  has  the  four-power  Allied  Con- 
trol Council  in  Berlin  actually  worked  out?  Gen- 
ei'al  Hilldring.  hasn't  it  been  a  rather  awkward 
arrangement,  to  say  the  least? 

Hilldring:  Its  workability  has  exceeded  our 
fondest  expectations.  It  wasn't  our  idea  in  the 
first  place  to  slice  Gernniny  into  four  sectors.  We 
accepted  this  plan  with  great  reluctance;  but  with 
V-E  Day  coming  up  we  fuitl  to  find  a  formula 
acceptable  to  all  the  major  ])owers.  However,  the 
Allied  Control  Council  has  worked  out  better  than 
the  most  optimistic  U.S.  officers  believed  possible 
a  year  ago.  In  a  steady,  unspectacular  way  the 
Control  Council  has  been  a  forum  in  which  four 
great  powers — Russia,  Britain.  France,  and  our- 
selves— have  for  a  year  worked  together  on  the 
most  complex  and  vital  problems.  Let  me  be  very 
specific  :  I'd  like  to  recall  the  dire  and  gloomy  pre- 
dictions quite  a  few  observers  made  about  a  year 
ago,  that  the  four-power  arrangement  would  fall 
to  pieces  over  two  problems — reparations  and  the 
German  standard  of  living.  Yet  we  were  able  to 
get  agreement  on  both  of  these  questions,  and 
many  others. 

Fisher:  How  far  can  you  permit  production 
essential  for  her  minimum  needs  without  restoring 
Germany's  war-making  potential  ? 

Hilldring:  After  a  full  and  frank  debate,  the 
Allied  Control  Council  found  a  middle  ground. 
The  case  of  steel  was  typical.  One  of  our  partners 
in  the  Control  Council  wanted  practically  no  post- 
war steel  industry  in  Germany ;  the  other  wanted 
a  12-million-ton  industry.  Both  sides  exposed 
their  views  to  the  light  of  logic  and  of  facts.  In 
the  end,  thanks  largely  to  the  perseverance  and 
ability  of  Gen.  Lucius  Clay,  we  were  able  to  bring 
the  two  sides  together.  This  to  my  mind  was  an 
historic  jjoint  in  international  negotiations. 

Fishek:  How  did  you  work  out  the  steel  ques- 
tion ? 


Hilldring:  We  did  it  by  developing  a  plan 
which  took  account  of  Germany's  miiiinuim  domes- 
tic and  export  needs.  The  Control  Council  agreed 
to  reduce  German  steel  capacity,  which  had  been 
around  20  million  tons  before  the  war,  to  7.5  mil- 
lion tons.  But  tlie  German  steel  industry  never 
runs  at  100  percent  of  capacity,  and  we  are  limiting 
actual  production  to  only  5.8  million  tons. 

Petersen  :  You  can  compare  that  to  our  own 
steel  industry,  which  has  a  capacity  of  75  to.  80 
million  tons  a  year.  It's  pretty  obvious  that  6 
million  tons  or  so  of  steel  a  year  could  never  be  a 
l>ase  for  a  major  German  war  effort — particularly 
with  careful  controls  over  the  types  of  steel  ])rod- 
ucts  which  Germany  will  be  permitted  to 
manufacture. 

Hilldring  :  So  the  British  and  the  Eussians — 
and  the  French — agreed  on  a  formula  completely 
in  accord  with  our  policy.  But  this  is  only  one 
example  of  the  way  the  Allied  Control  Council 
has  operated.  It  has  a  long  list  of  impressive 
achievements.  The  reestablishment  of  trade  un- 
ions, judicial  reorganization,  the  de-Nazificatioii 
program,  and  many  others  could  be  mentioned. 
Of  course  I  do  not  mean  to  make  light  of  the 
difficulties  inherent  in  four-power  occupation,  nor 
to  assert  that  there  are  no  unresolved  problems 
remaining  for  continued  discussion.  What  I  want 
to  emphasize  is  that  in  the  Control  Council  we  have 
a  machine  already  in  operation  where  the  four 
powers  can  and  must  and  do  reconcile  the  most 
divergent  ideas  in  an  intelligent  and  friendly 
spirit. 

Fisher  :  Now,  several  writers  have  alleged  that 
under  the  four-power  system  the  British  and  Rus- 
sian zones  are  rapidly  becoming  armed  camps,  di- 
rected at  each  other,  while  we  sit  up  in  the  hills  of 
Bavaria  looking  on.  Mr.  Petersen,  what  about 
that  ? 

Petersen  :  I  don't  believe  that.  Take  the  recur- 
rent story  that  the  British  have  not  disarmed  the 


MAY  26.  1946 


911 


German  armies  they  captured  in  northwest  Ger- 
many. That's  simply  not  so.  It's  based  on  the 
fact  that  some  former  German  Army  units  have 
been  disarmed  but  kept  intact  as  work  forces,  like 
prisoners  of  war,  to  serve  under  the  Military  Gov- 
ernment in  the  British  zone.  We  don't  follow  that 
practice  in  our  zone,  but  it's  a  very  different  thing 
from  an  armed  German  force. 

Fisher:  I  have  talked  to  some  people  who  be- 
lieve that  we  may  be  on  the  wrong  track  when  we 
woi'ry  so  nuich  about  disarming  Gerauiny.  They 
believe  German  strategy  now  is  to  play  the  major 
powers  against  each  other. 

Petersen:  I  don't  doubt  that  some  Germans 
would  like  to  do  just  that.  They  want  to  end  the 
occu[)ation,  and  probably  figure  that  encouraging 
Allied  differences  may  be  their  best  strategy  for  ac- 
complishing that.  But  I  don't  think  there  is  any 
organized  effort  along  those  lines. 

FisHEK :  General  Hilldring.  what  do  you  think 
of  the  suggestion  that  we  work  toward  applying 
the  American  policy  of  political  decentralization 
to  all  of  Germany  i 

HiLLDBiNG :  This  Government  is  connnitted  to 
destroy  the  concentrated  power  of  Prussia  in  Ger- 
many. In  the  U.  S.  zone  we  have  made  very  rapid 
strides  in  developing  local  responsibility  in  the 
Lander,  or  states,  in  permitting  free  elections  of 
local  officials,  and  in  encouraging  the  formation 
of  decentralized  political  agencies  in  numerous 
ways.  The  peace  and  prosperity  of  all  of  Europe 
rest  in  large  part  on  solving  the  historic  problem 
of  the  rule  of  Prussia,  and  we  have  encouraged 
and  will  continue  to  encourage  the  gi-eatest  au- 
tonomy in  municipal,  county,  and  pi'ovincial 
administration.  It  is  our  purpose  to  urge  our 
partners  to  do  the  same. 

Fisher:  The  commonest  criticism  is  that  we 
have  been  too  easy  on  the  Germans,  or  on  the  Nazis. 
As  Assistant  Secretary  of  State,  General  Hilldring, 
do  you  think  we  have  been  tough  enough  in  the 
actual  application  of  our  policy? 

Hilldring:  I  have  wanted  for  a  long  time  to  say 
something  about  whether  our  policy  in  Germany 
was  too  tough  or  too  soft.  I  think  softness  and 
toughness  are  completely  irrelevant  considerations 
in  the  determination  of  the  policy  we  follow  or 
don't  follow  in  Germany.  I  think  that  to  weigh 
our  policy  by  its  toughness  or  its  softness  is  just 


about  as  sensible  as  to  debate  whether  Texas  is  too 
big  or  too  small.  It  has  nothing  whatever  to  do 
with  the  problem.  Here's  the  real  question  :  Does 
the  policy  we  follow  in  Germany  serve  the  ends 
we  hope  to  achieve  in  Germany — namely,  to  de- 
militarize and  democratize  the  country?  That 
question  I  can  answer.     The  answer  is  yes. 

Fisher:  Can  you  give  us  an  over-all  picture, 
Mr.  Petersen,  of  how  our  Military  Government  is 
getting  rid  of  Gernumj^'s  war  potential? 

Petersen  :  The  basic  policy  was  laid  down  at 
Potsdam.  The  Military  Government  authorities 
of  course  worked  through  the  Control  Council,  as 
in  the  case  of  steel.  The  first  step  was  to  eliminate 
all  war  industries — ammunition,  planes  and  so  on. 
Then  the  question  was,  how  nuich  of  what  was  left 
should  be  kept  in  order  to  permit  a  German  level 
of  living  no  higher  than  the  average  of  the  other 
European  countries,  as  provided  in  Potsdam? 
Once  that  question  was  answered,  everything  over 
and  abt)ve  that  level  was  available  for  reparations. 
Fisher:  General  Hilldring,  you  mentioned  ex- 
ports of  steel.  Isn't  there  a  danger  that  in  rebuild- 
ing their  foreign  trade  the  Germans  may  reestab- 
lish ties  with  foreign  cartels  that  will  be  useful 
to  them  if  another  war  comes? 

Hilldring  :  I  don't  think  so.  We  shall  control 
Germany's  export  trade  completely.  We  won't 
give  them  a  chance  to  build  their  fences  for  an- 
other war.  Our  policy  is  four-square  against  any 
revival  of  the  German  cartel  system. 

Fisher:  Mr.  Petersen,  what  about  the  charge 
that  our  Military  Government  authorities  have 
played  ball  with  some  of  the  cartel  interests  in  the 
Amei'ican  zone  ? 

Petersen  :  That's  absolutely  false.  Our  policy 
is  to  destroy  cartels,  and  that  we  are  proceeding  to 
do.  Some  correspondents  have  seen  factories  of 
these  cartels  still  in  operation,  but  this  doesn't 
mean  they  are  not  under  strict  control.  In  the 
case  of  the  largest  German  cartel,  I.  G.  Farben, 
only  15  percent  of  its  activities  are  in  the  Ameri- 
can zone,  but  we  have  removed  the  Farben  man- 
agement from  these  plants.  We  have  destroyed 
four  or  five  of  the  Farben  munitions  plants.  We 
have  kept  those  which  are  needed  in  the  German 
economy — but  not  as  a  part  of  a  cartel  structure. 
One  is  a  pharmaceutical  plant— the  biggest  as- 
pirin factory  in  the  world.  Others  are  nitrate 
plants,  which  are  needed  for  making  fertilizer. 


912 


DEPARTMENT  OF  STATE  BULLETIN 


These  plants  are  still  ruiuiiiiji.  but  uiitler  our  close 
supervision.  And  I  might  add,  the  Control 
Council  has  agreed  upon  a  law  wiping  out  the 
Farben  cartel  in  all  four  zones. 

Fisher  :  There  have  been  some  stories  out  of 
Germany  claiming  that  in  recent  months  the  Nazis 
are  ctiniing  back  into  jiositions  of  impoi'tance. 
General  Hilldring.  what  about  that  ? 

HiLi.DRiNG :  There  may  be  a  few  individual 
cases  which  haven't  yet  been  dealt  with.  But  I'd 
like  to  point  out  that  we  have  thrown  over  300,000 
Nazis  out  of  positions  oi  importance,  in  the  govern- 
ment, industry,  the  press,  and  education,  in  the 
American  zone  alone.  De-Nazification  has  been 
more  vigorously  cai'ried  out  in  tlie  American  zone 
than  in  the  other  zones. 

Fisiier:  General  Hilldring.  one  American  cor- 
respondent said  recently  that  there  is  no  master  file 
of  Nazis  and  Nazi  sympathizers  in  Gennany.  Is 
that  true? 

Hilldring:  It  was  true  at  one  time.  But  we 
now  have  a  master  file.  We  had  to  piece  it  to- 
gether from  90  tons  of  wreckage  we  found  at 
Marburg.  The  files  were  in  a  complete  mess,  and 
it  took  time  to  reassemble  them.  But  we  have  had 
a  master  file  for  nearly  three  months  now.  We 
have  used  it  in  two  ways.  We  presented  a  list  of 
American  Nazis  to  the  Kilgore  committee,  and  we 
have  ))een  employing  the  tile  in  tlie  de-Nazification 
program. 

Fisher:  And  what's  the  next  step  in  that  pro- 
gi-am  ? 

Hilldring:  To  turn  over  as  much  of  this  work 
as  we  can  to  trustworthy  Germans.  Our  business 
is  to  cleanse  the  German  mind — 1'>  democratize 
Gernuiny.  Now,  we  can't  spoon-feed  the  German 
people  indefinitely.  So  local  boards  are  being  set 
up  to  finish  the  job  of  de-Nazification  under  our 
strict  supervision. 

Fisher:  But  do  you  think  they  will  really  do 
the  job? 

Hilldring:  I  think  the  prospects  are  pretty 
good,  especially  since  we  shall  oversee  the  process, 
call  the  tune,  and  watch  every  move. 

Petersen  :  I  think  it  would  be  a  good  idea.  Gen- 
ei"al,  for  you  to  tell  how  the  final  delousing  will 
operate. 

Hilldring:  General   Clav    directed   the   three 


provincial  Minister  Presidents  in  the  American 
Z')ne  to  work  out  a  de-Nazification  law.  They 
did — and  General  Clay  told  me  that  the  provisions 
of  the  law  they  produced  were  even  tougher  than 
those  Military  Government  had  in  mind.  The 
Germans  also  devised  a  questionnaire  which  every 
adult  German  in  our  zone  must  fill  out  and  sign. 
These  will  be  checked  against  our  files  of  Nazis  and 
pro-Nazis.  On  the  basis  of  this  information,  the 
Iccal  boards  will  finish  cleaning  house,  under  our 
supervision. 

Fisher  :  Let's  hope  they  will  really  catch  the 
hidden  Nazis.  Of  course,  Mr.  Petersen,  the  con- 
spiracy that  was  recently  uncovered  among  Nazi 
youth  was  not  very  encouraging. 

Petersen  :  That  was  a  very  limited  movement. 
To  be  perfectly  frank,  Mr.  Fisher,  it's  still  too 
early  to  expect  much  underground  activity.  Most 
of  the  Germans  are  still  too  busy  with  the  daily 
problems  of  living  in  their  devastated  country. 
Problems  of  food,  fuel,  and  shelter  come  first. 
But  we  are  not  oveidooking  the  possibility  of  at- 
tempts of  this  kind  in  the  future. 

Fisher  :  That's  a  fair  warning.  But  General 
Hilldring,  if  this  is  true  wouldn't  it  be  pretty  risky 
to  withdraw  our  troops  and  depend  on  a  system 
of  inspection  to  keep  the  Germans  in  line,  as  Sec- 
retary Byrnes  is  said  to  have  pi'oposed  in  Paris? 

Hilldring:  The  Secretary's  proposal  was  for 
a  '2,5-year  military  alliance  to  guarantee  German 
disarmament.  It  did  not  call  for  the  withdrawal 
of  our  f(U'ces.  But  we  have  got  to  face  the  fact 
that  we  can't  stay  in  Germany  forever. 

Fisher:  Meanwhile,  General,  what  is  being 
done  to  reeducate  the  Germans? 

Hilldring:  We're  concentrating  on  reeduca- 
tion now.  I  think  we  can  say  the  schools  have  been 
completely  screened  and  all  pro-Nazi  teachers 
thrown  out.  The  worst  of  the  Nazi  text  books 
liave  been  eliminated. 

Fisher:  Mr.  Petersen,  how  do  you  account  for 
the  stubborn  Nazi  tendencies  among  German 
youth  ? 

Petersen  :  What  can  you  expect  in  a  year,  Mr. 
Fisher?  Let's  not  be  too  naive  or  too  optimistic 
about  this.  After  all.  Hitler  was  supreme  dicta- 
tor for  12  years.  That  means  a  German  youth 
who  graduated  from  the  equivalent  of  high  school 
last  year  spent  his  entire  student  life  in  Hitler 
schools,  from  the  day  he  entered  the  first  grade. 


MAY  26,  1946 


913 


There's  no  mapic  wand  that  can  purge  German 
youth  of  Nazi  ideas  in  one  year. 

HiLLDRiNG :  Especially  since  our  Military  Gov- 
ernment had  to  spend  a  good  part  of  that  first 
year  de-Nazifying  the  Germans,  destroying  mili- 
tary installations,  taking  custody  of  Nazi  pro])- 
erty,  restoring  loot,  re]3atriating  displaced  per- 
sons, and  starting  a  reparations  ])rogram.  AVe're 
just  entering  the  period  when  we  can  spend  a 
major  part  of  our  energy  on  reeducation. 

Fisher:  Now,  General  Hilldring,  about  the 
elections  held  last  month  in  the  American  zone  in 
Germany — 

Hii.LDKiNG  :  They  were  more  than  anything  else 
a  ]iart  of  our  training  jn'Ogram  fen-  democracy. 
Pktersen:  The  Christian  Social  Union  won  the 
election.  It  is  really  a  party  of  the  center,  by  our 
standards.  The  Communists  got  only  about  5 
percent  of  the  vote. 

Fisher  :  There  have  been  some  reports  that  this 
Christian  Social  Union  has  furnished  a  haven  for 
Nazis  and  Nazi  sympathizers — such  men  as  Dr. 
Friederich  Schaeft'er,  who  was  fired  from  a  key 
position  in  the  Bavarian  Government  when  his 
Nazi  connections  were  exposed. 

Petersen  :  He  has  also  been  barred  from  leader- 
ship in  the  Christian  Social  Union.  All  Nazis  are 
l)rohibited  from  political  activity. 

Fisher:  Mr.  F'etersen.  one  of  the  most  disturb- 
ing reports  to  come  out  of  Germany  recently  was 
about  conditions  in  the  camps  where  D.  P.'s — dis- 
placed persons — are  kept. 

Petersen  :  These  people  are  a  matter  of  grave 
concern  to  us.  There  were  a  number  of  criticisms 
about  conditions  in  the  camps  shortly  after  V-E 
Day,  when  the  Ai'my  was  in  the  midst  of  the  tre- 
mendous job  of  maintaining  and  repatriating 
about  three  million  displaced  persons.  I  haven't 
heard  such  criticism  recently.  Conditions  in  the 
Jewish  camps  were  investigated  not  long  ago  by 
Judge  Simon  Rifkind,  General  McNarney's  ad- 
viser on  Jewish  affairs. 
Fisher  :  'What  did  he  have  to  say  ? 
Petersen  :  His  report  was  very  favorable.  He 
said  that  Jewish  displaced  persons  were  allowed 
broad  freedom  of  movement  and  their  camps  were 
more  like  communities  than  concentration  camps. 
He  si^oke  of  ''the  Army's  warm-heartedness  in 
dealing  with  all  displaced  persons". 

Fisher  :  Mr.  Petersen,  I'd  like  to  ask  you  about 


the  rather  alarming  i-eports  concerning  the  morale 
of  our  occupation  forces. 

Petersen:  There's  been  a  good  deal  of  exag- 
geration in  these  stories  of  low  morale.  We've 
had  our  troubles,  of  course — mainly  because  of 
the  tremendous  turnover  of  personnel.  'We've  had 
to  demobilize  so  rapidly  that  a  certain  amount  of 
confusion  was  inevitable.  We  had  green  men,  new 
units  with  new  officers,  men  who  hadn't  been 
welded  together  in  combat.  They  haven't  been 
together  long  enough  to  develop  any  pride  in  their 
units. 

Fisher:  Couldn't  they  have  been  indoctrinated 
a  little  better,  so  they  would  understand  the  im- 
portance of  their  assignment  ? 

Petersen:  With  the  rapid  demobilization  and 
the  hurried  need  for  replacements,  we  haven't  had 
nuich  time  for  indoctrination,  but  we  are  work- 
ing on  it.  General  McNarney  has  an  excellent, 
orientation  program  under  way.  Conditions 
should  improve  from  here  on  in.  General  Eisen- 
hower, speaking  of  conditions  in  the  Pacific, 
recently  said  that  the  morale  and  efficiency  of 
the  Army  has  passed  the  low  point  and  is  definitely 
on  the  upswing.  I  think  that  is  true  of  Ger- 
many, too. 

Fisher  :  I'd  like  to  ask  you  to  tell  us  a  little 
about  your  occupied-area  office  in  the  State 
Department. 

Hilldring  :  For  the  first  time  a  single  office  has 
been  charged  by  the  Secretary  of  State  with  co- 
ordinating all  State  Department  policy  for  occu- 
pied enemy  territories — not  only  Germany  but 
Austria,  Japan,  and  Korea  as  well.  Our  purpose 
is  to  establish  clearly  the  leadership  of  the  State 
Department  in  policy  making. 

Fisher:  General  Hilldring,  has  this  new  ar- 
rangement given  rise  to  any  reorganization  in  the 
State  Department  ? 

Hilldring  :  No  fundamental  changes.  It's  main- 
ly a  matter  of  coordinating  the  activities  of  each 
division  that  deals  with  occupied  territories.  The 
work  of  the  State  Department's  political,  eco- 
nomic, and  information  branches  has  to  be  coordi- 
nated. With  coordination  at  the  top,  you  get 
policy  and  you  get  it  on  time. 

Fisher:  Then,  Mr.  Petersen,  j-our  representa- 
tives are  charged  with  executing  or  administering 
State  Department  policy. 

Petersen  :  That's  right.    A  policy  decision  goes 


914 


DEPARTMENT  OF  STATE  BULLETIN 


first  to  "SWNCC".  tlie  State-War-Navy  Coordi- 
iiaUng  Committee,  on  wliicli  I  am  the  War  De- 
partment member  and  General  Hilldring  repre- 
sents the  State  Department  as  chairman.  From 
tliere  the  policy  is  passed  on — in  the  case  of  Ger- 
many—to "OMGUS"  for  execution. 

Fisher  :  YouVe  overwhelming  us  with  initials, 
Mr.  Petersen.    'Wliat  is  "OMGUS"? 

Petersen  :  "Office  of  Military  Government,  U.S. 
Zone".  There  are  about  5,000  Military  Govern- 
ment personnel  in  the  American  zone  under  Gen- 
eral Clay.  The  War  Department  has  tried  to  get 
State  to  take  responsibility  for  these  forces.  At 
one  time  a  date  was  even  set  for  the  transfer — 
June  1.  We  felt  that  a  single  agency  should  handle 
both  policy  and  administration  of  Military  Gov- 
ernment. 

HiLLDRiNG :  I  had  long  urged  State  Department 
responsibility  for  Military  Government,  as  a  sol- 
dier and  an  individual. 

Fisher:  Why  then.  General  Hilldring,  hasn't 
the  State  Department  taken  over  the  whole  works? 

Hilldking:  The  Department  didn't  feel  able  to 
take  on  an  additional  job  of  such  magnitude.  So 
the  AVar  Department  will  continue  to  administer 
Military  Government  in  Germany. 

Fisher:  But,  General,  what  about  the  decision 
to  introduce  civilian  control  of  Military  Govern- 
ment ? 

Hilldring  :  The  War  and  State  Departments 
are  agreed  on  eventual  civilianization.  This 
means  that  a  civilian  administrator  in  Berlin  will 
report  to  a  civilian  agency  in  Washington.  Of 
course,  in  the  meantime  the  replacement  of  Mili- 
tary Government  oificers  by  civilians  is  also  going 
on  rapidly. 

Petersen  :  As  a  matter  of  fact,  by  June  30  two 
thirds  of  our  Military  Government  personnel  will 
be  civilians. 

Hilldring:  But  some  military  personnel  will 
stay  on,  of  course.  There  are  some  things  they  can 
do  best — such  as  looking  after  public  safety  and 
civilian  supplies.  One  thing  I'd  like  to  make 
clear  is.  Military  Government  is  quite  separate 
and  distinct  from  the  occupation  forces.  General 
McNarney  heads  both  the  occupation  forces  and 
the  Military  Government  of  Germany. 

Fisher  :  Mr.  Petersen,  how  large  are  the  occupa- 
tion forces  today  ? 

Petersen  :  I  don't  know  about  today,  Mr.  Fisher, 
but  a  week  or  two  ago  our  forces  in  Europe  to- 
taled about  400.000. 


Fisher:  Mostly  in  Germany,  I  suppose. 

Petersen  :  Well,  there  are  about  ()0,000  Ameri- 
can troops  in  Italy  and  Austria,  and  nearly  all  the 
rest  are  in  Germany — about  340,000.  We  will 
bring  this  figure  down  to  300,000  by  next  June  30. 
and  we  expect  to  make  further  reductions  during 
the  year  following. 

Fisher:  Those  seem  to  me  very  modest  figures 
considering  the  policing  job  they  have  to  do. 

Petersen  :  Of  course  they  are.  We  could  do  a 
better  job  in  almost  all  fields  if  we  had  more  man- 
power. That  is  why  we  are  so  terribly  concerned 
about  the  recent  sham  extension  of  the  draft.  I 
say  "sham"  because  it  forbids  us  to  induct  the  only 
substantial  group  that  is  available,  the  18  and  19 
year  olds.  We  fear  we  will  not  be  able  to  meet  even 
our  minimum  requirements  in  Germany. 

Hilldring:  Our  job  is  to  make  sure  that  Ger- 
many will  never  again  be  a  threat  to  the  peace  of 
the  world.    We've  got  to  have  manpower  to  do  that. 

Hilldring  :  We  might  as  well  face  it :  This  is  not 
a  job  we  can  do  in  one  year,  or  two,  or  five.  It 
may  take  a  generation.  The  American  public  must 
api^roach  this  task  with  understanding,  patience, 
and  vip-or. 


ACHESON— Co?i((nMed/TO?n  page  894. 

It  is  our  earnest  desire  and  the  goal  of  Secretary 
Byrnes'  unremitting  eiiorts  to  establish  peace  in 
Europe  so  that  many  countries  may  be  freed  of 
occupation  forces  and  their  people  enabled  to  di- 
rect their  eiiorts  more  completely  toward  the  in- 
crease of  vitally  needed  supplies.  General  Mar- 
shall is  striving  day  and  night  toward  the  same 
goal  of  peace  in  China.  Armies  can  give  no  assur- 
ance of  security  if  the  chill  of  starvation  overtakes 
continents  and  reduces  the  populations  to  the  level 
of  the  Dark  Ages. 

Of  course  survival  is  not  enough.  We  want  to 
work  in  and  through  the  United  Nations  toward  a 
better  and  fuller  life  for  all  men  everywhere,  but 
we  cannot  blind  ourselves  to  the  appalling  condi- 
tions which  make  life  itself  precarious  and  doubt- 
ful today  for  hundreds  of  millions  of  people 
throughout  the  world.  Our  first  objective,  our 
greatest  concern,  is  to  use  our  great  jiower  and 
resources  so  that  men  and  civilization  will  survive, 
and  so  that  once  again  we  can  begin  to  build  the 
kind  of  world  in  which  man's  talents  will  have  free 
])lay  and  his  hopes  a  chance  of  realization. 


MAY  26,  1946 


915 


Policy  on  Japanese  Internal 
Political  Activities 

[Releaseil  to  the  press  May  17] 

In  answer  to  inquiries  on  May  17  at  his  news 
conference,  Actin<j  Secretary  Acheson  authorized 
publication  of  the  remarks  of  Mr.  George  Atche- 
son,  deputized  by  General  MacArthur  as  Ameri- 
can Representative  and  Chairman  of  the  Allied 
Council  for  Japan  at  its  meeting  of  May  16 : 

"Supreme  Commander  for  the  Allied  Powers  is 
constantly  in  receipt  of  petitions  from  Japanese 
individuals  or  groups  of  individuals.  This  peti- 
tion is  one  of  a  hundred  of  various  kinds  recently 
received.^  It  is  without  signature  and  we  cannot 
say  definitely  from  exactly  whom  it  emanated  ex- 
cejit  that,  we  understand,  it  was  presented  by  a 
group  during  the  course  of  the  various  parades  and 
mass  gatherings  on  May  1st.  According  to  our 
information,  the  allegations  in  the  document  are 
not  based  on  fact.  Such  allegations  or  complaints 
are  of  course  made  the  subject  of  investigation.  I 
repeat  again  that  if  any  member  of  the  Council 
has  any  concrete  and  definitive  information  bear- 
ing on  these  allegations,  the  Supreme  Commander 
would  wish  to  have  it  without  delay. 

According  to  the  translators,  the  document  is 
not  written  in  idiomatic  Japanese  but  rather  gives 
the  clear  impression  that  the  original  had  been 
drawn  up  in  a  foreign  language  and  then  trans- 
lated into  Japanese  for  presentation.  It  seems 
to  me  to  be  a  document  which  is  essentially  con- 
cerned with  internal  politics  in  Japan.  It  has 
been  the  firm  policy  of  the  Supreme  Commander 
not  to  interfere  with  internal  political  activities 
except  in  cases  of  extreme  necessity.  The  attitude 
of  the  Supreme  Commander  toward  the  activities 
of  various  political  groups  in  Japan  has  rightly 
been  one  of  great  generosity  in  permitting  every 
IJossible  freedom  of  expression  and  action.  By 
directive,  political  prisoners  have  been  released 
from  prisons  in  which  some  of  them  have  been 
incarcerated  for  manj'  years.  These  prisoners 
have  included  avowed  leaders  and  members  of  the 
Connnunist  Party.  I  do  not  need  to  tell  you  that 
the  United  States  does  not  favor  Communism  in 
the  United  States  or  Japan.  But  it  has  been  our 
firm  belief  that,  in  accoixlance  with  provisions  of 
the  Potsdam  Declaration,  Japanese  people  should 
be  as  free  as  people  of  the  United  States  to  develop 


their  political  activities.  Communist  Party  is  not 
suppressed  in  the  United  States  and  has  been  al- 
lowed in  Japan  the  same  rights  as  other  political 
parties  and  members  of  Connnunist  Party  have 
been  elected  to  the  Diet.  The  document  which 
we  have  under  consideration  contains  the  sign 
marks  of  C/ommunistic  propaganda. 

We  are  met  here  for  friendly  and  frank  discus- 
sions of  matters  brought  before  us.  And  while 
I  wish  to  offer  my  opinion  in  the  friendliest  way 
I  feel  that  it  is  an  obligation  upon  me  also  to  be 
frank.  It  is  my  frank  opinion  that  the  efforts  of 
the  members  of  this  Council  should  be  toward  the 
democratization  of  Japan  and  that  it  is  not  con- 
sistent with  our  clear  duty  in  that  respect  for 
any  member  of  the  Council  to  give  support  in 
public  meetings  of  the  Council  or  otherwise  to  any 
one  Japanese  political  party.  There  is  one  fur- 
ther remark  I  would  like  to  make  in  regard  to  the 
document.  It  seems  to  me  patent  that  it  consti- 
tutes essentially  an  attack  upon  the  present  Japa- 
nese Government.  As  that  Government  resigned 
some  time  ago  and  is  carrying  on  only  pending  a 
formation  of  a  new  government,  the  attack  seems 
pointless  and  the  document  accordingly  merely 
seems  to  be  an  attempt  to  spread  Conununistic 
propaganda." 

Mr.  Acheson  stated  that  the  Department  con- 
curred in  the  remarks  of  Mr.  Atcheson. 


Snmmations  of  Activities  in 
Japan  and  Korea 

Sunuuations  No.  0  for  the  Month  of  March 
194(1  of  Non-Military  Activities  in  Japan  and  of 
United  States  Army  Military  Government  Activ- 
ities in  Korea  consisting  of  information  on  polit- 
ical, economic,  and  social  activities  were  released 
to  the  press  by  General  Headquarters,  Supreme 
Connnander  of  the  Allied  Powers,  and  by  the  Com- 
mander in  Chief,  United  States  Army  Forces, 
Pacific,  respectively,  and  on  May  i  by  the  War 
Department  in  Washington. 

Excerpts  from  Summation  No.  5  for  the  Month 
of  February  were  printed  in  the  Bulletin  of  May 
5  and  May  1^.  .  The  Bulletin  plans  from  time  to 
time  to  carry  excerpts  from  the  summations. 

'The  clofument  referred  to  was  one  drawn  up  at  a  May 
Day  iiia.ss  meeting  held  In  Tokyo. 


976 


DEPARTMENT  OF  STATE  BVLLETiy 


Lend-Lease  and  Surplus  Property  Settlement  With  India 


[Released  to  the  press  May  16] 

Representatives  of  the  Govenuuent  of  the 
ITiiited  States  and  the  Government  of  India  signed 
on  May  Hi  an  a<rieenient  representing  an  over-all 
settlement  of  lend-lease,  reciprocal  aid,  and  sur- 
plus prcjperty  questions  between  the  two  coun- 
tries.' The  agreement  was  signed  on  behalf  of 
the  Government  of  the  United  States  by  Acting 
Secretary  Acheson,  and  on  behalf  of  the  Govern- 
ment of  India  by  A.  A.  Waugh.  Member  for  Indus- 
tries and  Supplies  in  the  Viceroy's  Executive 
Council. 

Discussions  between  the  Department  of  State 
oflicials  and  the  Government  of  India  lend-lease 
delegation  have  been  in  progress  in  Washington 
since  the  first  week  of  April. 

The  agreement  with  India  is  a  comprehensive 
and  final  settlement  for  lend-lease,  reciprocal  aid, 
and  surjjlus  war  property  located  in  India,  and  for 
the  financial  claims  of  each  government  against 
the  other  arising  as  a  result  of  World  War  11. 
India  served  as  a  supply  base  for  the  Southeast 
Asia  Command  during  the  war  and,  while  a  great 
volume  of  lend-lease  supplies  were  shipped  to 
India,  the  larger  part  was  for  the  use  of  the  Brit- 
ish Government  in  India  and  Southeast  Asia. 
India  supplied  reciprocal  aid  liberally  to  the 
United  States,  both  in  the  form  of  supplies  and 
services  to  United  States  armed  forces  in  India, 
and  in  raw  materials  shipped  to  the  United  States 
for  war  production.  In  view  of  the  approximately 
equal  benefits  received  by  the  United  States  and 
India  from  this  interchange  of  mutual  aid,  which 
aggregated  over  a  billion  dollars  in  value,  it  was 
agreed  that  no  dollar  payments  would  be  required 
in  the  settlement  between  the  two  Governments 
and  all  obligations  arising  out  of  lend-lease  and 
reverse  lend-lease  were  balanced  against  each  other 
and  canceled,  excejit  for  the  pre-exi.sting  agree- 
ment under  which  India  will  return  to  the  United 
States  the  silver  received  during  the  war. 

Under  the  agreement  the  United  States  receives 

'  Not  printPfl.  For  text  of  agreement,  see  Department 
of  State  press  release  3:U  of  Ma.v  16,  19-16. 


full  title  to  all  unconsumed  articles  received  from 
India  during  the  war  under  reverse  lend-lease. 
India  agrees  to  cancel  the  outstanding  obligation 
of  the  United  States  to  pay  about  4.5  million  dol- 
lars in  (-ash  for  supplies  delivered  to  the  United 
States  armed  forces  in  India  after  V-J  Day.  The 
agreement  further  provides  that  India  receives 
full  title  to  all  articles  in  the  civilian  lend-lease 
inventory  as  of  V-J  Day  and  to  a  relatively  small 
quantity  of  articles  which  were  in  the  lend-lease 
"pipeline"  for  delivery  after  V-J  Day.  The  ar- 
ticles in  the  Indian  military  lend-lease  inventory, 
which  were  acquired  by  the  Indian  forces  when 
serving  with  the  British  Army  and  other  articles 
delivered  to  the  Indian  Army  by  the  British  forces 
in  India  are  retained  by  India  subject  to  a  right 
of  recapture  by  the  United  States.  The  United 
States,  however,  has  stated  that  it  does  not  intend 
to  exercise  generally  such  right  of  recapture. 

The  agreement  replaces  previous  understand- 
ings relative  to  the  disposal  of  United  States  Army 
and  Navy  surpluses  in  India.  Title  to  all  unsold 
United  States  surpluses  passes  to  India,  and 
India  agrees  to  dispose  of  them  on  an  equal  basis 
with  war  surpluses  of  Indian  and  United  King- 
dom origin. 

As  part  of  the  over-all  settlement  the  United 
States  will  receive  one  half  of  all  proceeds  in 
excess  of  50  million  dollars  realized  from  such 
disposals.  The  United  States  share  of  such  pro- 
ceeds will  be  available  for  the  acquisition  of  real 
estate  and  buildings  for  United  States  Govern- 
ment agencies  in  India  and  for  cultural  and  edu- 
cational purposes  of  mutual  benefit  to  the  United 
States  and  India.  In  the  disposal  of  United  States 
surpluses  by  the  Government  of  India,  United 
States  veterans,  government  agencies,  businesses, 
and  UNRRA  will  be  accorded  the  same  priorities 
as  are  accorded  to  other  buyers  in  India  of  like 
character. 

The  bulk  disposal  of  United  States  surpluses  to 

India  has  greatly  speeded  the  final  evacuation  of 

United  States  troops  from  India.     It  will  also 

result  in  very  substantial  savings  to  the  United 

(Continued  on  next  page) 


MAY  26,  194<> 


917 


Reply  to  View  of  Arab  Countries  on  Anglo-American 
Committee  of  Inquiry  Report 


[Relcaspil  to  the  press  J[:i.v  17] 

Tlie  Depiutnient  of  State  on  May  IT  trans- 
mitted identical  notes  to  the  Chiefs  of  ^Mission 
in  Washington  of  the  Governments  of  Egypt, 
Ii'uq.  Lebanon,  Saudi  Arabia,  and  Syria  in  reply 
to  their  notes  of  May  10,  1946,  setting  forth  the 
views  of  the  Arab  countries  with  regard  to  the 
report  of  the  Anglo-American  Committee  of 
Inquiry  on  Palestine  which  were  handed  to  the 
Acting  Secretary  of  State  on  that  date.  The  text 
of  the  Department's  reply  follows : 

3Ia!/  17, 19JtG. 

Sir: 

I  have  the  honor  to  acknowledge  the  receipt  of 
your  note  of  May  10.  1946  with  which  you  trans- 
mitted a  memorandum  regarding  the  question  of 
Palestine,  with  particular  reference  to  the  report 
of  the  Anglo-American  Committee  of  Inquiry. 


The  views  of  your  Government  relative  to  tliis 
matter  as  set  forth  in  the  memorandum  in  question 
have  been  carefully  noted  by  the  appropriate 
officials  of  the  Government  of  the  United  States. 
As  you  are  aware,  the  report  of  the  Anglo-Ameri- 
can Committee  of  Inquiry  is  now  being  examined 
by  the  Governments  of  the  United  States  and 
Great  Britain  which  have  been  in  communication 
with  each  other  in  this  regard.  I  wish  to  take 
this  opportunity  to  renew  to  you  the  assurances 
which  I  expressed  to  you  during  our  conversation 
on  May  10  when  you  handed  me  youi-  note,  and 
when  I  stated  that  it  was  the  intention  of  the 
Government  of  the  United  States  to  consult  with 
Arabs  and  Jews  before  taking  any  definite  deci- 
sion relative  to  the  Committee's  report. 

Accept  [etc.] 

Dean  Acheson 
Acting  Secretary  of  State 


Diplomatic  and  Commercial  Agreement  with  the  Yemen 


[Released  to  the  press  May  14] 

The  Government  of  the  United  States  and  the 
Kingdom  of  the  Yemen  concluded  at  San'a  on  May 
4,  1946  a  provisional  agreement  covering  diplo- 
matic and  consular  representation,  juridical  pro- 
tection, and  commerce  and  navigation,  following 
the  recent  recognition  of  the  independence  of  the 
Yemen  by  this  Government. 

The  agreement,  effected  through  an  exchange 
of  notes,  provides  that  subjects  of  His  Majesty 
the  King  of  the  Yemen  and  nationals  of  the 
United  States  are  to  be  treated  in  accordance  with 
the  requirements  and  practices  of  international 
law  and  are  to  enjoy  most-favored-nation  treat- 
ment in  respect  of  their  persons  and  property. 
Both  parties  agree  to  the  most-favored-nation 
principle  in  its  unconditional  and  unlimited  form 
as  the  basis  of  their  commercial  relations.  Provi- 
sion is  also  made  for  exchange  of  diplomatic  rep- 
resentatives and  consular  officers  at  some  future 
time.  The  agreement  became  effective  May  4,  1946 
and  is  to  remain  in  force  indefinitely,  subject  to 


termination  on  30  days'  notice,  or  until  superseded 
by  a  more  comprehensive  commercial  agreement. 
The  Yemen  already  has  treaty  relations  with  a 
number  of  other  countries,  including  Belgium, 
Egypt,  Ethiopia,  France,  Great  Britain,  Iraq,  the 
Netherlands,  Saudi  Arabia,  and  the  Union  of 
Soviet  Socialist  Republics. 


LEND-LEASE— ('"'"'"'"'''  from  ihujc  9 Id. 

States  by  elimination  of  the  operating  costs  of  the 
United  States  Army  in  India  at  least  a  year  earlier 
than  would  have  been  the  case  if  the  United  States 
had  handled  the  actual  sales  itself. 

This  settlement  is  especially  significant  because 
it  is  the  first  formal  agreement  between  India  and 
the  United  States,  and  its  harmonious  completion 
is  an  auspicious  opening  for  relations  between  the 
United  States  and  an  India  now  on  the  verge  of 
independence.  The  successful  conclusion  of  these 
negotiations  augurs  well  for  the  future  of  rela- 
tions between  the  United  States  and  India. 


918 


DEPARTMENT  OF  STATE  BULLETIN 


Training  Announcements 

Orientation  Conferences 

M^ednesday  eleven  O'cloch  series 

Professor  Owen  Lattiiuore.  Director, 
Walter  Hines  Page  School  of  Interna- 
tional Studies,  Johns  Hopkins  Univei'sity, 
and  noted  authority  on  China,  will  dis- 
cuss "Our  Problems  in  the  Far  East"  at 
11  a.m.,  Wednesday,  June  5.  Dr.  Latti- 
more  is  the  author  of  Solution  in  Asia; 
he  was  adviser  on  Fur  Eastern  affairs  to 
OWI;  and  he  served  as  President  Roose- 
velt's s])ecial  representative  to  General- 
issimo Chiang  Kai-shek, 

Departmental  series 

Mi-s.  Ruth  B,  Shipley,  Chief  of  the 
Passport  Division,  will  speak  on  "The 
AVork  and  Problems  of  the  Passport  Divi- 
sion" at  10  a,m,.  Wednesday,  June  5, 

Foreign.  Sendee  training  series 

Dr.  William  P,  Maddox,  associate  pro- 
fessor of  political  science,  Princeton  Uni- 
versity, now  on  leave  with  the  War  De- 
partment with  the  rank  of  Colonel  in  the 
Office  of  the  Assistant  Secretary  of  War, 
has  recently  returned  after  three  years  of 
intelligence  work  in  the  European  The- 
ater of  Operations.  Dr.  Maddox  will  dis- 
cuss "The  Background  of  World  Politics" 
at  !)  a.m.,  Ttiesday,  June  4. 

These  lectures  will  all  be  held  in  room 
474,  Main  State  Department  Building. 

Foreign  Service  Officer  Training 

Since  1941  the  Department  has  organ- 
ized programs  of  training  primarily  for 
auxiliary  Foreign  Service  officers.  The 
first  course  in  five  yeai's  for  career 
Foreign  Service  officers  will  get  under 
way  on  Monday,  June  3,  The  officers  in 
this  group  have  been  selected  from  the 
many  thousand  candidates  who  took  the 
Foreign  Service  examinations  while  in 
the  armed  services.  Intensive  training  is 
conducted  at  Lothrop  House,  2001  Con- 
necticut Ave. 


Publication  of  'Papers  Relating 
to  the  Foreign  Relations  of  the 
United  States,  the  Paris  Peace 
Conference,  1919",  Volume  VII 

[Itcleaseil  to  the  press  May  18] 

On  May  19  the  Department  released  the  first  of 
three  volumes  containing  the  minutes  of  the  Coun- 
cil of  Heads  of  Delegations  at  the  Paris  Peace 
Conference  of  1919.  The  other  two  volumes  of 
these  minutes  are  in  advanced  stages  of  prepara- 
tion and  will  be  released  later  this  year. 

The  Heads  of  Delegations  is  the  designation 
given  to  the  Supreme  Council  in  the  form  it  as- 
stuned  after  the  signing  of  the  Treaty  of  Versailles 
witli  Germany  on  June  28,  1919  antl  the  return 
home  of  President  Wilson  and  Prime  JNIinister 
Lloyd  (leorge.  Clemenceau  continued  as  chief  of 
the  French  delegation,  while  the  British  were 
headed  by  Arthur  Balfour.  Secretary  of  State 
Robert  Lansing  remained  a  short  time  as  head  of 
the  American  delegation,  and  then  Henry  White 
filled  in  until  the  arrival  of  Frank  Polk,  who  had 
been  Acting  Secretary  of  State  during  Mr.  Lan- 
sing's absence  from  Washington.  Herbert  Hoover 
frequently  presented  his  views  regarding  food  and 
other  economic  problems,  Italy  and  Japan  were 
also  represented  on  the  Council. 

While  the  treaty  with  Germany  had  been  signed, 
th.e  other  treaties  of  the  peace  settlement  had  still 
to  be  completed  and  political  and  economic  prob- 
lems of  the  moment  had  to  be  dealt  with.  Then  as 
now,  hunger  followed  in  the  wake  of  war  and  the 
return  to  stability  in  eastern  Europe  was  slow. 
With  such  matters  the  Heads  of  Delegations  were 
concerned. 

The  present  volume  carries  the  story  from  July  1 
to  August  28,  1919;  volume  VIII  will  continue  the 
record  through  November  5, 1919;  and  volume  IX 
^yill  complete  these  minutes  through  the  final  meet- 
ing of  the  Heads  of  Delegations  on  January  10, 
1920. 

The  Department  plans  to  fill  the  gaji  in  the  Paris 
Peace  Conference  series  caused  by  the  delay  in 
l)ublication  of  volumes  V  and  VI  containing  the 
minutes  of  the  Council  of  Four  by  the  release  of 
tliese  volumes  as  soon  as  they  can  be  printed  and 
bound. 

(Continued  on  next  page) 


MA)     2h,  194() 


919 


Treaty  of  Friendship  and  Mutual  Assistance 


Poland  -Yugoslavia 

The  AiKirivdii  Enibansj/  tit  Warxinr  transmitted  to  tlic 
Dcitiirtiiiciit  the  text  of  the  I'olLsh-Yugoslav  Treaty  of 
Friendship  and  Mutual  Assistanee  which  teas  signed  at 
M'lirsaio  on  March  IS,  lO.'iG.  The  text  as  it  appeared  in 
the  M'arsaw  press  of  March  20,  li>.',l!  follows 

The  President  of  the  National  Council  of  the  Homeland 
of  the  Polish  Republic  on  tlie  one  part  and 

The  Presidium  of  the  National  Skupstina  of  the  Fed- 
erated Yugoslav  Peoples  Republic  on  the  other  jiart ; 

Drawing  conclusions  from  the  exijeriences  of  the  past 
war,  which,  as  a  result  of  the  aggression  of  Germany  and 
licr  allies,  caused  great  destruction  in  Poland  as  well  as 
in  Yugoslavia, 

r>esiring  to  strengthen  the  bonds  of  eternal  friendship 
between  the  brotherly  Slav  nations  of  both  states,  par- 
ticularly strengthened  and  established  during  the  joint 
comb.it  for  freedom,  independence  and  democracy  against 
Germany  and  her  allies  during  the  past  war. 

Acting  on  the  conviction  that  the  strengthening  and 
deepening  of  friendship  between  Poland  and  Y'ngoslavia 
is  advantageous  for  the  most  vital  interests  of  both 
countries  and  will  most  vitally  serve  the  cause  of  Poland's 
and  Yugoslavia's  cultural  and  economic  development, 

Striving  for  the  strengthening  of  peace  and  security  for 
Poland  and  Yugoslavia  and  general  peace  and  security, 

Have  decided  to  consummate  a  treaty  of  friendship  and 
mutual  aid  and  for  this  purpose  have  designated  their 
plenipotentiaries. 

The  president  of  the  National  Council  of  the  Homeland 
of  the  Polish  Republic  has  designated  the  Premier  of  the 
Government  of  National  Unity  of  the  Polish  Republic, 
Edward   0.sobka-Morawski, 

The  Presidium  of  the  National  Skupstina  of  the  Fed- 
erated Yugoslav  Peoples  Republic  has  designated  the 
Marshal  of  Yugoslavia,  Joseph  Broz-Tito. 

Who  after  exchange  of  their  credentials,  recognized  as 
valid  and  prepared  in  proper  form. 

Have  agreed  to  the  following  points : 
Article  1 

Each  of  the  high  contracting  parties  agrees  to  refrain 
from  concluding  any  alliance  and  from  taking  part  in  any 
action  directed  against  the  other  high  contracting  party. 

Article  2 

In  the  event  of  a  threat  against  peace  and  the  security 
of  either  country,  the  high  contracting  parties  undertake 
to  con.suIt  each  other  concerning  their  conduct  just  as  in 
more  important  cases  concerning  the  interests  of  the  re- 
construction of  their  countries. 


Article  3 

In  the  event  one  of  the  high  contracting  parties  .should, 
as  a  result  of  aggression,  be  involved  in  war  activities 
against  Germany,  or  against  a  state  which  was  allied  with 
Germany  in  the  past  war  or  against  any  other  state  which 
would  ally  itself  directly  or  in  any  form  with  Germany  or 
with  her  ally  in  such  aggression,  the  other  high  contract- 
ing party  will  immediately  give  the  other  mihtary  and 
other  aid  and  supi»rt  by  all  means  at  its  disposal. 

Article  4 

This  treaty  in  no  way  violates  obligations  undertaken  by 
both  high  contracting  parties  in  relation  to  third  states. 

The  high  contracting  parties  will  carry  out  this  treaty 
in  accordance  with  the  statute  of  the  United  Nations 
Organization  and  will  supiwrt  every  initiative  tending  to 
remove  the  centers  of  aggression  and  to  establish  peace 
and  security  in  the  world. 

Article  5 

This  treaty  comes  into  force  on  the  day  of  signature  and 
will  remain  in  force  for  20  years. 

If  nf)tice  of  dis.solution  is  not  given  by  one  of  the  high 
contracting  parties  at  least  one  year  before  the  expira- 
tion of  the  agreed  period  and  so  on. 

The  treaty  is  subject  to  ratification.  Exchange  of  rati- 
fication documents  will  take  place  in  Belgrade  at  the 
earlie.st  po.ssible  time. 

In  evidence  of  the  above,  the  named  plenipotentiaries 
have  signed  this  treaty  and  affixed  their  seals  thereto. 

Done  in  Warsaw.  March  IS,  1946,  In  two  copies,  both 
authentic,  each  in  the  Polish  and  Serbo-Croatian  lan- 
guages. 

By  authorization  of  the  President  of  the  National  Coun- 
cil of  the  Homeland  of  the  Polish  Republic 

Premier  of  the  Government  of  National  Unity  Edward 

OSOBKA-MORAWSKI 

By  authorization  of  the  Presidium  of  the  National 
Skupstina  of  the  Federated  Yugoslav  Peoples  Republic 

Premier  of  the  government  and  Marshal  of  Yugoslavia 
JozEF  Beoz-Tito. 

PUBLICATION— Continued 

Foreign.  Relations  of  the  United  State,s,  The 
Paris  Peace  Conference,  1,919,  is  jDrepared  for  pub- 
lication ill  the  Division  of  Research  and  Publica- 
tion under  the  direction  of  Dr.  E.  Wilder  Spauld- 
ing,  Chief  of  the  Division,  and  Dr.  E.  R.  Perkins, 
Editor  of  Foreign  Relations.  Volume  VII  (985 
papes)  is  for  sale  by  the  Superintendent  of  Docu- 
ments, Government  Printing  Office,  Washington, 
D.C.,  for  $2..50  a  copy. 


920 


DEPARTMENT  OF  STATE  BULLETIN 


Statements,  Addresses,  and  Broadcasts  of  the  Week 


The  Secretary  of  State 
The  Secretary  of  State 

Acting  Secretary  Acheson 

Assistant  Secretary  Braden 


Donald  D.  Kennedy 

Chief,     Division    of    Interna- 
tional Resources 

Assistant     Secretary     of     State 

Hilldring 
Assistant      Secretary      of      War 

Petersen 


Reccwnmendations  for  the  Council  of 
Foreign  Ministers.  Printed  in  this 
issue 

Principles  of  Trade  for  Peace  and  Pros- 
perity.    Printed  in  this  i.ssue 


American  Strength:   Our  Share  in  World 
Peace.     Printed  in  this  issue 


On  the  suljject  of  the  development  of 
economic  stability  among  the  Amer- 
ican republics.  Not  printed.  Text 
issued  as  press  release  326  of  May  14 


Foreign  Policy  Aspects  of  International 
Trade  in  Hides  and  Skins.  Not 
printed.  Text  issued  as  press  release 
319  of  May  10 

Germany  at\d  the  Occupation.  Text 
issued  as  press  release  337  of  May 
17.     Excerpts  printed  in  this  issue 


Statement  made  at  Paris,  France,  on  May 
14,  1946 

Statement  made  on  May  19,  1946  in  con- 
nection with  the  observance  of  Na- 
tional Foreign  Trade  Week,  May 
19-25 

An  address  made  before  the  Women's 
American  Organization  for  Rehabilita- 
tion Through  Training  on  May  13, 
1946  in  New  York,  N.Y. 

An  address  delivered  on  May  15  in  New 
York,  N.Y.,  before  the  Conference  of 
Insurance  Company  Executives  under 
the  auspices  of  the  Chamber  of  Com- 
merce and  the  Inter-American  Council 
of  Commerce  and  Production 

An  address  delivered  on  May  13  in  Hot 
Springs,  Va.,  before  the  Tanners' 
Council  of  America 

A  radio  program  broadcast  over  the  NBC 
Network  on  Mav  18 


Coilten  ^S— Continued 


PlTBLICATIONS  Page 

Publication  of  "Papers  Relating  to  the  Foreign  Relations  of 
the  United  States,  the  Paris  Peace  Conference,  1919," 

Volume  VII 918 

Treaty  Information 

Charter  of  the  International  Military  Tribunal  for  the  Far 
East 

Changes  Made  in  Text- 890 

Lend- Lease  and  Surplus  Property  Settlement  With  India  .  .  916 
Diplomatic  and  Commercial  Agreement  With  the  Yemen  .  .  917 
Treaty  of  Friendship  and  Mutual  Assistance:   Poland  and 

Yugoslavia 919 

Training  Announcements 918 


PUBLISHED    WITH    APPROVAL    OF     DIRECTOR    OF    BUREAU    OF    THE    BUDGET 
0.  S,  GOVERNMENT  PRINTING   OFFICE:  I94S 


'!HE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  361 


JUNE  2,  1946 


\ 

1 

r 


Report  by  the  Secretary  of  State  on  the  Paris 
Conference  of  Foreign  Ministers      .     .     page  950 

The  Rnssell  Plan  for  the  Reorganization  of  Positive 
Intelligence  Research  in  the  Department  of 

State Page  928 

Rubber  and  World  Economy 

Article  by  WILLIAM  T.  PHILLIPS Page  932 

German  Documents  on  Hitler's  Plans  for  Norway 
and  Denmark,  1942 Page  936 

Regional  Arrangements  and  the  United  Nations 

Article  by  WARD  P.  ALLEN Page  923 


iL  Z3  -,0 


•+I0 


For  complete  contents 
see  inside  cover 


Vl«^NT    o^ 


'^tes  o 


tf.i 


THE  DEPARTMENT  OF  STATE 

BULLETIN 


Contents 


Vol.  XIV  •No.  361* 


Publication  2541 


June  2,  1946 


For  sale  by  the  Superintendent  of  Documents 

U.  S.  Governmest  Printing  Office 

Washington  25,  D.  C. 

Subscription: 

52  iesues,  $3.50;  single  copy,  10  cents 

Special  offer:  13  weeks  for  $1.00 

(renewable  only  on  yearly  basis) 


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  Slate  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  tvell  as 
special  articles  on  various  phases  of 
international  affairs  and  thefunctions 
of  the  Department.  Information  con- 
cerning treaties  and  international 
agreements  to  tvhich  the  UnitedStates 
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  in  ter- 
TUitional  relations,  are  listed  currently. 


General  Policy 

The  Far  Eastern  Commission 

Existing  International  Organizations  Concerned  Witii  Food 
and  Agriculture 

Report  by  tlie  Secretary  of  State  on  tlie  Paris  Conference  of 
Foreign  Ministers 

Confirmations :    Pliilippine  War  Damage  Commission    .    . 

U.  S.  and  Britisli  Governments  To  Consult  With  Arab  Lead- 
ers   on    Palestine 

Shipments  of  Grain  to  India 

Herbert  Hoover  To  Visit  Other  American  Republics     .     .     . 

German  Documents 

German  Documents  on  Hitler's  Plans  for  the  Future  of  Nor- 
way  and   Denmark,   1942 

Economic  Affairs 

Rubber  and  AVorld  Economy. 

Article  by  William  T.  Phillips 

ILO :  98th  Session  of  Governing  Body 

FAG :  Sijecial  Meeting  on  Urgent  Food  Problems : 

Statement  by  the  President 

Excerpts  from  Statement  by  the  Director-General     .     .     . 

Allied-Swiss  Negotiations :     Agreement  of  French,  British, 

and  U.  S.  Delegations  With  the  Swiss  Delegation     .     . 

Appointment  of  U.   S.  Representative  for  Negotiations  on 

German   External    Assets 

UNRRA  Mission  to  Turkey 

The  United  Nations 

Regional  Arrangements  and  the  United  Nations. 

Article  by  Ward  P.  Allen 

The  Security  Council : 

Soviet-Iranian  Matter.  Letters  From  the  Iranian  Am- 
bassador      

Provisional  Rules  of  Procedure  of  the  Security  Council     . 

International  Organizations  and  Conferences 

Calendar  of  Meetings 

Activities  and  Developments 

The  Department 

The  Russell  Plan  for  the  Organization  of  Positive  Intelli- 
gence Research 

Transfer  of  Lend-Lease  EMnctions 

Addresses  and  Statements  of  the  Week 

Appointment   of   OflScers 

Resignation  of  Stokeley  W.  Morgan 

Departmental  Regulations 

The  Foreign  Service 

Confirmation       

Publications 

Foreign  Commerce  Weekly 

Treaty  Information 

Prosecution  of  War  Criminals 

Invalidity  of  Commercial  Agreements:  Czechoslovakia     .     . 

Anglo-Siamese    Peace    Treaty 

Soviet-Mongolian  Treaty  and  Agreement 

(Continued  on  page  972) 


946 

94>J 

950 
955 

956 
957 

958 


93'J 


93? 

94^ 

948. 
94^ 

95-'^ 
96i' 


0i(3 


941 
942 

(■  ' 

4^ 

I 

928 
959 
967 
969 
969 
969 


971 


954 
960 
963 


Regional  Arrancrements  and  the  United  Nations 


Article  by  WARD  P.  ALLEN 


Coexistent  with  the  development  of  the  concept 
of  the  modern  nation  state  as  the  highest  mani- 
festation of  sovereign  policy  organization,  the 
idea  of  an  even  wider  organization  of  which  the 
Slates  themselves  would  be  component  parts  began 
tf)  manifest  itself.  Based  on  racial  and  cultural 
'Similarities  and  a  concomitant  geogi'aphical 
proximitj',  these  interstate  arrangements  were 
naturally  regional  in  character.  Where  the  at- 
tracting forces  were  great  and  the  still  growing 
concept  of  national  sovereigiity  not  too  firmly  im- 
bedded, these  regional  arrangements  became  the 
tLprerunner  of  closer  organization  which  resulted 
ill  union. 

The  Germanic  Confederation  of  thirty-eight 
Central  European  States  and  free  cities,  estab- 
lifhed  by  the  Congress  of  Vienna  in  1815,  is  an 
example.  Although  it  was  formally  dissolved  in 
1866  by  Prussia  as  a  part  of  its  struggle  for 
supremacy  with  Austria,  this  regional  system  was 
t]ie  working  political  organization  which  held  the 
^r'ies  of  central  Europe  together  and  constituted 
tW,  basis  upon  which,  after  the  exclusion  of 
Austria,  the  modern  Germanic  state  was  created. 

The  inter- American  system,  on  the  other  hand, 
whose  beginning  as  a  grouping  of  Spanish  Amer- 
ican states  may  be  traced  back  to  1820,  has  evolved 
more  slowly  and,  for  sound  historical  reasons,  not 
on  the  basis  of  an  all-embracing  constitution,  but 
ratlier  by  the  gradual  accumulation  of  traditions, 
the  creation  of  a  complex  of  specific  agencies  and 
institutions,  and  the  effect  of  the  resolutions, 
treaties,  and  conventions  of  inter-American  as- 
semblies. 

Brief  mention  of  some  of  the  modern  tendencies 
toward  the  development  of  regional  or  subregional 
systems  in  other  geographical  areas  may  provide 
a  setting  for  the  subsequent  consideration  of  the 
problems  of  the  United  Nations  Charter. 


The  Covenant  of  the  League  of  Nations  gave 
wide  latitude  to  the  establishment  of  regional 
arrangements  by  providing  in  Article  21  that 

"Nothing  in  this  Covenant  shall  be  deemed  to 
affect  the  validity  of  international  engagements, 
such  as  treaties  of  arbitration  or  regional  under- 
standings like  the  Monroe  doctrine,  for  securing 
the  maintenance  of  peace." 

Thus  there  was  virtuallj'  complete  freedom  for 
the  operation  of  almost  any  type  of  regional 
arrangement. 

AVith  respect  to  the  European  region  as  a  whole, 
the  idea  of  a  general  European  federation,  stimu- 
lated particularly  during  the  inter-war  period  by 
the  proposals  of  M.  Briand  to  the  League  Assem- 
bly in  1929,  resulted  in  the  establishment  by  the 
League  of  a  "Commission  of  Inquiry  for  European 
Union"  composed  of  the  European  members. 
However,  little  concrete  action  emerged  from  its 
discussions.  At  the  present  time  the  idea  appears 
again  to  be  gaining  some  currency. 

Within  Europe  one  of  the  outstanding  examples 
of  regionalism  following  the  first  World  War  was 
the  Little  Entente.  Composed  of  Czechoslovakia, 
Yugoslavia,  and  Rumania  and  created  shortly 
after  the  conclusion  of  the  war,  it  grew  out  of  a 
series  of  bilateral  mutual  assistance  treaties 
among  the  three  countries.  It  gradually  devel- 
oped into  a  broader  political  organization  and, 
after  1933,  came  to  approximate  a  close  diplo- 
matic confederation  with  definite  organizational 
structure.  The  Entente  played  a  significant  role 
in  helping  to  stabilize  conditions  in  Central 
Europe. 

The  five  Balkan  countries  and  Turkey,  despite 
the  differences  among  them,  have  exhibited  sig- 

Mr.  Allen  is  a  Specialist  on  International  Organiza- 
tion Affairs  in  tlie  Division  of  International  Organiza- 
tion Affairs,  Office  of  Special  Political  Affairs,  Depart- 
ment of  State.  Mr.  Allen  served  on  Committee  IV  of 
Commission  III  on  Regional  Arrangements  at  the  San 
Francisco  conference. 


923 


Q24 


DEPARTMENT  OF  STATE  BULLETIN 


nificant  tendencies  toward  close  economic  collab- 
oration and  political  understanding  as  bases  for 
the  formation  of  a  regional  system.  The  four 
Balkan  conferences  of  rei^resentatives  of  these 
states  (1930-32),  although  semi-official  in  char- 
acter, did  much  to  pave  the  way  toward  Balkan 
union  along  jDolitical,  social,  and  economic  lines 
and  created  or  stimulated  the  establishment  of  a 
number  of  organizations  and  commissions.  The 
Balkan  Entente  (Yugoslavia,  Rumania,  Greece, 
Turkey)  created  by  the  pact  of  1934,  although  not 
realizing  the  broader  aims  toward  which  the 
conferences  had  been  working,  was  an  effort  at 
regional  security  within  the  Balkan  area,  later 
supplemented  by  agreements  to  give  organiza- 
tional structure  to  the  Entente. 

With  regard  to  eastern  Europe  in  general,  al- 
though in  1942  attempts  through  agreements  be- 
tween Poland  and  Czechoslovakia  and  between 
Greece  and  Yugoslavia  to  work  toward  groupings 
of  small  states  did  not  meet  with  success,  a  broader 
regional  grouping  of  the  nations  of  eastern  Europe 
under  the  leadership  of  the  U.  S.  S.  R.  is  gradually 
but  effectively  evolving  through  a  series  of  bilateral 
arrangements  and  agreements.  The  possibility  of 
a  closer  union  of  the  Baltic  states — Denmark,  Nor- 
way, Sweden,  Finland,  Latvia.  Lithuania,  and 
Esthonia — led  to  a  series  of  confeiences  of  repre- 
sentatives of  these  states,  beginning  in  1920  in 
Helsinki,  Riga,  and  other  capitals,  l)ut  the  efforts 
proved  unproductive.  Again  in  1938-39  Finland 
and  Sweden  proposed  a  limited  defensive  alliance 
with  Norway  and  Denmark,  but  the  arrangement 
was  not  completed.  As  recently  as  February  1940 
an  article  in  the  Soviet  publication  Pravda  stated 
that  certain  interests  were  agitating  for  the  for- 
mation of  a  "Northern  Bloc"  which  presumably 
would  include  Sweden,  Norway,  Denmark,  and 
Finland.  Concern  was  expressed  in  the  article 
that  the  proposed  bloc  might  also  include  "a  recon- 
structed Germany." 

The  idea  of  a  closer  union  of  the  western  Euro- 
pean states  is  at  the  present  time  enjoying  certain 
advocacy.  As  set  forth  by  Leon  Blum,  in  Septem- 
ber 1945,  such  an  arrangement  would  have  an 
Anglo-French  alliance  as  its  basis  and  would  in- 
clude the  "democratic"  states  of  northern  and 
western  Europe  as  well  as  "futuie  i-epublics"  of 
Italy  and  Spain. 

In  the  Near  East  a  recent  and  highly  significant 
development  in  regional  ari'angements  is  the  crea- 
tion of  the  League  of  Arab  States  composed  of 


Syria,  the  Transjordan,  Iraq,  Saudi-Arabia,  Leb- 
anon, Egypt,  and  Yemen.  It  was  given  formal 
existence  upon  the  signing  of  the  pact  of  the 
League  of  Arab  States  at  Cairo,  on  March  22, 1945, 
as  a  I'esult  of  a  series  of  preliminary  meetings 
stinuilated  bj'  war  conditions  and  special  problems 
arising  in  that  area.  The  constituent  states  have 
made  full  use  of  this  League  as  a  vehicle  for  com- 
mon action  in  the  Palestine  situation. 

In  the  Far  East,  the  Japanese  attempt  to  create 
a  "Co-prosperity  Sphere",  although  based  on  sup- 
pression and  conquest  and  ruthless  domination  by 
one  power,  constituted,  nevertheless,  an  attempt  to 
form  a  regional  system. 

There  have  likewise  been  various  moves  toward 
what  may  be  termed  "sub-regional"  groupings. 
The  proposal  for  a  union  of  the  states  of  Centra^ 
America  and  for  the  closer  association  of  the  Boli- 
varian  countries  (Venezuela,  Colombia,  and  Ecua- 
dor) are  examples  within  the  inter-American  field. 

The  British  Commonwealth  of  Nations,  in 
which  the  Dominions  are  free  and  sovereign  al^ 
though  closely  associated  nations,  is  not  a  "rei 
gional  system"  within  any  definition  involving- 
geographical  limitations,  but  is,  nevertheless,  a 
special  groupment  of  states  which  share  in  com- 
mon with  the  regional  arrangements  mentioned 
a  somewhat  similar  status  in  terms  of  relationshiip 
with  a  world  organization.  There  have  been  in 
the  i)ast  few  years  a  number  of  semi-official  and 
non-official  suggestions  for  a  closer  association  of 
the  United  States  with  the  United  Kingdom  an(| 
the  other  nations  of  the  Commonwealth  whic^li 
would  convert  this  association  into  an  Angf.y- 
Saxon  group.  Mr.  Winston  Churchill's  plea  'to 
this  effect  in  his  Fulton,  Missouri,  speech  on  March 
5,  1946  brought  this  issue  sharply  to  the  fore. 

In  addition  to  all  of  these  developments  which 
in  general  envisage  arrangements  involving  po- 
litical, security,  economic,  social,  and  cultural  col- 
laboiation  in  varying  degrees  and  in  most  cases  a 
definite  organizational  structure,  there  are  like- 
wise existing  or  proposed  arrangements,  often 
regional  in  character,  for  more  limited  military 
and  security  purposes.  They  may  in  some  in- 
stances be  the  precursors  of  broader,  regional  sys- 
tems; but  they  do  not  necessarih'  rest  upon  the 
same  ethnic  or  cultural  bases  or  the  same  consider- 
ations of  geograjihical  proximity  as  the  latter. 
The  present  Russo-British  ti-eaty  of  May  26,  1942, 
the  Franco-Russian  treaty  of  December  10,  1944, 
and  tlie  Sino-Kiissian  treatv  of  August  14,  1945 


JUNE  2,  1946 


925 


are,  together  with  similar  treaties  between  Eussia 
and  Czechoslovakia,  F'oland,  and  Yugoslavia,  per- 
haps the  most  outstanding  examples  of  this  more 
limited  arrangement.  That  these  bilateral  agree- 
ments between  the  U.S.S.R.  and  various  states  of 
east-central  Europe  may  be  the  skeleton  for  a  more 
extensive  network  of  alliances  which  would  de- 
velop into  a  regional  system  is  indicated  by  the 
conclusion  of  a  Yugoslav -Polish  Alliance  on  May 
18,  1946  and  a  Czechoslovak- Yugoslav  treaty  of 
friendshiji  ori  May  9,  19-1:6.  These  agreements, 
reminiscent  of  the  beginnings  of  the  Little  En- 
tente, may  be  significant  indications  of  the  future 
jiattern  of  development  in  this  area. 

II 

The  significance  of  all  such  regional  and  special 
associations  of  nations  and  of  the  forces  mani- 
fested by  the  tendencies  toward  these  regional 
groupings  have  been  intensified  and  sharpened  by 
the  creation  of  the  new  world  organization.  The 
establishment  of  the  United  Nations  has  required 
a  consideration  of  all  regional  arrangements  in  the 
light  of  the  role  which  the  Charter  provides  for 
them  and  their  appraisal  from  the  point  of  view 
of  consistency  with  its  terms. 

The  framers  of  the  Dumbarton  Oaks  Proposals 
and  of  the  Charter  were  confronted  with  a  funda- 
mental decision  in  determining  the  extent  to  which 
the  world  organization  should  be  erected  upon  the 
basis  of  regional  federations.  There  were  many 
^id  prominent  advocates,  both  in  this  country 
ajid  abroad,  of  the  view  that  such  semi-autonomous 
gioups  of  states  would  provide  the  soundest 
foundation  for  the  organization.  It  was  urged 
that  a  pyramiding  of  authority,  leading  from  the 
nation  to  the  regional  organization,  with  the 
world  organization  concerning  itself  only  with 
inter-regional  affairs,  was  the  only  consistent  and 
practicable  method  to  give  full  representation  and 
protection  to  the  interests  of  the  smaller  nations, 
to  avoid  burdening  the  general  organization  with 
local  controversies  and  situations  more  easily 
solved  within  the  region,  and  to  lessen  economic 
rivalry  and  encourage  constnictive  economic  and 
financial  policies  among  the  states  in  each  area. 

The  decision  on  this  basic  issue  was  made  early. 
It  was  agreed  that  the  organization  must  be  a 
world  unity  of  individual  states  and  not  an  asso- 
ciation of  regional  federations. 

This  basic  pattern  is  reflected  in  the  Dumbarton 


Oaks  Proposals,  particularly  in  Chapter  VIII, 
Section  C.  This  section,  although  not  seeking 
affirmatively  to  promote  regional  arrangements, 
stated  that  nothing  in  the  proposed  Charter 
should  preclude  their  existence  for  dealing  with 
appropriate  matters  relating  to  international 
security,  "provided  such  arrangements  or  agencies 
and  their  activities  are  consistent  with  the  pur- 
poses and  principles  of  the  Organization." 

With  this  as  a  frame  of  reference  the  problem 
was  carried  to  the  San  Francisco  conference  where 
the  relationship  between  regional  and  world  sys- 
tems became  one  of  the  most  delicate  of  the  con- 
ference issues. 

It  is,  of  course,  impossible  to  seek  to  analyze  any 
nnijor  Charter  provision  in  isolation  or  on  the  ex- 
clusive basis  of  a  particular  set  of  interests,  so 
complex  are  the  factors  motivating  the  positions 
of  the  various  countries  and  so  interrelated  are 
the  provisions  of  the  Charter.  At  the  San  Fran- 
cisco conference,  however,  the  approach  of  the 
vai-ious  countries  to  the  problem  of  regional  ar- 
rangements may  be  said  to  have  been  conditioned 
in  part  by  one  or  another  of  five  points  of  view,  all 
of  which  operated  in  favor  of  varying  degrees  of 
autonomy  for  regional  or  other  limited  arrange- 
ments within  the  general  framework  of  the  United 
Nations : 

1.  The  desire  of  the  American  republics  to  safe- 
guard the  inter-American  sy.stem; 

2.  The  similar  feeling  on  the  part  of  the  states 
of  the  Arab  League,  for  whom  Egypt  acted  as 
spokesman,  that  the  state  of  that  League  be  pre- 
served ; 

?>.  The  wish  of  the  U.S.S.R.  to  except  fi-om  any 
restrictive  control  under  the  Charter  the  system  of 
bilateral  mutual  assistance  pacts; 

4.  France's  concern  over  possible  renewal  of 
German  aggression,  leading  her  to  seek  freedom 
of  action  against  ex-enemy  states  without  the 
necessity  of  awaiting  prior  action  by  the  Security 
Council ; 

5.  The  general  uneasiness  of  the  small  states 
over  the  power  granted  the  Security  Council  in 
the  light  of  the  Yalta  voting  formula. 

These  factors  are,  of  course,  reflections  of  cer- 
tain of  the  regional  developments  referred  to  in 
Part  I.  Notably  absent  from  the  picture  were  the 
points  of  view  of  the  Balkan  and  Baltic  states  not 
represented    at    the   conference,   whose   previous 


926 


DEPARTMENT  OF  STATE  BULLETIN 


tendencies  toward  regionalism  have  been  particu- 
larly noteworthy. 

These  five  factors  manifested  themselves  in  a 
variety  of  ways  in  the  amendments  offered  to  this 
portion  of  the  Dumbarton  Oaks  Proposals.  Eight 
of  the  American  republics  proposed  that  the 
inter-American  system  be  specifically  mentioned 
and  approved  in  the  Charter.  Seven  suggested 
that  the  right  of  Security  Council  intervention  in 
the  settlement  of  regional  disputes  be  limited  to 
cases  where  all  regional  measures  had  been  at- 
tempted and  had  failed  or  wliere  the  regional 
group  itself  requested  Council  action. 

The  Egyptian  delegation  introduced  a  series  of 
amendments  to  limit  the  term  regional  arrange- 
vient  by  definition  to  a  grouping  of  several  coun- 
tries in  a  given  geographical  area  which,  by  reason 
of  community  of  interests  or  historical  or  other 
affinity,  make  themselves  jointly  responsible  for 
the  maintenance  of  peace  and  security  within  the 
region,  for  the  safeguarding  of  their  interests,  and 
for  the  development  of  their  economic  and  cultural 
relations. 

The  four  sponsoring  powers  (China,  United 
Kingdom,  Union  of  Soviet  Socialist  Kepublics, 
and  United  States)  proposed  as  an  amendment  the 
language  finally  incorporated  into  Article  53  of 
the  Charter  to  the  effect  that  regional  or  other 
joint  action  should  be  permitted  without  prior 
authorization  from  the  Security  Coimcil  in  the 
case  of  measures  to  prevent  renewed  aggression  by 
the  enemy  states  in  the  then  present  war,  until 
responsibility  therefor  should  be  transferred  to 
the  United  Nations  by  the  governments  concerned. 
This  was  similar  to  an  amendment  first  separately 
presented  by  France  which,  proposed,  in  addition, 
a  provision  to  the  effect  that  authorization  slioidd 
not  be  required  for  measures  of  an  urgent  nature 
provided  for  in  treaties  of  assistance  of  which  the 
Security  Council  has  been  advised,  subject,  how- 
ever, to  an  obligation  to  give  an  account  to  the 
Council  of  the  measures  taken. 

A  precursor  of  the  provisions  of  Article  51  was 
offered  by  the  Australian  delegation  which  pro- 
posed that  measures,  regional  or  otherwise,  taken 
in  self-defense  should  become  permissible  in  case 
of  an  emergency  if  the  Security  Council  failed 
either  to  authorize  such  action  or  to  take  action 
itself. 

Illustrative   of   the   interrelation   between   the 

'  Italics  are  the  autlmr's. 


problems  of  regional  arrangements  and  the  issue 
of  the  provisions  on  voting  in  the  Security  Council 
were  amendments  offered  by  Australia,  Belgium, 
and  Venezuela  proposing  that  special  voting  rules 
be  adopted  for  decisions  of  the  Council  regarding 
enforcement  action  by  regional  arrangements. 

These  and  other  i^roi^osals  and  suggestions,  sim- 
ilar in  character  and  based  on  similar  considera- 
tions, are  reflected  in  varying  degrees  in  the  final 
provisions  of  the  Charter. 

Ill 

The  final  language  of  the  Charter  adds  to  the 
basic  approach  of  the  Dumbarton  Oaks  Proposals 
two  significant  provisions  which  allow  both  eni- 
forcement  or  punitive  action  and  preventive  mea?l- 
ures  to  be  taken  by  regional  agencies  or  other  col- 
lective arrangements  without  the  authorization  of 
the  Security  Council,  under  defined  circumstances. 

Articles  '.^',^  and  51  to  5-1,  which  set  forth  the  re- 
lationship of  such  agencies  and  arrangements  to 
the  world  organization  in  the  security  field,  in 
conjunction  with  other  pertinent  provisions  of  the 
Charter,  may  be  summarized  as  follows  : 

1.  In  general,  nothing  in  the  Cliarter  "pre- 
cludes the  existence  of  regional  arrangements  or 
agencies  for  dealing  with  such  matters  relating  to 
the  maintenance  of  international  peace  and  secu- 
rity as  are  appropriate  for  regional  action,  pro- 
vided that  such  arrangements  or  agencies  and 
their  activities  are  consistent  with  tlie  Purpose^', 
and  Principles  of  the  United  Nations."  (Art.  52, 
par.  1.) 

2.  With  respect  to  the  pacific  settlement  of  dis- 
putes,^  the  Charter  imposes  upon  the  members 
of  regional  arrangements  or  agencies  the  obliga- 
tion to  "make  every  effort  to  achieve  pacific  settle- 
ment of  local  disputes"  through  such  institutions 
before  referring  them  to  the  Security  Council 
(Art.  52,  par.  2).  This  is  reinforced  by  a  similar 
injunction  upon  ''The  parties  to  any  dispute,  the 
continuance  of  which  is  likely  to  endanger  the 
maintenance  of  international  peace  and  security" 
to  seek  first  of  all  a  solution  for  peaceful  means 
of  their  own  choice,  including  "resort  to  regional 
agencies  or  arrangements"  (Art.  33,  par.  1).  The 
obligation  is  laid  upon  the  Scmirity  C'ounciJ  to 
"encourage  the  development  of  pacific  settlement 
of  local  disputes"  through  such  regional  arrange- 
ments or  agencies  (Art.  52,  par.  3) ,  and  the  Council 
"shall,   when    it   deems  necessary,  call   upon   the 


JUI^/E  2,  1946 


927 


parties  to  settle"  a  specific  dispute  by  peaceful 
means  of  their  own  choice,  including  regional  ar- 
rangements (Art.  33,  par.  2). 

3.  Beyond  the  realm  of  peaceful  measures,  the 
power  of  the  regional  system  to  take  action  in  case 
of  threats  to  or  breaches  of  the  peace  or  acts  of 
aggression  is  at  the  same  time  both  greater  and 
less  than  its  authority  in  the  case  of  pacific  settle- 
ment. The  Security  Council  is  directed  to  utilize 
regional  arrangements  or  agencies  for  carrying 
out  enforcement  measures.  But  the  authorization 
of  the  Council  is  required  before  measures  which 
may  be  deemed  "enforcement  action"  may  be  taken 
under  regional  arrangements  or  regional  agencies 
(Art.  53,  par.  1). 

There  are,  however,  two  important  exceptions 
to  the  above  rule:  one  depending  upon  the  state 
against  which  action  is  taken  and  the  other  upon 
the  nature  of  the  aggression  against  which  action 
is  sought.  Authorization  is  not  necessary  if  the 
measures,  whatever  their  nature,  are  to  be  taken 
against  any  ex-enemy  state  of  the  second  World 
War,  either  as  provided  for  pursuant  to  Article 
107  ^  or  in  accordance  with  "regional  arrange- 
ments directed  against  renewal  of  aggressive  policy 
on  the  part  of  any  such  state".  (Art.  53,  par.  1.) 
This  exception  ceases  to  exist  only  after  the  or- 
ganization itself,  "on  request  of  the  Governments 
concerned,"  is  "charged  with  the  responsibility 
for  preventing  further  aggression  by  such  a  state". 
(Art.  53,  par.  1.) 

The  second  exception  becomes  operative  if  the 
lireach  of  the  peace  or  act  of  aggression  takes  the 
form  of  "an  armed  attack".  Article  51  provides 
that  nothing  in  the  Charter  "shall  impair  the 
inherent  right  of  individual  or  collective  self- 
defense  if  an  armed  attack  occurs  against  a  Mem- 
ber of  the  United  Nations,  until  the  Security 
Council  has  taken  the  measures  necessary  to  main- 
tain international  peace  and  security." 

4.  These  two  exceptions,  granting  or  recog- 
nizing the  right  to  take  action  outside  the  machin- 
ery of  the  organization,  do  not  refer  exclusively 
to  regional  systems  as  does  Article  52  concerning 
pacific    settlement.      The    exception    relating    to 

■  ''Nothing  in  the  present  Charter  shall  Invalidate  or 
preclude  action,  in  relation  to  any  state  which  during  the 
Second  World  War  has  been  an  enemy  of  any  signatory  to 
the  present  Charter,  taken  or  authorized  as  a  result  of  that 
war  by  the  Governments  having  responsibility  for  such 
action." 


measures  against  ex-enemy  states  encompasses  as 
well  action  pursuant  to  agreements  among  the 
Allied  Powers  arising  out  of  the  war,  such  as  the 
Franco-Russian  Mutual  Alliance  Treaty.  The 
exception  of  the  right  of  "individual  or  collective 
self-defense"  similarly  M-ould  include  such  a  col- 
lective arrangement  as  is  represented  by  the 
British  Commonwealth  of  Nations. 

5.  However,  the  Charter  makes  it  equally  clear, 
that  while  the  region  may  be  expected  to  be  the 
normal  theater  for  the  pacific  settlement  of  at 
least  "local"  disputes,  while  regional  agencies  will 
be  looked  to  in  an  important  way  in  resolving  such 
controversies  by  peaceful  methods,  and  while 
Security  Coxmcil  authorization  is  not  always  nec- 
essary for  enforcement  action,  nevertheless,  the 
rights  of  the  Security  Council  to  take  action  at 
any  time  regarding  any  dispute  remain  unim- 
jDaired.  These  include  the  right  of  investigation 
(Art.  34)  and  of  recommending  "at  any  stage  of  a 
dispute"  "appropriate  procedures  or  methods  of 
adjustment"  taking  into  account  any  procedures 
adopted  by  the  parties  (Art.  36). 

In  the  second  place,  the  existence  or  functioning 
of  regional  arrangements  or  agencies  does  not 
operate  to  prevent  a  member  state  from  bringing 
any  situation  which  might  lead  to  international 
friction  to  the  attention  of  the  Security  Council  or 
the  General  Assembly  (Art.  35) .  (Indeed  Article 
62  specifically  states  that  it  in  no  way  impairs  the 
application  of  Articles  34  and  35). 

Thirdlj^,  the  right  of  the  General  Assembly  to 
discuss  and  make  recommendations  concerning 
any  matter  relating  to  the  maintenance  of  inter- 
national peace  and  security  (Art.  11)  is  not  con- 
tingent upon  action  by  regional  agencies. 

These  various  provisions  establish  the  pattern 
for  the  integration  of  regional  and  other  collec- 
tive arrangements  in  the  security  field  with  the 
general  system  of  international  security.  How- 
ever, the  scope  of  certain  terms  such  as  "regional 
arrangements  of  agencies"  and  "enforcement  ac- 
tion" is  not  explicitly  set  forth.  In  the  case  of  an 
armed  attack,  the  integration  of  regional  forces 
already  in  operation  with  those  operating  under 
the  authority  of  the  Security  Council  will  have  to 
be  worked  out.  Only  by  the  implementation  of 
these  provisions  and  their  application  to  specific 
situations  will  their  precise  limitations  and  im- 
plications become  clear. 

(Continued  on  i>nf>c  959) 


928 


DEPARTMENT  OF  STATE  BULLETIN 


The  Russell  Plan  for  the  Organization  of  Positive 
Intelligence  Research  in  the  Department  of  State 


I.  Basic  Philosophy 

On  April  22,  1946  the  Secretary  of  State  issued 
a  series  of  regulations  activating  the  Russell  Plan  ' 
for  the  organization  for  research  and  intelligence 
in  the  Department  of  State.-  In  principle,  the 
plan  is  simple.  Organizationally,  it  is  predicated 
in  the  fact  that  the  Department  of  State  is  set  up 
on  a  geographic  basis. 

The  political  policy  finally  formulated,  however, 
with  respect  to  a  given  coimtry  or  area  must  in- 
clude considerations  of  an  economic,  military, 
sociological,  and  even  domestic  character.  Al- 
though policy,  in  the  last  analysis,  must  be  ac- 
comjjlished  on  a  geographic  basis  by  the  geographic 
offices  as  line  or  operating  units,  the  analysis  and 
evaluation  of  non-political  or  functional  compo- 
nents of  foreign  policy  are  correlated  through  the 
offices  under  the  jurisdiction  of  the  Assistant  Sec- 
retary for  economic  affairs  and  the  Assistant  Sec- 
retary for  public  affairs.^  In  performance  of  this 
function,  these  two  offices  operate  as  staff  agencies. 

Intelligence  research  to  be  most  useful  must  be 
integrated  into  this  general  organization.  It  must 
be  organized  so  as  to  serve  the  geographic  offices  in 
a  "staff"  capacity  but  at  the  same  time  serve  the 
other  "staff"  echelons  of  the  Department  under  the 
Assistant  Secretaries  for  economic  affairs  and 
public  affairs. 

All  research  carried  on  must  fit  into  a  balanced 
departmental  program  of  positive  intelligence  that 
is  related  to  authoritatively  determined  intelli- 
gence requirements  and  objectives. 

"  Program  planned  by  Donald  S.  Russell,  Assistant  Sec- 
retary for  administration. 

'  Bm^UETiN  of  May  12,  1946,  p.  826. 

°  Exceptions  to  this  principle  of  organization  are  found 
in  the  Office  of  Special  Political  Affairs  and  Otiice  of  the 
Assistant  Secretary  for  occupied  areas,  where,  because 
of  the  prospective  military  and  multilateral  relations  in- 
volved, a  special  service  organization  is  required. 

'  Btn-LETiN  of  Feb.  3,  1946,  p.  174. 


II.  Organizational  Objectives 

The  forthcoming  regulations  are  intended  to 
accomplish  certain  basic  objectives: 

1.  To  establish  the  Special  Assistant  for  Re- 
search and  Intelligence  as  the  "staff  arm"  of  the 
Secretary  in  the  formulation  and  implementation 
of  the  Department's  internal  and  interdepart- 
mental programs  of  positive  foreign  intelligence. 

2.  To  establish  under  the  Special  Assistant  for 
Research  and  Intelligence  an  Advisory  Committee 
on  Intelligence  which  will  through  a  strong  sub- 
committee formulate  a  departmental  progi-am  of 
intelligence  research  and  assign  project  priorities. 

3.  To  build  up  within  each  geographic  office  a 
Research  Division  which  will  provide  strong  re- 
search facilities  at  the  point  where  political  deci- 
sions are  made  or  action  is  taken. 

4.  To  build  up  as  an  office  under  the  Special  As- 
sistant for  Research  and  Intelligence  a  strong 
central  coordination  and  liaison  group  which  in 
order  to  implement  the  decisions  of  the  subcom- 
mittee will — 

(a)  coordinate,  monitor,  and  review  all  depart- 
mental research  studies  initiated  anywhere  in  t^e 
Department ; 

(b)  undertake  such  special  research  studies  as 
may  be  required; 

(c)  be  responsible  for  carrying  out  those  duties 
assigned  to  it  by  the  Special  Assistant  for  Research 
and  Intelligence  with  relation  to  the  National  In- 
telligence Authority  *  and  anj'  other  Government 
agency  concerned  with  the  field  of  positive  intelli- 
gence. 

5.  To  establish  as  an  office  under  the  Special  As- 
sistant for  Research  and  Intelligence  a  central 
group  for  the  collection  and  dissemination  of  posi- 
tive intelligence  data  and  materials. 

III.  Organizational  Pattern 

7.  The  Geographic  Offices 

Under  the  plan  a  Division  of  Research  is  at- 
tached to  each  geographic  office.    This  is  a  self- 


IVNE  2,  1946 


929 


contained,  non-operating  "staff"  unit  at  the  office 
level,  under  its  own  chief  who  reports  and  is  re- 
sponsible to  the  director  of  the  geographic  office. 
The  chief  of  the  Research  Division  is  responsible 
to  the  office  director  for  the  research  program  of 
the  office  and  for  the  due  accomplishment  of  the 
segment  of  the  departmental  research  program  as- 
signied  to  the  office  by  the  Advisory  Committee  on 
Intelligence,  through  its  Subcommittee  on  Pro- 
grams and  Priorities.  The  chief  of  the  Division  of 
Reseaich  should  be  the  representative  of  the  office 
director  on  the  Subcommittee  on  Programs  and 
Priorities.  Though  the  chief  of  the  Division  of 
Research  reports  to  the  office  director,  he  and 
his  staff  are  expected  to  maintain  the  closest  tech- 
nical liaison  on  all  matters  of  research  with  the 
Office  of  Intelligence  Coordination  and  Liaison 
and  other  research  units  of  the  Department. 

The  purjjose  of  establishing  strong  research 
units  in  the  geographic  offices  is  twofold:  to  pro- 
vide balanced  research  facilities  at  the  points  where 
political  policy  is  made  or  action  taken;  and  to 
make  the  intelligence  operation  sensitive  to,  yet 
independent  of,  the  policy-determining  political 
divisions.  In  this  manner,  the  office  director  is  pro- 
vided with  an  automatic  system  of  checks  and  bal- 
ances as  between  his  "staff"  or  research  division  and 
his  ''line'"  or  policy  divisions. 

3.  The  Advisory  Committee  on  hiteUigence  {AC I) 

The  Russell  Plan  calls  for  the  establishment  of 
an  Advisory  C(mimittee  on  Intelligence  composed 
of  the  Assistant  Secretaries  for  political  affairs  and 
the  Assistant  Secretary  for  administration,  under 
the  chairmanship  of  the  Special  Assistant  for  Re- 
search and  Intelligence.  It  is  expected  that  this 
committee  will  meet  only  to  consider  matters  of 
broad  general  policy  in  the  field  of  positive  in- 
telligence. It  will,  however,  have  a  working  sub- 
committee with  representation  from  the  geo- 
graphic and  other  appropriate  offices  of  the  De- 
partment. The  job  of  the  working  subcommittee 
will  be  to  formulate  a  balanced  departmental  pro- 
gram of  research  and  to  assign  such  priorities  as 
will  assure  the  optimum  utilization  of  all  depart- 
mental research  resources  so  that  departmental  and 
interdepartmental  intelligence  requirements  are  as- 
sessed and  fulfilled  on  the  basis  of  essentiality  and 
relative  urgency. 

The  necessity  for  a  working  group  of  this  charac- 
ter, which  must  be  staffed  by  a  strong  secretariat, 
is  illustrated  by  a  partial  listing  of  research  con- 


sumers whose  competing  requests  for  service  will 
have  to  be  evaluated  and  phased : 

Geographic  Offices 
Economic  Offices 
Information  and  Cultural  Offices 
Special  Political  Affairs 
Occupied  Areas 

National  Intelligence  Authority 
Military  Intelligence  Agencies 
(Military  Intelligence  Service 
(MIS),  Office  of  Naval  Intel- 
ligence (ONI),  Joint  Intelli- 
gence Committee  (JIC),  etc.) 
To  accomplish  its  mission  effectively,  the  sub- 
connnittee  of  the  ACI,  that  is  the  Subcommittee  on 
Programs  and  Priorities,  nuist  be  a  responsible 
group,  representative  of  the  Department  as  a  whole, 
each  member  of  which  must  be  authorized  to  speak 
for  and  bind  his  office.     Each  member  of  the  sub- 
committee must  be  acceptable  to  the  Special  As- 
sistant for  Research  and  Intelligence. 

3.  The  Speci-al  Assistant  for  Research  and  In- 

telligence 
The  Special  Assistant  is  the  principal  adviser 
to  the  Secretary  with  respect  to  all  matters  of 
positive  intelligence.  The  ACI  and  its  subcom- 
mittee are  his  consultative  and  advisory  instru- 
ments for  the  formulation,  planning,  and  phasing 
of  the  Department's  research-intelligence  program. 
Although  the  Special  Assistant  exercises  direct 
"line"  authority  only  over  his  own  staff  and  the 
offices  immediately  under  his  jurisdiction  (OCL 
and  OCD),  he  has  effective  technical  supervision 
over  the  Department's  research  program  through 
the  programming  and  priorities  functions  of 
ACI. 

4.  Office  of  Intelligence  Coordination  and  Liaison 

{OCL) 

The  mission  of  OCL  is  vital  to  the  success  of 
the  Russell  Plan.    It  is  expected,  inter  alia — 

(a)  to  provide  a  permanent  secretariat  for  the 
ACI  and  its  subcommittee; 

{h)  to  function,  at  the  technical  level,  as  the 
instrument  for  coordinating  and  correlating 
intelligence  research  in  accordance  with  the  pro- 
grams formulated  by  the  ACI  and  its  subcom- 
mittee, for  example  by  administering  research 
priorities  assigned  in  such  programs  and  by  ap- 
plying in  editorial  review  the  research  standard 
formulated  by  the  ACI  and  its  subcommittee; 


930 

(c)  to  operate  as  the  center  for  distribution 
of  research  papers  produced  in  the  Research  Divi- 
sions, so  as  to  secure  the  maximum  utilization 
compatible  with  security ; 

(d)  to  conduct  specialized  research  on  technical 
matters  not  within  the  cognizance  of  other  re- 
search units;  to  organize  and  supervise  coopera- 
tive research  projects  cutting  across  geographic 
and  economic  lines;  to  undertake  such  special 
studies  as  may  be  required  of  it  by  the  Special 
Assistant  for  Research  and  Intelligence; 

(e)  to  participate,  as  directed  by  the  Special 
Assistant  for  Research  and  Intelligence,  in  the 
Department's  relations  with  the  Central  Intelli- 
gence Group  of  the  National  Intelligence  Author- 
ity (NIA)  and  other  Government  agencies  in  the 
field  of  positive  intelligence. 

As  the  liaison  group  of  the  Department  with 
the  Central  Intelligence  Group  of  the  NIA  and 
as  the  secretariat  of  ACI  and  its  subcommittee, 
OCL  is  in  a  key  position  to  coordinate  the  execu- 
tion of  the  research  program  in  its  departmental 
and  interdepartmental  aspects.  Because  of  this 
organizational  vantage-point,  it  is  in  a  position 
to  provide  ACI  and  its  subcommittee  with  in- 
foi-med  recommendations  to  guide  its  formulation 
of  the  research  program  or  the  assignment  of 
priorities.  It  will  be  in  a  unique  position  to  pro- 
vide invaluable  assistance  to  other  research  units 
of  the  Department  with  respect  to  the  initiation, 
feasibility,  or  status  of  research  projects. 
5.  Office  of  InteMgence  Collection  and  Dissemina- 

tion  {OCD) 

The  functions  of  OCD  are — 

(a)  to  procure  for  the  Department  intelligence 
materials  through  various  channels; 

(6)  to  maintain  files  of  intelligence  materials 
for  reference  use  by  all  offices  of  the  Department ; 

(c)  to  collect  factual  information  and  opinions 
on  important  individuals  in  foreign  countries 
whose  activities  or  views  are  important  in  de- 
termining and  implementing  foreign  policy  and 
to  maintain  files  of  such  material  for  use  by  all 
offices  of  the  Department ; 

{d)  to  acquire  and  allocate  to  various  govern- 
mental agencies  foreign  publications  received 
through  the  Foreign  Service  establishment; 

"  Office  of  the  Assistant  Secretary  of  State,  Mr.  Benton ; 
Office  of  the  Assistant  Secretary  of  State,  Mr.  Clayton; 
Office  of  Special  Political  Affairs. 


DEPARTMENT  OF  STATE  BULLETIN 

(e)  to  prepare  visual  materials  such  as  charts, 
freehand  illustrations,  and  mechanical  drawings 
for  all  offices  of  the  Department. 

IV,  The  Plan  in  Operation 

As  soon  as  the  ACI  or  its  Subcommittee  on  Pro- 
grams and  Priorities  establishes  a  basic  research 
program  for  the  Department  and  makes  assign- 
ments thereunder,  the  intelligence  operation  will 
be  on  a  current  basis  and  every  research  project 
can  be  evaltiable  with  respect  to  its  importance  and 
relative  urgency. 

1.  Clearance  of  Projects 

All  projects  to  be  undertaken  by  the  Research 
Divisions,  by  OCL,  or  by  other  units  of  the  De- 
partment except  the  Division  of  Research  and 
Publication  must  be  cleared  through  the  program 
and  priority  mechanism.  Several  channels  will 
be  available,  depending  upon  the  origin  of  the 
project  proposal.  In  the  case  of  the  geographic 
offices,  the  office  director  will  send  to  the  project 
unit  of  OCL  any  project  proposal  approved  by 
him  or,  if  he  so  authorizes,  by  his  Research  Divi- 
sion chief.  If  the  project  falls  within  the  frame- 
work of  the  over-all  departmental  program  tliis 
unit  may  immediately  agree  to  the  propriety  and 
feasibility  of  the  proposal  and  give  clearance;  in 
case  of  doubt  the  unit  would  consult  with  the  di- 
rector or  his  chief  of  research.  If  no  agreement 
can  be  reached,  the  OCL  project  unit  will  present 
the  case  at  the  next  session  of  the  Subcommittee 
on  Programs  and  Priorities  (on  which  the  initiat- 
ing office  would  be  represented)  for  decision. 

Other  offices  of  the  Department  such  as  A-B, 
A-C,  or  SPA  =  will  submit  projects  to  the  project 
unit  of  OCL  directly  or  through  the  channel  of  the 
geographic  offices  when  prior  conversations  with 
them  make  it  appropriate.  These  offices  will  be 
represented  on  the  Subcommittee  on  Programs 
and  Priorities,  will  have  access  to  the  project 
unit  of  OCL  directly,  and  will  have  access  to  the 
research  facilities  of  the  geographic  Research  Divi- 
sions, OCL,  and  OCD  in  accordance  with  the 
general  program  and  priorities  established  by 
ACI  or  the  Subcommittee  on  Programs  and 
Priorities. 

If  requestors  from  outside  the  Department  de- 
sire the  Department  to  undertake  research  on  their 
behalf  they  will  send  proposals  to  OCL  through 


JUNE  2,  1946 


931 


established  liaison  channels.  The  project  unit  of 
OCL  will  then  submit  the  proposal  before  clearance 
to  the  appropriate  office  of  the  Department  for  an 
opinion  as  to  feasibility  in  relation  to  work  load 
and  to  the  office  program. 

2.  M oMlization  of  Resources  . 

A  useful  feature  of  the  clearing  process  is  that 
the  ACI  and  OCL,  being  familiar  with  all  re- 
sources of  the  research  staffs,  will  be  able  to  ar- 
range joint  action  of  various  research  units  upon 
appropriate  projects,  thus  in  effect  adding  to  the 
resources  at  the  service  of  any  one  office.  When 
necessary,  tlie_y  can  negotiate  with  office  dii'ectors 
for  the  formation  of  interoffice  research  teams  for 
temporary  action  on  specific  projects.  The  De- 
partment in  this  \\&y  will  make  the  most  effective 
use  of  expert  personnel  no  matter  where  the  in- 
dividuals may  be  located. 

3.  Project  Lists 

Further  advantages  flow  from  this  centralized 
clearing  procedure.  It  will  be  possible  for  the 
OCL  to  issue  a  list  of  projects  actually  under  M'ay 
and  thus  at  once  inform  all  parts  of  the  Depart- 
ment about  forthcoming  work,  always  recognizing 
that  producing  units  may  for  security  reasons  wish 
to  limit  such  advertising  of  certain  projects. 
Thereby  the  attention  of  various  offices  will  be 
called  to  studies  which  may  be  of  use  to  them,  and 
dui^lication  will  be  largely  eliminated.  While 
scanning  a  project,  the  staff  can  also  prepare  a 
proposed  distribution  list  for  the  anticipated  re- 
port which,  if  agreed  to  by  the  producing  office, 
will  facilitate  rapid  dissemination  of  the  report 
when  it  is  finished.  The  balance  of  maximum 
utilization  with  security  considerations  will  be 
further  guaranteed  by  locating  in  OCL  the  center 
for  physical  distribution  of  research  studies. 

4.  Standards 

Another  concern  of  ACI,  for  the  benefit  both  of 
the  Department  and  of  its  "customers",  is  to  main- 
tain the  quality  and  standardize  the  form  of  in- 
telligence-research reports.  For  this  purpose,  ACI 
or  its  Subcommittee  on  Programs  and  Priorities 
will  establish  standards  and  expect  OCL  to  ex- 
amine all  finished  drafts  before  they  are  repro- 
duced, to  insure  adherence  to  those  standards. 
Only  such  editorial  review  can  assure  the  continu- 
ous application  of  sound  scholarship  and  critical 
method  throughout  the  intelligence  organization. 


Actual  procedures  would  parallel  closely  those  of 
preliminary  project  clearance,  with  the  same 
mechanism  for  reference  to  office  directors  or  to 
the  ACI  in  cases  of  disagreement. 

In  this  fashion  the  ACI  and  OCL  staff,  in  col- 
laboration with  the  office  directors  and  their  Di- 
visions of  Reseaich,  will  formulate  a  coordinated 
program  of  intelligence  research.  It  will  accom- 
plish that  program  through  the  mechanism  of 
priorities;  it  will  facilitate  production  by  organ- 
izing task  groups  where  necessary ;  it  will  maintain 
quality  in  the  product  by  fixing  standards  and  ex- 
ercising editorial  review;  it  will  assist  in  making 
the  product  effective  by  furnishing  regular  project 
reports  and  by  proposing  and  effecting  dissemi- 
nation of  studies. 

V.  Activating  the  Plan 

It  is  essential  that  the  plan  be  put  into  effect 
promjjtly.  Subject  to  availability  of  funds  for  the 
fiscal  year  of  1947  this  appears  readily  feasible 
with  the  exception  of  the  transfer  of  the  geographic 
divisions  of  the  old  Office  of  Research  and  Intelli- 
gence (ORI)  to  the  appropriate  geographic  offices 
of  the  Department.  The  controlling  factors  here 
are  availability  of  space  and  the  necessity  of  pre- 
serving these  research  groups  as  functioning  units 
until  the  geographic  offices  are  in  a  position  to  ac- 
complish organizational  integration  as  called  for 
by  the  plan. 

To  i^rovide  flexibility  during  the  transitional 
period,  the  phasing  of  the  transfer  is  to  be  de- 
termined by  the  Assistant  Secretary  for  admini- 
stration in  the  best  interests  of  the  Department  of 
State  as  a  whole. 

Pkoceduke  on  Typical  Ekojects 

1.  Project  Initiated  in  a  Geographic  or  Research  Division 
(e.  g.  The  Oouin  Cabinet — samiile  of  a  fairly  routine 
project) 

(/.  Project  initiation 

(1)  Project  outlined  by  appropriate  operatiivg  division 
cliief. 

(2)  Project  discussed  witli  eliief  of  Research  Division 
and  cleared  by  office  director,  with  tentative  dis- 
tribution list. 

(3)  Project  cleared  by  OCL  coordination  staff,  which 
recommends  and  arranges  with  the  ofiBce  for  its 
collaboration  with  Biographical  Intelligence  Divi- 
sion of  OCD. 

(4)  Distribution  list  discu.ssed  if  necessary  between 
OCL  and  office. 

(Continued  on  paijc  fl}5) 


932 


DEPARTMENT  OF  STATE  BULLETIN 


Rubber  and  World  Economy 


Article  by  WILLIAM  T.  PHILLIPS  ' 


THE  IMPORTANCE  of  rubber  to  the  world  econ- 
omy is  evidenced  Ijj^  the  dependence  of 
motor  transport  and  aviation  upon  this  commod- 
ity. Eubber  consumption  has  increased  remark- 
ably the  world  over.  From  1917  when  world  rub- 
ber consumption  first  passed  200,000  tons  to  1939 
when  world  consumption  reached  1,108,000  tons, 
the  increase  has  been  almost  continuous  except 
during  the  periods  of  depressed  business  condi- 
tions. From  1914  to  1925  the  United  States  con- 
sumed approximately  two  thirds  of  the  world  rub- 
ber. This  proportion,  however,  declined  to  about 
50  percent  during  the  immediate  pre-war  years  as 
foreign  consumption  rapidly  increased.  The  de- 
clining proportion  of  rubber  consinned  by  the 
United  States  is  attributable,  in  part,  to  the  estab- 
lishment by  United  States  rubber  manufacturers 
of  foreign  manufacturing  plants  with  a  conse- 
quent reduction  in  exports  of  finished  rubber 
products. 

With  the  outbreak  of  war  in  Europe  in  1939,  it 
became  apparent  that  the  conflagration  might 
spread  and  the  natural  rubber-producing  areas  of 
the  Far  East  might  be  lost.  Consequently,  in- 
dustry and  government  spokesmen  early  in  1940 
began  active  advocacy  of  a  government-financed 
synthetic  I'ubber  program  as  a  military  security 
measure.  The  complexity  of  the  synthetic  rubber 
program  and  the  conflicting  interests  of  various 
patentees  led  to  i^rotracted  preliminary  negotia- 
tions. The  first  definite  agreement  regarding  the 
establishment  of  a  government  synthetic  rubber 
program  was  reached  on  May  15,  1941  when  the 
Reconstruction  Finance  Corporation  entered  into 
a  contract  with  four  rubber  companies  for  the  con- 
struction and  operation  of  copolymer  plants  (syn- 
thetic rubber  plants).  Each  plant  was  designed 
for  an  initial  annual  capacity  of  2,500  long  tons, 
which,  however,  was  expandable  to  10,000  tons 
each.    On  July  3,  1941  the  Rubber  Reserve  Com- 

'  Mr.  Phillips  is  special  assistant  to  the  Chief,  Interna- 
tional Resources  Division,  OflBce  of  International  Trade 
Policy,  Department  of  State. 


Y>any  authorized  the  expansion  of  these  four 
plants  to  10,000  tons  each.  Facilities  for  the  pro- 
duction of  the  butadiene  and  styrene  (materials 
for  making  synthetic  rubber)  necessary  for  the 
opei'ation  of  tliese  expanded  plants  were  also  au- 
thorized. 

During  1941  the  natural  rubber  stockpiling 
program  and  the  rubber-cotton  barter  agreement 
brought  rapid  increases  in  United  States  natural 
rubber  stocks  (from  125,000  tons  at  the  end  of 
1939  to  533,344  tons  at  the  end  of  1941).  The 
progress  of  the  Japanese  in  the  Pacific  quickly 
indicated  the  urgency  of  providing  for  far  greater 
synthetic  rubber  capacity;  and  the  capacity  au- 
thorized in  July  of  1941  by  the  Rubber  Reserve 
Company  was  expanded,  immediately  after  Pearl 
Harbor,  to  a  total  of  120,000  tons.  On  January  12, 
1942  plans  were  approved  for  the  construction  of 
additional  plants  to  bring  total  United  States 
capacity  up  to  400,000  tons  of  general  purpose 
synthetic  rubber,  known  as  GR-S,  and  shortly 
thereafter  increased  to  a  600,000  tons  annual 
capacity. 

Following  the  fall  of  Singapore  and  the  Nether- 
lands East  Indies,  a  program  was  formulated 
which  provided  for  877,000  long  tons  of  synthetic 
rubber  a  year  including  705,000  tons  of  GR-S, 
132,000  tons  of  butyl,  and  40,000  tons  of  neoprene. 

The  recommendations  of  the  Rubber  Survey 
Committee,  appointed  in  August  1942  and  headed 
by  Bernard  Baruch,  resulted  in  the  freezing  of 
synthetic  rubber  production  into  the  established 
processes.  Protluction  of  all  types  of  synthetic 
rubber  during  the  year  ending  December  31,  1945, 
approximated  820,000  long  tons. 

Tlie  establishment  of  this  tremendous  synthetic 
rubber  industry  within  the  United  States,  coupled 
with  the  potentialities  for  rubber  production  in 
the  Far  Eastern  natural  rubber-producing  areas, 
provided  a  situation  of  considerable  concern  to 
the  Department  of  State  due  primarily  to  the 
serious  surplus  rubber  situation  which  threatened 
to  develop  during  the  post-war  3'ears.     In  order 


JUNE  2,  1946 


933 


more  ailequately  to  appraise  the  rubber  situation 
aiul  to  assist  the  Department  in  the  formuUition 
of  rubber  policy,  an  announcement  was  made  in 
June  1!)44  tliat  a  Rubber  Advisory  Panel  had 
been  formed.-  This  panel,  composed  of  leaders  of 
the  rubber  manufacturing  industry  and  govern- 
ment officials  most  intimately  concerned  with 
rubber  atlairs,  was  designed  to  provide  a  forum 
from  which  the  Department  could  obtain  factual 
information  and  the  individual  opinions  of  panel 
membei-s  on  rubber  matters  of  an  international 
character. 

Concurrent  with  the  establishment  of  the  Rub- 
ber Advisory  Panel  of  the  State  Department  the 
Governments  of  the  Netherlands  and  the  United 
Kingdom  expressed  to  the  United  States  Govern- 
ment concern  regarding  the  potential  post-war 
rubber  situation,  since  they  had  produced  95  per- 
cent of  the  world's  supply  of  natural  rubber 
during  pre-war  years.  In  order  to  explore  the 
possible  post-war  rubber  situation,  arrangements 
were  made  by  the  three  Governments  to  hold 
exploratory  rubber  talks  in  London  during  early 
August  1944.  At  this  meeting  the  representatives 
of  the  participating  Governments — United  King- 
dom, Netherlands,  and  United  States — attempted 
to  forecast  the  probable  post-war  rubber  supply- 
demand  situation.  It  became  immediately  ap- 
parent during  the  course  of  this  meeting  that  none 
of  the  three  Governments  had  available  adequate 
information.  The  participants  therefore  agreed 
to  recommend  to  their  Governments  that  more 
detailed  analyses  be  made  and  that  periodic  meet- 
ings be  held  in  order  that  the  three  Governments 
might  have  the  advantage  of  the  information  and 
advice  of  one  another  regarding  problenis  of 
mutual  concern. 

Consequently  on  September  21,  1944,  by  means 
of  simultaneous  press  releases,  the  three  Govern- 
ments announced  that  they  were  prepared  to  par- 
ticipate in  a  Rubber  Study  Group.  This  group 
operating  on  a  completely  informal  basis  had  the 
following  terms  of  reference : 

1.  To  meet  from  time  to  time  to  discuss  com- 
mon problems  arising  from  the  production,  manu- 
facture, or  use  of  rubber  (crude,  synthetic,  and 
reclaimed) ; 

2.  To  initiate  studies  which  bear  on  these  com- 
mon problems; 

3.  To  examine  these  and  other  relevant  studies, 
and  to  consider  and  suggest  possible  solutions. 


The  group,  as  such,  was  not  authorized  to  make 
any  recommendations;  instead  the  members  were 
to  report  severally  to  their  Governments.  Each 
Government  would  then  have  the  advantage  of  all 
available  information  in  arriving  at  unilateral 
policj'  decisions.  Arrangements  were  also  made  to 
keep  other  interested  governments  informed  of 
the  studies  made  and  of  the  results  of  the  discus- 
sions of  the  group.  The  Rubber  Study  Group 
was  to  meet  periodically  and  to  function  during 
such  period  as,  in  the  opinion  of  each  of  the  par- 
ticipating governments,  it  continued  to  serve  the 
purposciS  for  which  it  was  designed. 

In  order  to  provide  a  means  whereby  the  United 
States  could  obtain  the  best  available  statistical 
evidence  in  this  country,  there  was  established  a 
technical  subcommittee  of  the  Rubber  Advisory 
Panel  composed  of  research  people  both  from  in- 
dustry and  from  Government  agencies.  The  tech- 
nical subcommittee  undertook  an  extensive  survey 
of  post-war  rubber  affairs  and  prepared  for  the 
Rubber  Advisory  Panel  a  document  embodying 
its  estimates  of  the  potential  post-war  rubber  situ- 
ation. 

In  January  1945  the  first  meeting  of  the  newly 
constituted  Rubber  Study  Group  was  held  in 
Washington.  Each  of  the  several  governments 
presented  to  the  group  the  fruits  of  its  individual 
studies  (the  document  prepared  by  the  technical 
subcommittee  was  presented  as  the  U.  S.  Delega- 
tion's contribution).  The  Rubber  Study  Group 
analyzed  and  reviewed  the  various  documents 
which  had  been  presented  and  prepared  a  joint 
document  which  embodied  the  consensus  of  the 
three  delegations.  In  accordance  with  the  terms 
of  reference  this  statistical  document  was  made 
available  to  34  other  interested  governments.  The 
Rubber  Study  Group  delegates  agreed  on  the  de- 
sirability of  periodic  reconsideration  of  the  post- 
war rubber  potentialities,  so  that  each  of  the  mem- 
ber governments  might  undertake  its  own  unilat- 
eral policy  determinations  based  upon  the  best  in- 
formation available. 

The  principal  points  which  emerged  from  this 
meeting  were  the  following: 

(a)  Discussion  of  these  extensive  studies  re- 
vealed that  there  was  great  uncertainty  about  the 
future  supply  and  demand,  particularly  the  sup- 
ply because  of  the  occupation  of  the  Far  Eastern 


Bulletin  of  Jtiiie  10.  104-1,  p.  544. 


934 

producing  territories  and  the  donbts  about  condi- 
tions likely  to  prevail  after  their  liberation. 

(h)  Despite  the  uncertainties,  however,  the 
group  concluded  that,  within  three  to  four  years 
after  liberation,  production  in  the  natural  rubber 
areas  of  the  world  could,  if  required,  reach  an 
annual  figure  in  the  neighborhood  of  1^  million 
tons;  synthetic  rubber  production  capacity  being 
1  to  ll^  million  tons  annually. 

(c)  Taking  into  account  consumption  trends 
and  pi'obable  future  consumption  of  around  IV2 
million  tons  annually,  the  group  concluded  that 
a  marked  disequilibrium  between  productive  cap- 
acity and  consumption  demand  could  develop  in 
the  course  of  a  few  years  after  liberation. 

Following  V-J  Day  and  the  liberation  of  the  Far 
Eastern  rubber  producing  areas  including  areas  of 
Indochina,  the  Rubber  Study  Group  held  a  meet- 
ing in  order  that  the  factors  relating  to  natural 
itubber  supplies  might  be  reappraised  and  the 
world  peacetime  rubber  consumption  pattern  ex- 
amined. The  Governments  of  the  United  King- 
dom, United  States,  and  Netherlands  invited  the 
French  Government  to  participate  in  this  second 
meeting.  This  invitation  was  accepted  by  the 
French  Govermnent.  This  meeting  of  the  Rubber 
Study  Group,  held  in  London  during  November 
1945,  was  thus  attended  by  representatives  of  the 
United  Kingdom,  the  United  States,  Netherlands,, 
and  France.  The  United  States  was  particularly 
anxious  that  a  meeting  be  held  at  this  time,  since 
the  Interagency  Policy  Committee  on  Rubber  has 
been  formed  to  make  recommendations  on  United 
States  policy  with  respect  to  rubber  affairs.  It  was 
felt  desirable  to  have  the  advantage  of  the  latest 
possible  information  from  all  sources  when  con- 
sidering the  United  States  position  on  such  mat- 
ters as  the  disposition  of  synthetic  rubber  plants, 
natural  rubber  stockpiling,  and  the  amount  of 
synthetic  to  continue  in  production  and  use  for 
purposes  of  national  security. 

The  Group  concluded  that: 

1.  Stocks  of  natural  rubber  in  the  Far  East 
upon  liberation  would  amount  to  some  290,000 
long  tons ; 

2.  Arrivals   of   natural   rubber   in   consuming 
■  areas  would  approximate  625,000  long  tons  for 

1946;  920,000  long  tons  for  1947;  and  1,320,000 
long  tons  in  1948 ; 

3.  Annual  rubber  consumption  (synthetic  and 
natural)  was  likely  to  be  of  the  order  of  1,500,000 
long  tons  for  the  next  few  years ; 


DEPARTMENT  OF  STATE  BULLETIN 

4.  Natural  rubber  arrivals  coupled  witli  poten- 
tial synthetic  production  could  result  in  a  serious 
surplus  sometime  after  1947. 

Following  the  return  of  the  U.  S.  representa- 
tives from  the  November  meeting  of  the  Rubber 
Study  Group,  the  Interagency  Policy  Committee 
on  Rubber,  under  the  chairmanship  of  William  L. 
Batt,  undertook  an  exhaustive  study  of  all  aspects 
of  the  rubber  situation  preparatorj'  to  the  making 
of  recommendations  on  the  rubber  policy  of  the 
United  States.  This  committee,  established  by 
John  W.  Snyder,  Director  of  War  Mobilization 
and  Reconversion,  was  instructed  to  survey  plans 
and  programs  and  make  recommendations  on: 

1.  The  maintenance  of  a  synthetic  rubber  in- 
dustry; 

2.  The  maintenance  of  stand-by  rubber  plants; 

3.  The  disposal  of  surplus  rubber  plants; 

4.  The  encouragement  of  rubber  research  and 
developnient ; 

5.  The  establishment  of  a  strategic  stockpile  of 
rubber ; 

6.  The  development  of  wild  and  cultivated 
natural  rubber  in  South  America ; 

7.  The  establishment  and  maintenance  of  a 
mutually  advantageous  program  for  importing 
natural  rubber  from  the  Far  East. 

After  some  months  of  investigation,  research, 
consultation,  and  hearings,  the  Interagency  Pol- 
icy Committee  on  Rubber  presented  its  first  report 
to  Mr.  Snyder.  The  complexity  of  rubber  affairs 
and  the  requirement  of  more  study  on  some  as- 
2)ects  of  the  problem  made  it  desirable  to  defer 
recommendations  on  those  aspects  in  which  the 
future  seemed  unclear.  However,  the  first  report, 
made  public  March  18,  1946,  included  much  of  in- 
terest to  the  public,  to  Congress,  and  to  foreign 
governments — particularly  to  natural  rubber  pro- 
ducers. 

The  Committee's  findings  were  divided  into  the 
following  short-run  and  long-run  recommenda- 
tions. 

Sho rt- ru n  Recommenda tions : 

1.  The  synthetic  rubber  industry  should,  and 
will  of  necessity,  continue  to  operate  at  a  high 
level  in  order  to  supjaly  the  large  demand  for  new 
rubber. 

2.  In  order  to  distribute  natural  nibber  supplies 
equitably  throughout  the  world,  international 
pooling  and  allocation  of  natural  rubber  should 
be  continued. 


JUl^E  2,  1946 

3.  Until  ample  supplies  of  natural  rubber  are 
assured,  all  but  the  least  efficient  synthetic  rubber 
plants  should  be  maintained  in  operation  or 
stand-by  condition. 

i.  Stocks  of  natural  rubber  in  the  United 
States  should  be  increased  in  this  early  period  in 
which  new  supplies  are  likely  to  be  uncertain,  so 
that  adequate  stocks  will  be  available  to  support  a 
somewhat  higher  rate  of  natural  rubber  consump- 
tion and  to  safeguard  the  national  interest. 

5.  Government  powers  to  allocate  rubber  to 
manufacturers  and  to  control  specifications  of 
rubber  products  should  be  continued  as  long  as  the 
demand  for  natural  rubber  exceeds  the  supply. 
These  powers  expire  on  June  30,  1946,  the  present 
termination  date  of  the  Second  War  Powers  Act. 
The  powers  of  that  act  relating  to  rubber  should 
therefore  be  extended. 

6.  Consistent  with  natural  rubber  receipts  and 
the  necessity  for  building  up  an  inventory  of 
natural  rubber,  the  proportions  of  natural  rubber 
permitted  to  be  used  in  civilian  products  should 
be  gradually  increased. 

7.  Manufacturers  should  be  allotted  small 
amounts  of  natural  rubber  for  experimental  pur- 
poses, since  throughout  the  war  little  experimen- 
tation was  possible  to  determine  the  most  desirable 
proportions  of  natural  and  synthetic  rubber  to 
use  in  a  given  rubber  article. 

8.  Until  such  time  as  private  enterprise  assumes 
the  responsibility,  the  Government  must  of  neces- 
sity continue  to  own  and  operate  sufficient  syn- 
thetic i-ubber  facilities  to  meet  the  needs  of  the 
domestic  economy. 

9.  The  Government  should  continue  to  sponsor 
broad  rubber-research  programs.  It  should  also 
encourage  private  industry  to  undertake  research 
with  private  funds. 

10.  Some  form  of  national  rubber  supervision 
should  be  established  in  which  all  Government 
agencies  having  responsibility  in  the  iiibber  field 
would  be  represented.  This  body  should  coordi- 
nate all  governmental  activities  pertaining  to 
rubber.  It  should  also  keep  the  rubber  situation 
under  continuous  review  in  order  to  recommend  to 
the  President  and  the  Congress  desirable  changes 
in  the  national  rubber  policy. 

Long-run  Recommendations : 

1.  There  should  be  continuously  maintained  in 
production  and  use,  regardless  of  cost,  sufficient 


935 

synthetic  rubber  capacity  to  meet  at  least  one 
third  of  our  general  purpose  rubber  requirements. 
This  involves  a  minimum  consumption  of  general- 
purpose  synthetic  rubber  in  the  neighborhood  of 
250,000  long  tons  per  year.  The  plants  maintained 
in  production  should  comprise  the  most  efficient 
and  low-cost  facilities  existing  at  present.  Conse- 
quently, the  inclusion  of  plants  using  alcohol  as  a 
raw  material  is  not  now  indicated. 

2.  The  Committee's  recommendation  as  to  the 
best  method  of  assuring  a  minimum  use  of  syn- 
thetic rubber  will  be  submitted  in  a  supplemental 
report.  The  necessary  legislation  should  be  based 
on  a  policy  of  minimum  government  interference 
and  of  maximum  scope  for  private  enterprise. 

3.  Private  ownership  and  operation  of  the  syn- 
thetic rubier  industry  should  be  a  major  objective, 
if  practicable.  The  Committee  feels  that  this  will 
provide  an  important  incentive  to  research  and 
development.  In  the  interest  of  developing  com- 
petitive conditions  in  the  synthetic  rubber  in- 
dustry, it  is  desirable  that  the  amount  of  produc- 
tion capacity  in  private  hands  should  exceed  the 
amount  of  guaranteed  use. 

4.  Such  efficient  general-purpose  synthetic  rub- 
ber plants  as  are  in  excess  of  those  required  for  the 
minimum  program  should,  if  not  acquired  by  pri- 
vate industry  and  available  for  the  production  of 
synthetic  rubber,  be  maintained  by  the  government 
in  adequate  stand-by  condition.  After  natural 
rubber  is  in  ample  supply  and  as  long  as  these 
plants  are  owned  by  the  government,  they  should 
not  be  operated  except  in  a  national  rubber  emer- 
gency. In  order  to  avoid  complete  reliance  upon 
IDetroleum  as  a  raw  material,  at  least  one  plant 
using  alcohol  feedstocks  should  be  included  in  the 
capacity  maintained  in  adequate  stand-by  condi- 
tion. The  total  of  general-purpose  synthetic  rub- 
ber plants  in  operation  or  stand-by  would  ap- 
proach about  600,000  long  tons  yearly  capacity  in 
the  light  of  present  estimates.  This  total  is  about 
60  percent  of  our  present  existing  capacity. 

5.  Broad  research  programs  for  quality  and 
cost  improvements  in  the  synthetic  rubber  field 
should  be  continued  by  government  and  private 
industry.  The  Department  of  Agriculture  should 
continue  experiments  with  the  cultivation  and 
processing  of  botanic  sources  of  natural  rubber 
capable  of  being  cultivated  in  the  United  States 
and  tropical  America. 

(Continued  on  page  961 ) 


936 


DEPARTMENT  OF  STATE  BULLETIN 


German  Documents  on  Hitler's  Plans 

For  the  Future  of  Norway  and  Denmark,  1942 


Foreign  Office  Memorandum 

Berlin,  February  17, 1942. 

I.  Minister  President  Quisling,  who  was  seated 
near  me  at  dinner  today  at  one  of  the  ceremonies 
in  his  honor,  described  to  me  his  visit  to  the 
Fiilirer.  He  had  left  with  the  Fiihrer  a  memoran- 
dum which  might  also  be  of  interest  to  the  Foreign 
Office.  So  that  I  might  read  it  at  leisure  he  handed 
me  a  copy  which  he  had  with  him,  which  is  en- 
closed herewith.  Naturally  I  took  no  stand  with 
respect  to  Quisling's  ideas,  but  was  entirely  re- 
ceptive. 

II.  From  Ministerialdirektor  Kritzinger  of  the 
Eeich  Chancellory  I  have  heard  that  Reich  Min- 
ister Lammers  will  take  up  with  the  Foreign  Of- 
fice for  further  attention  the  points  raised  in  the 
memorandum.  In  Reich  Minister  Lammers'  view 
the  memorandum  goes  far  beyond  the  bounds  of 
possibility.  Possibly,  however,  a  compromise  so- 
lution could  be  reached  on  the  following  bases : 

1.  Establishment  of  peace  without  conclusion  of 
a  peace  treaty. 

2.  Establishment  of  a  consular  office  in  Berlin 
and  of  mutual  consular  representation  in  several 
other  countries. 

Referred,  via  the  Secretary  of  State,  to  the  Reich 
Foreign  Minister. 

WOERMANN 
[Enclosure] 

These  are  translations  of  documents  on  Hitler's  plans 
for  the  future  of  Norway  and  Denmark,  secured  from  Ger- 
man GDvei'umeiit  files,  and  are  anionj;  the  German  official 
papers  which  the  Bulletin  is  currently  publishing;  Ger- 
man documents  on  the  invasion  of  Norway  appeared  in  the 
Bulletin  of  Apr.  28,  1946.  For  an  article  on  and  excerpts 
from  a  German  handbook  of  propaganda  directives  and  for 
German  documents  on  Sumner  Welles'  mission  in  1940,  see 
BULLSTHN  of  Feb.  24,  1946,  p.  278;  Mar.  3,  1946,  p.  311; 
Mar.  10,  1946,  p.  365 ;  and  Mar.  24,  1946,  p.  459. 

These  documents  have  been  selected  and  translated  by 
J.  S.  Beddie,  an  oflieer  in  the  Division  of  Research  and 
Publication.  Office  of  Public  Affairs,  Ds'partment  of  State. 


Memorandum  on  the  New  Order  in  Norway 

The  decision  on  the  New  Order  in  Europe,  and 
therefore  in  Norway  as  well,  lies,  of  course,  with 
the  German  Fiihrer  and  Reich  Chancellor.  But  as 
the  one  responsible  for  the  national  interests  of 
Norway  I  consider  it  my  duty,  for  the  common 
interests  of  Germany  and  Norway  to  set  forth  the 
following : 

1.  Immediate  prelhninarn  pence 

If  the  then  existing  Norwegian  Government  on 
April  9,  1940  had  acceded  to  the  wishes  of  the 
Reich  Chancellor,  peace  would  have  been  main- 
tained between  the  two  countries.  Account  would 
have  been  taken  fully  of  all  German  requirements 
made  necessary  by  the  war.  The  Quisling  Govern- 
ment wishes  to  i:)roduce  sncli  a  condition  now  and 
thereafter  to  proceed  with  the  laying  of  founda- 
tions for  a  Great  Germanic  League. 

The  situation  of  the  German  forces  in  Norway 
would  certainly  be  improved  by  the  restoration  of 
peace. 

Those  who  now  struggle  in  vain  for  the  freedom 
and  independence  of  Norway  at  the  side  of  Eng- 
land and  to  this  end  carry  on.  espionage  and  acts 
of  sabotage,  through  the  reestablishment  of  inde- 
pendence and  peace  would  find  all  grounds  for 
their  activities  removed.  No  one  can  rightfully 
keep  on  fighting  for  a  thing  which  has  been  al- 
ready attained.  This  would  be  of  added  impor- 
tance in  case  of  possible  attack  on  Norway.  The 
attackers  could  then  count  on  no  support  on  the 
part  of  the  population,  but  on  the  contrary  on  a 
negative  attitude. 

In  this  connection  it  may  be  of  interest  to  cite 
what  President  Roosevelt  said  in  his  last  New 
Year's  address  before  the  American  Congress : 

"Our  overwhelming  superiority  of  armaments 
must  be  adequate  to  put  weapons  of  war  at  the 
proper  time  into  the  hands  of  those  men  in  the 
conquered  nations,  who  stand  ready  to  seize  tUe 
first  opportiniity  to  revolt  against  their  German 
and  Japanese  ojjpressors,  and  against  the  traitors 
in  their  own  ranks,  known  by  the  already  infamous 


JUNE  2,  1946 


937 


name  of  Quislings.  (Applaiise.)  And  I  believe 
it  to  be  no  rash  iiropliec}',  when  I  state  that  as  we 
get  guns  to  the  2)ati'iots  in  those  lands,  they,  too, 
will  fire  shots  heard  round  the  world."  {Ap- 
plmtse.) 

Since  there  now  exists  in  Norway  a  Government 
recognized  by  Germany,  made  up  of  men  who 
never  wanted  war  with  Germany,  but  did  every- 
thing to  prevent  it,  which  strives  for  close  friend- 
ship w'ith  Germany  and  now  is  collaborating  with 
Germany  in  the  closest  manner,  it  would  seem  un- 
understandable  to  all  if  Germany  did  not  desire 
immediate  ijeace  with  a  Norway  led  by  such  a 
Government. 

Through  the  reestablishment  of  independence 
the  Norwegian  people  will  gain  confidence  in  Ger- 
many and  the  conclusion  of  peace  will  quiet  the 
general  situation. 

As  indicated  this  course  would  only  strengthen 
the  military  position  of  the  German  armed  forces 
in  Norway.  The  war  requirements  of  the  German 
forces  would  continue  to  be  cared  for  without 
change  and  the  necessary  freedom  of  operations 
■would  for  the  duration  of  the  war,  be  not  only 
assured,  but  supported  by  all  the  strength  of  the 
National  Government. 

By  the  declaration  of  Norwegian  independence 
and  the  restoration  of  peace  Germany  would  take 
the  offensive  politically  and  seize  the  initiative. 
From  the  propaganda  point  of  view  this  would 
represent  a  great  success  for  Germany.  England 
and  America  would  be  deprived  of  their  great 
propaganda  weapon,  the  charge  that  "Germany 
wishes  to  deprive  nations  of  their  independence 
and  to  opiDress  them."  The  effect  which  this  would 
liave  on  the  greater  part  of  public  opinion,  in 
Europe,  North  and  South  America,  even  in  the 
whole  world,  could  not  be  overestimated.  Of  this 
one  can  get  an  idea,  if  he  follows  the  world-wide 
blasts  of  propaganda  hostile  to  Germany  on  the 
subject  of  the  establishment  of  the  Quisling  Gov- 
ernment in  Norway.  They  fear  nothing  more  than 
that  this  Government  should  receive  its  unquali- 
fied independence. 

It  is  essential  to  mobilize  all  Norwegian  national 
forces  for  cooperation  with  Germany  and  for  the 
New  Order  in  Europe,  which  can  only  be  achieved 
through  the  conclusion  of  peace  and  reestablish- 
ment of  independence.  A  contrary  course  pro- 
duces uncertainty  and  doubt  in  the  population  and 
forces  many  good  national  elements  along  false 
paths. 

695951—46 3 


To  lead  all  desirable  elements  along  the  right 
road  is  especially  important  in  the  case  of  Nor- 
way, which  forms  a  foundation  stone  of  the  New 
Order  in  Europe  and  to  a  certain  extent  has  be- 
come regarded  in  world-wide  propaganda  as  an 
example.  Just  so  will  the  fate  of  Norway  serve  as 
an  example  for  the  other  Nordic  and  Germanic 
states  of  what  they  in  future  may  have  to  expect 
or  fear  from  Germany. 

The  Quisling  Government  through  the  conclu- 
sion of  peace  would  be  in  a  position  to  reestab- 
lish legations,  which  also  would  have  a  favorable 
result  for  Germany,  since  tliereby,  among  other 
effects,  the  dangerous  influence  wliich  the  present 
legations  of  the  Nygaardsvold  emigre  government 
exercise,  would  be  largely  eliminated.  For  ex- 
ample a  Norwegian  national  legation  in  Stock- 
holm would  produce  for  Germany  an  immediate 
result  of  importance  for  the  war.  In  Sweden 
there  are  (a)  about  300,000  tons  of  seaworthy  Nor- 
wegian shipping,  (6)  at  least  100,000  tons  of 
Norwegian  shipping  not  seaworthy  at  present. 

Under  present  conditions  the  Norwegian  emigre 
government  in  London  exercises  control  over  these 
ships. 

A  Norwegian  legation  recognized  by  Sweden 
and  established  at  Stockholm  would  not  only  mini- 
mize at  once  the  influence  in  Stockholm  of  the 
Norwegian  emigre  government,  but  would  secure 
the  immediate  availability  of  Norwegian  shipping 
lying  in  Sweden,  needed  urgently  for  war  trans- 
port requirements. 

The  solution  indicated  by  the  present  arrange- 
ment, namely  that  our  foreign  representation  be 
assimilated  to  the  German  legations,  and  in  Ber- 
lin to  the  office  of  the  Reichskomissar,  would 
bring  the  Quisling  Government  into  a  very  dif- 
ficult position  with  the  Norwegian  people. 

By  the  establishment  of  independent  Norwe- 
gian legations  our  common  interests  would  secure 
a  double  representation  abroad  (through  Ger- 
many and  through  Norway),  which  must  cer- 
tainly be  considered  a  strengthening  of  German 
influence. 

The  independent  legations  are  actually  both  de- 
sirable and  necessary.  Foreign  policy  carried  out 
in  common  would  be  aided  by  mutually  confiden- 
tial and  secret  information  furnished  both  For- 
eign Offices. 

As  soon  as  the  Germanic  League  under  German 
leadership  is  established,  a  Germanic  League 
Council  would  meet  periodically  in  Berlin  mider 


938 


DEPARTMENT  OF  STATE  BULLETIN 


German  chairmanshiix  To  this  the  Germanic 
countries  would  send  their  Minister  Presidents  or 
Foreign  Ministers  as  plenipotentiaries. 

The  League  Council  would  set  up  the  basic 
principles  o,f  the  common  Germanic  foreign 
policy. 

A  Norwegian  Foreign  Minister  is  necessary 
since  Sweden  and  Denmark  both  have  one.  These 
countries  would  not  be  prepared  voluntarily  to 
give  up  their  own  Foreign  OiRces,  since  these  are 
symbols  of  independence.  Germany  would  attain 
the  same  end  by  coordination  of  foreign  policies 
through  the  Germanic  League  Council.  If  Ger- 
many considers  it  important  to  establish  the  Great 
German  League,  the  proper  line  of  development 
must  not  be  hindered  by  unsuitable  measures, 
which  would  arouse  the  greatest  opposition  in  all 
of  Scandinavia. 

The  conditions  of  a  preliminary  peace  agree- 
ment should  be  determined  at  once  and  commis- 
sions on  the  part  of  Germany  and  of  Norway  for 
the  arrangement  of  a  definitive  treaty  should  be 
formed.  (A  draft,  in  which  appear  proposals  for 
the  principal  points  of  the  preliminary  peace 
agreement,  is  added  as  an  enclosure.) 

2.  Final  conclusion  of  peace 

I  assume  that  the  peace  negotiations  on  all 
points  in  question  will  not  need  to  consume  too 
long  a  time  and  if  the  definitive  conclusion  of  peace 
between  Germany  and  Norway  could  be  pro- 
claimed on  April  9,  the  anniversary  of  the  occu- 
pation, it  would  be  very  desirable. 

3.  Reciprocal  representation 

The  influence  of  Germany  in  Norway  is  assured 
through  the  establishment  of  the  present  Norwe- 
gian Government  and  the  movement  standing  be- 
hind it.  A  close  and  friendly  cooperation  between 
the  German  and  Norwegian  ministries  can  be  pro- 
vided through  the  exchange  of  officials. 

To  underline  the  idea  of  alliance  it  would  be 
very  desirable  if  the  reciprocal  representations 
could  be  designated  as  Embassies. 

4.  Cooperation  with  the  German  armed  forces 
The  idea  mentioned  in  an  official  pronouncement 

from  Berlin  of  a  lease  of  bases  (parallel  to  the  99- 
year  lease  of  English  bases  by  America)  contra- 
dicts the  Germanic  idea  conceived  of  by  Reich 
Chancellor  Adolf  Hitler  and  myself.  Between 
Germanic  states  there  are  no  leased  bases,  but  only 
common  defense  of  the  common  Germanic  area 
against  the  common  enemy.  Norway  voluntarily 
puts  at  the  disposal  of  the  German  Reich  as  the 


leader  of  the  Germanic  League  of  States  the  neces- 
sary harbors  and  air  fields  for  the  common  defense 
and  the  carrying  on  of  offensive  warfare,  for  the 
Navy  and  Air  Force  will  be  in  future  in  the  Ger- 
manic League  of  States  a  common  league  Navy 
and  Air  Force.  The  coast  defense  and  the  Nor- 
wegian National  Army  remain  under  Norwegian 
command. 

This  arrangement,  which  is  considered  as  a  goal 
for  after  the  war,  should  be  announced  at  present. 
It  would  be  desirable,  by  application  of  the  exist- 
ing basic  laws  on  general  obligatory  military  serv- 
ice, to  begin  at  once  the  organization  of  a  Norwe- 
gian army  corps  of  three  divisions,  as  well  as  to 
bring  the  volunteer  Norwegian  Legion  up  to  the 
strength  of  an  enlarged  regiment. 

Attention  should  also  be  given  at  once  to  a  bet- 
ter liaison  between  the  German  armed  forces  and 
the  Norwegian  Government  in  order  to  assure  the 
necessary  confidential  collaboration.  I  therefore 
request  the  naming  of  armed-service  attaches.  It 
is  also  necessary  that  all  Wehrmacht  units  in  Nor- 
way be  directed  to  support  the  NS  [Nasjonal 
Samling]  in  every  way  with  all  their  power. 

5.  With  the  conclusion  of  peace  Norway  will  at 
once  adhere  to  the  Anti-Comintern  Pact,  and  also 
to  the  Three  Power  Pact,  as  soon  as  the  National 
Government  feels  strong  enough  to  undertake  the 
obligations  accompanying  it. 

6.  Concerning  economic  and  supply  questions  a 
separate  memorandum  will  be  forwarded. 

Oslo,  February  10,  191^2. 

[Enclosure] 
DRAFT 

Principal  Points  of  Preliminaky  Peace 

Agreement 

Point  1.  Germany  recognizes  Norway  as  a  free 
and  independent  state,  with  equal  rights. 

Point  %.  Germany  waives  war  damages. 

Point  3.  The  German  Wehrmacht  is  assured 
for  the  duration  of  the  war  necessary  freedom 
of  operation  in  Norway. 

Point  Ji..  The  Norwegian  economy  for  the  dura- 
tion of  the  war  will  operate  to  its  full  capacity  in 
the  interests  of  the  European  war  against  England. 

Point  6.  In  the  peace  negotiations  with  Eng- 
land Germany  will  support  with  all  its  force  the 
justified  demands  of  Norway  upon  England  for 
indemnity  on  account  of 

(a)  the  involvement  of  Norway  in  the  war  as 
a  result  of  England's  war  policy, 


JUNE  2,  1946 


939 


{i)   the  theft  o,f  Norwegian  gold  and  of  the 
Norwegian  merchant  and  whaling  fleet, 
(c)  other  related  war  damage. 

Point  6.  There  will  be  established  as  soon  as 
possible  between  Germany  and  Norway  an  alliance 
which  will  serve  as  a  basis  for  a  Great  Germanic 
League.     Principal  points  of  the  alliance : 

(a)  Active  reciprocal  participation  in  the  de- 
fense of  both  states  under  the  supreme  command 
of  the  supreme  German  commander. 

(&)  A  common  Germanic  Navy  and  Air  Force, 
but  an  independent  Norwegian  Army  and  a  coastal 
defense,  apart  from  the  necessary  larger  bases  and 
air  fields  under  the  control  of  the  common  Navy 
and  Air  Force. 

The  expenses  of  the  common  Navy  and  Air  Force 
will  be  allotted  in  proportion  to  the  population 
of  the  two  states. 

(c)  The  necessary  common  foreign  policy  will 
be  conducted  through  reciprocal  confidential  and 
intimate  exchange  of  information  on  the  part  of 
both  Foreign  Offices. 

Point  7.  There  will  meet  at  once  a  commission 
named  on  the  part  of  both  Germany  and  Norway 
for  the  arrangement  of  the  definitive  terms  of 
peace  and  the  final  peace  treaty. 

Reich  Minister  Lammeks  to  Minister  President 
Quisling 

Berlin,  17  Sepemler  19Jf2. 

Secret  Air  Mail 

Honorable  Minister  President  ! 

By  my  letter  of  June  22,  1942  I  informed  you 
that  the  Fuhrer  did  not  consider  that  the  existing 
stage  of  the  war  was  a  suitable  time  in  which  to 
adjust  finally  the  relationship  between  the  Great 
German  Reich  and  Norway.  The  Fiihrer  has 
delegated  me  to  inform  you  further  that  the  defin- 
itive adjustment  of  these  relations  can  only  be 
achieved  after  the  end  of  the  war.  The  FLlhrer 
accordingly  desires  that  during  the  war  no  nego- 
tiations or  discussions  occur  on  the  subject  of  a 
final  or  temporary  peace  settlement  between  the 
Great  German  Reich  and  Norway,  or  on  the  subject 
of  other  steps  which  might  affect  in  any  way  the 
relationship  of  Norway  to  the  Reich  after  the  war. 
For  the  duration  of  the  war  the  existing  situation 
of  Norway  politically,  as  well  as  the  situation  in 
law  and  international  law,  shall  be  maintained,  so 
that  the  matter  of  diplomatic  representation,  or 


even  of  commercial  representation,  shall  not  arise. 
Accordingly  Norwegian  interests  abroad  should  be 
taken  care  of  by  the  competent  authorities  of  the 
German  Reich,  vis-a-vis  the  Reich  Government 
through  the  Reich  Commissar,  in  the  occupied  ter- 
ritories through  the  German  administration  of 
these  territories,  in  friendly  countries  through  the 
existing  diplomatic  missions  of  the  Reich  therein 
or  thi-ough  the  Foreign  Office. 

The  Fiihrer  requests  that  all  political  questions 
affecting  Norway,  which  require  discussion  with 
the  Reich,  be  taken  up  exclusively  with  the  Reich 
Commissar  as  the  sole  responsible  representative 
of  the  Fiihrer  for  the  field  of  Norwegian  civil  af- 
fairs, and  also  that  any  requests  which  you  may 
wish  to  bring  before  the  Fiilirer  personally,  be 
channeled  regularly  by  way  of  the  Reich  Com- 
missar. In  the  protection  of  Norwegian  interests 
in  the  occupied  territories  and  abroad,  the  Reich 
Commissar  through  the  competent  German  au- 
thorities, would  be  glad  to  know  of  those  Norwe- 
gians who  belong  to  or  axe  favorable  to  the  NS, 
who  might  be  used  as  advisers.  If  matters  are  not 
so  handled,  I  would  be  compelled  where  required 
to  act  in  the  sense  of  this  directive. 

The  Fiilirer  would  be  especially  grateful  to  you, 
Honorable  Minister  President,  if  you  on  your  side 
would  take  steps  to  suppress  any  discussion  which 
may  arise  within  your  organization  aimed  at  an 
alteration  of  the  position  of  Norway  politically  or 
in  international  law,  since  such  discussions  under 
the  prevailing  conditions  of  German-Norwegian 
relations  could  only  be  detrimental. 

The  Fiihrer  hopes  that  it  will  be  possible  within 
a  reasonable  time  to  see  you  again  for  a  conference 
in  person  and  he  asks  that  his  faithful  regards  be 
conveyed  to  you. 

With  the  expression  of  my  highest  regard  I 
remain, 

Yours  very  respectfully. 

Dr.  Lammeks 

Foreign  Office  Memorandum 

State  Secret 

Counsellor  of  Legation  Hensel  of  the  Legation 
at  Copenhagen,  who  arrived  here  by  airplane  this 
afternoon,  at  the  request  of  the  Acting  Plenipo- 
tentiary Charge  d'Affaires  Barandon,  informed  me 
verbally  as  follows : 

The  new  Commanding  Officer  of  the  German 
troops  in  Denmark,  General  von  Hannecken  on 
October  2,  1942,  the  day  of  his  arrival  in  Copen- 


940 


DEPARTMENT  OF  STATE  BULLETIN 


hagen,  visited  the  Acting  Plenipotentiary  Charge 
d' Affaires  Barandon  at  the  Legation  and  in  the 
presence  of  SS  Brigade  Commander  Kanstein  and 
Lt.  Col.  Count  Brandenstein-Zeppelin,  Chief  of 
Staff  to  the  Commanding  General,  informed  him 
of  the  instructions  which  he  had  received  from  the 
Fiihrer  verbally  on  October  1.  The  essential  con- 
tent of  these  instructions  is  as  follows : 

The  Fiilirer  proceeded  on  the  principle  that  the 
declarations  of  April  9,  1940,  on  which  the  rela- 
tionship of  Germany  and  Denmark  hitherto 
rested,  had,  through  the  developments  of  the  past 
years  and  the  conduct  of  the  Danes  themselves, 
become  obsolete.  He  had  for  some  time  regarded 
these  commitments  as  troublesome  and  unsuitable. 
These  declarations  had  had  their  justification  in 
a  time  when  a  long  duration  of  the  war  was  not 
expected  and  when  the  developments  which  had 
occurred  in  the  meantime  had  not  been  foreseen. 
Now  they  must  be  eliminated.  For  the  future  it 
was  impossible  that  in  the  New  Europe  established 
under  German  leadership  there  should  exist  a  form 
of  state  with  a  democratic  government  and  under  a 
royal  house  which  up  to  now  had  displayed  noth- 
ing but  ill-will.  For  the  future  it  was  entirely 
impossible  that  he,  the  Fiihrer,  should  restore 
Denmai'k  in  its  previously  existing  form  (mean- 
ing that  German  troops  should  leave  Denmark). 
On  the  contrary,  he  needed  Denmark,  as  he  needed 
Norway,  to  hold  England  in  check  and  for  this 
the  possession  of  Denmark  was  essential.  Den- 
mark must  become  a  German  province. 

For  the  fact  that  things  had  gone  as  far  as  they 
had,  the  Danes  themselves,  with  their  King  and 
Government,  were  to  blame.  The  King  and  the 
royal  house  had  never  concealed  their  unfavorable 
attitude  and  tlieir  preference  for  Sweden  and 
England.  A  Danish  Minister  had  been  allowed 
to  leave  the  country  and  the  volunteers  of  the 
Freikorps  Diinemark  had  been  ridiculed  and  mis- 
treated. The  Danish  Government  and  the  King 
had  let  the  opportunity  escape  and  had  never 
made  us  an  offer  of  North  Schleswig.  The  royal 
house  and  the  present  form  of  government  were 
disturbing  factors  in  developments  as  a  whole 
and  therefore  he  had  finally  come  to  the  conclu- 
sion that  both  should  be  put  aside. 

For  the  way  things  had  gone,  so  the  Fiihrer  ex- 
pressly declared,  no  blame  could  be  cast  on  either 

'  Refers  to  the  incident  of  the  King's  reply  to  Hitler's 
birthday  greeting. 


the  Plenipotentiary  von  Kenthe-Fink  or  on  Gen- 
eral Liidke.  They  had  within  the  lin;its  of  their 
respective  spheres  acted  correctly  according  to 
their  instructions  then  in  force.  From  now  on, 
however,  there  would  be  new  basic  pi-inciples. 

As  Plenipotentiary  Avould  come  a  hard-fisted 
National  Socialist  and  the  Military  Commanding 
Officer  as  well  as  the  armed  .forces  would  regard 
tliemselves  as  not  in  a  friendly,  but  in  a  hostile 
country.  He  forbade  the  Commanding  General 
to  make  a  call  on  the  King.  He  could  let  the 
Foreign  Minister  know  through  a  message  from 
his  adjutant  that  he  had  taken  over  command 
(which  procedure  had  already  been  followed). 
In  case  the  King  wished  to  confer  with  him  or 
see  him  personally,  the  Commanding  General 
should  not  be  available.  The  members  of  the 
armed  forces  must  break  off  all  relationshiia  with 
Danes. 

As  regards  the  government  the  aim  must  be  to 
establish  as  soon  as  possible  a  regime  under  the 
leadersliip  of  the  Danish  National  Socialists. 
Whether  the  party  leader  of  the  Danish  National 
Socialists,  Dr.  Frits  Clausen,  was  the  right  person 
or  whether  he  had  a  large  or  small  proportion  of 
the  Danish  people  behind  him  was  completely  un- 
important. The  Fiihrer  needs  in  Denmark  a  pup- 
pet government  which  will  do  everything  he  re- 
quires of  it.  Even  the  English  have  set  up  puppet 
governments  in  Iran  and  Iraq.  The  head  of  this 
government  must  always  be  conscious  that  in  case 
of  a  possible  withdrawal  of  German  troops  he 
would  be  hanged  to  the  nearest  lamp  post.  The 
Fiihrer  in  this  connection  would  see  that  the  new 
PlenijDotentiary  to  be  appointed  would  receive  the 
necessary  instructions. 

Any  resistance,  even  the  slightest,  must  be  sup- 
pressed by  force.  Should  it  appear  that  the  Dan- 
ish police  force  does  not  suffice  or  does  not  act  in 
accordance  with  our  desires,  additional  military 
forces,  possibly  also  SS  troops  will  be  made  avail- 
able. 

In  connection  with  the  expression  of  the  King's 
regrets,^  the  Fiihrer  declared  that  he  wished  that 
the  Danish  Government  be  only  informed  that  he 
had  taken  note  of  the  King's  regrets.  A  visit  by 
the  Crown  Prince  need  not  be  discussed. 

On  the  subject  of  the  royal  family  the  Fiihrer 
added  that  he  did  not  consider  an  abdication  of 
the  King  appropriate  at  present. 

Berlin,  October  3, 194^.        Yos  Ghundhere 


The  United  Nations 


The  Security  Council 

SOVIET-IRANIAN  MATTER 


Letters  From  the  Iranian  Ambassador  to  the 
President  of  the  Security  Council  and  to 
the  Secretary-General  ^ 

20  May  194.6 

Sir: 

I  have  the  honour  to  submit  herewith  the  report 
of  such  information  as  is  available  on  this  date, 
20  May,  to  the  Government  of  Iran  with  respect 
to  tlie  matters  brought  by  Iran  to  the  attention  of 
the  Security  Council. 
I  remain.  Sir, 

Your  obedient  servant 

Hussein  Ala 
Iranian  Anibassador 

His  Excellency,  Mr.  Trygve  Lie, 

Secretary-General  of  the  United  Nations 

W  May,  1946 
Sir, 

In  compliance  with  the  resolutions  of  the  Se- 
curity Council  of  4  April  and  8  May  1946  and  with 
reference  to  the  report  submitted  on  6  May  1946  on 
behalf  of  the  Government  of  Iran,  I  beg  to  state 
that  there  is  not  sufficient  first  hand  information 
available  to  my  Government  as  to  the  true  state  of 
affairs  throughout  Azerbaijan  to  make  the  com- 
plete report  requested  by  the  Security  Council. 

Such  information  as  is  available  to  me  up  to 
5  o'clock  this  afternoon  is  to  the  effect  that  as  a 
consequence  of  the  interferences  previously  com- 
plained of,  the  Iranian  Government  is  still  being 
prevented  from  exercising  anj'  effective  authority 
in  the  Province  of  Azerbaijan  and  that  Soviet  in- 
terference in  the  internal  affairs  of  Iran  has  not 
ceased.  It  has,  therefore,  not  been  possible  to  make 
such  investigation  as  is  required  to  establish  that 
all  of  the  Soviet  troops  have  been  withdrawn  from 
the  whole  of  Iran  and,  in  particular,  to  investigate 
reports  that  Soviet  soldiers  have  been  left  in  Azer- 
baijan in  civilian  clothes  and  that  military  equip- 


ment had  been  placed  at  the  disposal  of  those  who 
challenge  the  sovereignty  and  territorial  integrity 
of  my  country. 

While  a  commission  has  been  appointed  and  is 
now  stated  to  be  in  the  city  of  Tabriz  to  make  in- 
quiries about  conditions  throughout  the  Province 
of  Azerbaijan,  it  is  doubtful  that  an  adequate  in- 
vestigation can  be  conducted  or  a  satisfactory  re- 
port made  by  the  Government  of  Iran  until  this 
Government  is  ^n  a  position  to  exercise  its  full 
authority  throughout  the  Province  of  Azerbaijan. 

The  deep  concern  of  Iranians  regarding  the 
presei'vation  of  the  independence  and  territorial 
integrity  of  Iran  and  the  maintenance  of  interna- 
tional peace  and  security  is  a  matter  of  common 
knowledge.  The  disputes  which  my  Government 
had  believed  would  end  by  reason  of  the  assurances 
of  the  Soviet  Union  given  to  the  Security  Council 
cannot  be  said,  in  reality,  to  have  been  resolved  in 
a  manner  consistent  with  the  purposes  and  prin- 
ciples of  the  Charter  of  the  United  Nations.  In 
the  report  of  6  May,  1946, 1  stated : 

"While  it  is  hoped  that  arrangements  can  be 
made  which  will  remove  the  unfortunate  results 
of  the  interference^  complained  of,  it  is  impossible 
to  forecast  at  this  time  with  certainty  what  the 
subsequent  developments  will  be." 

Unfortunately,  the  course  of  events  since  this  state- 
ment was  made  has  demonstrated  that  the  threat 
to  the  integritj^  of  Iran  and  to  international  peace 
has  grown  more  serious. 

I  have  not  received  from  my  Government  au- 
thentic information  with  respect  to  the  reported 
clashes  between  Iranian  Troops  and  the  military 
forces  in  Azerbaijan  organized  during  the  period 
of  Soviet  occupation.  If  the  reports  of  armed  con- 
flict in  this  strategically  critical  area  are  true,  ob- 


"  Security  Council  Documents   S/66  and   S/68  21  May 
1946. 


941 


942 


DEPARTMENT  OF  STATE  BULLETIN 


viously  the   danger  to   international  peace  and 
security  is  both  serious  and  imminent. 
I  have  the  honour  [etc.] 

Hussein  Ala 
Iranian  Anibassador 

His  Excellency,  M.  Alexandre  Parodi, 
President  of  the  Security  Council 

m  May,  me 

Sir: 

In  further  compliance  with  the  resolutions  of 
the  Security  Council  of  4  April  and  8  May,  1946, 
I  have  the  honour  to  submit  herewith  a  report  of 
additional  information  with  respect  to  the  matters 
brought  by  Iran  to  the  attention  of  the  Security 
Council. 

I  remain.  Sir, 

Your  obedient  Servant, 

Hussein  Ala 
Iranian  Ambassador 

His  Excellency,  Mr.  Trtgve  Lie, 

Secretary-General  of  the  United  Nations. 

m  May,  19 k6 
Sir, 

Yesterday  I  reported  on  behalf  of  my  Govern- 
ment such  information  as  was  available  to  me  up 
to  5  o'clock  in  the  afternoon  of  20  May,  1946,  with 
respect  to  the  question  of  the  evacuation  of  Soviet 
troops  from  the  whole  of  Iran  and  Soviet  inter- 


ferences in  the  internal  affairs  of  my  country.  I 
referred  to  the  Commission  appointed  to  make 
inquiries  about  conditions  in  Azerbaijan  and  have 
now  received  further  information  based  upon  tele- 
graphic dispatches  sent  by  the  members  of  the 
Commiasion  in  Azerbaijan  to  my  Government  in 
Teheran. 

The  information  as  transmitted  to  me  at  4  o'clock 
this  afternoon  is,  in  translation,  as  follows : 

"In  order  to  obtain  information  on  the  circum- 
stances of  evacuation  of  all  parts  of  Azerbaijan, 
I  despatched  a  commission  of  investigation  from 
Teheran  and  in  the  course  of  one  week  it  investi- 
gated carefully  the  regions  of  Azerbaijan  such  as 
the  following  important  centres:  Tabriz  and  its 
suburbs,  Marand,  Julfa,  Khoy,  Salmas,  Maju, 
Rezacyeh  and  Mianduab. 

The  telegraphic  reports  are  to  the  effect  that 
no  trace  whatever  of  Soviet  troops,  equipment  or 
means  of  transport  was  found,  and  that  according 
to  trustworthy,  local  people,  who  were  questioned 
in  all  these  places,  Soviet  troops  evacuated  Azer- 
baijan on  6  May." 

(Sgd.)  Qavam-es-Saltaneh 

I  have  the  honour  [etc.] 

Hussein  Ala 
Iranian  Ambassador 

His  Excellency,  M.  Alexandre  Parodi, 
President  of  the  Security  Council 


PROVISIONAL  RULES  OF  PROCEDURE  OF  THE  SECURITY  COUNCIL 


[After  Rule  23,  printed  in  Buixetin  of  April  21,  1946, 
p.  663,  add  the  following  additional  rules.  TUe  Annex 
printed  on  page  664  remains  the  same.] 

VI.  Conduct  of  Business 

Rule  U 

The  President  shall  call  upon  representatives  in 
the  order  in  which  tliey  signify  their  desire  to 
speak. 

Rule  26 

The  Security  Council  may  appoint  a  commission 
or  committee  or  a  rapporteur  for  a  specified 
question. 

Rule  26 

The  President  may  accord  precedence  to  any 
rapporteur  appointed  by  the  Security  Council. 
The  Chairman  of  a  commission  or  committee,  or 


the  rapporteur  appointed  by  the  commission  or 
committee  to  present  its  report,  may  be  accorded 
precedence  for  the  purpose  of  explaining  the 
report. 

Rul^  27 

If  a  representative  raises  a  point  of  order,  the 
President  shall  immediately  state  his  ruling.  If 
it  is  challenged,  the  President  shall  submit  his 
I'uling  to  the  Security  Council  for  immediate  de- 
cision and  it  shall  stand  unless  overi-uled. 

Rule  28 

Proposed  resolutions,  amendments  and  substan- 
tive motions  shall  normally  be  placed  before  the 
representatives  in  writing. 

'  These  rules  were  adopted  by  the  Security  Council  at  its 
41st  and  42d  meetings  on  May  16  and  17,  1946  (Security 
Council  Document  S/62  of  17  May  l&i6). 


JUNE  2,  1946 


943 


Rule  29 

Principal  motions  and  draft  resolutions  shall 
have  precedence  in  the  order  of  their  submission. 

Parts  of  a  motion  or  of  a  draft  resolution  shall 
be  voted  on  separately  at  the  request  of  any  rep- 
resentative, unless  the  original  mover  objects. 

Rule  30 
The  following  motions  shall  have  precedence  in 
the  order  named  over  all  principal  motions  and 
draft  resolutions  relative  to  the  subject  before  the 
meeting : 

1.  to  suspend  the  meeting; 

2.  to  adjourn  the  meeting; 

3.  to  adjourn  the  meeting  to  a  certain  day  or 
hour ; 

4.  to  refer  any  matter  to  a  committee,  to  the 
Secretary-General  or  to  a  rapporteur; 

5.  to  postpone  discussion  of  the  question  to  a 
certain  day  or  indefinitely;  or 

6.  to  introduce  an  amendment. 

Any  motion  for  the  suspension  or  for  the  simple 
adjournment  of  the  meeting  shall  be  decided  with- 
out debate. 

Rule  31 

It  shall  not  be  necessary  for  any  motion  or 
draft  resolution  proposed  by  a  representative  on 
the  Security  Council  to  be  seconded  before  being 
put  to  a  vote. 

Rule  32 

A  motion  or  draft  resolution  can  at  any  time 
be  withdrawn,  so  long  as  no  vote  has  been  taken 
with  respect  to  it. 

If  the  motion  or  draft  resolution  has  been  sec- 
onded, the  representative  on  the  Security  Council 
who  has  seconded  it  may  require  that  it  be  put 
to  the  vote  as  his  motion  or  draft  resolution  with 
the  same  right  of  precedence  as  if  the  original 
moves  had  not  withdrawn  it. 

Rule  33 
If  two  or  more  amendments  to  a  motion  or  draft 
resolution  are  proposed,  the  President  shall  rule 
on  the  order  in  which  they  are  to  be  voted  upon. 
Ordinarily,  the  Security  Council  shall  first  vote  on 
the  amendment  furthest  removed  in  substance 
from  the  original  proposal  and  then  on  the  amend- 
ment next  furthest  removed  until  all  amendments 
have  been  put  to  the  vote,  but  when  an  amendment 
adds  to  or  deletes  from  the  text  of  a  motion  or  draft 
resolution,  that  amendment  shall  be  voted  on  first. 


Rule  3i 

Any  member  of  the  United  Nations  which  is  not 
a  member  of  the  Security  Council  may  be  invited, 
as  the  result  of  a  decision  of  the  Security  Council, 
to  participate,  without  vote,  in  the  discussion  of 
any  question  brought  before  the  Security  Council 
when  the  Security  Council  considers  that  the  in- 
terests of  that  Member  are  specially  affected,  or 
when  a  Member  brings  a  matter  to  the  attention  of 
the  Security  Council  in  accordance  with  Article  35 
(1)  of  the  Charter. 

Rule  35 
Any  Member  of  the  United  Nations  invited  in 
accordance  with  the  preceding  Rule  or  in  applica- 
tion of  Article  32  of  the  Charter  to  participate  in 
the  discussions  of  the  Security  Council  may  submit 
proposals  and  draft  resolutions.  These  proposals 
and  draft  resolutions  may  be  put  to  a  vote  only  at 
the  request  of  a  representative  on  the  Security 
Council. 

Rule  36 

The  Security  Council  may  invite  Members  of 
the  Secretariat  or  other  persons,  whom  it  con- 
siders competent  for  the  purpose,  to  supply  it  with 
information  or  to  give  other  assistance  in  examin- 
ing matters  within  its  competence. 

VII.  Voting 

Rule  37 

Voting  in  the  Security  Council  shall  be  in  ac- 
cordance with  the  relevant  Articles  of  the  Charter 
and  of  the  Statute  of  the  International  Court  of 
Justice. 

VIII.  Languages 

Rule  38 

Chinese,  English,  French,  Russian  and  Spanish 
shall  be  the  official  languages  of  the  Security 
Council,  and  English  and  French  the  working 
languages. 

Rule  39 

Speeches  made  in  either  of  the  working  lan- 
guages shall  be  interpreted  into  the  other  working 
language. 

Rule  W 

Speeches  made  in  any  of  the  three  other  official 
languages  shall  be  interpreted  into  both  working 
languages. 


944 


DEPARTMENT  OF  STATE  BULLETIN 


Rule  41 
Any  representative  may  make  a  speech  in  a 
language  other  than  the  official  languages.  In 
this  case  he  shall  himself  provide  for  interpreta- 
tion into  one  of  the  working  languages.  InterjDre- 
tation  into  the  other  working  language  by  an 
interpreter  of  the  Secretariat  may  be  based  on 
the  interpretation  given  in  the  first  working 
language. 

Rule  42 

Verbatim  records  of  meetings  of  the  Security 
Council  shall  be  drawn  up  in  the  working  lan- 
guages. At  the  request  of  any  representative  a 
verbatim  record  of  any  speech  made  in  an  official 
language  other  than  the  working  languages  shall 
be  drawn  up  in  the  original  language. 

Rule  Jf3 

All  resolutions  and  other  important  documents 
shall  forthwith  be  made  available  in  the  official 
languages.  Upon  the  request  of  any  representa- 
tive, any  other  document  shall  be  made  available 
in  any  or  all  of  the  official  languages. 

Rule  4k- 
Documents  of  the  Security  Council  shall,  if  the 
Security  Council  so  decides,  be  published  in  any 
language  other  than  the  official  languages. 

IX.  Publicity  of  Meetings.     Records 

Rule  45 

Unless  it  decides  otherwise,  the  Security  Council 
shall  meet  in  public.  Any  recommendation  to  the 
General  Assembly  regarding  the  appointment  of 
the  Secretary-General  shall  be  discussed  and  de- 
cided at  a  private  meeting. 

Rule  46 
Subject  to  the  provisions  of  Rule  48,  the  ver- 
batim record  of  each  meeting  of  the  Security 
Council  shall  be  made  available  in  the  working 
languages  to  the  representatives  on  the  Security 
Council  and  to  the  representatives  of  any  other 
States  which  have  pai-ticipated  in  the  meeting  not 
later  than  10  A.M.  of  the  first  working  day  follow- 
ing the  meeting.  The  verbatim  record  of  any 
speech  made  in  any  other  of  the  official  languages, 
which  is  drawn  up  in  accordance  with  the  provi- 
sions of  Rule  42  shall  be  made  available  in  the  same 
manner  to  any  of  the  above  mentioned  representa- 
tives at  his  request. 


Rule  47 
The  representatives  of  the  States  which  have 
participated  in  the  meeting  shall,  within  two  work- 
ing days  after  the  time  indicated  in  Rule  46,  inform 
the  Secretary-General  of  any  corrections  they  wish 
to  have  made  in  the  verbatim  record. 

Rule  48 
The  Security  Council  may  decide  that  for  a  pri- 
vate meeting  the  record  shall  be  made  in  a  single 
copy  alone.  This  record  shall  be  kept  by  the  Sec- 
retary-General. The  representatives  of  the  States 
which  have  participated  in  the  meeting  shall, 
within  a  period  of  ten  days,  inform  the  Secretary- 
General  of  any  corrections  they  wish  to  have  made 
in  this  record. 

Rule  49 
Corrections  that  have  been  requested  shall  be 
considered  approved  unless  the  President  is  of 
the  opinion  that  they  are  sufficiently  important  to 
be  submitted  to  the  representatives  on  the  Security 
Council.  In  the  latter  case,  the  representatives  on 
the  Security  Council  shall  submit  within  two  work- 
ing days  any  comments  they  may  wish  to  make. 
In  the  absence  of  objections  in  this  period  of  time, 
the  record  shall  be  corrected  as  requested. 

Rule  50 
The  verbatim  record  referred  to  in  Rule  46  or 
the  record  referred  to  in  Rule  48,  in  which  no  coi'- 
rections  have  been  requested  in  the  period  of 
time  required  by  those  rules  or  which  has  been 
corrected  in  accordance  with  the  provision  of 
Rule  49,  shall  be  considered  as  approved.  It  shall 
be  signed  by  the  President  and  shall  become  the 
official  record  of  the  Security  Council. 

Rule  51 

The  official  record  of  public  meetings  of  the  Se- 
curity Council,  as  well  as  the  documents  annexed 
thereto,  shall  be  published  in  the  official  languages 
as  soon  as  possible. 

Rule  52 

At  the  close  of  each  iJrivate  meeting,  the  Security 
Council  shall  issue  a  communique  through  the 
Secretary-General. 

Rule  53 

The  representatives  of  the  Members  of  the 
United  Nations  which  have  taken  jjart  in  a  private 
meeting  shall  at  all  times  have  the  right  to  consult 
the  record  of  that  meeting  in  the  office  of  the  Sec- 
retary-General.   The  Security  Council  may  at  any 


JUNE  2,  1946 


945 


time  grant  access  to  this  record  to  authorized  repre- 
sentatives of  other  Members  of  the  United  Nations. 

Rule  5Jf 

The  Secretary-General  shall,  once  each  year, 
submit  to  the  Security  Council  a  list  of  the  records 
and  documents  which  up  to  that  time  have  been 
considered  confidential.  The  Security  Council 
shall  decide  which  of  these  shall  be  made  available 
to  other  Members  of  the  United  Nations,  which 
shall  be  made  public,  and  Avhich  shall  continue  to 
remain  confidential. 

X.  Admission  of  New  Members 

Rule  55 

Any  State  which  desires  to  become  a  Member  of 
the  United  Nations  shall  submit  an  application  to 
the  Secretary-General.  This  application  shall  be 
accompanied  by  a  declaration  of  its  readiness  to 
accept  the  obligations  contained  in  the  Charter. 

Rule  56 

The  Secretary-General  shall  immediately  place 
the  application  for  membership  before  the  repre- 
sentatives on  the  Security  Council.  Unless  the 
Security  Council  decides  otherwise,  the  applica- 
tion shall  be  referred  by  the  President  to  a  com- 


mittee of  the  Security  Council  upon  which  each 
member  of  the  Security  Council  shall  be  repre- 
sented. The  committee  shall  examine  any  applica- 
tion referred  to  it  and  re^Jort  its  conclusions 
thereon  to  the  Comicil  not  less  than  thirty-five  days 
in  advance  of  a  regular  session  of  the  General  As- 
sembly, or,  if  a  special  session  of  the  General 
Assembly  is  called,  not  less  than  fourteen  days  in 
advance  of  such  session. 

Rule  57 

The  Security  Council  shall  decide  whetlier  in  its 
judgment  the  applicant  is  a  peace-loving  State, 
and  is  able  and  willing  to  carry  out  the  obligations 
contained  in  the  Charter,  and  accordingly  whether 
to  I'ecommend  the  applicant  State  for  membership. 

In  order  to  assure  the  consideration  of  its  recom- 
mendation at  the  next  session  of  the  General  As- 
sembly following  the  receipt  of  the  application,  the 
Security  Council  shall  make  its  recommendations 
not  less  than  twenty-five  days  in  advance  of  a  legu- 
lar  session  of  the  General  Assembly,  nor  less  than 
four  days  in  advance  of  a  special  session. 

In  si^ecial  circumstances,  the  Security  Council 
may  decide  to  make  a  recommendation  to  the  Gen- 
eral Assembly  concerning  an  application  for 
membership  subsequent  to  the  expiration  of  the 
time  limits  set  forth  in  the  preceding  paragraph. 


RUSSELL  PLAN Continued  from  page  931 

b.  Finished  text 

(1)  Report  cleared  for  substance  by  Research  Division 
chief  and  office  director. 

(2)  Report  cleared  editorially  by  OCL,  sent  by  OCL 
for  reproduction,  and  distributed  in  accordance  with 
agreed  list. 

(3)  Requests  for  the  report  received  after  original  dis- 
tribution to  be  handled  by  OCL  in  consultation  with 
oflBce. 

2.  Regional  Project  Requested  by  a  Division  of  A-B  or 
A-C  (e.  g.  The  19JiS-.'t9  Unemployment  Level  in  Germany) 
a.  Project  initiation 

(1)  Prior  discussion  will  normally  have  taljen  place 
between  A-C  and  DRE  representatives  on  the  work- 
ing level. 

(2)  Request  goes  to  OCL  through  A-C  representative 
on  subcommittee  or  through  EUR/DRE. 

(3)  OCL  approves  or  disapproves  after  consultation 
with  EUR/DRE  and  the  A-C  representative. 

(4)  Distribution  list  agreed  by  EUR/DRE,  A-C,  and 
OCL. 

6.  Finished  test 

(1)  Report  cleared  for  substance  by  DRE  and  EUR. 

(2)  Report  cleared  editorially  by  OCL,  whicli  arranges 
reproduction  and  distribution. 

695951—46 4 


3.  An  Inter-Regional  Project  Requested  by  A-B,  A-C,  JIC, 
NIA,  or  other  authorised  agency  (e.  g.  World  Opinion  on 
the  U.  S.;  Reactions  to  British  Loan  in  China,  France, 
U.  S.  S.  R.) 

a.  Project  initiation 

(1)  Request  goes  to  OCL. 

(2)  OCL,  if  It  approves  and  is  assured  of  the  participa- 
tion of  other  interested  offices,  arranges  for  a 
project  coordinator  from  one  of  the  offices  or  its 
own  staff. 

(3)  Project  coordinator  arranges  for  cooperation  of 
division  analysts  through  appropriate  directors  and 
division  chiefs,  constructs  distribution  list. 

h.  Finished  text 

(1)  Report  approved  by  appropriate  division  and  office 
cBiefs  and  by  OCL ;  reproduction  and  distribution 
arranged  by  OCL. 

Note:  Projects  1  and  2  would  be  done  entirely  in  geo- 
graphic Research  Divisions,  except  for  collaboration  of 
BI  on  1. 

Project  3  might  be  done  entirely  within  OCL,  but  more 
likely  a  large  contribution  of  services  would  be  needed 
from  personnel  working  within  their  geographic  Re- 
search Divisions. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers: 
Meeting  of  Deputies 
Meeting  of  Foreign  Ministers 

Far  Eastern  Commission 

Allied-Swiss  Negotiations  for  German  External  Assets 

PICAO: 

European    and    Mediterranean    Air    Route    Services 

Conference 
Meeting  of  the  First  Annual  Assembly 

FAO: 

Special  Meeting  on  Urgent  Food  Problems 

ILO: 

Ninety-eighth  Session  of  the  Governing  Body 
Twenty-eighth  (Maritime)  Session  of  the  International 
Labor  Conference 

Inter-American  Copyright  Conference 

The  United  Nations: 
Security  Council 
Military  Staff  Committee 

Special  Committee  on  Refugees  and  Displaced  Persons 
International  Court  of  Justice 

Commissions  of  the  Economic  and  Social  Council 

Economic  and  Social  Council 

Commission  on  Atomic  Energy 

International  Health  Conference 

General  Assembly:  Second  Part  of  First  Session 


Paris 

May  27 

Paris 

April  25 — adjourned  on  May  16 

until  June  15 

Washington 

February  20 

Washington 

March  18 

Paris 

April  24 

Montreal 

May  21 

Washington 

May  20-28 

Montreal 

May  23-28 

Seattle 

June  6 

Washington 

June  1 

New  York 

March  25 

New  York 

March  25 

London 

April  8 

The  Hague 

Informal  Session  April  3— May  4 

Inaugural  Sitting  April  18 

New  York 

April  29 

New  York 

May  25 

New  York 

June  14 

New  York 

June  19 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  May  26. 


Activities  and  Developments 


The  Far  Eastern  Commission  on  May  23  unani- 
liioiisly  approved  a  policy  statement  concerning 
three  additional  industries,  which  will  form  part  of 
the  over-all  Interim  Reparations  Removals  Pro- 
gram for  Ja[)an.  These  policies,  on  the  machine- 
tool  industry,  the  sulphuric-acid  industry,  and 
the  shipbuilding  industry,  supplement  the  two 
initial  policy  statements  which  the  Commission 
approved  and  released  to  the  press  last  week.^  The 
Reparations  Committee  of  the  Commission  still 

^  Bulletin  of  May  26,  1946,  p.  884. 
946 


has  additional  policies  relating  to  the  Interim 
Reparations  Removals  Program  under  considera- 
tion, and  the  Commission  will  continue  to  release 
these  statements  as  agreement  is  reached.  The 
Commission  has  now  taken  action  on  six  of  the  10 
industries  covered  by  the  Pauley  report. 

The  Commission  also  unanimously  agreed  to 
request  its  chairman  to  secure  certain  informa- 
tion as  to  the  extent  to  which  certain  policies  and 
directives  relating  to  civil  liberties  in  Japan  had 
been  implemented.  The  request  arose  in  Com- 
mittee No.  i  of  the  Commission,  which  has  been 
considering  the  broad  subject  of  civil  liberties. 


JUNE  2,  1946 


947 


Tlie  C'oiiiiuisyioii  received  on  May  17.  1946  the 
reply  of  the  United  States  Government  to  the  Com- 
mission's earlier  policy  decision  on  the  subject  of 
"Food  Supply  for  Japan'',  which  was  released  to 
the  press  on  April  25,  1940.  (Text  of  Assistant 
Secretary  of  State  Hilldring's  letter  printed  be- 
low.) The  steering  committee  of  the  Commission 
considered  the  reply  of  the  United  States  Govern- 
ment and  nnanimously  agreed  to  lay  the  subject 
on  the  table. 

3Iay  17,  1946 
My  Dkar  Mr.  Johnson  : 

Reference  is  made  to  your  letter  of  Aj^ril  26, 
1946  forwarding  a  policy  statement  of  the  Far 
Eastern  Conmiission  ^Yith  respect  to  the  import  of 
food  into  Japan,  in  which  the  Commission  re- 
quested the  United  States  Government  immedi- 
ately to  review  the  food  import  program  for  Ja])an 
in  the  light  of  the  policy  set  forth  in  the  statement 
and  in  consultation  with  the  United  Nations  Relief 
and  Rehabilitation  Administration,  the  Combined 
Food  Board,  and  other  allocating  authorities. 

I  note  that  the  United  States  representative  on 
the  Commission  pointed  out  that  the  statement  of 
principles  embodied  in  the  first  paragraph  of  the 
Commission's  statement  is  fully  in  accord  with  the 
principles  upon  which  the  United  States  Govern- 
ment in  the  past  has  acted.  I  wish  to  reaffirm 
that  statement.  So  that  the  Commission  may  have 
before  it  a  review  of  the  action  taken  by  the  United 
States  Government  in  implementing  those  prin- 
ciples, I  request  that  the  following  information  be 
brought  to  the  attention  of  the  Commission. 

In  March,  the  Supreme  Commander  for  the 
Allied  Powers,  after  having  been  fully  apprised 
of  the  severity  of  the  world  food  crisis,  certified 
that  it  \Yould  be  necessary  to  import  an  absolute 
minimum  of  '200,000  tons  of  cereal  per  month  from 
March  through  June  to  pi'event  such  disease  and 
unrest  as  would  endanger  the  occuisying  foices. 
According  to  information  sujjplied  by  the  Supreme 
Commander,  imports  of  200,000  tons  per  month 
plus  indigenous  resources  still  available  would  pro- 
vide the  non-self-supplying  population  in  Japan 
with  only  800-900  calories  per  day  from  May  to 
Sejatember.  Controlled  ration  distribution  would 
be  still  smaller  and,  any  reduction  in  the  200,000 
tons  per  month  would  lower  the  nutrition  level 
still  more. 

In  view  of  the  acute  world  food  shortage  which 


has  produced  disastrous  conditions  even  in  terri- 
tories of  Allied  Powers,  the  United  States  Govern- 
ment approved  the  shipment  of  1.50,000  tons  per 
month  fnnn  April  through  June  instead  of  the 
200,000  tons  iisked  by  the  Supreme  Commander. 
Even  this  program  has  not  been  fulfilled.  Actual 
shipments  through  March  amounted  to  a  total  of 
107,000  tons,  while  in  April  only  48,000  tons  were 
shipped.  During  the  same  period  obligations  of 
the  United  States  for  the  export  of  cereal  to  liber- 
ated areas  were  more  fully  met  than  were 
"the  commitments  for  shipment  to  the  Supreme 
Commander  in  Japan. 

Inevitably  there  will  be  a  very  low  level  of 
mitrition  in  Japan,  and  the  above  figures  clearly 
indicate  that  no  prefeiential  tieatment  or  priority 
has  been  given  to  that  country. 

The  Far  Eastern  Commission  has  requested  the 
United  States  Government  to  review  its  program. 
Because  of  the  desperate  nature  of  the  crisis  and 
the  threatened  failure  to  meet  over-all  export  goals, 
the  entire  food  prograni  is  constantly  under  re- 
view. The  resolution  of  the  Commission  was  kept 
in  mind  duiing  the  re\'iew  of  the  program  of  May 
shipments  which  is  now  at  25,500  tons  of  wheat, 
82,000  tons  of  flour  and  34,000  tons  of  other  grain. 
Part  of  the  Japanese  allocation  must  be  used  to 
meet  emergency  needs  in  Korea.  It  has  also  been 
the  practice  of  this  Government  to  discuss  the  food 
program  with  the  Combined  Food  Board  and  with 
its  Cereals  Conunittee  at  which  the  United  Nations 
Relief  and  Rehabilitation  Administration  and 
major  importing  countries  are  represented,  a  pro- 
cedure which  was  followed  in  consideration  of  the 
May  program. 

The  Far  Eastern  Commission  will  be  informed 
if  requirements  of  food  imports  essential  for  the 
safety  of  the  occupying  forces  in  Japan  change, 
or  if  further  review  of  the  progi-am  by  the  United 
States  Government  in  consultation  with  the  Com- 
bined Food  Board  and  the  United  Nations  Relief 
and  Rehabilitntion  Administration  results  in  a 
change  in  the  program  for  Japan. 

Sincerely  yours, 

For  the  Acting  Secretary  of  State : 

J.  H.  HiLLDRING 

Assistant  Secretary 

Mr.  Nelson  T.  Johnson 

Secretary  General 

Far  Eastern  Commission 


948 

ILO:  98th  Session  of  Governing  Body':     The 

Secretary  of  State  announced  on  May  22  that 
the  President  has  approved  the  designation 
of  Frieda  Miller,  Director  of  the  Women's  Bureau, 
Department  of  Labor,  as  United  States  Kepre- 
sentative  on  the  Governing  Body  of  the  Inter- 
national Labor  Organization  at  its  ninety-eighth 
session  which  is  scheduled  to  convene  at  Montreal, 
Canada,  May  23,  1946. 

Bernard  Wiesman,  Chief,  International  Labor 
Organization  Branch,  Division  of  International 


DEPARTMENT  OF  STATE  BULLETIN 

Labor,  Social  and  Health  Affairs,  Department  of 
State,  is  accompanying  Miss  Miller  to  advise  on 
matters  of  political,  financial,  and  broad  economic 
concern.  Miss  Miller  and  Mr.  Wiesman  will  also 
attend  the  session  of  the  Conference  Delegation 
on  Constitutional  Questions,  which  will  be  held  in 
conjunction  with  the  ninety-eighth  session,  and  are' 
now  attending  the  jjreliminary  meetings  of  the 
Governing  Body  Committees  which  convened  at 
Montreal  May  14. 


FAO:     Special  Meeting  on  Urgent  Food  Problems' 


STATEMENT  BY  THE  PRESIDENT 

[Released  to  the  press  by  FAO  May  2U] 

I  am  most  happy  to  welcome  to  Washington  the 
delegates  to  the  world-wide  meeting  on  urgent 
food  problems  that  is  being  convened  by  the  Food 
and  Agriculture  Organization  of  the  United  Na- 
tions. I  wish  that  it  were  possible  for  me  actually 
to  be  with  you  to  deliver  my  greeting. 

In  meeting  at  this  critical  period  you  have 
heavy  responsibilities  and  great  opportunities. 
What  this  conference  accomplishes  or  fails  to  ac- 
complish will  make  its  mark  not  only  in  the  areas 
where  jieople  are  hungry  as  the  aftermath  of  war, 
but  in  all  parts  of  the  earth  and  for  a  long  time 
to  come.  Any  step  toward  feeding  the  world's 
families  better  and  making  the  fullest  use  of  the 
products  of  farms  and  fisheries  is  a  step  toward 
winning  and  securing  the  peace.  Food  touches 
everyone  in  the  world  more  directly  and  more 
keenly  than  most  boundary  settlements  and  other 
primary  political  actions  that  are  often  local  or 
regional  in  their  effects. 

It  is  not  necessary  in  a  message  to  this  group 
to  go  into  the  details  of  the  serious  world  food 
situation.  Everyone  realizes  now  that  the  world- 
wide scarcity  of  cereals  cannot  be  completely  over- 
come with  the  1946  harvest;  that  deficits  in  live- 
stock products  will  continue  for  a  long  time.  The 
remaining  weeks  before  the  1946  grain  harvest  in 
the  Northern  Hemisphere  are  especially  critical, 
and  the  United  States  and  other  countries  in  a 

'  Released  to  the  press  May  22. 

'  Meeting  in  Washington  from  May  20  to  28.  The  Presi- 
tlent's  statement  was  made  at  the  first  meeting. 


position  to  help  must  continue  and  heighten  their 
efforts. 

In  this  country  Ave  have  raised  progressively  our 
export  program  as  world  needs  became  more  ur- 
gent, reducing  progi-essively,  at  the  same  time,  our 
own  consTunption  of  wheat.  In  this  wheat  market- 
ing year  we  already  have  shipped  more  than  300 
million  bushels  of  wheat,  which  is  close  to  40  per- 
cent of  the  total  world  exports  of  wheat.  Our  ex- 
port program  covering  400  million  bushels  of 
wheat  for  the  entire  marketing  year  represents 
over  a  third  of  our  total  production  from  the  194.5 
crop.  The  people  of  this  country  have  shown  an 
admirable  willingness  to  do  their  share  in  the 
great  humanitarian  task  of  preventing  famine  in 
other  lands. 

During  the  war  we  have  learned  valuable  lessons 
in  cooperation  with  the  rest  of  the  world.  T\niat 
the  people  of  this  country  have  done  is  ample 
evidence  that  they  recognize  the  necessity  for 
progressive  and  effective  action  in  achieving  for 
the  world,  freedom  from  want,  that  they  are  con- 
scious of  the  world's  needs  and  are  ready  to  coop- 
erate in  a  program  to  meet  them.  In  my  message 
to  the  conference  at  Quebec,  where  FAO  was  es- 
tablished last  fall,  I  said  that  my  country's  dele- 
gation came  "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." 

We  bring  the  same  spirit  to  this  conference, 
which  I  view  as  the  first  great  test  for  FAO.  I 
extend  to  all  the  delegates  present,  and  to  FAO's 
great  director-general,  Sir  John  Boyd  Orr,  my 
best  wishes  for  success.  Harry  Tkumak 


JUNE  2,  1946 


949 


EXCERPTS  FROIVI  STATEMENT  BY  THE 
DIRECTOR-GENERAL ' 

There  are  certain  issues  on  which  decisions  must 
be  taken  without  delay.  I  suggest  that  the  con- 
ference should  consider  these: 

1.  How  the  1946  harvest  can  be  husbanded  to 
cover  the  period  until  the  next  harvest ;  how  it  can 
be  used  to  the  best  advantage  and  distributed  ac- 
cording to  needs.  Decisions  on  this  should  be 
taken  before  the  first  blade  of  grain  is  cut. 

2.  How  to  get  maximum  production  in  the  1947 
harvest.  Decisions  must  be  taken  immediately  for 
the  autumn  sowings,  and  arrangements  must  be 
made  for  priority  for  fertilizers  and  equipment 
needed  to  provide  the  food  to  save  life,  with  the 
same  sense  of  urgency  as  was  shown  in  the  pro- 
duction of  munitions  during  the  war.  This  is  a 
war  against  starvation  and  we  must  have  the 
weapons  to  fight  it. 

3.  Then  arrangements  must  be  made  to  keep  the 
Avhole  position  under  continuous  review  and  to 
keep  the  governments  and  people  of  the  world  in- 
formed from  time  to  time  of  what  the  position  is 
so  that  action  can  be  taken  immediately  on  the 
appearance  of  any  adverse  factor  aifecting  pro- 
duction or  distribution.  This  is  the  intelligence 
service  in  the  war  against  hunger,  and  it  can  oper- 
ate efficiently  only  if  all  governments  are  prepared 
to  give  full  information. 

4.  Consideration  must  also  be  given  to  the  ma- 
chinery for  facilitating  the  procurement  of  food 
and  its  allocation  on  an  equitable  basis,  and  also 
for  advising  governments  on  programs  of  pro- 
duction. The  functions  of  the  present  organiza- 
tions must  be  coordinated  in  a  single  international 
organization,  probably  on  the  lines  recommended 
by  the  Director-General  of  UNRRA.  This  organ- 
ization must  have  the  resources  and  the  authority 
to  deal  with  the  whole  anticipated  period  of  the 
food  shortage. 

There  is  another  aspect  which  must  be  kept  in 
view.  The  measures  taken  to  meet  the  present 
emergency  must  as  far  as  possible  be  such  as  may 
merge  smoothly  into  a  permanent  world  food 
policy.  In  this  connection  I  hope  that  it  will  be 
possible  to  make  arrangements,  either  through 
deferred  payments,  long-term  credits,  or  other 
means,  so  that  relief  measures  may  as  soon  as  pos- 


sible be  put  on  a  business  footing.  No  nation 
which  for  a  long  period  depends  upon  the  charity 
of  another  nation  for  food  for  its  citizens  can 
retain  its  self-respect. 


Existing  International  Organizations 
Concerned  With  Food  and  Agriculture 

The  Combined  Food  Board  consists  of  repre- 
sentatives of  the  Governments  of  the  United  States, 
the  United  Kingdom,  and  Canada.  The  function 
of  the  Board  is  to  make  recommendations  as  to  the 
allocation  of  scarce  foodstuffs  and  fertilizers. 
The  recommendations  are  based  upon  the  reports 
of  its  13  commodity  committees,  which  include 
representatives  of  the  main  importing  and  export- 
ing countries  for  the  commodities  covered.  (The 
Board  was  scheduled  to  terminate  its  work  on 
June  30,  but  the  date  has  now  been  set  forward  to 
December  31,  1946).= 

The  Emergency  Economic  Committee  for 
Europe  consists  of  representatives  of  several 
European  governments.  A  subcommittee  of  the 
Council  is  concerned  with  the  food  and  agricultural 
problems  of  Europe.^ 

The  Food  and  Agriculture  Organization  of  the 
United  Nations  is  the  permanent  international 
organization  set  up  by  the  United  Nations  to  deal 
with  the  problems  of  food  and  agricultui-e.  Its 
objectives  include  increased  consumption,  in- 
creased production,  stabilization  of  prices,  and 
adequate  returns  foi'  producei's.  FAO  can  supply 
information  and  advise  governments  and  other 
international  organizations,  but  has  no  executive 
powers. 

United  Nations  Relief  and  Rehabilitation  Ad- 
ministration is  the  international  emergency  relief 
agency,  and  its  field  of  operations  is  restricted  to 
those  countries  devastated  by  the  war  and  unable 
to  pay  for  supplies.  (It  is  contemplated  that 
UNRRA  will  complete  its  shipments  to  the  receiv- 
ing countries  in  Europe  not  later  than  the  end  of 
1946  and  in  the  Far  East  three  months  thereafter.) 

'  Made  by  Sir  John  Boyd  Of r  before  the  Special  Meet- 
ing on  Urgent  Food  Problems  in  Washington  on  May  20. 

'  See  joint  statement  by  the  President  and  the  Prime 
Ministers  of  Great  Britain  and  Canada  as  printed  in  Btj]> 
LETiN  Of  May  19,  1946,  p.  861. 

'  For  a  recent  review  by  the  BECE  see  Buixetin  of  Feb. 
17,  1946.  p.  248. 


The  Record  of  the  Week 


Report  by  the  Secretary  of  State  on  the  Paris  Conference 

of  Foreign  Ministers ' 


I  wish  to  talk  with  you  about  the  meeting  of  the 
Council  of  Foreign  Ministers  at  Paris.  On  that 
mission  I  was  accompanied  by  Senator  Connally, 
Chairman  of  the  Senate  Foreign  Kelations  Com- 
mittee, and  Senator  Vandenberg,  a  Republican 
member  of  that  Committee.  I  cannot  adequately 
express  my  appreciation  of  their  wise  counsel  and 
loyal  cooperation.  Senator  Connally  was  exceed- 
ingly heljDf  ul.  Senator  Vandenberg  by  his  whole- 
hearted cooperation  let  the  world  know  that  re- 
gardless of  how  much  he  and  his  party  may  dis- 
agree with  the  administration  about  domestic  is- 
sues, in  our  relations  with  foreign  governments  we 
have  but  one  policy,  the  policy  of  the  United 
States. 

Building  the  foundations  of  a  people's  peace  in 
a  war-shattered  world  is  a  long,  hard  process.  A 
people's  peace  cannot  be  won  by  flashing  diplo- 
matic triumphs.  It  requires  patience  and  firm- 
ness, tolerance  and  understanding.  We  must  not 
try  to  impose  our  will  on  others,  but  we  must  make 
sure  that  others  do  not  get  the  impression  they  can 
impose  their  will  on  us. 

The  progress  made  towards  peace  at  the  Paris 
meeting  of  the  Council  of  Foreign  Ministers  was 
disappointingly  small  in  light  of  the  expectations 
we  had  when  it  was  agreed  at  Moscow  last  De- 
cember that  the  Council  should  resume  the  work 
which  had  been  interrupted  by  our  inability  to 
agree  at  London  last  September. 

But  the  progress  towards  peace  at  Paris  was 

'  A  radio  address  delivered  by  tlie  Secretary  of  State  on 
the  occasion  of  his  return  from  the  Paris  Conference  of 
the  Foreign  Ministers  of  France,  tlie  Union  of  Soviet 
Socialist  Republics,  the  United  Kingdom,  and  the  United 
States  which  took  place  between  April  25  and  May  16, 
1946.  The  address  was  broadcast  over  the  national  net- 
works of  the  American  Broadcasting  Company  and  the 
National  Broadcasting  Company  on  May  20,  1946.  The 
address  was  rebroadcast,  by  transcription,  over  the  Mu- 
tual Broadcasting  Company  and  released  to  the  press  on 
the  same  date. 

950 


infinitely  greater  than  I  expected  when  I  sug- 
gested that  the  Council  should  meet  in  Paris 
preparatory  to  the  prompt  calling  of  a  peace  con- 
ference. The  Ministers  did  come  to  Paris  seri- 
ously intending  to  pave  the  way  for  a  peace  con- 
ference. We  differed  considerably  on  a  number 
of  fundamental  points ;  but  we  did  come  to  know 
wliat  those  fundamental  points  were  and  the  vary- 
ing weight  the  different  Ministers  attached  to  those 
l^oints. 

We  found  that  there  were  three  basic  issues  out- 
standing on  the  Italian  treaty :  reparations,  the 
colonies  and  the  Italian- Yugoslav  boundary,  par- 
ticularly as  it  concerns  the  Italian  city  of  Trieste. 

In  summarizing  the  significance  of  these  basic 
issues,  I  shall  deliberately  seek  to  avoid  intensify- 
ing the  conflict  in  viewpoints. 

Our  position  on  reparations  is  simple.  To  en- 
able the  Italian  nation  to  live  we  have  already 
advanced  directly  or  indirectly  $900,000,000.  We 
should  prefer  in  the  interest  of  peace  to  forget 
about  reparations.  But  we  are  willing  to  agree 
to  limited  reparations,  provided  these  do  not  de- 
prive Italy  of  resources  necessary  to  enable  her 
to  subsist  without  external  assistance. 

If  Italy  requires  help  from  others  she  will  look 
to  us.  And  we  made  it  clear  we  are  not  going  to 
advance  millions  of  dollars  to  enable  Italy  to  pro- 
duce goods  to  be  paid  as  reparations  to  any  of 
our  Allies. 

The  Soviet  Government  has  insisted  on  repara- 
tions for  itself  of  $100,000,000.  We  have  pointed 
out  certain  sources  from  which  reparations  can 
be  taken  which  would  not  seriously  affect  the  Ital- 
ian economy  and  which  would  yield  substantially 
the  amount  which  the  Soviets  claim.  But  the 
Soviet  Government  is  unwilling  to  count  what  she 
will  obtain  from  some  of  these  sources  as  repara- 
tions. 

For  example,  she  insists  that  some  of  the  naval 
ships  surrendered  by  Italy  to  the  navies  of  the 


JUNE  2,  1946 


951 


United  States  and  Britain  be  shared  with  her. 
She  declares  the  ships  are  war  booty.  But  war 
booty  belongs  to  the  nation  capturing  it.  The 
Soviet  Union  has  never  shared  with  Allied  Na- 
tions any  war  booty  captured  by  her.  We  are  will- 
ing to  give  to  her  in  lieu  of  reparations  some  of  the 
naval  shi^Ds  surrendered  to  us.  She  demands  the 
ships  but  refuses  to  consider  them  as  a  substitute 
for  reparations.  She  insists  upon  being  paid  out 
of  current  jDroduction.  We  would  have  to  finance 
the  production,  and  therefore  I  refused  to  agree 
to  the  proposal. 

Differences  regarding  the  colonies  have  been 
narrowed  but  not  resolved.  The  Soviet  Govern- 
ment receded  from  its  claim  for  a  trusteeship  of 
Tripolitania,  first  in  favor  of  a  joint  Soviet-Ital- 
ian trusteeship  and  later  in  favor  of  an  Italian 
trusteeship  as  originally  proposed  by  the  French. 

Our  position  has  always  been  that  the  colonies 
should  be  placed  under  United  Nations  trustee- 
ship, having  as  its  objective  the  welfare  of  the 
inhabitants  and  their  independence  at  the  earliest 
practicable  date.  The  Trusteeship  Council  should 
appoint  a  neutral  administrator  responsible  to  it, 
thus  avoiding  all  possible  rivalry  between  the 
powers.  Libya  and  Eritrea  should  be  granted  in- 
dependence in  ten  years. 

It  is  open  to  question  whether  Italy  is  in  an 
economic  position  to  assume  the  responsibility  of 
trusteeship  and  whether  the  return  of  the  colonies 
to  Italy  as  trustee  takes  sufficientlj'  into  account 
the  wishes  of  the  inhabitants.  For  these  reasons 
it  was  with  considerable  reluctance  that  I  indi- 
cated my  willingness  to  yield  to  the  French  sug- 
gestion of  an  Italian  trusteeship  if  that  would 
bring  about  an  agreement  in  the  Council,  and  if 
it  were  agreed  that  a  definite  date  would  be  fixed 
for  the  independence  of  Libya  and  Eritrea.  But 
the  French  Government  was  unwilling  to  agree 
to  a  fixed  date  for  indepeiidence. 

The  British  felt  that  because  of  their  promises 
during  the  war  they  could  not  agree  to  an  Italian 
trusteeship  for  territory  occupied  by  the  Senussi 
tribes.  For  security  reasons  they  also  proposed  a 
British  trusteeship  for  Cyrenaica. 

When  no  agreement  was  reached,  I  again  urged 
the  original  American  proposal  for  a  United 
Nations  trusteeship. 

It  was  my  imjiression  that  agreement  on  repara- 
tions and  the  colonies  as  well  as  on  a  host  of  other 
questions  would  not  be  long  delayed  if  only  a 
solution  of  the  Trieste  problem  could  be  found. 


The  Soviet  Kepi'esentative  finally  indicated  that 
there  would  be  no  serious  question  on  the  cession 
of  the  Dodecanese  Islands  to  Greece  but  he  refused 
to  approve  it  until  the  other  territorial  dispositions 
could  be  agreed  upon. 

The  experts  appointed  to  investigate  the  Italian- 
Yugoslav  frontier  did  not  differ  as  to  the  facts. 
But  the  Soviet  Representative  differs  from  the 
other  members  of  the  Council  as  to  the  conclusions 
to  be  drawn  from  the  facts.  It  is  his  position 
that  Venezia  Giulia  must  be  treated  as  an  in- 
separable whole,  and  that  so  treated  the  claim  of 
Yugoslavia  to  the  area  is  superior  to  that  of  Italy. 
The  other  representatives  believe  that  wise  states- 
manshij^  as  well  as  the  explicit  decision  taken  by 
the  Council  at  London  requires  a  boundary  line 
which  will  in  the  main  be  an  ethnic  line  leaving 
a  minimum  of  people  under  alien  rule. 

It  was  wrong  to  give  Italy  the  whole  of  Venezia 
Giulia  after  World  War  I.  It  would  be  equally 
wrong  to  give  Yugoslavia  the  whole  of  Venezia 
Giulia  now.  It  would  transfer  from  Italy  to 
Yugoslavia  approximately  500,000  Italians. 

The  British  and  French  experts  proposed 
ethnic  lines  more  favorable  to  Yugoslavia  than 
our  own.  In  an  effort  to  reach  agreement  we 
stated  we  were  willing  to  accept  the  British  or 
French  line  or  any  other  ethnic  line  that  could 
be  justified  upon  the  basis  of  the  London  decision. 

The  American  Delegation  suggested  a  plebiscite 
for  the  area  between  the  line  proposed  by  the 
United  States  and  the  line  proposed  by  the  Soviet 
Union — but  the  Soviet  Delegation  would  not  con- 
sider a  plebiscite  except  for  the  whole  Venezia 
Giulia  area.  All  of  us  are  agreed  that  Yugoslavia 
and  the  countries  of  Central  Europe  which  have 
for  years  used  the  port  of  Trieste  shall  have  free 
access  to  Trieste  at  which  there  shall  be  a  free 
port  under  international  control.  But  we  will 
continue  to  appeal  to  the  Soviet  Government  and 
the  Yugoslav  Government  not  to  press  for  a  boun- 
dary line  which  will  needlessly  violate  ethnic 
principles  and  will  breed  trouble  in  the  future. 

Agreement  on  the  Balkan  treaties  is  blocked 
principally  by  the  inability  of  the  Council  to  agree 
upon  the  economic  clauses.  Agreement  on  these 
provisions  may  have  been  delayed  as  part  of  a 
bargaining  process,  although  so  far  the  Soviet 
Government  has  stood  out  against  the  inclusion 
in  the  treaties  of  any  provision  which  would  prom- 
ise freedom  of  commerce  on  the  Danube,  the  gate- 
way to  Central  Europe. 


952 

If  the  Soviet  Government  is  opposed,  as  the 
United  States  Government  is  opposed,  to  the  for- 
mation of  exchisive  political  and  economic  blocs, 
they  will  not  persist  in  their  refusal  to  permit  the 
countries  of  Central  Europe  to  open  their  gates  to 
the  commerce  of  all  nations. 

It  is  regrettable  that  our  outstanding  differ- 
ences on  the  treaties  could  not  have  been  adjusted 
at  our  I'ecent  meeting  in  Paris.  A  short  recess 
to  allow  a  calm  re-examination  of  our  respective 
positions  should  expedite  agreement  when  we  re- 
convene. But  when  a  world  short  of  goods  and 
short  of  food  is  crying  for  the  return  of  conditions 
of  peace,  we  cannot  indefinitely  delay  the  making 
of  peace  and  the  withdrawal  of  troops  from  occu- 
pied areas.  The  four  Allied  governments  cannot 
indefinitely  delay  the  making  of  peace  with  coun- 
tries which  they  have  long  ceased  to  fight,  simply 
because  they  cannot  agree  among  themselves  on 
peace  terms.  The  Council  of  Foreign  Ministers 
was  formed  to  facilitate  and  not  obstruct  the 
making  of  peace. 

It  was  for  that  reason  that  the  American  Dele- 
gation proposed  that  the  Council  at  its  next  meet- 
ing on  June  15  should  conclude  as  far  as  possible 
its  work  on  the  proposed  drafts,  but  that  the  date 
for  the  peace  conference  should  be  definitely  fixed 
for  July  1  or  July  15  and  invitations  should  be 
issued  at  once. 

It  was  our  view  that  the  Council  had  taken  suffi- 
cient time  to  try  to  narrow  their  differences  and 
at  this  stage  with  the  principal  issues  defined,  we 
should  not  deny  to  our  other  war  partners  their 
right  to  participate.  The  making  of  peace  is  not 
the  exclusive  prerogative  of  any  four  govern- 
ments. 

The  Soviet  Delegation  insisted  that  invitations 
for  the  conference  could  not  be  sent  until  we  had 
reconvened  and  agreed  on  all  fundamental  ques- 
tions. Unanimous  agreement  was  necessary  and 
we  were  forced,  therefore,  to  recess  without  agree- 
ment for  the  actual  calling  of  the  peace  conference. 

While  the  American  Delegation  will,  when  the 
Council  reconvenes,  make  every  effort  to  reach 
agreement  on  fundamental  questions,  it  will  renew 
its  demand  for  the  calling  of  a  peace  conference 
on  July  1  or  July  15. 

If  we  cannot  have  a  peace  conference  until  the 
four  nations  agi-ee  on  every  subject  deemed  fun- 
damental by  any  one  of  tiiem,  that  will  give  to  one 
member  of  tlie  Council  the  power  to  stop  all  efforts 
toward  peace.    It  would  be  better  for  the  Council 


DEPARTMENT  OF  STATE  BULLETIN 

to  submit  to  the  peace  conference  a  single  draft 
of  each  treaty  and  to  set  forth  in  this  draft  both 
the  matters  on  which  agreement  had  been  reached 
and  those  on  which  agreement  had  not  been 
reached.  This  would  permit  free  discussion  in  the 
peace  confei'ence  by  all  the  nations  that  did  the 
fighting,  and  world  opinion  will  then  point  the 
way  to  a  final  settlement. 

If  a  peace  conference  is  not  called  this  summer, 
the  United  States  will  feel  obliged  to  request  the 
General  Assembly  of  the  United  Nations  under 
Article  14  of  the  Charter  to  make  recommenda- 
tions with  respect  to  the  peace  settlements.  But 
I  confidently  expect  a  peace  conference  to  be  called 
this  summer. 

The  situation  which  we  will  face  in  the  coming 
months  will  be  a  test  not  only  of  others  but  of 
ourselves.  There  are  now  and  there  will  be  in  the 
future  many  occasions  which  might  impel  us  to 
say  as  we  did  after  the  last  war  that,  much  as  we 
would  like  to  cooperate  in  the  restoration  of 
Europe,  cooperation  as  a  practical  matter  is  im- 
possible without  the  sacrifice  of  our  principles  and 
that  we  must  be  content  to  cultivate  and  defend 
our  own  hemisphere. 

But  we  must  not  forget  that  if  we  fail  to  co- 
operate in  a  peace  which  is  indivisible  we  may 
again  find  that  we  will  have  to  cooperate  in  a  war 
which  is  world-wide.  Whether  we  like  it  or  not, 
we  live  in  one  world. 

I  am  unwilling  to  admit  that  we  cannot  co- 
operate without  sacrifice  of  our  principles.  If  we 
are  going  to  play  our  part  we  must  take  the  offen- 
sive for  peace  as  we  took  the  offensive  for  war. 

But  the  victories  of  peace  like  those  of  war  re- 
quire sacrifice  not  of  principle  but  for  principle. 
They  require  faith  in  ourselves  and  in  our  ideals. 
They  require  initiative,  resourcefulness,  and  un- 
relenting effort.  There  is  no  iron  curtain  that 
the  aggregate  sentiments  of  mankind  cannot  pene- 
trate. 

The  American  Delegation  at  Paris  did  not 
hesitate  to  start  the  offensive  for  peace. 

Security  is  the  concern  of  every  nation.  But 
the  effort  of  one  nation  to  increase  its  security 
may  threaten  the  security  of  other  nations  and 
cause  them  in  turn  to  try  to  increase  their  own 
security.  The  quest  for  security  may  lead  to  less 
rather  than  more  security  in  the  world. 

It  is  in  truth  extremely  difficult  to  know  to  what 
extent  the  action  of  any  nation  may  be  ascribed 
to  its  quest  for  security  or  to  its  desii'e  to  expand. 


JUNE  2,  1946 


953 


But  some  so-called  security  moves  on  the  diplo- 
matic checkerboard  have  not  contributed  to  a  gen- 
eral sense  of  security. 

Many  of  these  moves  are  said  to  originate  in 
the  fear  of  the  revival  of  German  military 
might. 

On  our  way  to  Potsdam  last  summer  President 
Truman  and  I  discussed  this  situation  and  agreed 
that  it  should  be  American  policy  to  disarm 
Germany  and  keep  her  disarmed  and  to  do  what 
we  can  to  prevent  a  struggle  between  the  powers 
for  the  control  of  Germany  which  might  give 
Germany  the  chance  to  divide  and  conquer. 

Those  principles  were  stated  in  the  Potsdam 
agreement.  But  President  Truman  and  I  thought 
at  that  time  that  the  policy  of  disarming  Germany 
and  keeping  Germany  disarmed  for  a  definite 
period  of  years  should  become  a  part  of  a  solemn 
treaty  between  the  principal  Allied  powei's.  Our 
policy  should  be  to  prevent  war  and  not  to  wait 
until  aggi'ession  gets  out  of  hand. 

It  was  not  a  new  thought.  It  had  been  fore- 
shadowed in  the  Moscow  Declaration  of  1943. 
Others  had  discussed  it,  but  no  one  more  force- 
fully than  Senator  Vandenberg  in  a  speech  in  the 
Senate  in  January,  1945. 

At  the  London  meeting  of  the  Council  of  For- 
eign Ministers  when  the  Soviet  Foreign  Secretary 
seemed  greatly  concerned  about  the  Soviet  se- 
curity requirements  in  the  Balkans,  I  suggested  a 
twenty-five  year  four-power  treaty,  to  keep  Ger- 
many disarmed  as  a  means  of  preventing  any  real 
threat  to  Soviet  security.  I  explained  that  we 
contemplated  a  similar  joint  guaranty  of  the  dis- 
armament of  Japan. 

I  again  proposed  such  a  treaty  in  a  talk  with 
Generalissimo  Stalin  on  December  24  while  I  was 
in  Moscow.  The  Generalissimo  said  that  if  the 
United  States  made  such  a  proposal  he  would 
whole-heartedly  support  it. 

Later  I  also  spoke  to  Mr.  Bevin  who  advised  me 
that  he  personally  was  most  sympathetic  to  the 
suggestion. 

In  February  I  sent  a  working  draft  of  the  pro- 
posed treaty  for  German  disarmament  to  the  So- 
viet, British  and  the  French  Governments  and  the 
proposed  treaty  for  Japanese  disarmament  to  the 
Soviet,  British  and  Chinese  Governments.  I  in- 
vited their  suggestions  as  to  the  draft. 

I  was  informed  by  Mi\  Bevin  and  M.  Bidault 
that  they  favored  the  proposal  in  principle  but 


would  have  a  few  suggestions  to  make.  I  did  not 
hear  from  Mr.  Molotov.  Just  before  the  Paris 
meeting  I  advised  the  Ministers  I  would  like  to 
discuss  the  proposal  at  F'aris.  The  Soviet  Minis- 
ter agreed  to  discuss  it  informally  but  stated  with- 
out specification  that  there  were  serious  objections 
to  tlie  draft. 

At  Paris  the  Soviet  Representative  stated  he 
first  wanted  to  know  if  Germany  was  being  dis- 
armed as  contemplated  by  the  Potsdam  agi-eement 
and  he  feared  the  treaty  might  delay  immediate 
disarmament.  I  pointed  out  that  our  proposal 
could  not  fairly  be  so  construed;  that  it  did  not 
lessen  the  obligation  to  disarm  Germany  now  but 
provided  machinery  to  keep  Germany  disarmed. 

To  remove  any  question  as  to  our  purpose  I 

asked  General  Clay  to  request  the  Allied  Control 

'  Council  to   appoint  representatives  with  power 

to  go  into  every  zone  and  make  a  report  as  to  the 

disarmament  of  Germany. 

Later  the  Soviet  Representative  stated  that 
when  Generalissimo  Stalin  agreed  with  me  to 
support  the  treaty  I  did  not  have  a  draft  of  it. 
He  said  that  as  it  could  not  become  effective  until 
after  a  German  treaty  was  signed,  consideration  of 
it  could  be  delayed. 

It  is  our  sincere  hope  that  after  the  Soviet 
Union  studies  our  proposal  and  comes  to  appre- 
ciate our  earnest  desire  to  see  Germany  disarmed 
and  kept  disarmed,  the  Soviet  Union  will  support 
it  whole-heartedly. 

Wlrile  the  making  of  the  German  peace  settle- 
ment may  take  some  time,  we  took  the  initiative 
at  Paris  to  propose  the  immediate  appointment  of 
special  deputies  to  prepare  a  peace  settlement 
which  could  be  considered  at  a  general  Allied 
conference,  the  date  of  which  should  be  fixed  by 
the  Council  at  its  next  session. 

While  there  is  no  German  government  yet  which 
could  accept  the  settlement,  agreement  among  the 
Allies  on  the  nature  of  the  eettlement  is  necessary 
to  enable  the  Allies  to  know  the  goal  towards 
which  the  Allied  occupation  and  administration 
should  be  directed  and  the  kind  of  German  gov- 
ernment which  should  be  created  to  accept  the 
settlement. 

I  also  asked  that  the  Special  Deputies  on  Ger- 
many be  instructed  to  report  on  several  pressing 
problems,  including  boundary  and  economic  ques- 
tions. We  cannot,  for  example,  continue  to  carry 
out  the  reparation  program  if  Germany  is  not  to 


954 

be  administered  as  an  economic  unit  as  agreed  upon 
at  Potsdam.  Whatever  boundaries  are  agreed 
upon  for  Germany,  she  must  be  able  to  subsist 
without  external  assistance.  We  cannot  subsidize 
Germany  to  enable  her  to  pay  reparations  to  other 
nations. 

I  regret  that  the  Soviet  Eepresentative  was  not 
prepared  to  act  upon  my  proposal  for  the  appoint- 
ment of  Special  Deputies  without  further  study. 
I  shall  renew  my  proposal  when  the  Council  re- 
convenes. 

Important  as  the  German  questions  are  and 
eager  as  we  are  to  press  for  their  speedy  solution, 
we  must  not  and  cannot  delay  the  peace  settle- 
ments with  other  countries.  At  Potsdam  it  was 
agreed  that  the  start  should  be  made  with  Italy, 
Bulgaria,  Hungary,  Rumania  and  Fiivland. 
While  Germany  must  remain  under  occupation 
for  some  time,  we  cannot  fail  to  do  our  part  to  rid 
the  rest  of  Europe  of  the  burden  of  the  forces 
of  occupation.  There  can  be  no  recovery  in 
Europe  until  we  do. 

It  is  particularly  important  that  we  press  for- 
ward vigorously  with  the  Austrian  treaty.  The 
Moscow  Declaration  on  Austria  contemplated  that 
Austria  should  be  regarded  more  as  a  liberated 
than  as  a  satellite  country.  It  was  agreed  at  Pots- 
dam that  no  reparations  would  be  taken  from  her. 
She  was  one  of  the  first  countries  in  Central 
Europe  to  have  free  elections  following  the  libera- 
tion. The  continuance  of  foreign  troops  in 
Austria  is  an  undue  burden  on  her  economy.. 

In  February  we  asked  that  the  Austrian  treaty 
be  prepared  along  with  other  treaties  for  satellite 
states.  At  Paris  I  insisted  upon  its  preparation 
but  the  Soviet  Eepresentative  declined  to  discuss 
the  Austrian  treaty  or  say  when  he  would  con- 
sider it. 

The  making  of  peace  with  Austria  is  essential 
to  the  restoration  of  anj'thing  like  conditions  of 
peace  in  Europe.  As  long  as  there  is  no  peace 
with  Austria  and  foreign  troops  remain  on  her 
soil,  military  communication  lines  will  continue 
to  be  maintained  in  Rumania  and  Hungary  and 
possibly  Italy. 

If  peace  could  be  made  with  Austria  concur- 
rently with  the  treaties  now  under  consideration. 


DEPARTMENT  OF  STATE  BULLETIN 

there  would  be  no  necessity  or  excuse  for  a  single 
soldier  on  foreign  soil  in  Europe  with  the  excep- 
tion of  Germany  and  a  line  of  communication 
through  Poland.  European  States  would  have  a 
chance  to  live  and  breathe. 

It  is  American  policy  to  press  unremittingly 
for  the  conclusion  of  peace  settlements  to  make 
jDossible  the  withdrawal  of  ti'oops  from  countries 
where  they  do  not  belong  and  where  they  impose 
unjustified  economic  and  social  difficulties  upon 
the  people.  And  even  without  waiting  for  the 
conclusion  of  peace  treaties  it  is  American  policy 
to  press  for  the  reduction  of  occupation  troops  in 
all  counti'ies. 

Our  jjolicy  of  continuing  to  press  for  the  return 
of  conditions  of  peace,  without  regard  to  the 
making  of  formal  peace  treaties,  finally  yielded 
some  constructive  results  in  the  case  of  Italy.  For 
months  we  have  been  urging  the  revision  of  the 
Italian  armistice  so  as  to  restore  virtually  complete 
sovereignty  to  Italy  except  in  the  colonies  and 
in  the  controversial  Venezia  Giulia  area.  At 
Paris  this  revision  was  agreed  to. 

While  the  absence  of  a  peace  treaty  still  handi- 
caps Italy  in  her  effort  to  rebuild  her  broken 
economic  and  political  life,  the  revised  armistice 
gives  the  Italian  Government  the  largest  possible 
freedom  that  can  be  given  to  it  without  a  formal 
peace  treaty. 

Our  problems  ai'e  serious,  but  I  am  not  dis- 
couraged. Our  offensive  to  secure  peace  has  only 
begun.  We  are  determined  to  work  for  political 
and  economic  peace  in  Europe,  in  the  Near  East 
and  in  the  rest  of  the  world.  We  shall  work  for 
it  in  the  peace  conferences  and  in  the  councils  of 
the  United  Nations.  The  objective  of  our  offen- 
sive is  not  territory  or  reparations  for  the  United 
States.  The  objective  is  peace — not  a  peace 
founded  upon  vengeance  or  greed,  but  a  just  peace, 
the  only  peace  that  can  endure. 


'Executive  Agreement  Series  472.     Buuj-.tin,  Aug.  12, 
1945,  p.  222. 


Prosecution  of  War  Criminals 

The  British  Foreign  Office  has  informed  the  De- 
partment that  India  and  Uruguay  have  acceded 
to  the  agreement  for  the  prosecution  and  punish- 
ment of  the  major  war  criminals  of  the  European 
Axis  signed  at  London  August  8,  1945.^  The  ac- 
cession was  effective  for  India  on  December  22, 
1945  and  for  Uruguay  on  December  11,  1945. 


JUNE  2,  1946 


955 


Allied-Swiss  Negotiations 

AGREEMENT  OF  FRENCH,  BRITISH,  AND 
U.S.  DELEGATIONS  WITH  THE  SWISS 
DELEGATION 

[Released  to  the  press  May  21] 

The  Delegations  of  France,  Great  Britain,  and 
the  United  States  have  arrived  at  agreement  with 
the  Swiss  Delegation  on  two  fundamental  ques- 
tions with  which  they  have  been  concerned  during 
the  past  several  weeks.  The  decisions  relate  to 
the  division  of  German  holdings  in  Switzerland 
and  to  gold  received  by  Switzerland  from 
Germany. 

The  agreement  is  in  general  terms,  and  some 
details  remain  to  be  worked  out  in  Washington 
on  a  technical  level. 

The  accord  provides  that : 

(1)  Holdings  of  Germans  in  Germany  or  Ger- 
mans subject  to  repatriation  will  be  identified  and 
liquidated  or  transferred  to  j)ersons  acceptable  to 
all  concerned.  This  work  will  be  done  by  a  Swiss 
agency,  which  the  Swiss  Government  will  set  up. 
The  Swiss  agency  will  cooperate  with  a  joint  com- 
mission composed  of  representatives  of  the  three 
Allied  Governments  and  of  Switzerland.  Doubt- 
ful or  controversial  cases  will  be  referred  to  ar- 
bitration. 

(2)  The  proceeds  of  liquidation  will  be  divided 
equally  between  the  Allies  as  trustees  for  the  coun- 
tries claiming  reparations,  and  Switzerland.  On 
their  side,  the  Allies  will  turn  the  funds  they  obtain 
over  to  the  Inter-Allied  Reparation  Agency  for 
the  rehabilitation  of  countries  devastated  or  de- 
pleted by  Germany.  Procedure  for  the  distribu- 
tion of  these  funds  was  provided  in  the  Paris 
Reparation  Agreement  signed  in  Paris  in  January 
of  this  year. 

(3)  The  Allies  will  accept  a  payment  of  250,- 
000,000  Swiss  francs  in  consideration  of  which 
the  governments  signatory  to  the  Paris  Reparation 
Agreement  will  waive  their  claim  and  those  of 
their  central  banks  for  restitution  from  Switzer- 
land of  monetary  gold.  This  amount  will  also  be 
divided  in  accordance  with  the  Paris  Reparation 
Agreement.  The  amount  equals  approximately 
$58,140,000. 

The  accord  reached  on  the  above  questions  pro- 
vides the  basis  for  concluding  in  the  near  future 


the  negotiations  which  began  in  Washington  on 
March  18.  It  provides  a  satisfactory  method  of 
preventing  the  use  of  German  assets  for  the  financ- 
ing of  a  new  war.  It  also  settles  amicably  differ- 
ences of  principle  between  the  Allies  and  the  Swiss 
on  the  gold  issue  and  the  allocation  of  the  proceeds 
of  liquidation. 

The  negotiations  are  being  conducted  by  Walter 
Stucki  for  the  Swiss  Government,  Paul  Chargue- 
raud  for  the  French  Government,  F.  W.  McCombe 
for  the  British  Government,  and  Randolph  Paul, 
Special  Assistant  to  the  President,  for  the  United 
States  Government. 


Appointment  of  U.S.  Represen- 
tative for  Negotiations  on 
German  External  Assets 

[Released  to  the  press  May  24] 

The  appointment  of  Seymour  J.  Rubin  as  the 
United  States  representative  for  the  forthcoming 
Allied-neutral  negotiations  on  the  subject  of  Ger- 
man external  assets  and  related  problems  was  an- 
nounced on  May  24. 

Mr.  Rubin  will  tjikfftlie  place  of  Randolph  Paul 
in  negotiations  with  neutral  countries  other  than 
Switzerland.  Substantial  agreement  on  the  Swiss 
negotiations  has  already  been  announced,  and 
other  commitments  make  it  impossible  for  Mr. 
Paul  to  conduct  further  negotiations. 

Mr.  Rubin  is  Deputy  Director  of  the  Office  of 
Economic  Security  Policy  in  the  Department  of 
State.  He  has  been  closely  associated  with  Mr. 
Paul  in  the  conduct  of  the  negotiations  with  a 
Delegation  of  the  Swiss  Government.  Mr.  Ru- 
bin's duties  in  the  Department  of  State  have  con- 
cerned questions  of  German  holdings  in  other 
countries,  and  he  participated  in  the  Potsdam  Con- 
ference as  a  member  of  the  staff  of  Ambassador 
Edwin  W.  Pauley. 


Confirmations 

Philippine  War  Damage  Commission 

On  May  22, 1946  the  Senate  confirmed  the  nomi- 
nations of  Francisco  A.  Delgado,  Frank  A. 
Waring,  and  John  S.  Young  to  be  members  of  the 
Philippine  War  Damage  Commission. 


956 


DEPARTMENT  OF  STATE  BULLETIN 


U.  S.  and  British  Governments  To  Consult  With 
Arah  Leaders  on  Palestine' 


[Released  to  the  press  May  21] 

The  Department  of  State  announced  on  JVIay  21 
that  the  Government  of  the  United  States,  in  con- 
junction with  the  British  Government,  has  taken 
steps  to  initiate  the  consultations  with  Jewish  and 
Arab  leaders  regarding  Palestine  to  which  both 
Governments  have  been  committed. 

Instructions  were  issued  to  American  represen- 
tatives in  the  Near  East  to  furnish  on  May  20 
copies  of  the  Report  of  the  Anglo-American  Com- 
mittee of  Inquiry  to  oeitain  governments  and 
organizations,  together  with  copies  of  a  memoran- 
dum outlining  this  Government's  position  in  the 
matter,  and  to  state  that  this  Government  would 
ajjpreciate  receiving  within  thirty  days  the  views 
of  the  interested  parties  relative  to  the  Report. 
Concurrent  action  has  been  taken  by  British  rep- 
resentatives at  the  Near  Eastern  capitals.  On 
May  20,  the  Department  of  State  also  addressed 
letters  to  cei'tain  American  organizations,  which 
have  shown  a  particular  interest  in  the  problem 
of  Palestine,  with  a  similar  request  for  their 
views. 

The  governments  and  organizations  whicli  the 
American  Government  has  approached  in  this  con- 
nection are:  The  governments  of  Egypt,  Iraq, 

'  The  Department  of  State  has  been  asked  the  question 
whether  the  statement  of  May  10  of  the  then  Acting  Secre- 
tary of  State  regarding  the  initiation  of  consultation  with 
Jews  and  Arabs  on  the  recommendations  of  the  Anglo- 
American  Committee  of  Inquiry  on  Palestine  represents 
a  withdrawal  from  the  statement  issued  by  the  President 
on  Apr.  30. 

In  reply  the  Department  said  on  May  22  that  there  is  no 
conflict  and  can  be  no  conflict  in  the  two  statements.  It 
must  be  clear  that  the  President's  statements  are  con- 
trolling upon  all  the  departments  of  government.  In  his 
statement  of  Apr.  30  the  President  reaffirmed  the  urgency 
of  the  transference  of  the  100,000  .Tews  as  recommended 
by  the  Committee  and  previously  by  him. 

It  is  precisely  because  of  the  urgency  of  this  problem 
that,  under  the  direction  of  the  President,  the  State  De- 
partment has  agreed  to  and  inaugurated  immediate  con- 
sultations with  Jews  and  Arabs  as  well  as  with  the  British 
Government  as  the  best  and  quickest  means  of  reaching 
an  eifective  solution  of  the  problems  dealt  with  in  the 
report. 


Lebanon,  Saudi  Arabia,  Syria,  Trans-Jordan  and 
the  Yemen,  the  Arab  Higher  Committee,  the 
League  of  Arab  States,  the  Jewish  Agency,  the 
American  Zionist  Emergency  Council,  the  Ameri- 
can Jewish  Committee,  the  American  Jewish  Con- 
ference, the  American  Council  for  Judaism,  the 
American  Jewish  Congress,  the  Institute  for  Arab 
American  Affairs,  Agudas  Israel  of  America,  the 
New  Zionist  Organization  of  America,  and  the 
American  League  for  a  Free  Palestine. 

The  Department's  letters  to  the  organizations  in 
this  country  and  the  memoranda  transmitted  by 
this  Government  to  the  interested  governments 
and  organizations  listed  above  read  as  follows: 

May  20,  1H6. 
Sirs: 

I  am  enclosing  under  instructions  from  the 
President  a  copy  of  the  report  of  the  Anglo- 
American  Committee  of  Inquiry,  together  with 
a  memorandum  outlining  certain  considerations 
which  have  prompted  the  Government  of  the 
United  States  to  consult  Jewish  and  Arab  repre- 
sentatives regarding  this  repoi't. 

I  should  be  glad  to  receive  any  comments  or 
suggestions  which  your  organization  may  wish  to 
furnish  regarding  the  various  matters  discussed  in 
the  report  of  the  Committee,  and  I  need  hardly 
assure  you  that  the  views  of  your  organization  will 
receive  the  close  attention  of  this  Government.  It 
would  be  appreciated  if  the  comments  and  sugges- 
tions of  the  interested  parties,  which  it  is  hoped 
may  be  of  a  constructive  nature,  might  be  received 
within  thirty  days  from  today. 

Very  truly  yours, 

For  the  Secretary  of  State: 

De.^n  Acheson 
Under  Secretary 

[Enclosure] 

Memorandum 

In  inviting  comments  and  suggestions  on  the 
report  of  the  Anglo-American  Committee  of  In- 
quiry, the  Government  of  the  United  States  desires 
to  make  the  following  observations : 


JUNE  2,  1946 


957 


1.  The  report  is  iidvisory  in  cliaracter ;  conse- 
quently, its  recommendations  are  not  binding. 
However,  the  United  States  Government  is  giving 
careful  consideration  to  the  report  in  view  of  the 
standing  of  the  members  of  the  Committee,  of  the 
fact  that  the  report  was  unanimously  approved  by 
them  and  of  the  fact  that  they  were  entirely  free 
to  arrive  at  any  conclusions  which  to  them  seemed 
fair  and  reasonable.  The  United  States  Govei-n- 
ment  will  also  give  careful  consideration  to  the 
views  of  the  Governments  and  organizations 
which  it  is  now  consulting.  Judging  from  pre- 
liminary reactions  to  the  report  in  various  quar- 
ters, criticism  is  to  be  expected.  In  view  of  the 
importance  of  this  problem  and  the  sincere  desire 
of  the  United  States  to  arrive  at  a  policy  with 
regard  to  Palestine  which  will  be  both  humane 
and  just,  this  Government  greatly  hopes  that  the 
general  character  and  trend  of  the  observations 
and  suggestions  may,  so  far  as  possible,  be  of  a 
constructive  nature. 

2.  By  means  of  the  participation  of  American 
citizens  in  the  work  of  the  Committee,  and 
through  the  present  consultation,  the  Government 
of  the  United  States  is  seeking  information  and 
assistance  looking  to  the  formulation  of  its  policy 
on  severaJ  difficult  and  complex  problems.  It 
readily  recognizes  that  other  Governments  and 
organizations  will  have  their  own  respective  atti- 
tudes in  regard  to  these  questions  which  may  or 
may  not  be  similar  to  the  attitude  which  shall  be 
adopted  by  the  United  States.  The  United  States  ' 
Government  is  grateful  for  the  cooperation  and 
help  which  have  already  been  accorded  to  the 
Committee  of  Inquiry  and  hopes  that  assistance 
and  collaboration  will  continue  to  be  forthcoming 
as  tliese  matters  develop.  The  United  States 
Government,  for  its  part,  will  be  prepared  at  all 
times  to  reciprocate  to  the  best  of  its  ability  the 
many  courtesies  which  have  been  afforded  to  its 
citizens  and  representatives  by  the  interested  gov- 
ernments and  gi'oups. 

3.  The  interest  of  the  United  States  in  the 
questions  considered  in  the  report  is  believed  to 
be  legitimate  and  is  based  upon  the  following : 

(a)  Compassion  for  and  a  desire  to  assist  vic- 
tims of  Nazi  and  Fascist  persecution,  both  Jews 
and  non-Jews. 

(h)  The  fact  that  for  a  number  of  years 
American  citizens  have  been  contributing  sub- 
stantial assistance  to  the  upbuilding  of  the  Jewish 


National  Home  in  Palestine,  and  that  there  is 
every  I'eason  to  expect  that  their  interest  will 
continue. 

(c)  The  deep  interest  which  the  American  Gov- 
ernment and  its  citizens  have  in  maintaining  and 
promoting  mutually  beneficial  and  harmonious 
relations  between  the  United  States  and  the  coun- 
tries of  the  Near  East  in  the  political  field,  in 
education  and  other  cultural  activities,  in  trade, 
and  in  economic  development. 

( d)  The  value  placed  by  the  United  States  upon 
the  contributions  which  the  Near  Eastern  coun- 
tries liave  made  and  will  doubtless  continue  to 
make  to  the  cause  of  world  peace  and  prosperity 
and  to  the  upbuilding  and  effectiveness  of  the 
international  organization  created  for  these  pur- 
poses. 

4.  This  Government  will  be  glad  to  receive 
comments  and  suggestions  regarding  the  report  as 
a  whole  or  any  part  of  it,  and  would  be  grateful 
if  these  could  be  received,  at  the  latest,  thirty  days 
from  today. 


Shipments  of  Grain  to  India 

[Released  to  the  press  May  24] 

It  has  been  said  that  the  United  States  has  sup- 
plied no  grain  to  India.  This  is  incorrect,  since 
105,000  tons  of  grains  and  flours  were  shipped  from 
the  United  States  to  India  during  the  first  four 
months  of  1946  and  further  shipments  of  59,500 
tons  of  American  grain  to  India  are  planned  for 
May.  Shipments  from  the  United  States  are  pro- 
grammed in  the  light  of  information  developed  in 
discussions  with  representatives  of  other  major 
supplying  countries  concerning  their  export  pro- 
grams. American  attempts  to  alleviate  famine  in 
India  and  other  countries  are  thus  coordinated 
with  similar  efforts  by  Great  Britain  and  Canada, 
Australia,  and  a  number  of  other  countries.  A  few 
weeks  ago  the  United  Kingdom  agreed  to  divert 
shipments  and  reduce  its  stocks  of  wheat  by  200,000 
tons,  thus  making  available  60,000  tons  to  India 
alone.  This  was  made  possible  only  because  the 
United  States  guaranteed  to  replace,  after  July  1, 
the  amounts  withdrawn  from  British  supplies  to 
meet  the  present  emergency.  Geographic  location 
is,  of  course,  an  important  factor  in  accounting 
for  the  sources  from  which  importing  countries 
obtain  suj^plies.    For  example,  a  large  poition  of 


958 

Australian  wheat  goes  to  India  rather  than  to 
Europe,  since  the  United  States  is  nearer  to  Europe 
than  is  Australia. 

There  appears  to  be  a  mistaken  but  wide-spread 
belief  in  India  that  the  Combined  Food  Board 
agreed  to  make  1,400,000  tons  of  wheat  and  wheat 
substitutes  available  to  India  during  the  first  half 
of  1946.  No  six  months'  allocation  has  been  made 
to  any  country,  wheat  shipments  being  pro- 
grammed for  a  month  at  a  time  by  the  major 
exporting  countries  on  the  basis  of  information 
made  available  to  the  Combined  Food  Board  and 
its  Cereals  Committee.  Belief  that  a  1,400,000-ton 
allocation  was  made  to  India  apparently  arose 
from  a  misunderstanding  of  a  tentative  wheat-dis- 
tribution table  under  discussion  but  not  formally 
presented  when  the  Government  of  India  Food 
Delegation  met  with  the  Combined  Food  Board  in 
March.  It  was  explained  at  the  time  that  the  pro- 
posed distribution  table  did  not  in  any  sense  repre- 
sent agreed  figures  of  the  Combined  Food  Board 
Cereals  Committee  and  was  not  to  be  regarded  as 
an  allocation.  In  fact  the  tentative  nature  of  the 
table  was  indicated  by  its  failure  to  present  a  com- 
plete balance  between  available  supplies  and  indi- 
cated distribution. 

In  the  Combined  Food  Board  Rice  Committee 
the  United  States  has  collaborated  with  seven  other 
countries  in  planning  the  world  distribution  of  all 
significant  expoi't  surpluses  of  rice.  The  Govern- 
ment of  India  has  recently  accepted  membership  on 
this  committee  and  is  now  participating  directly 
in  its  activities.  The  difficulties  confronting  this 
group  during  the  first  six  months  of  1946  are  indi- 
cated by  comparison  of  world  import  requirements 
for  this  period  of  3,454,000  metric  tons  of  milled 
rice  with  export  availabilities  of  only  one  third  as 
much,  namely  1,139,000  metric  tons.  Rice  is  the 
major  staple  grain  in  the  customary  diet  of  a  con- 
siderable portion  of  the  population  of  the  southern 
United  States.  Yet,  for  the  months  of  April- June 
when  the  United  States  had  133,000  metric  tons 
to  allocate,  it  assigned  only  23,000  to  United  States 
civilians. 

As  announced  on  May  9,^  the  United  States  has 
associated  itself  with  the  Governments  of  Siam 
and  the  United  Kingdom  in  a  Rice  Commission 
to  supervise  and  expedite  the  orderly  and  maxi- 
mum movement  of  Siamese  rice  exports  in  accord- 
ance with  Combined  Food  Board  requirements. 

'  Bulletin  of  M.iy  19,  1946,  p.  SB.^. 


DEPARTMENT  OF  STATE  BULLETIN 

In  the  Department's  press  release  concerning  the 
Rice  Commission,  for  the  establishment  of  which 
this  government  has  been  pressing  for  many 
months,  it  was  stated  that : 

"This  Government  from  the  first  regretted  the 
principle  embraced  in  this  free-rice  demand,  and 
has  long  felt  that  this  was  one  of  the  most  serious 
impediments  which  has  delayed  the  procurement 
of  Siamese  rice  so  urgently  needed  in  India,  China, 
Malaya,  the  Philippines,  and  other  areas  in  the 
Far  East.  This  delay  has  been  especially  un- 
fortunate as  Siam  is  the  only  country  in  the  Far 
East  with  any  substantial  exportable  surplus  of 
rice." 

In  addition  it  was  pointed  out  that  the  United 
States  has  been  active  and  successful  in  arranging 
for  the  supply  of  transportation  equipment  needed 
to  move  Siamese  rice,  and  for  textiles  badly  needed 
as  an  incentive  for  the  production  and  marketing 
of  this  rice  so  necessary  in  Far  Eastern  areas  such 
as  India.  The  United  States  has  also  been  active 
in  arranging  for  the  transfer  to  Burma  of  trans- 
portation facilities  required  for  the  movement  of 
Burmese  rice. 

The  attitude  of  the  United  States  Government 
toward  the  Indian  food  situation  was  summarized 
as  follows  in  a  recent  communication  from  the 
President  of  the  United  States  to  the  Viceroy  of 
India : 

"You  may  be  sure  that  the  gravity  of  the  food 
shortage  in  India  is  thoroughly  recognized  by  the 
United  States  Government  and  is  receiving  the 
fullest  and  most  sympathetic  consideration  on  the 
highest  levels  of  the  government." 


Herbert  Hoover  To  Visit 
Other'American  Republics 

[Released  to  the  press  by  the  White  House  May  23] 

At  the  request  of  President  Truman,  Mr.  Herbert 
Hoover',  Honorary  Chairman  of  the  Famine  Emer- 
gency Committee,  will  leave  Saturday,  May  25,  on 
a  trip  to  the  other  American  republics.  Included 
in  the  party  are — 

Hugh  Gibson,  formerly  American  Ambassador 
to  Brazil,  Belgium,  and  Poland : 

Julius  Klein,  formerly  Assistant  Secretary  of 
Commerce ; 

D.  A.  FitzGerald,  U.  S.  Department  of  Agri- 
culture food  expert; 


JUNE  2,  1946 


959 


Maurice  Pate,  an  executive  of  the  International 
Red  Cross ;  and 

Frank  Mason,  who  will  act  as  press  assistant 
for  the  party. 

Mr.  Hoover  plans  to  arrive  in  Mexico  City  on 
Sunday,  May  26,  and  after  spending  several  days 
there,  to  proceed  to  Panama,  arriving  on  the  29th. 
The  itinerary  from  that  point  will  depend  on 
weather  conditions,  the  progress  of  Mr.  Hoover's 
discussions,  and  other  factors,  but  it  is  tentatively 
planned  to  proceed  down  the  west  coast  of  South 
America  and  return  along  the  east  coast  of  that 
continent.  It  is  expected  that  the  party  will  return 
to  Washington  about  June  22. 

In  each  of  the  countries  visited,  Mr.  Hoover  will 
discuss  ways  in  which  the  other  American  re- 
publics may  participate  in  alleviating  the  critical 
famine  conditions  prevalent  in  large  areas  of  the 
world.  This  will  include  a  review  of  the  import 
requirements  of  each  country  visited.  In  those 
cases  where  surplus  production  is  available,  Mr. 


ALLEN — Continued  from  page  927. 
IV 


The  above  discussion  of  the  relationship  between 
regional  systems  and  the  world  organization  has 
been  confined  to  matters  in  the  field  of  security, 
because  it  is  only  in  this  field  that  the  Charter 
contains  specific  guides.  It  is  silent  on  the  powers 
of  and  relations  with  regional  arrangements  and 
agencies  in  the  economic,  social,  and  cultural  fields. 
Certain  criticisms  have  been  leveled  at  the  Charter 
for  this  omission. 

It  may,  however,  be  pointed  out  that  certain 
indirect  guides  do  emerge  from  the  Charter  for 
solving  problems  of  organizational  relationship 
between  regional  and  world-wide  agencies  in  other 
than  the  security  field.  Not  only  may  the  pattern 
of  security  relationships  discussed  be  considered  as 
a  general  frame  of  reference  for  working  out  non- 
security  relations,  but  likewise  those  Articles  (57 
and  63)  which  provide  for  bringing  world-wide 
specialized  organizations  into  relationship  with 
the  United  Nations  through  special  agreements 
with  the  Security  Council  may  furnish  helpful 
analogy  for  the  relations  of  regional  agencies  in 
the  economic,  cultural,  and  other  fields  with  both 
their  world-wide  counterparts  and  the  organs  of 
the   United   Nations   themselves.     However,   the 


Hoover  will  otTer  each  nation  an  opportunity  to 
make  its  full  contribution  to  the  relief  of  world 
distress.  The  program  that  Mr.  Hoover  will  dis- 
cuss is  a  broad  one,  and  he  is  confident  that  each  of 
the  other  American  republics  will  want  to  share  in 
all  ways  that  are  available  to  them. 


Transfer  of  Lend-Lease 
Functions 

On  May  17, 1946  the  President  signed  Executive 
Order  9726  ^  transferring  all  functions  with  respect 
to  the  maintenance  of  accounts  and  other  fiscal 
records  relating  to  lend-lease  and  reverse  lend- 
lease  matters  from  the  Department  of  State  to  the 
Treasury  Department,  which  functions  shall  be  ad- 
ministered under  the  supervision  and  direction  of 
the  Secretary  of  the  Treasury.  The  Department  of 
State  shall  continue  to  administer  all  other  func- 
tions relating  to  the  administration  of  the  act 
which  are  now  under  its  jurisdiction. 


complex  of  such  agencies  included,  for  example, 
within  the  inter-American  system  suggests  a  host 
of  problems  of  relationship  for  which  gradual 
solutions  will  have  to  be  found.  It  will  be  a  task 
primarily  for  the  Economic  and  Social  Council 
to  seek  to  mark  out  the  general  lines  along  which  it 
is  believed  that  these  relationships  might  be 
worked  out.  With  respect  to  inter-American 
agencies,  the  Ninth  International  Conference  of 
American  States  will  occupy  itself  with  these 
problems  from  the  regional  point  of  view. 

Beyond  these  organizational  problems  of  rela- 
tionship in  the  non-security  field,  however,  lie  the 
deeper  issues  of  the  economic  and  commercial 
aspects  of  regionalism.  Again  the  Charter,  per- 
force because  it  was  setting  up  a  political  organ- 
ization, does  not  touch  upon  these;  and  considera- 
tion of  this  complex  field  is  beyond  the  scope  of  the 
present  article.  Nevertheless,  a  realization  of  the 
significant  role  of  economic  factors  in  the  con- 
scious development  or  discouragement  of  tenden- 
cies favoring  or  opi^osing  a  regional  approach  to 
international  security  relations  is  necessary  to 
give  perspective  to  the  political  and  security 
aspects  of  regionalism  sketched  in  this  discussion. 


'  11  Federal  Register  5437. 


960 


DEPARTMENT  OF  STATE  BULLETIN 


Invalidity  of  Commercial 
Agreements 

Czechoslovakia 

The  American  Ambassador  to  Czechoslovakia 
lias  transmitted  to  the  Department  a  translation 
of  a  Notice  of  the  Czechoslovak  Minister  of 
Foreign  xVffairs  of  February  4,  1946,  as  published 
February  19,  1946  muler  No.  27  of  the  Collection 
of  Czechoslovak  Laws  and  Decrees,  which  declares 
the  invalidity  of  commercial  agreements  between 
Czechoslovakia  and  enemy  countries. 

Tlie  Notice  declares  tlint  "all  the  commercial 
treaties,  agreements  and  conventions  including 
supiDlementary  agreements  and  protocols  between 
(lie  Czechoslovak  Eepublic  on  one  side  and  Ger- 
many, Italy,  Hungary,  Finland,  Bulgaria,  Ru- 
mania and  Japan  on  the  other  side  are  considered 
invalid  since  the  outbreak  of  war  and  are,  there- 
fore, no  more  in  effect  in  the  territory  of  the 
Czechoslovak  Republic  since  the  state  of  war  ex- 
isted with  the  signatories",  and  that  "'all  the  com- 
mercial treaties,  agreements  and  conventions  in- 
cluding the  supplementary  agreements  and  pro- 
tocols concluded  at  the  time  of  serfdom  by  un- 
constitutional organs  exercising  power  in  the  ter- 
ritory of  the  Czechoslovak  Republic,  are  also 
invalid." 


Opportunity  for  Study  at 
the  University  of  Montevideo 

[Released  to  the  press  April  29] 

The  Department  of  State  has  recently  been  in- 
formed by  the  American  Embassy  in  Montevideo, 
Uruguay,  that  the  University  of  Montevideo  has 
approved  a  new  statute  which  provides  for  the  ac- 
ceptance by  the  University  of  graduat«  students 
from  the  other  American  republics,  including  the 
United  States.  This  action  of  the  University  is 
in  response  to  an  increased  number  of  requests 
from  American  students. 

The  University  of  Montevideo  will  accept  quali- 
fied xVmerican  students  for  one  oi'  more  courses  and 
will  issue  official  certificates  for  the  successful  com- 
jiletion  of  the  courses. 

Students  interested  in  attending  the  University 
of  Montevideo  under  the  provisions  of  this  new 
statute  should  apply  direct  to  the  University. 


UNRRA  Mission  to  Turkey 

[Released  to  the  press  by  UNRRA  May  18] 

A  diplomatic  mission  of  the  United  Nations  Re- 
lief and  Rehabilitation  Administration  to  Turkey, 
whicli  recently  became  the  forty-eighth  member 
nation  of  UNRRA,  is  flying  to  Ankara  to  discuss 
witli  that  country  problems  of  supply  and  the  best 
means  by  which  Turkey  can  cooperate  with 
UNRRA.  The  mission  will  also  visit  Egypt,  Iraq. 
and  Iran  to  discuss  similar  matters  with  the  gov- 
ernments of  those  countries. 

Headed  by  Cornelius  Van  H.  Engert  of  Berke- 
ley, Calif.,  acting  diplomatic  adviser,  the  mission 
consists  of  Ira  Hirschmann  of  New  York,  N.Y.. 
special  consultant ;  George  Mason  of  Canada,  sup- 
ply negotiator  and  procurement  coordinator;  and 
Jessie  Stoiy  of  Canada,  secretary. 


Agriculturist  To  Visit  in  Other 
American  Republics 

Skuli  Rutford  of  St.  Paul,  Minn.,  is  one  of  a 
group  of  distinguislied  educators  who  has  received 
a  travel  grant  under  the  program  administered  by 
the  Department  of  State  for  the  exchange  of  pro- 
fessors and  technical  experts  between  this  country 
and  the  other  American  republics. 

At  present  on  leave  from  his  post  as  Assistant 
State  Director  of  Extension  in  Minnesota,  Mr. 
Rutford  will  confer  with  agricultural  officials  and 
teclmicians  in  certain  Latin  American  countries 
concerning  current  problems  in  the  collaborative 
programs  between  the  United  States  and  these 
republics  to  promote  production  of  complementary 
and  strategic  crops.  He  will  also  consult  with 
such  officials  and  technicians  concerning  the  train- 
ing of  personnel  in  the  technical  phases  of  agri- 
culture in  order  that  the  training  program,  as  now 
provided  by  extension  for  foreign  nationals,  can 
be  improved.  He  will  also  spend  some  time  visit- 
ing selected  agricultural  areas  in  order  to  famil- 
iarize himself  with  the  agricultural  problems  in 
these  countries.  The  program  of  activities  for 
Mr.  Rutford  lias  been  planned  with  the  cooperation 
of  the  United  States  Department  of  Agriculture. 

Mr.  Rutford  will  proceed  to  Guatemala  for  six 
weeks  and  before  returning  to  the  United  States 
will  visit  El  Salvador.  Peru,  and  Mexico.  He 
expects  to  be  gone  approximately  18  weeks. 


]LiSE  2,  1946 


961 


American  Students  To  Partici- 
pate in  Archaeological  Excava- 
tions in  Great  Britain 

[Released  to  tlie  press  May  21] 

Tlirouj;li  the  American  Council  of  Learned  So- 
cieties, the  London  Institute  of  Archaeology  has 
invited  25  American  students  to  participate  in 
archaeological  excavations  which  are  to  be  made 
in  the  "blitzed"  areas  of  Great  Britain,  including 
London,  Canterbury,  and  Exetei'.  The  excava- 
tions are  to  be  made  in  the  summer  of  11)46  in  order 
that  they  may  be  completed  before  these  areas  are 
rebuilt. 

The  London  Institute  of  Archaeology  offers  to 
provide  for  the  students'  expenses  and  accommo- 
dations while  in  Great  Britain,  and  at  the  conclu- 
sion of  the  excavations  the  British  Council  invites 
the  students  for  a  two-week  tour  of  the  United 
Kingdom  at  its  expense. 

American  students  wishing  to  participate  in  the 
excavations  would  have  to  leave  the  United  States 
not  later  than  the  middle  of  July  and  would  have 
to  furnish  their  own  transportation  expenses  to 
and  from  Great  Britain.  Interested  students 
should  communicate  with  the  American  Council 
of  Learned  Societies,  1219  Sixteenth  Street  NW., 
Washington  6,  D.C.,  in  order  to  be  considered  for 
inclusion  in  the  group  of  American  students  going 
to  Great  Britain. 


Simon  S.  Kuznets  To 
Visit  China 

Dr.  Simon  S.  Kuznets,  professor  of  economics 
and  statistics  at  the  University  of  Pennsylvania, 
has  been  invited  by  the  National  Resources  Com- 
mission of  China  to  visit  China  in  June  for  a  period 
of  four  months  in  the  capacity  of  Economic  Ad- 
viser and  to  assist  the  commission  in  research  pol- 
icies and  projects  and  in  the  training  of  research 
personnel.  Dr.  Kuznets,  an  expert  on  national  in- 
come statistics,  is  a  vice-president  of  the  American 
Economic  Association  and  a  former  vice-president 
of  the  American  Statistical  Association.  He 
served  as  Associate  Director  of  the  Bureau  of  Plan- 
ning and  Statistics,  War  Production  Board,  during 
1942  and  1943. 

Since  December  five  young  Chinese  economists 
have  been  making  preliminarj'  studies,  under  the 


direction  of  Dr.  Kuznets,  in  preparation  for  his 
vi.sit  to  China.  These  economists,  having  com- 
pleted their  graduate  training  at  universities  in 
the  United  States,  are  returning  to  China  to  work 
with  the  Xational  Resources  Commission. 


Visit  of  Chinese  Meteorologist 

[Released  to  the  press  April  o] 

Dr.  Jeou-jang  Jaw  (Chao  Chui-chang),  acting 
director.  Institute  of  Meteorology,  Academia 
Sinica,  Chungking,  China,  arrived  on  March  31 
for  a  six  months'  visit  in  the  United  States  under 
the  Department's  cultural-cooperation  xerogram. 
Dr.  Jaw  has  been  attending  the  International 
Meteorological  Conference  at  London  for  the  past 
month. 

While  in  tliis  country  Dr.  Jaw  will  visit  uni- 
versities and  colleges,  scientific  institutions,  and 
weather  observatories. 


PHILLIPS — Continued  from  page  935 

6.  The  government  should  accumulate  and 
maintain  a  strategic  stockpile  of  natural  rubber. 
Tliis  stockpile  should  Vie  held  wholly  apart  from 
stocks  in  commercial  channels  and,  except  for  ro- 
tation requirements,  should  be  retained  for  rubber 
emergency  use  exclusively. 

7.  With  the  certain  prospects  of  a  changing 
rubber  situation,  continuous  review  of  the  prob- 
lem should  be  maintained. 

The  Interagency  Policy  Committee  on  Rubber 
indicated  in  its  report  that  there  were  several 
areas  in  which  further  work  needed  to  be  done  in 
order  to  provide  the  mechanism  for  carrying  out 
its  recommendations.  It  therefore  proposed  to 
continue  its  work  preparatory  to  issuing  a  sup- 
plementary report  on  the  following  subjects : 

1.  The  administrative  method  by  which  a  min- 
imum use  of  general-purpose  synthetic  rubber  can 
best  be  assured ; 

2.  Methods  of  assuring  continuing  research  and 
development ; 

3.  Further  plans  for  plant  disposal : 

4.  The  recommended  structure  for  national  rub- 
ber supervision,  together  with  a  moi'e  precise  defi- 
nition of  the  proposed  administrative,  coordinat- 
ing, and  advisory  functions. 


962 

U.  S.  Engineer  To  Serve  in  China 

[Released  to  the  press  May  22] 

Richiud  C.  Darnell,  consulting  engineer  on  in- 
strument design  and  application,  has  been  ap- 
])ointed  by  the  Department,  imder  its  cultural- 
tooperation  program,  to  serve  in  China  as  u  spe- 
cialist in  scientific  instruments  and  laboratory 
equipment.  Mr.  Darnell,  organizer  and  president 
of  the  Washington  Instrument  Society,  was  en- 
gaged in  development  and  research  on  instruments 
for  the  Army  and  Navy  during  the  war  years.  He 
w  as  active  in  the  formation  of  the  National  In- 
strument Society  and  has  lectured  on  physics, 
ensrineerine,  electronics,  and  instruments  at  the 
George  Washington,  Catholic,  and  Maryland 
Universities. 

He  is  going  to  China,  in  response  to  a  request 
made  to  the  Department  by  the  Chinese  Ministry 
of  Education,  to  assist  in  the  selection  of  modern 
scientific  instruments  needed  to  replace  those  worn 
out  or  looted  from  luiiversities  and  research 
organizations. 

Mr.  Darnell  plans  to  leave  for  China  early  in 
June  and  will  remain  for  approximately  six 
months. 


Visit  of  Paragnayan  Pathologist 

[Released  to  the  press  April  3] 

Dr.  Juan  Boggino.  former  rector  of  the  Na- 
tional University,  Asuncion,  Paraguay,  and  at 
present  professor  of  pathology  at  that  institution, 
is  visiting  universities  and  medical  centers  in  this 
country  at  the  invitation  of  the  Department  of 
State,  under  its  program  of  cultural  cooperation 
with  the  other  American  republics. 

Dr.  Boggino  is  interested  in  acquainting  him- 
self with  medical  schools,  their  organization  and 
methods  of  instruction,  with  university  organi- 
zation in  general,  and  especially  with  work  that 
is  being  done  in  clinical  pathology  in  this  country. 

During  his  three  months'  stay  in  this  country 
Dr.  Boggino  plans  to  visit  universities  and  medi- 
cal centers  in  Washington,  D.C.,  Baltimore,  New 
York,  Boston,  Chicago,  Ann  Arbor,  Minneapolis, 
St.  Louis,  San  Francisco,  and  New  Orleans. 

Dr.  Boggino  has  served  in  his  country  in  the 


DEPARTMENT  OF  STATE  BULLETIN 

capacity  of  adviser  to  the  National  Department 
of  Hygiene,  president  of  the  City  Council  of 
Asuncion,  president  of  the  Paraguayan  section 
of  the  League  Against  Cancer,  and  president  of 
the  Rotary  Club  of  Asimcion. 


Physical  Education  Instructor 
To  Visit  in  Chile 

Kenneth  W.  Davidson,  of  Oakland,  Calif.,  has 
been  appointed  visiting  instructor  in  physical  edu- 
cation at  the  Catholic  University  in  Santiago, 
Chile.  He  is  one  of  a  group  who  has  received  a 
travel  grant  under  the  program  administered  by 
the  Department  of  State  for  the  exchange  of  pro- 
fessors and  technical  experts  between  this  country 
and  the  other  American  republics. 


John  B.  Biesanz  Accepts 
Professorship  to  Panama 

Dr.  John  Biesanz  of  Winona,  Minnesota,  has 
arrived  in  Panama,  where  he  will  serve  as  visit- 
ing professor  o,f  sociology  in  the  Inter- American 
University  at  Panama.  He  will  conduct  classes 
in  introductory  sociology  and  social  psj'chology 
in  the  Spanish  language.  Dr.  Biesanz  is  one  of 
a  gi-ouji  of  distinguished  educators  who  have  re- 
ceived travel  grants  for  visiting  professorships 
under  the  progi-am  administered  by  the  Depart- 
ment of  State  for  the  exchange  of  professors  and 
technical  experts  between  this  country  and  the 
other  American  rej^ublics. 


Visit  of  Costa  Rican  Inspector 
of  Indian  Schools 

Humberto  Miranda  Vega,  inspector  of  Indian 
schools  in  Costa  Rica,  member  of  the  National  In- 
dian Institute  and  o,f  the  Administrative  Council 
on  Indian  Affairs,  is  visiting  Indian  schools  and 
other  centers  interested  in  Indian  problems  in 
this  comitry  at  the  invitation  of  the  Department 
of  State. 


JUNE  2,  1946 


963 


Anglo-Siamese  Peace  Treaty 


PEACE  AGREEMENT  WITH  SIAM 

Text  of  the  agreement  terminating  the  state  of  loar  hetween  the  United  Kingdom  and  India  on  the  one 
hand  and  Siam  on  the  other  which  was  signed  at  Singapore  January  1,  1946,  as  released  iy  the  Foreign 
Office  in  London  January  1 


Whekeas  by  a  proclamation  made  in  Bangkolc  on  the  16tli 
August,  1945,  the  Regent  of  Siam  did,  in  the  name  of  His 
Majesty  tiie  King  of  Siam,  prochiim  the  declaration  of 
war  made  by  Siam  on  the  25th  January,  1942,  against 
the  United  Kingdom  to  be  null  and  void  in  that  it  was 
made  contrary  to  the  will  of  the  Siamese  people  and  in 
violation  of  the  Constitution  and  Laws  of  Siam,  and 
Whereas  the  proclamation  of  the  16th  August  1945  afore- 
said was  the  same  day  unanimously  ajiproved  by  the 
National  Assembly  of  Siam,  and 

Wheeeas  the  Siamese  Government  have  repudiated  the 
Alliance  entered  into  by  Siam  with  Japan  on  the  21st 
December,  1941  together  with  all  other  treaties,  pacts,  or 
agreements  concluded  between  Siam  and  Japan,  and 
AVhereas  the  Siamese  Government  are  anxious  to  play 
their  full  part  in  mitigating  the  effects  of  the  war,  par- 
ticularly in  such  measures  as  may  be  designed  to  assist 
in  the  restoration  of  international  security  and  general 
economic  welfare,  and 

Whekeas  the  Government  of  the  United  Kingdom  and  the 
Government  of  India,  in  consideration  of  the  acts  of  repu- 
diation already  carried  out  by  the  Siamese  Government, 
and  not  unmindful  of  the  services  rendered  by  the  Re- 
sistance Movement  In  Siam  during  the  war  with  Japan, 
desire  to  bring  the  state  of  war  to  an  immediate  end. 
Now  THEREFORE  the  Government  of  the  United  Kingdom 
and  the  Government  of  India  on  the  one  hand  and  the 
Siamese  Government  on  the  other  being  desirous  of  re- 
newing the  relations  of  close  friendship  which  existed 
before  the  war,  Have  resolved  to  conclude  an  agreement 
for  these  purposes  and  have  accordingly  appointed  as 
their  plenipotentiaries : — 

Government  of  the  United  Kingdom  of  Great  Britain  and 
Northern  Ireland : 

Mr.  M.  E.  Denlng,  C.M.G.,  O.B.E. 
Government  of  India  : 

Mr.  M.  S.  Aney 
Siamese  Government : 

His  Serene  Highness  Trince  Viwatchai  Chalyaut 

Lieutenant-General  Phya  Abliai  Songgram 

Nai  Serm  Vlnlcchayakul 
Who,  having  communicated  their  full  powers,  found  in 
good  and  due  form,  have  agreed  as  follows : — 

RESTITUTION  AND  READJUSTMENT 

Article  1 

The  Siamese  Government  agree  to  repudiate  all  meas- 
ures pursuant  to  the  above-mentioned  declaration  of  war 


made  on  the  25th  January,  1942,  and  to  take  the  necessary 
legislative  and  administrative  measures  to  give  effect  to 
that  repudiation. 

Article  2 

The  Siamese  Government  declare  as  null  and  void  all 
IJurported  acquisitions  of  British  territory  made  by  Siam 
later  than  December  7,  1941,  as  well  as  all  titles,  rights 
properties  and  interests  acquired  in  such  territory  since 
that  date  either  by  the  Siamese  State  or  by  Siamese  sub- 
.jects.  The  Siamese  Government  agree  to  take  the  neces- 
sary legislative  measures  to  give  effect  to  the  foregoing 
declaration  and  in  particular 

(a)  to  repeal  and  declare  null  and  void  ab  initio  all 
legislative  and  administrative  measures  relating  to  the 
purported  annexation  by,  or  incorporation  in,  Siam  of 
British  territories  effected  after  the  7th  December,  1941. 

(6)  to  withdraw  as  may  be  required  by  the  competent 
civil  or  military  authority  all  Siamese  military  personnel 
from  all  such  British  territories  and  all  Siamese  oflScials 
and  nationals  who  entered  these  territories  after  their 
purported  annexation  by,  or  incorporation  in,  Siam. 

(c)  to  restore  all  property  taken  away  from  these  ter- 
ritories including  currency  except  to  the  extent  to  which 
it  can  be  established  that  fair  value  has  been  given  in 
exchange. 

(d)  to  compensate  loss  or  damage  to  property,  rights 
and  interests  in  these  territories  arising  out  of  the  occupa- 
tion of  these  territories  by  Siam. 

(e)  to  redeem  in  sterling  out  of  former  sterling  re- 
serves current  Siamese  notes  collected  by  the  British  au- 
thorities in  British  territory  occupied  by  Siam  since  the  7th 
December  1941. 

Article  S 

The  Siamese  Government  agree  to  assume  responsibility 
for  safeguarding,  maintaining  and  restoring  unimpaired, 
British  property,  rights  and  interests  of  all  kinds  in  Siam 
and  for  payment  of  compensation  for  losses  or  damage 
sustained.  The  term  "property,  rights  and  interests"  shall 
include,  inter  alia,  the  oflScial  property  of  the  Government 
of  the  United  Kingdom  and  of  the  Government  of  India, 
Ijroperty  whose  ownership  has  been  transferred  since 
the  outbreak  of  war,  pensions  granted  to  British  nationals, 
stocks  of  tin,  teak  anil  other  conunodities,  shipping  and 
wharves,  and  tin,  teak  and  other  lea.ses  and  concessions 
granted  to  British  firms  and  individuals  prior  to  the  7th 
December,  1941,  and  still  valid  at  that  date. 


964 


DEPARTMENT  OF  STATE  BULLETIN 


Article  4 

The  Siamese  Government  agree  to  desequestrate  Brit- 
ish banking  and  commercial  concerns  and  permit  them  to 
resume  business. 

Article  5 

The  Siamese  Government  agree  to  accept  liability,  with 
the  addition  of  Interest,  at  an  appropriate  percentage,  in 
respect  of  payments  in  arrears,  for  the  service  of  loans 
and  for  payment  of  pensions  in  full  since  the  date  when 
regular  payments  ceased. 

SECURITY 

Article  6 

The  Siamese  Government  recognise  that  the  course  of 
events  in  the  war  with  Japan  demonstrates  the  impor- 
tance of  Siam  to  the  defence  of  Malaya,  Burma,  India  and 
Indo-China  and  the  security  of  the  Indian  Ocean  and  South 
West  Pacific  areas  and  the  Siamese  Government  agree  to 
collaborate  fully  in  all  international  security  arrange- 
ments approved  by  the  United  Nations  Organisation  or 
its  Security  Council  which  may  be  pertinent  to  Siam  and 
esi)ecially  such  international  security  arrangements  as 
may  relate  to  those  countries  or  areas. 

Article  7 

The  Siamese  Guvernment  undertake  that  no  canal 
linking  the  Indian  Ocean  and  the  Gulf  of  Siam  shall  be  cut 
across  Siamese  territory  without  the  prior  concurrence  of 
the  Government  of  the  United  Kingdom. 

COMMERCIAL  AND  ECONOMIC  COLLABORATION 
Article  8 

The  Siamese  Government  agree  to  take  all  possible 
measures  to  re-establish  import  and  export  trade  between 
Siam  on  the  one  hand  and  neighbouring  British  territories 
on  the  other,  and  to  adopt  and  maintain  a  good  neighbourly 
policy   in   regard   to   coastal  shipping. 

Article  9 

The  Siamese  Government  undertake  to  negotiate  with 
the  Government  of  the  United  Kingdom  as  soon  as  prac- 
ticable a  new  Treaty  of  Establishment,  Commerce  and 
Navigation  and  a  Consular  Convention  based  on  the  recip- 
rocal application  of  the  principles  in  Article  11  below. 

Article  10 

The  Siamese  Government  undertake  to  negotiate  with 
the  Government  of  India  as  soon  as  practicable  a  new 
Treaty  of  Commerce  and  Navigation  based  on  the  recipro- 
cal application  of  the  principles  in  the  following  Article. 

Article  11 

(1)  Pending  the  conclusion  of  the  Treaties  and  Conven- 
tion referred  to  in  Articles  9  and  10  above  and  subject  to 
paragraph  (2)  of  this  Article,  the  Siamese  Government 
undertake  to  observe  the  provisions  of  the  Treaty  of  Com- 
merce and   Navigation   signed   at   Bangkok   on    the  23rd 


November  1937,  and  further  undertake,  except  where  the 
Treaty  specifically  authorizes  .such  action,  not  to  enforce 
any  measures  excluding  British  commercial  or  industrial 
interests  or  British  professional  men  on  grounds  of  na- 
tionality from  participation  in  Siamese  economy  and  trade, 
or  any  measures  requiring  them  to  maintain  stocks  or 
reserves  in  excess  of  normal  commercial,  shipping,  indus- 
trial or  business  practice. 

(2)  The  above-mentioned  undertakings  of  the  Siamese 
Government  (a)  shall  be  subject  to  such  exceptions,  if 
any,  as  may  at  any  time  be  agreed  to  between  the  Govern- 
ment of  the  United  Kingdom  or  the  Government  of  India,  as 
the  case  may  be,  and  the  Siamese  Government;  (6)  shall, 
unless  prolonged  by  agreement,  lapse  if  the  Treaties  and 
Conventions  referred  to  in  Articles  9  and  10  have  not  been 
concluded  within  a  period  of  three  years  from  the  coming 
into  force  of  tliis  Agreement. 

(3)  Nothing  in  this  Article  shall  be  deemed  to  preclude 
the  grant  of  equally  favourable  treatment  to  nationals 
and  enterprises  of  any  or  all  other  United  Nations. 

Article  12 

The  Siamese  Government  undertake  to  participate  in 
any  general  international  arrangement  regarding  tin  or 
rubber  which  conforms  with  such  principles  regarding 
commodity  arrangements  as  may  be  agreed  by  the  United 
Nations  Organisation  or  Its  Economic  and  Social  Council. 

Article  13 

Until  a  date  or  dates  not  later  than  1st  September  1947 
the  Siamese  Government  undertake  to  prohibit,  except  in 
accordance  with  the  recommendations  of  the  Combined 
Boards  in  Washington,  or  any  successor  body,  and  in  the 
case  of  rice,  under  the  direction  of  a  special  organisation 
to  be  set  up  for  the  purpose,  any  exports  of  rice,  tin,  rub- 
ber and  teak  and  to  regulate  trade  in  and  stimulate 
production  of  these  commodities. 

Article  14 

The  Siamese  Government  undertake  to  make  available 
free  of  cost  at  Bangkok  to  an  organisation  to  be  indicated 
by  the  Government  of  the  United  Kingdom,  and  as  quickly 
as  may  be  compatible  with  the  retention  of  supplies  ade- 
quate for  Siamese  internal  needs  a  quantity  of  rice  equal 
to  the  accumulated  surplus  rice  at  present  existing  in 
Siam,  subject  to  a  maximum  of  1%  million  tons,  or,  if  so 
agreed,  the  equivalent  quantity  of  paddy  or  loonzain.  It 
is  agreed  that  the  exact  amount  of  rice  to  be  made  avail- 
able under  this  Article  shall  be  determined  by  the  organi- 
sation above-mentioned  and  that  the  rice,  paddy  or  loon- 
zain delivered  under  this  Article  shall  conform  to  the 
agreed  standards  of  quality  to  be  determined  by  the  same 
authorities. 

Article  IS 

Until  a  date  not  later  than  the  1st  September  1947  the 
Siamese  Government  agree  to  make  available  to  the  Rice 
Organisation  mentioned  in  Articles  13  and  14  all  rice  sur- 
plus to  the  internal  needs  of  Siam.  Such  rice,  with  the 
exception  of  rice  delivered  free  in  accordance  with  the 
undertaking  given  in  Article  14,  will  be  supplied  in  such 
manner  as  the  special  organisation  mentioned  in  Articles 


JUNE  2,  1946 


965 


13  and  14  shall  indicate  and  at  ijrices  fixed  in  agreement 
with  it,  having  regard  to  the  controlled  prices  of  rice  in 
other  Asiatic  rice-exporting  areas. 

CIVIL  AVIATION 
Article  16 

The  Siamese  Government  shall  accord  to  the  Civil  Air 
Services  of  the  British  Commonwealth  of  Nations  by  means 
of  agreements  to  be  negotiated  with  Governments  of 
Members  of  the  liritish  Commonwealth  of  Nations  treat- 
ment in  regard  to  establishment,  maintenance  and 
operation  of  regular  air  services  not  less  favourable  than 
that  accorded  to  Imperial  Airways  by  the  Notes  exchanged 
at  Bangkok  on  the  3rd  December  1937. 

WAR  GRAVES 

Article  17 

The  Siamese  Government  undertake  to  enter  into  an 
agreement  with  the  Government  of  the  United  Kingdom 
and  the  Government  of  India  for  the  mutual  upkeep  of 
war  graves  with  a  view  to  the  permanent  establishment 
and  future  care  of  British  and  Indian  war  graves  and  of 
Siamese  war  graves  in  their  respective  territories. 

MISCELLANEOUS 

Article  18 

The  Siamese  Government  agree  to  regard  as  in  force 
such  bilateral  treaties  between  the  United  Kingdom  and 
Siam  and  India  and  Siam  as  may  respectively  be  specified 
by  the  Government  of  the  United  Kingdom  and  the  Gov- 
ernment of  India,  subject  to  any  modifications  the  Govern- 
ment of  the  United  Kingdom  or  the  Government  of  India 
may  indicate  and  to  regard  as  abrogated  any  such  treaties 
not  so  specified. 

Article  19 

The  Siamese  Government  agree  to  regard  as  being  in 
force  between  the  United  Kingdom  and  Siam  and  be- 
tween India  and  Siam  all  multilateral  treaties,  conven- 
tions or  agreements  concluded  prior  to  7th  December  1941 
(a)  to  which  Siam  and  the  United  Kingdom  or  India, 
as  the  case  may  be.  were  then  and  still  are  parties  (6)  to 
whicli  the  United  Kingdom  or  India,  as  the  case  may  be, 
was  then  and  still  is  a  party  but  to  which  Siam  has  not 
become  a  party  and  which  .shall  be  notified  to  the  Siamese 
Government  by  the  Government  of  the  United  Kingdom  or 
the  Government  of  India. 

On  the  receipt  of  such  notification  the  Siamese  Govern- 
ment shall  immediately  take  the  necessary  steps,  in  ac- 
cordance with  the  provisions  of  any  such  treaty,  convention 
or  agreement  to  which  Siam  is  not  a  coutr.acting  party,  to 
accede  thereto,  or  if  accession  is  not  possible,  shall  give 
effect  to  the  provisions  thereof  in  respect  of  the  United 
Kingdom  or  India,  as  the  case  may  be,  by  such  legislative  or 
administrative  means  as  may  be  appropriate.  The  Siamese 
Government  agree  also  to  accept  any  modifications  thereto 
which  may  have  come  into  effect  in  accordance  with  the 
terms  of  such  instruments  since  that  date. 


Article  20 

Pending  admission  to  any  international  organisation 
set  up  since  the  7th  December  1941,  being  an  organisation 
of  which  the  United  Kingdom  or  India  is  a  member,  the 
Siamese  Government  agree  to  carry  out  any  obligations 
arising  out  of,  or  in  connexion  with  any  such  organisation 
or  the  instrument  constituting  it,  as  may  at  any  time  be 
specified  by  the  Government  of  the  United  Kingdom  or 
the  Government  of  India  as  the  case  may  be. 

Article  21 

In  consideration  of  the  above  undertakings  made  by 
the  Siamese  Government,  the  Government  of  the  United 
Kingdom  and  the  Government  of  India  agree  to  regard 
the  state  of  war  as  terminated  and  to  proceed  at  once 
to  the  resumption  of  friendly  relations  with  Siam  and  to 
exchange  of  diplomatic  representatives. 

Article  22 

The  Government  of  the  United  Kingdom  and  the  Gov- 
ernment of  India  also  undertake  to  support  Siam's  can- 
didature for  membership  of  the  United  Nations. 

DEFINITIONS  AND  DATE  OF  ENTRY  INTO  FORCE 
OF  AGREEMENT 

Article  23 

It  is  agreetl  b,\'  the  contracting  parties  tliat  the  term 
"British"  in  this  Agreement  (1)  when  applied  to  physical 
persons  shall  mean  all  subjects  of  His  Majesty  the 
King  of  Great  Britain,  Ireland  and  the  British  Dominions 
beyond  the  .seas,  EmiJeror  of  India,  and  all  per.sons  un<ler 
His  Majesty's  protection;  (2)  when  applied  to  territory 
shall  mean  any  territory  under  His  Majesty's  sovereignty, 
suzerainty,  protection  or  mandate,  as  the  case  may  be : 
(3)  when  applied  to  legal  persons  shall  mean  all  legal 
persons  deriving  their  status  as  .such  from  the  law  in 
force  in  any  such  territory;  and  (4)  when  applied  to 
property,  rights  or  interests  shall  mean  the  property, 
rights  or  interests  of  persons  specified  under  (1)  or  (3) 
above,  as  the  case  may  be. 

Article  24 

This  Agreement  shall  enter  into  force  as  from  to-day's 
date. 

In  witness  whekrof  the  undersigned  have  signed  the 
present  Agreement  and  have  affixed  thereto  their  seals. 
Done  in  triplicate  at  Singapore  this  1st  day  of  January, 
in  the  1946th  year  of  the  Christian  Era,  corresponding 
to  the  2,489th  year  of  the  Buddhist  Era  In  the  BnglLsh 
language. 

Great  Britain  and  Northern  Ireland 

M.  E.  Dening 
India 

M.  S.  Aney 

(This  signature  is  appended  in  agreement  with  His 
Majesty's   Representative  for   the  exercise  of   the 
functions  of  the  Crown  in  its  relations  with  Indian 
States.) 
Siam 
Viwat 
Phya  Abhai  Songgram 

Lieut.-Gen. 
S.  Vinicchayakul 


966 


DEPARTMENT  OF  STATE  BULLETIN 


EXCHANGE  OF  NOTES  BETWEEN  THE  GOVERNMENTS  OF  SIAM  AND  AUSTRALIA' 


Colonel  A.  J.  Eastman   to  Prince  Viwatchai   Chaiyant 
Commonwealth  of  Australia 

SiNGAPOEE 

1st  January  19^6 

Tour  Sesiene  Highness, 

With  reference  to  our  discussions  at  Government  House, 
Singapore,  on  11th.,  15th.,  19th.,  and  31st.  December  1&45 
and  to  the  verbal  agreement  reached  between  us  on  the 
last  mentioned  date,  I  have  the  honour  to  request,  on  be- 
half of  the  Government  of  the  Commonwealth  of  Aus- 
tralia, that  you  forward  to  me  a  letter  signed  by  yourself 
and  the  other  plenipotentiary  members  of  your  Delegation 
confirming  the  undertaking  of  the  (Tovernment  of  Siam 
that  it  will  :— 

(1)  take  promptly  all  action  necessary  for  the  com- 
plete repudiation  of  the  declaration  of  war  made  against 
Great  Britain  on  25th.  January  1942,  the  Alliance  with 
Japan  made  on  21st.  December  1041  and  all  measures  oper- 
ating to  the  detriment  of  Gke.\t  Britain,  Australia  and 
their  Allies ; 

(2)  when  called  upon  to  do  so  at  any  time  before  14th. 
March  1946,  conclude  a  treaty  with  the  Government  of  the 
Commonwealth  of  Australia 

(a)  certifying  that  the  Government  of  Siam  has  taken 
all  action  necessary  for  the  complete  repudiation  of  the 
declaration  of  war,  the  Alliance  and  the  measures  referred 
to  in  Clause  1  above  and 

(6)   obliging  the  Government  of  Siam  :— 
(i)   to  assume  responsibility  for  the  maintenance  and 
good  upkeep  of  all  Australian  war  graves  in  Siam  ; 
(m)   to  assume  responsibility  for  complying  with  the 
directions  of  the  Government  of  the  Commonwealth 
of  Australia  with  respect  to  the  well-being  and 
interests  of  all   Australian  residents  detained  or 
interned  in  Siam  since  8th.  December  1941 : 
(ill)   to  undertake  full  assistance  in  the  apprehension 
and  punishment  of  persons  guilty  of  war  crimes 
against  Australians; 
{ir)   to  assume  responsibility  for  compensating  the  Gov- 
ernment of  the  Commonwealth  of  Australia  and 
Australian  citizens  for  all  losses  and  damage  sus- 
tained by  them  directly   or  indirectly  since  8th. 
December  1941  in  Siam  or  as  a  result  of  Siamese 
activity  outside  Siam  ; 
(r)   to  undertake  measures  of  regional,  political  and 
economic  cooperation  consistent  with  the  principles 
of  the   United  Nations  Charter  and  designed  to 
ensure  the  security  of  South  East  Asia  and  the 
South  West  Pacific  area  ;  and 

'Also  included  in  the  Siamese  print  of  the  above 
agreement. 

*N.  B.  For  the  enclosure  mentioned  see  Formal  Agree- 
ment with  Great  Britain. 


ivi)  to  carry  out  such  of  the  obligations  specified  in  the 
formal  agreement  entered  into  this  day  between 
the  Government  of  the  United  Kingdom  and  the 
Government  of  India  on  the  one  hand  and  the  Gov- 
ernment of  Siam  on  the  other  (copy  of  which  is 
attached  to  this  letter  and  initialled  by  me)  *  as 
the  Government  of  the  Commonwealth  of  Aus- 
tralia considers  to  be  applicable  in  principle  to 
Australian  policy  and  interests  and  requires  the 
Government  of  Siam  to  undertake. 

Such  treaty  to  oblige  the  Government  of  the  Common- 
wealth of  Australia  to  terminate  the  state  of  war  existing 
between  Austraua  and  Siam. 

I  have  the  honour  to  confirm  that,  upon  the  completion 
of  the  action  mentioned  in  Clause  1  above  and  upon  the 
coming  into  force  of  the  treaty  mentioned  in  Clause  2, 
the  Government  of  the  Commonwealth  of  Australia  will 
be  prepared  to  terminate  the  state  of  war  existing  between 
it  and  the  Government  of  Siam. 

I  avail  myself  of  this  opportunity  to  express  to  Your 
Serene  Highness  the  assurance  of  my  high  consideration. 
A.  J.  Eastman 
Plenipotentiary  to  the  Government  of  the  Com- 
monwealth of  Australia  for  the  conclusion  of 
arrangements  relative  to  the  termination  of  the 
state  of  war  with  Siam. 

His  Serene  Highness 

Prince  Viwatohai  Chaiyant, 
Head  of  the  Siamese  Delegation, 
Singapore. 

Prince  Viwatchai  Chaiyant  to  Colonel  A.   J.  Eastman 

Singapore 
1st  January  1946. 
Sir, 

We  have  the  honour  to  acknowledge  your  letter  of  1st 
January  1946  and  to  state  that  we  are  instructed  by  His 
Majesty's  Government  to  undertake  on  their  behalf  that 
they  will : — 

(1)  take  promptly  all  action  necessary  for  the  complete 
repudiation  of  the  declaration  of  war  made  against  Great 
Britain  on  25th  January  1942,  the  Alliance  with  Japan 
made  on  21st  December  1941  and  all  measures  operating 
to  the  detriment  of  Great  Britain,  Australia  and  their 
Allies ; 

(2)  when  called  upon  to  do  so  at  any  time  before  14th 
March  1946,  conclude  a  treaty  with  Government  of  the 
Commonwealth  of  Australia 

(o)  certifying  that  the  Government  of  Siam  has  taken 
all  action  necessary  for  the  complete  repudiation  of  the 
declaration  of  war,  the  Alliance  and  the  measures  referred 
to  in  Clause  (1)  above,  and 


JUNE  2,  1946 


967 


(6)   obliging  the  Government  of  Siam  : — 

(i)  to  assume  responsibility  for  tlie  luaiiitetiance  and 
good  upkeep  of  all  Australian  war  graves  in 
Siam; 
(I'O  to  assume  responsibility  for  complying  with  the 
directions  of  the  Government  of  the  Common- 
wealth of  Australia  with  respect  to  the  well- 
being  and  interests  of  all  Australian  residents 
detained  or  interned  in  Siam  since  8th  De- 
cember 1941 ; 

(m)  to  undertake  full  assistance  in  the  apprehension 
and  punishment  of  persons  guilty  of  war 
crimes  against  Australians; 

(iv)  to  assume  responsibility  for  compensating  the 
Government  of  the  Commonwealth  of  Aus- 
tralia and  Australian  citizens  for  all  losses  and 
damage  sustained  by  them  directly  or  indirectly 
since  Sth  December  1941  in  Siam  or  as  a  result 
of  Siamese  activity  outside  Siam  ; 

{v)  to  undertake  measures  of  regional,  political  and 
economic  co-operation  consistent  with  the  prin- 
ciples of  the  United  Nations  Charter  and  de- 
signed to  ensure  the  security  of  South  East 
Asia  and  the  South  West  Pacific  area  ;  and 

(r/)  to  carry  out  such  of  the  obligations  specified  in 
the  Formal  Agreement  entered  into  this  day  be- 
tween the  Government  of  the  United  Kingdom 
and  the  Government  of  India  on  the  one  hand 
and  the  Government  of  Siam  on  the  other,  (copy 
of  which  is  attached  to  this  letter  and  initialled 
by  us)*  as  the  Government  of  the  Common- 
wealth of  Australia  considers  to  be  applicable 
in  principle  to  Australian  policy  and  interests 
and  requires  the  Government  of  Siam  to  under- 
take. 


Such  treaty  to  oblige  the  Government  of  the  Common- 
wealth of  Australia  to  terminate  the  state  of  war  existing 
between  Australia  and  Siam  ; 

In  this  connection  we  have  the  honour  to  confirm  that 
His  Majesty's  Government  has  already  taken  all  necessary 
action  to  repudiate  the  declaration  of  war  and  the  alliance 
referred  to  in  Clause  (1)  and  all  other  treaties,  pacts  and 
agreements  between  Siam  and  Japan  ;  and  that  in  the  in- 
terval between  the  date  of  this  letter  and  the  conclusion 
of  the  Treaty  mentioned  in  Clause  (2),  His  Majesty's 
Government  will  take  immediate  steps,  as  far  as  possible, 
to  put  into  effect  the  terms  set  out  in  that  Clause  and  in  all 
respects  to  act  in  accordance  with  their  spirit. 

His  aiajesty's  Government  note  that,  upon  completion 
of  the  action  mentioned  in  Clause  (1)  above  and  upon  the 
coming  into  force  of  the  treaty  mentioned  in  Clause  (2), 
the  Government  of  the  Commonwealth  of  Australia  will 
be  prepared  to  terminate  the  state  of  war  existing  between 
it  and  His  Majesty's  Government. 

We  avail  ourselves  of  this  opportunity  to  express  to  you 
the  assurance  of  our  high  consideration. 
Viwat 

Phta  Abhai  Sorggram 
S.  Vinicchatakul 

Plenipotentiaries  to  the  Oovcrnment  of  Siam 
for  the  conclunion  of  arrangements  relative  to 
the  termination  of  the  state  of  war  between 
Australia  and  Siam. 

Colonel  .\.  J.  Eastman, 
Plenipotentiarj/   to    the   Oovernmeiit   of    the   Common- 
wealth of  Australia. 

*X.B.  For  the  enclosure  mentioned  see  Formal  Agree- 
ment with  Great  Britain. 


Addresses  and  Statements  of  the  Week 


The  President 


The  President 


The  Secretary  ot  State 
Assistant  Secretary  Braden 


Francis  Russell 

-\cting  Director,  Oflfice  of  Pub- 
lic .\ffairs 


Welcome    to    the    Economic    and    Social 
Council.     Not  printed 

Statement  made  at  the  first  meeting  of  F.-\0 

on    Urgent    Food    Problems.      Printed 

in  this  issue 
Report  on  the  Paris  Conference  of  Foreign 

Ministers.     Printed  in  this  issue 
The  Challenge  of  Liberalism.     Text  issued 

as  press  release  336  of  May  15;    not 

printed 
On   the   subject   of   our   economic    foreign 

policy.     Text   issued  as   press   release 

346  of  May  21;   not  printed 


Read  by  John  G.  Winant,  V.  S.  Repre- 
sentative, at  the  opening  meeting 
in  Mew  York  on  May  2.5 

Meeting  held  in  Washington  on  May  20 


Broadcast  on  May  20  from  Washington 

Commencement  address  at  Clark  Uni- 
versity. Worcester,  Mass.,  on  May 
26 

Made  at  the  New  Brunswick  Forum  at 
New  Brunswick,  N.  J.,  on  May  21 


968 


DEPARTMENT  OF  STATE  BULLETIN 


Soviet-Mongolian  Treaty  and  Agreement 


The  American  Embassy  at  Moscow  has  trans- 
mitted to  the  Department  the  texts  of  the  Treaty 
of  Friendship  and  Mutual  Assistance  and  the 
Agreement  on  Economic  and  Cultural  Collabora- 
tion between  the  Union  of  Soviet  Socialist  Re- 
publics and  the  Monjiolian  People's  Republic, 
signed  on  February  27,  1946.  The  texts  of  the 
treaty  and  agreement  as  published  in  the  Moscow 
News  March  2, 1946,  are  as  follows : 

TREATY  OF  FRIENDSHIP  AND  MUTUAL  ASSISTANCE 
BETWEEN  THE  UNION  OF  SOVIET  SOCIALIST 
REPUBLICS  AND  THE  MONGOLIAN  PEOPLE'S 
REPUBLIC 

In  view  of  the  expiration  of  tlie  ten-year  term  of 
operation  of  the  Protocol  on  Mutual  Assistance  con- 
cluded between  the  Union  of  Soviet  Socialist  Republics 
and  the  Mongolian  People's  Republic,  the  Presidium  of 
the  Supreme  Soviet  of  the  USSR  and  the  Presidium  of 
the  Small  Hural  of  the  Mongolian  People's  Republic  have 
decided  to  convert  the  following  Protocol  of  March  12, 
1936,  into  a  Treaty  of  Friendship  and  Mutual  Assistance 
valid  for  ten  years : 

"The  Governments  of  the  Union  of  Soviet  Socialist 
Republics  and  of  the  Mongolian  People's  Republic,  in 
view  of  the  relations  of  invariable  friendship  which  have 
existed  between  their  countries  .since  the  liberation  of 
the  territory  of  the  Mongolian  People's  Republic  in  1921 
with  the  assistance  of  the  Red  Army  from  the  detach- 
ments of  White  Guards  who  were  connected  with  the 
armed  forces  which  invaded  the  territory  of  the  Union 
of  Soviet  Socialist  Republics,  guided  by  the  desire  to 
maintain  the  cause  of  peace  in  the  Far  East  and  con- 
tribute to  the  further  consolidation  of  the  friendly  rela- 
tions existing  between  them,  have  decided  to  embody 
in  the  present  protocol  the  gentleman's  agreement 
existing  between  them  since  Nov.  27,  193-1,  providing  for 
mutual  support  by  every  means  in  averting  and  iJre- 
venting  the  threat  of  military  attack,  and  also  for 
rendering  each  other  assistance  and  support  in  case  of 
attack  by  any  third  party  on  the  Union  of  Soviet  Socialist 
Republics  or  the  Mongolian  People's  Republic,  for  which 
purpose  the  present  protocol  is  to  be  signed. 

Article  J 

"In  case  of  the  threat  of  attack  on  the  territory  of  the 
Union  of  Soviet  Socialist  Republics  or  of  the  Mongolian 
People's  Rep\iblic  by  a  third  state,  the  Governments  of 
the  Union  of  Soviet  Socialist  Republics  and  of  the  Mon- 
golian People's  Republic  undertake  immediately  to 
discuss  jointly  the  situation  that  has  arisen  and  to  take 
all  such  measures  as  might  be  necessary  to  safeguard  the 
security  of  their  territory. 


Article  II 

"The  Governments  of  the  Union  of  Soviet  Socialist 
Republics  and  of  the  Mongolian  People's  Republic  under- 
take in  the  event  of  the  military  attack  on  one  of  the  Con- 
tracting Parties  to  render  each  otiier  every  assistance, 
including  military  assistance. 

Arficle  III 

"The  Governments  of  the  Union  of  Soviet  Socialist 
Repulilics  and  of  the  Mongolian  People's  Republic  deem 
it  self-understood  that  the  troops  of  one  of  the  Parties 
stationed  by  mutual  agreement  on  the  territory  of  the 
other  Party,  in  fulfillment  of  undertakings  under  Article  I 
or  II,  will  be  withdrawn  from  the  territory  in  question 
without  delay  when  the  necessity  for  this  is  over,  as  was 
tlie  case  in  192.">  with  regard  to  tlie  withdrawal  of  Soviet 
troops  from  tlie  territory  of  the  Jlongolian  People's  Re- 
public." 

The  present  Treaty  comes  into  force  from  the  moment 
of  its  ratification,  which  must  be  effected  within  as  short 
a  time  as  possible.  The  exchange  of  ratification  instru- 
ments will  take  place  in  Ulan  Bator. 

Unless  one  of  the  High  Contracting  Parties  one  year 
prior  to  the  expiration  of  the  term  of  the  present  Treaty 
gives  notice  of  its  desire  to  denounce  the  Treaty,  it  will 
remain  valid  for  the  next  ten  years. 

Done  in  Moscow,  Feb.  27,  1946,  which  corresponds  to 
the  27th  day  of  the  second  moon  of  the  36th  year  of  the 
Mongolian  calendar,  in  two  copies,  each  in  the  Russian 
and  Mongolian  languages,  both  texts  being  equally  valid. 

On  authorization  of  the  Presidium  of  the  Supreme  Soviet 
of  the  USSR. 

V.  MOLOTOV 

On  authorization  of  the  Presidium  of  the  Small  Hural 
of  the  Mongolian  People's  Republic. 

CHOIBALSAN 


AGREEMENT  ON  ECONOMIC  AND  CULTURAL  COL- 
LABORATION BETWEEN  THE  GOVERNMENT  OF 
THE  UNION  OF  SOVIET  SOCIALIST  REPUBLICS 
AND  THE  GOVERNMENT  OF  THE  MONGOLIAN 
PEOPLE'S  REPUBLIC 

The  Goveriunent  of  the  Union  of  Soviet  Socialist  Repub- 
lics and  tlie  Government  of  the  Mongolian  People's  Repub- 
lic, considering  that  economic  and  cultural  collaboration 
between  the  Soviet  Union  and  the  Mongolian  People's 
Republic  established  since  the  time  of  the  foundation  of 
the  Mongolian  People's  Republic  has  proved  extremely 
fruitful  and  corresponding  to  the  interests  of  both  coun- 
tries, have  decided  to  conclude  the  present  Agreement  and 
agreed  on  the  following: 


Ji\E  2,  194b 


969 


Article  J 

Both  Contraetiiig  Parties  agree  to  develop  and  consoli- 
date collaboration  in  the  fields  of  economy,  cultnre  and 
education  existing  lietween  tlie  Union  of  Soviet  Socialist 
Republics  and  the  Mongolian  People's  Republic. 

Article  II 

On  the  basis  of  the  pivsent  Agreement,  anti  in  pursuance 
iif  it,  separate  treaties  and  agreements  will  be  concluded 
between  the  respective  economic,  scientitic,  and  c\iltural 
and  educational  institutions  and  organizations  of  the 
USSR  and  the  Mongolian  People's  Republii-. 

Article  III 

The  present  Agreement  comes  into  force  from  the  mo- 
ment of  its  signing  and  will  be  valid  for  ten  years. 

Unless  one  of  the  Contracting  Parties  one  year  before 
the  expiration  of  the  term  of  the  present  Agreement  gives 
notice  of  its  desire  to  denounce  the  Agreement,  it  will 
remain  in  force  for  the  subsequent  ten  years. 

Done  in  Moscow,  Feb.  27,  1946,  which  corresixinds  to 
the  27th  day  of  tlie  second  moon  of  the  ?>6th  year  of  the 
Mongnlian  calendar,  in  two  copies,  each  in  the  Russian  and 
Mongolian  languages,  both  texts  being  equally  valid. 

On  authorization   of  the  Goveriunent  of  tlie  USSR. 
V.  MOLOTOV 

Oil  authorization   of   the  Government  of   tlie   Mongolian 
People's  Republic 

CHOIBALSAN 


The  Department 


Publications 


Foreign  Commerce  Weekly 

The  following  articles  of  interest  to  readers  of  the  Bul- 
letin appeared  in  the  May  11  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,  Washington  25, 
D.  C,  for  10  cents  each : 

"Shanghai  Suffers  From  Onerous  Living  Costs",  based 
on  reports  from  A.  Bland  Calder,  commercial  attach^. 
American  Consulate  General,  Shanghai. 

"Iceland's  Cooperatives",  based  on  a  report  from  Joseph 
H.  Rogatnick,  economic  analyst,  American  Legation, 
Reylijavik. 

The  following  article  apjjeared  in  the  May  25  issue: 

•Brazilian  Vegetable  Oils  Form  Source  of  Big  Trade", 
by  Kenneth  Wernimont,  agricultural  commissi/jner,  Amer- 
ican Embassy,  Rio  de  Janeiro. 


Appointment  of  Officers 

C.  Tyler  Wood,  Special  Assistant  to  the  Assistant  Sec- 
retary for  Economic  Affairs,  as  the  official  in  the  Depart- 
ment of  State  to  represent  the  Assistant  Secretary  on 
UNRRA  affairs,  effective  March's,  1946. 

Cecil  Wayne  Gray  as  Chief  of  the  Division  of  Foreign 
Service  Personnel,  effective  April  1.5,  1946. 

Frederick  B.  Lyon  as  Director  of  tlie  Office  of  Controls, 
effective  April  29,  1946. 

.lack  D.  Neal  as  Chief  of  the  Divi.sion  of  Foreign  .\c- 
tivity  Correlation,  effective  April  29,  1946. 

Resignation  of  Stokeley  W.  Morgan 

The  Department  of  State  announced  on  May  15  the 
resignation  of  Stokeley  W.  Morgan  as  Chief  of  the  Aviation 
Division  of  the  Office  of  Transport  and  Communications 
Policy,  to  become  effective  June  15,  1946. 

Departmental  Regulations 

232.1  Liaison  Between  the  Department  of  State  and  the 
National  Archives:  (Effective  3-1— 16 1 

I  Liaison  Responsibility  of  the  Division  of  Re- 
search AND  Publication  (RP).  The  responsibility  for 
maintaining  liaison  with  the  National  Archives  is  vested 
in  RP,  and  the  Chief  of  RP  serves  as  the  Liaison  Officer 
for  the  Department  and  is  a  member  of  the  National 
Archives  Council.  With  completion  of  the  transfer  of  tlie 
decimal  file,  1910-1920,  the  liaLson  activities  of  RP  now 
include  various  functions  relating  to  the  files  of  the  De- 
partment from  1789  to  1929,  inclusive,  which  are  in  the 
custody  of  the  Division  of  State  Department  Archives 
of  the  National  Archives. 

II  Procedukes  for  the  Use  ok  the  Liaison  Facilities 
OF  RP.  Persons  desiring  to  utilize  the  records  in  the 
National  Archives,  or  desiring  to  transfer  or  otherwise 
dispose  of  records,  will  follow  the  procedures  outlined 
below : 

A  To  obtain  information  or  to  borrow  records  from 
the  National  Archives  (including  records  from  Govern- 
ment agencies  other  than  the  Department  of  State),  either 
telephone  or  address  a  memorandum  to  the  Archives 
Liai-son  Unit  (KP). 

B  To  request  RP  to  perform  research  based  on  the 
records  now  in  the  National  Archives  and  to  prepare 
memoranda  incorporating  the  results  of  such  research, 
either  telephone  or  address  a  request  to  the  Archives 
Liaison  Unit  (RP). 

C  To  arrange  for  the  transfer  of  records  to  the 
custody  of  the  National  Archives,  either  address  a  memo- 


970 


DEPARTMENT  OF  STATE  BULLETIN 


raudum  to  the  Chief  of  RP  or  teleiihone  the  Archives 
Liaison  Unit  (RP). 

D  To  arrange  for  the  preparation  of  disposal  lists  or 
schedules  of  i-ecords  for  the  purpose  of  obtaining  authori- 
zation for  destruction  or  other  disposal  of  records,  either 
address  a  memorandum  to  the  Chief  of  RP  or  telephone 
the  Archives  Liaison  Unit  (RP). 

E  To  return  records  borrowed  from  the  National 
Archives,  send  the  material  to  the  Archives  Liaison  Unit. 
Material  from  the  decimal  file,  1910-December  31,  1929, 
borrowed  from  Records  Branch,  Division  of  Communica- 
tions and  Records  (DC)  prior  to  January  1946,  will  be 
returned  to  the  Archives  Liaison  Unit  (RP). 

232.2  Contacts  With  the  Department  of  Justice  Regard- 
ing Immigration  and  Visa  Matters:  (Effective  5-1-46) 
The  responsibility  for  maintaining  liaison  with  the  De- 
partment of  Justice  with  regard  to  immigration  and  visa 
matters  is  vested  in  the  Visa  Division.  As  questions  con- 
cerning these  matters  are  of  a  highly  teclmical  nature  and 
require  special  knowledge  of  the  rules  and  regulations  as 
well  as  a  familiarity  with  the  technical  application  of 
these  rules,  all  questions  which  are  brought  to  the  atten- 
tion of  other  officers  of  the  Department,  either  from  for- 
eign embassies  or  legations  or  from  other  sources,  will 
be  referred  to  the  Visa  Division.  Officers  will  not,  in  any 
instance,  contact  the  Department  of  Justice  direct. 

1S3.7  Passenger  Shipping  Committee  (PSC):  (Effective 
5-1^6) 

I  Composition.     PSC  shall  be  composed  of: 

A  Representative  of  the  geographic  (political)  offices 
of  the  Department. 

B  Repre.sentative  of  the  functional  (economic)  offices 
of  the  Department. 

C  Representative  of  the  administrative  ofBces  of  the 
Department. 

D  Secretary  provided  by  the  Central  Secretariat  of 
the  Executive  Staff  Committees  (ESC). 

II  Functions.     The   functions    of   PSC   shall   be   as 

follows : 

A  To  coordinate  all  interests  of  the  Department  in 
tlie  procurement  and  allocation  of  passenger  space  on  ocean 
transijortation  facilities. 

B  To  establish  and  to  enforce  where  necessary  rela- 
tive priorities  among  projects  for  use  of  such  space,  whicli 
the  Department  may  be  called  upon  to  sjionsor  by  reason 
of  public  need,  Congressional  mandate,  or  essential 
political  or  economic  considerations. 

C  To  take  the  necessary  steps  for  the  procurement 
of  space  for  approved  projects. 

D  To  establish  where  necessary  relative  priorities 
among  categories  of  passengers  who  might  be  accommo- 
dated in  space  procured. 

E  To  designate  and  provide  representation  of  the 
Department  upon  an  interdepartmental  committee  which 
will  serve  in  a  comparable  capacity  for  the  Federal  Gov- 
ernment as  a  whole. 

III  Matters  Not  Within  The  Scope  Of  Rbsi-onsibility 
Of  PSC.    The  Shipping  Division    (SD)    and   the  Trans- 


portation Section  of  the  Division  of  Central  Services 
(CS/T)  will  advise  the  Committee  on  matters  concerning 
their  respective  fields  whenever  necessary.  PSC  shall  not 
concern  itself  with  the  following  matters,  which  are  the 
responsibility  of  SD  and  CS/T,  respectively : 

A        Questions  of  broad  shipping  policy. 

B  Aviation  priorities  and  the  procurement  accom- 
modations for  the  transportation  of  employees  of  the  Der 
partment  or  the  Foreign  Service  and  their  effects.  On 
-  facilities  inbound  to  the  United  States  CS/T  shall  check 
with  the  Committee  as  to  previous  allocation  before 
authorizing  space. 

IV  Pkocedure.  The  procedure  outlined  below  will  be 
followed  in  the  procurement  and  allocation  of  space  for 
ocean  transportation  for  individuals,  groups,  or  categories 
of  persons : 

A  Any  officer  of  the  Department  desiring  to  initiate 
a  project  for  the  procurement  of  ocean  transportation  fa- 
cilities, or  receiving  from  a  source  outside  the  Department 
a  request  for  assistance  in  such  a  project  (whether  or  not 
such  a  request  is  to  be  granted),  shall  notify  the  Secretary 
of  PSC  in  writing  specifying : 

1  Nature  of  project,  including  number,  breakdown 
by  sex,  nationality,  and  location  of  passengers. 

2  Political,  economic,  or  other  factors  weighing 
for  or  against  acceptance  of  project. 

3  Proposed  means  of  financing  project  in  United 
States  dollars.  If  Departmental  funds  or  financing  are 
concerned,  the  paper,  must  be  concurred  in  by  the  Office 
of  Budget  and  Finance  (OBP). 

4  Recommendation  as  to  urgency  and  merit  of 
project. 

B  Any  officer  of  the  Department  desiring  to  request 
of  a  field  office  special  consideration  for  the  transportation 
of  a  designated  individual,  or  individuals,  shall,  before 
undertaking  such  action,  consult  the  Secretary  of  PSC  in 
order  to  insure  that  any  draft  prepared  to  initiate  action 
shall  conform  in  purpose,  form,  and  content  to  the  pro- 
gram of  the  Committee ;  he  shall  further  insure  that  the 
file  contains  a  written  record  of  such  consultation  with 
the  Secretary,  whether  consultation  was  by  telephone  or 
memorandum.  Arrangements  for  persons  travelling  out- 
bound in  accordance  with  orders  issued  by  CS/T  and 
for  seamen  being  repatriated  by  SD  are  excepted  from 
the  foregoing  provisions  of  this  paragraph. 

C  The  Division  of  Coordination  and  Review  (CR), 
the  Division  of  Foreign  Reporting  Services  (FR),  and 
the  Distribution  and  Liaison  Section  of  the  Division  of 
Communications  and  Records  (DC/L)  shall  make  sure 
that  outgoing  correspondence  from  the  Department, 
transmitted  through  their  media,  conform  to  the  require- 
ments of  paragraphs  IV  A  and  B. 

D  Persons  outside  the  Department  desiring  infor- 
mation regarding  the  Department's  program  with  respect 
to  passenger  shipping  shall  be  referred  for  such  informa- 
tion to  the  Secretary  of  PSC. 

183.4  Policy  Information  Services:  (Effective  3-22-46). 
There  will  be  maintained  within  the  Department  such 
policy  information  services  as  will  from  time  to  time  be 


JUNE  2,  1946 


971 


determined  by  the  Secretary  or  his  Staff  Committee  as 
necessary  for  the  proper  functioning  of  the  Department 
and  of  its  missions  abroad.  The  policy  information  serv- 
ices will  be  distinct  from  the  public  information  services 
maintained  under  the  supervision  and  guidance  of  the 
public  information  and  liaison  officers  of  the  Department, 
and  will  in  large  part  be  based  on  classified  information 
nut  available  to  the  public  and  to  the  press. 

I  Functions.  The  policy  information  services  will 
include  tlie : 

A  Circulation  within  each  Office  of  such  informa- 
tional material  as  may,  in  the  determination  of  each 
Director,  be  necessary  to  the  proper  coordination  and 
functioning  of  his  Office. 

B  Circulation  among  missions,  and  between  the  De- 
partment and  the  missions  of  such  informational  material 
a.s  may  be  determined  as  necessary  to  the  proper  func- 
tioning of  the  missions. 

C  Circulation  between  Offices  within  the  Depart- 
ment of  such  informational  material  as  may  be  deemed 
necessary  for  the  proper  coordination  and  functioning  of 
the  Department  as  a  whole. 

D  Circulation  from  the  Offices  to  the  Office  of  the 
Secretary  of  informational  material  for  the  background 
information  of  the  Secretary,  and  through  him,  of  the 
I 'resident. 

E  Dissemination  from  the  Office  of  the  Secretary 
and  from  his  Staff  Committee,  of  such  policy  decisions 
and  other  developmental  data  as  may  be  necessary  for  the 
guidance  of  officers  in  the  Department  and  of  chiefs  of 
missions  abroad. 

F  Exchange  between  U.  S.  Government  Agencies  of 
material  of  mutual  interest. 

II  Policy  Information  Committee. 

A  Functions.  The  Policy  Information  Committee 
will : 

1  Direct  the  organization  of  the  policy  informa- 
tion services  flowing  out  of  the  several  Offices  of  the 
Department  for  the  use  of  officers  both  within  the  De- 
partment and  in  missions  abroad,  and  determine  policy 
as  to  the  form  and  use  of  such  services. 

2  Review  constantly  the  entire  field  of  internal 
information  services,  both  classified  and  unclassified,  in 
whatever  form. 

a  In  carrying  out  its  reviewing  function,  the  Com- 
mittee will  have  as  its  objective  the  maintenance  of  an 
integrated  series  of  concise,  comprehensive  and  timely 
information  services  both  classified  and  unclassified, 
meeting  the  individual  requirements  of  the  Secretary, 
the  Under  Secretary,  the  Assistant  Secretaries,  Office 
Directors,  and  Division  Chiefs  in  the  Department,  and 
ambassadors  and  ministers  and  their  assistants  in  the 
field. 

3  Initiate  action  for  the  improvement  of  the  en- 
tire field  of  internal  information  services  when  such 
action  is  deemed  advisable. 

4  The  Chairman  and  Vice  Chairman  of  the  Com- 
mittee, with  such  assistance  as  they  may  require,  will 
serve  as  Editorial  Board  of  the  Committee.  The  Board 
will  be  charged  with  the  task  of  collecting,  collating, 


and  editing  such  informational  material  as  may  be  use- 
fully made  known  to  U.S.  missions  throughout  the 
world,  as  well  as,  on  an  inter-Office  basis,  to  appropriate 
officers  within  the  Department ;  and  in  certain  instances, 
to  high  officers  in  other  departments  and  agencies  of 
the  Government.  The  circulation  of  this  edited  infor- 
mational material  may  be  in  any  one  of  several  ap- 
proved forms.  In  its  work  the  Editorial  Board  shall 
rely  on  and  receive  the  full  cooperation  of  the  members 
of  the  Policy  Information  Committee  who  shall  see  that 
full  information  on  the  activities  of  their  respective 
offices  is  made  available  to  it. 
B         Composition. 

1  The  Committee  shall  be  composed  of  Policy  In- 
formation Officers,  designated  by  the  several  Office 
Directors  to  represent  them  on  the  Committee.  Offices 
above  the  administrative  grade  of  Director's  Office  may 
al.so,  in  their  discretion,  appoint  reiiresentatives  to  the 
Committee. 

2  The  Briefing  Officer  to  the  Secretary  will  be 
Chairman  of  the  Committee ;  and  his  principal  assistant, 
who  will  act  in  his  absence,  will  be  Vice  Chairman. 

3  The  Committee  may  .select  its  secretary  and  may 
create  such  ad  hoc  subcommittees  as  from  time  to  time 
may  be  found  necessary. 

4  The  Secretariat  of  the  Committee  will  operate 
administratively  as  a  part  of  the  Office  of  the  Secretary. 

5  The  symbol  of  the  committee  will  be  S/I. 

Ill  Policy  Infokmation  Officers. 

A  Functions.  The  Chief  Policy  Information  Officer 
in  the  office  of  each  Office  Director  within  the  Depart- 
ment, responsible  to  and  representing  the  Director  will : 

1  Maintain  the  fiow  of  policy  information  material 
from  the  various  Offices  of  the  Department  to  the  Brief- 
ing Officer  to  the  Secretary,  and  to  the  Editorial  Board 
of  the  Committee.  Each  Policy  Information  Officer 
will  carry  on  his  activities  within  his  office  as  a  member 
of  the  staff  of  the  Director,  working  administratively 
in  such  manner  and  with  such  assistance  as  the  Di- 
rector shall  determine. 

2  In  addition  to  the  maintenance  of  the  services 
set  forth  above,  the  Chief  Policy  Information  Officers 
and  their  staffs  will  fulfill  such  other  related  functions 
within  their  Offices  as  their  individual  Directors  shall 
assign  to  them.  Among  these  functions  may  be  policy 
liaison  with  other  specified  offices  working  in  close  col- 
laboration with  the  Office ;  office  liaison  on  the  policy 
level  with  other  departmental  committees  requiring 
the  representation  of  the  Director ;  and  policy  informa- 
tion liaison  with  other  departments  or  agencies  of  the 
Government. 


The  Foreign  Service 


Confirmation 

On  May  3,  1946  the  Senate  confirmed  the  nomination 
of  Walter  Thurston  to  be  Ambassador  Extraordinary  and 
Plenipotentiary  of  the  United  States  to  Mexico. 


912 


DEPARTMENT  OF  STATE  BULLETIN 


Training  Announcements 


Arrangements  for  Military  and  Naval 
Attaches 

The  Divi.sicin  of  Tvaining  Services  has  entered 
into  an  arrangienient  wltli  the  Military  Intelli- 
gence Service  and  the  Office  of  Naval  Intelligence 
to  assist  in  the  orientation  of  military  attaches 
and  naval  attaches  in  the  course  of  their  prepara- 
tion for  field  duty.  It  will  be  the  responsibility 
of  the  Training  Division  to  make  appointments 
in  the  Department  of  State  for  the  attaches  to  see 
desk  officers  who  can  give  them  useful  back- 
ground and  information  in  regard  to  their  country 
of  assignment.  Military  and  naval  attaches  will 
also  attend  area  seminars  conducted  by  the  Train- 
ing Division  and  selected  lectures  in  the  Depart- 
mental Orientation  Series.  Special  conferences 
may  be  organized  to  meet  needs  of  some  groups 
of  attaches. 


Foreign  Service  Orientation  Series 

Edward  Achesou.  director  of  the  school  of  for- 
eign service,  George  Washington  University,  will 
speak  on  "The  Relation  of  the  Foreign  Service 
to  the  National  Welfare'",  Wednesday,  June  12, 
at  9  a.m..  Room  474,  Main  State  Department 
Building.  Dr.  Acheson  is  very  much  interested 
in  the  future  development  and  growth  of  the  For- 
eign Service  and  in  his  capacity  as  director  of 
the  school  of  foreign  service  at  George  Washing- 
ton University  is  developing  special  courses  for 
candidates  for  the  Foreign  Service  examinations. 

Departmental  Orientation  Series 

Isaac  N.  P.  Stokes,  former  Solicitor  of  the  War 
Production  Board  and  now  Associate  Chief,  Divi- 
sion of  International  Organization  Alfairs,  De- 
partment of  State,  will  speak  on  "The  United  Na- 
tions". Tuesday,  Jime  11,  at  11  a.m..  Room  474, 
Main  State  Department  Building. 


Contents — Contin  ued 

Cultural  Cooperation  pa^^. 

(•pportuiiity  for  Study  at  the  University  of  Montevideo     .     .  960 
Agriculturist  To  Visit  in  Other  American  Republics     .     .     .  960 
American  Students  To  Participate  in  Archaeological  Exca- 
vations  in   Great   Britain 961 

Simon  S.  Kuznets  To  Visit  China 961 

Visit  of  Chinese  Meteorologist 961 

U.  S.  Engineer  To  Serve  in  China 962 

Visit  of  Paraguayan  Pathologist 962 

Physical  Education  Instructor  To  Visit  in  Chile     ....  962 

John  B.  Biesanz  Accepts  Professorship  to  Panama     ....  962 

Visit  of  Costa  Ricau  Inspector  of  Indian  Schools     ....  962 

Training  Announcements f72 


PUBLISHED    WITH    APPROVAL    OF    DIHECTOR    OF    BUREAU    OF    THE    BUDGET 
U.   S.   GOVERNMENT  PRINTING  OFFICE:    1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  362 


JUNE  9,  1946 


Inter-American  Military  Cooperation 

statement  by  THE  SECRETARY  OF  STATE page  1001 

U.  S.-Frencli  Economic  and  Financial 

Agreements page  994 

German  Docnments  on  Hungary    ....     page  984 

Pursuit  of  Happiness  in  the  Economic  and  Social 
World 

By  JOHN  G.  WINANT page    975 

The  Philippines  Prepares  for  Independence 

•    Article  by  EDWARD  W.  MILL page    980 


Vl^NT    o^ 


for  complete  contents 
see  inside  cover 


THE    DEPARTMENT  OF  STATE 

BULLETIN 


Vol.  XI V. No. 362  • 


Publication  2544 


June  9,  1946 


For  Bale  by  the  Superintendent  of  Documents 

U.  S.  Government  Printing  Office 

Washington  25.  D.  C. 

Subscription: 

52  issues,  $3,50;  single  copy,  10  cents 

Special  offer:  13  weeks  for  $1.00 
(renewable  only  on  yearly  basis) 


The  Department  of  State  BULLETIN, 
a  ueekly  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  dei-elopments  in  the 
field  of  foreign  relations  and  on  the 
work  of  the  Department  of  State  and 
the  Foreign  Service.  The  BULLbllN 
includes  press  releases  on  foreign 
policy  issued  by  the  If  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  u;ell  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. 


Am  19  1946 

Contents 

Economic  Affairs 

Agreements  on  Economic  and  Financial  Problems  Reached  ^^se 

by  U.  S.  and  Provisional  French  Governments ....  994 

Inter-American  Copyright  Conference 992 

Allied-Swedish  Negotiations  for  German  External  Assets    .  992 
LLO:  28th   (Maritime)  Session  of  the   International  Labor 

Conference 993 

Release  of  Property  of  German  and  Japanese  Refugees  .    .  1011 

General  Policy 

The  Philippines  Prepares  for  Independence 980 

Article  by  Edward  W.  Mill 

Inter-American  Military  Cooperation 100] 

Statement  by  the  Secretary  of  State 

Intergovernmental  Refugee  Committee:  Exchange  of  Let- 
ters Between  Senator  Vandenberg  and  Under  Secretary 
Achesen 1003 

Protest  to  Rumania  Against  Non-fulfillment  of  Assurances 

to  Tripartite  Commission 1007 

Statement  on  Repatriation  of  Germans  in  Spain 1011 

Letters  of  Credence:  Minister  of  Ethiopia 1000 

Occupation  Matters 

Far  Eastern  Commission 990 

Consultation    with    General     MacArthur    on    Japanese 

Constitution 991 

Report  of  Textile  Mission  to  Japan 1009 

Parcel  Post  Service  to  U.  S.  Zone  in  Germany 1012 

German  Documents 

German  Documents  on  Hungary 984 

The  United  Nations 

Pursuit  of  Happiness  in  the  Economic  and  Social  World.    .        975 
By  John  G.  Winant 

Meeting  of  the  Security  Council:  Discussion  of  Soviet- 
Iranian  Matter 987 

Remarks  by  the  U.  S.  Representative 987 

L^nited  Nations  Documentation 987 

Resignation   of    Edward    R.    Stettinius,    Jr.:  Exchange    of 

Letters  Between  Mr.  Stettinius  and  the  President    .    .        988 

International    Trade    Conference:  Announcement    by    the 

Secretary-General 988 

International  Organizations  and  Conferences 

Calendar  of  Meetings 990 

Activities  and  Developments 990 

The  Department 

Surplus  Property  in  Foreign  Areas 1000 

Responsibility  for  Institute  of  Inter-American  Affairs  and 

lutcr-American  Educational  Foundation 1012 

Remarks  by  Assistant  Secretary  Braden 
Termination  of  President's  War  Relief  Control  Board  .    .    .      1015 
Statements,  Addresses,  and  Broadcasts  of  the  Week    .    .    .      1010 
Departmental   Regulations:    UNRRA    Division;   Board   of 
Examiners  for  the  Foreign  Service;  Information  from 
Axis  Archives;  Authority  of  Foreign  Liquidation  Com- 
missioner; Advice  on  Treaties;  International  Organiza- 
tions Imnuuiities  Act 1015 

{Continued  on  page  1020) 


JUNE  9,  1946 


975 


Pursuit  of  Happiness  in  the  Economic  and  Social  World 


By  JOHN  G.  WINANT 


MAY  I  BEGIN  by  thanking  yon  for  yovir  kind  in- 
vitation to  make  my  first  public  statement, 
on  returning-  lionie,  to  the  members  of  the  Ameri- 
can Association  for  the  United  Nations.  I  am  very 
Iiappy  to  do  tliis  because  those  who  are  gatliered 
here  liave  been  interested  for  a  long  time  in  world 
cooj)eration  to  prevent  war.  Yon  have  known 
M-hat  it  lias  meant  to  represent  minority  opinion 
as  well  as  the  privilege  of  accepting  the  convictions 
of  the  majority. 

Some  years  ago  I  sent  to  President  Roosevelt  a 
quotation  from  John  Stuart  Mill  which  had  been 
given  to  me.  He  used  it  in  a  speech  he  made  in 
one  of  the  Carolinas.  There  was  some  question  at 
the  time  as  to  the  exactness  of  the  quotation.  I 
myself  was  interested  in  the  sense  of  it.  There- 
fore, with  apologies  for  any  inaccuracies  which 
were  the  outcome  of  reporting  a  century  ago,  I  will 
restate  it  as  it  was  given  to  me : 

"History  shows  that  great  economic  and  social 
forces  flow  like  a  tide  over  communities  only  half 
conscious  of  that  which  is  befalling  them.  Wise 
statesmen  foresee  what  time  is  thus  bringing  and 
try  to  shape  institutions  and  mold  men's  thoughts 
and  purposes  in  accordance  with  the  change  that 
is  silently  coming  on. 

"The  unwise  are  those  who  bring  nothing  con- 
structive to  the  process,  and  wlio  greatly  ijnperil 
the  future  of  mankind,  by  leaving  great  questions 
to  be  fought  out  between  ignorant  change  on  one 
hand,  and  ignorant  oi^position  to  change,  on  the 
other." 

Last  week  I  was  talking  with  General  Smuts, 
whom  I  believe  to  be  the  great  pliilosopher-states- 
man  of  our  time.  I  have  always  greatly  admired 
him  because  in  defeat  he  had  the  magnanimity  of 
Robert  E.  Lee,  and  in  reorienting  the  position  of 
South  Africa,  he  faced  and  overcame  the  divided 
ideologies  there,  the  inherited  diffei'ences  of  lan- 
guage and  of  race,  and  brought  into  this  recent  war 
a  united  Dominion,  gallantly  defending  the  rights 
of  free  men.    The  statesmen  of  Europe  had  failed 


to  achieve  such  unity,  and  yet  the  brave  leadership 
of  a  wise  man  has  proved  that  it  could  be  done. 

We  were  talking  about  the  impact  of  modern 
science  on  the  lives  of  people  everywhere  and  the 
adjustments  necessary  to  accommodate  life  to 
global  living.  The  cutting  down  of  distance  in 
relation  to  time,  both  in  communication  and 
travel,  and  the  development  of  the  atomic  bomb 
are  two  present  and  pressing  examples  of  what 
I  mean.  The  first  has  brought  peoples  of  differ- 
ent languages,  races,  and  continents  into  daily 
contact  with  one  another.  The  other  has  released, 
through  the  advances  of  science,  the  power  to  de- 
stroy the  civilization  of  which  it  is  a  product. 
We  agreed  this  means  that  there  must  be  an  aware- 
ness of  changing  values  and  the  recognition  of 
new  obligations  if  we  are  to  realize  the  benefits 
of  a  progi-essive  civilization.  The  future  calls 
for  a  greater  degree  of  tolerance  and  understand- 
ing than  has  as  yet  been  required  of  us  and  that 
rare  combination  of  restraint  and  pioneering  drive 
if  we  are  to  look  forward  to  peace  on  earth. 

We  are  trying  to  reconcile  our  different  social, 
political  and  economic  standards.  While  there 
is  enough  in  the  world  for  everj'one,  there  have 
been  great  areas  of  want.  We  know  that  science 
must  aid  us,  not  destroy  us.  Had  atomic  energy 
come  in  the  form  of  power  plants  instead  of 
bombs  it  would  have  given  us  confidence  instead 
of  fear.  AVe  must  have  a  world  of  hope  and  not 
of  fear. 

Nine  days  from  noAv  the  Economic  and  Social 
Council  of  the  United  Nations  meets  here  in  New 
York  for  its  second  session.  To  my  mind,  the 
work  of  the  Council  is  of  fundamental  importance 
to  the  world's  future. 

It  is  the  task  of  the  Security  Council — and  one 
which  it  has  been  shouldering  squarely — to  bring 

An  address  delivered  before  the  American  Association 
for  the  United  Nations  in  New  York  Cit.v  and  broadcast 
over  the  Columbia  Broadcasting  System  on  May  16,  1946. 
Mr.  Winant  is  U.  S.  Member  of  the  Economic  and  Social 
Council. 


976 


DEPARTMENT  OF  STATE  BULLETIN 


about  the  solution  of  political  situations  which 
are  likely  to  endanger  international  peace  and  se- 
curity. Equally  important  is  another  task  the 
United  Nations  has  undertaken — that  of  estab- 
lishing a  basis  for  a  civilization  in  which  imder- 
lying  economic  and  social  difficulties  are  resolved 
before  they  reach  the  stage  of  conflicts  which  may 
threaten  the  peace,  and  that  is  the  main  job  of  this 
Economic  and  Social  Council. 

While  the  Security  Council  is  concerned  pri- 
marily with  freeing  the  peoples  of  the  earth  from 
fear,  the  Economic  and  Social  Council  deals  more 
directly  with  the  rights  of  man — and  that  wide 
area  of  human  needs  which  is  contained  in  the 
phrase  "freedom  from  want".  The  four  freedoms 
are,  of  course,  interrelated.  President  Truman 
said  the  other  day : 

"The  roots  of  democracy,  however,  will  not  draw 
much  nourishment  in  any  nation  from  a  soil  of 
poverty  and  economic  distress." 

We  know,  and  generations  before  us  have  known, 
that  economic  and  social  injustice  is  closely  bound 
to  political  disturbances. 

The  Economic  and  Social  Council  is  charged 
with  the  positive  and  constructive  work  of  deal- 
ing directly  with  the  basic  needs  of  human  be- 
ings— and  so  with  the  foundations  of  jDeace  itself. 

Its  task  can  be  simply  stated. 

Peace,  if  it  is  to  be  real  and  lasting,  means  more 
than  resolving  conflicts  between  nations.  It  means 
jjositive  action  to  lift  the  levels  of  human  welfare, 
for  a  world  divided  against  itself  cannot  stand. 
Resentment  and  fear  are  aroused  in  the  hearts 
of  men  by  gross  economic  inequalities  within  coun- 
tries and  between  nations.  Resentment  and  fear 
easily  grow  into  hatred,  and  we  have  seen  how 
quickly  these  emotions  can  be  played  upon  by  the 
unscrupulous  to  make  a  people  go  to  war  against 
their  fellowman. 

In  our  age  peace  cannot  be  secured  by  political 
action  unaccompanied  by  economic  cooperation. 
If  we  are  not  to  drift  backward  to  catastrophe,  we 
must  go  forward  together  toward  a  fuller  life  for 
all  jDeoples  everywhere. 

By  the  Charter,  we  the  peoples  of  the  United 
Nations  have  bound  ourselves  to  take  "joint  and 
separate  action"  to  obtain  these  objectives. 

We  have  undertaken  to  employ  "international 
machinery  for  the  promotion  of  the  economic  and 
social  advancements  of  all  peoples". 


The  composition  and  mode  of  operation  of  the 
Economic  and  Social  Council  are  thoroughly  dem- 
ocratic. It  is  composed  of  18  nations,  elected  by 
the  General  Assembly  for  terms  of  three  years. 
Each  nation  appoints  its  representative.  Retiring 
member  nations  are  eligible  for  immediate  reelec- 
tion. Each  member  nation  has  one  vote.  Votes  of 
large  and  small  countries  are  equal.  Decisions 
are  taken  by  simple  majority  vote. 

The  Council  under  the  Charter  reports  to  the 
Genei'al  Assembly,  and  has  powers  to  make  recom- 
mendations, to  prej^are  draft  conventions,  and  to 
call  international  conferences  on  the  subjects  with 
which  it  deals.  It  may  furnish  information  to  the 
Security  Council  and  assist  that  Council  upon  its 
request. 

The  Economic  and  Social  Council  has  been  made, 
in  brief,  one  of  the  principal  organs  of  the  United 
Nations.  I  believe  that  this  emphasis  on  human 
progress  and  economic  development  is  something 
new  in  history.  It  is  particularly  significant  that 
in  the  first  paragraph  of  the  preamble  of  the 
Charter — and  I  hope  the  words  of  that  preamble 
will  become  as  familiar  to  every  school  child  as 
the  words  of  the  Declaration  of  Independence — the 
United  Nations  affirm  their  faith — and  I  am  quot- 
ing— in  "the  dignity  and  worth  of  the  human  per- 
son". This  is  more  than  the  old  language  of 
diplomacy. 

The  preparations  made  during  the  war  by  the 
Allies  for  post-war  economic  and  social  reconstruc- 
tion were  by  no  means  complete.  But  much  more 
was  done  before  the  war  ended  than  was  done  dur- 
ing the  First  World  War,  and  the  main  lines  were 
firmly  established.  A  number  of  specialized  inter- 
governmental agencies  were  planned,  each  to  cover 
a  specific  and  limited  economic  or  social  subject. 
In  addition,  the  International  Labor  Office  was  a 
survivor,  and  the  only  major  survivor,  of  the 
war  period.  The  new  agencies  are  the  Food  and 
Agriculture  Organization,  the  International  Mone- 
tary Fund,  the  AVorld  Bank  for  Reconstruction 
and  Development,  the  Provisional  Intei'national 
Civilian  Aviation  Organization,  the  United  Na- 
tions Educational,  Scientific  and  Cultural  Organi- 
zation, an  international  organization  dealing  with 
health  and  one  dealing  with  international  trade. 
The  last  two  are  not  yet  established,  but  confer- 
ences have  been  called  with  a  view  to  their  estab- 
lishment. 

The  Economic  and  Social  Council  has  a  direct 


JUNE  9,  1946 


977 


interest  in  tlie  work  of  these  specialized  agencies, 
and  one  of  the  major  tasks  assigned  to  it  under 
the  Charter  is  coordination  of  the  agencies. 

President  Roosevelt  realized  that  in  reaching 
out  to  the  peoples  of  the  world  on  an  international 
basis  you  had  to  start  with  a  common  denominator 
of  interest.  He  believed  that  food  was  the  best 
common  interest  on  wliich  to  begin  the  work  of 
establishing  international,  economic,  and  social 
cooperation,  and  he  called  the  Hot  Springs  con- 
ference of  1943  which  led  to  the  formal  establish- 
ment of  the  permanent  Food  and  Agriculture 
Organization  at  Quebec  in  1945.  The  wisdom  of 
tliis  action  has  been  demonstrated  by  recent  events. 
The  Organization  right  at  the  beginning  of  its 
existence  has  called  a  special  conference  to  meet 
in  Washington,  May  20,  to  grapple  with  a  des- 
perate world  food  shortage  which  constitutes  the 
gravest  economic  problem  immediately  facing  the 
world.  The  first  task  of  the  new  Organization 
is  to  assist  in  removing  the  danger  of  outriglit 
starvation  over  large  areas  of  the  world,  and  the 
success  of  all  other  forms  of  international  economic 
and  social  cooperation  depends  on  the  solution  of 
the  present  world  food  crisis.  Wlien  this  is  ac- 
complished, the  Organization  will  take  up  its  long 
run  tasks  of  assisting  in  the  prevention  of  star- 
vation and  all  forms  of  malnutrition  and  thereby 
increase  the  demand  for  agricultural  products  and 
raise  the  incomes  of  those  engaged  in  agriculture, 
which  still  employs  a  greater  number  of  persons 
than  any  other  industry.  The  International  Mone- 
tary Fund  is  designed  to  tide  over  temporary  bal- 
ance of  payments  difficulties.  If  the  Fund  had 
been  established  at  the  end  of  the  last  war,  we 
might  have  escaped  tlie  serious  international  finan- 
cial crisis  in  the  early  thirties,  which  set  in  motion 
a  chain  of  new  restrictions  on  international  ex- 
change and  the  movements  of  goods  across 
frontiers  and  which  prolonged  the  widespread  un- 
employment of  the  thirties.  Tlie  countries  which 
had  immediate  deficits  in  tlieir  balance  of  pay- 
ments but  which  were  solvent  from  a  longer-run 
point  of  view  would  have  been  able  to  obtain  liquid 
funds  to  meet  the  immediate  emergency. 

The  International  Bank  for  Eeconstruction  and 
Development  will  facilitate  the  provision  of  capital 
for  purposes  of  reconstruction  and  long-term  eco- 
nomic development.  It  should  play  a  particularly 
important  part  in  raising  standards  of  living  and 
purchasing  power  in  countries  whose  resources  are 
as  yet  in  an  early  stage  of  development  and  develop 


a  larger  volume  of  trade  between  them  and  the 
older  industrialized  countries.  If  the  Bank  had 
been  established  after  the  last  war  we  should  have 
had  a  more  intelligently  directed  flow  of  invest- 
ment funds  tliau  tliat  which  occurred  in  the  twen- 
ties. The  Provisional  International  Civil  Avia- 
tion Organization  is  already  in  operation  with 
headquarters  in  Montreal.  Its  purpose  is  to  make 
possible  the  orderly  and  coordinated  expansion  of 
civil  aviation  around  the  globe. 

The  constitution  of  the  United  Nations  Educa- 
tional, Scientific  and  Cultural  Organization  was 
framed  in  London  by  44  states  last  year,  and 
UNESCO  will  come  into  existence  upon  acceptance 
of  that  constitution  by  20  nations.  Its  purpose  is 
to  encourage  cooperation  among  nations  in  all 
branches  of  intellectual  activity,  to  facilitate  ex- 
change of  scientific  information,  and  to  promote 
uuitual  understanding  through  such  mass  media  as 
the  press,  radio,  motion  pictures.  The  Interna- 
tional Labor  Organization,  which  I  had  the  honor 
of  serving  as  director,  has  been  in  existence  a  far 
longer  time.  The  ILO  was  created  at  the  Peace 
Conference  of  1919,  and  it  has  directly  influenced 
the  labor  and  social  legislation  of  many  countries 
for  over  20  years  by  sending  qualified  experts  to 
assist  the  governments  concerned.  Through  its 
annual  conferences  of  representatives  of  govern- 
ments, employers,  and  workers  it  has  promoted 
international  agreement  on  industrial  safety  and 
welfare  and  other  conditions  of  work  and  employ- 
ment. Effective  action  resulted  from  these  agree- 
ments when  the  countries  concerned  ratified  the 
conventions  recommended  by  the  conference  and 
in  effect  bound  themselves  by  treaty  to  adopt  legis- 
lation implementing  them. 

The  Economic  and  Social  Council  at  its  first  ses- 
sion set  up  a  Preparatory  Commission  to  prepare 
the  ground  for  an  international  health  conference 
to  be  held  in  June.  The  Commission  has  com- 
pleted its  report  i-ecommending  the  establishment 
of  a  world  health  organization,  and  this  report  will 
be  considered  at  the  Council's  forthcoming  ses- 
sions. The  date  of  the  international  health  con- 
ference has  been  fixed  for  June  19,  and  the  Con- 
ference will  be  held  in  New  York.  At  that  time 
another  specialized  agency  will  be  organized  which 
will  develop  services  to  figlit  epidemics  and  pro- 
mote the  international  advance  and  exchange  of 
medical  and  public-health  knowledge  and 
techniques. 

The  Economic  and  Social  Council  took  steps  a<^ 


978 

its  first  meeting  also  to  initiate  a  conference  on 
trade  and  employment.  It  recognized  the  relation- 
ship of  employment  to  trade.  It  appointed  a  Prep- 
aratory Commission  for  a  full  conference  and  it 
put  forward  suggestions  concerning  the  subject 
matter  to  be  covered.  The  outcome  of  these  steps 
is  of  profound  importance  to  the  world's  future. 
The  whole  structure  of  international  economic  or- 
ganization which  has  already  been  set  up  will  stand 
or  fall  on  the  ability  of  the  nations  which  take  part 
in  future  conferences  to  reach  agreement  on  meas- 
ures which  will  strike  off  the  chains  which  have 
shackled  the  exchange  of  goods  and  services  be- 
tween nations  in  the  recent  past.  The  advantages 
of  Bretton  Woods  would  be  largely  nullified  if  the 
trade  conference  failed  in  its  purposes. 

The  trade  problem  is  not  simply  a  matter  of  re- 
ducing tariffs.  The  restrictions  on  trade  have  gone 
much  further  than  tariffs  alone,  and  means  must 
be  found  of  progressively  eliminating  the  strangle- 
hold of  quantitative  restrictions  on  imports.  We 
must  also  recognize  that  there  are  differences  be- 
tween the  social  systems  of  coimtries  which  give 
rise  to  differences  in  the  methods  of  trading.  Some 
countries  have  adopted,  in  whole  or  in  part,  state 
trading  in  respect  to  imports  or  exports  or  both, 
and  this  necessitates  international  agreement  con- 
cerning the  principles  and  methods  of  state  trad- 
ing, particularly  with  a  view  to  removing  suspicion 
that  discrimination  and  favoritism  might  be  ex- 
ercised under  cover  of  such  trading. 

It  is  also  proposed  that  the  conference  and  the 
International  Trade  Organization  should  take  up 
two  further  subjects  which  have  not  always  been 
recognized  as  directly  bearing  on  trade  barriers 
but  which  in  fact  have  marked  effects  on  trade 
policy  and  practices.  First,  there  is  the  question 
of  "burdensome  world  surpluses"  of  certain  raw 
materials.  In  the  past,  wide  fluctuations  in  the 
prices  of  certain  raw  materials  have  been  an  im- 
portant factor  in  business  instability,  and  the  ac- 
cumulation of  unsold  stocks  has  led  to  restrictions 
and  sometimes  to  dumping  without  regard  to  the 
general  international  welfare.  Second,  there  is  the 
question  of  restrictive  practices  by  private  business 
in  respect  to  commodities  which  enter  into  inter- 
national trade.  Such  activities  may  run  counter 
to  tlie  publicly  declared  policies  in  the  countries  in 
which  they  occur,  and  we  cannot  afford  in  the 
future  to  ignore  them  in  the  formulation  of  inter- 
national commercial  policy  agreements.  Agreed 
iieasures  are  necessary  to  insure  that  the  purposes 


DEPARTMENT  OF  STATE  BULLETIN 

of  the  future  international  trade  organization  are 
not  frustrated  by  private  monopolistic  action. 

One  of  tlie  first  examples  of  international  eco- 
nomic cooperation  was  in  the  field  of  international 
relief.  The  United  Nations  Relief  and  Rehabili- 
tation Administration  was  set  up  in  1943  as  a 
temporary  organization  whose  functions  were  to 
supply  tlie  goods  and  services  necessary  for  imme- 
diate relief  and  early  rehabilitation  in  Europe  and 
the  Far  East.  No  agency  has  ever  before  carried 
out  relief  operations  on  such  a  scale  or  procured 
and  shipped  relief  goods  in  such  quantities. 

UNRRA  also  provides  the  staff  for  the  majority 
of  the  assembly  centers  in  Germany  and  Austria 
in  which  the  millions  of  persons  who  were  up- 
rooted from  their  homes  during  the  war  and  forced 
into  other  localities  and  other  countries  have  been 
housed.  The  work  of  repatriating  the  displaced 
persons  and  refugees  has  been  strikingly  success- 
ful but  some  800,000  or  900,000  still  remain  in 
assembly  centers  outside  their  countries  of  origin 
in  the  care  of  UNRRA  and  the  militarj^  authori- 
ties. 

The  Economic  and  Social  Council  at  its  first  ses- 
sion set  up  a  special  committee  on  refugees  and 
displaced  persons  which  has  been  meeting  in  Lon- 
don to  draw  up  a  report  for  the  forthcoming  ses- 
sion of  the  Council.  Among  otlier  aspects  of  the 
subject,  the  committee  has  considered  what  form  of 
international  organization  is  needed  to  handle  the 
problem  of  refugees  and  displaced  persons  when 
UNRRA's  activities  terminate. 

The  Economic  and  Social  Council,  when  it  meets 
May  25,  will  also  have  before  it  reports  of  six  of  its 
commissions,  which  have  been  meeting  here  in  New 
York.  They  are  the  Economic  and  Employment 
Commission ;  the  Temporary  Social  Commission : 
the  Temporary  Transport  and  Communications 
Commission ;  the  Statistical  Commission ;  and  the 
Commission  on  Hvmian  Rights  with  its  subcommis- 
sion  on  the  status  of  women. 

I  shall  have  time  to  point  out  the  potential  im- 
portance of  just  two  of  these  commissions,  that  on 
human  rights  and  the  Economic  and  Employment 
Commission.  International  action  in  the  basic 
field  of  human  rights  is  a  new  departure  in  history. 
It  was  considered  of  such  importance  by  the  f  ram- 
ers  of  the  Charter  that  this  is  the  only  Commis- 
sion which  the  Economic  and  Social  Council  was 
specifically  directed  to  create.  I  should  like  to 
pay  tribute  to  the  consultants  to  the  United  States 


]UNE  9,  1946 


979 


Delegation  in  San  Francisco  who  played  an  im- 
portant 2iait  in  getting  this  provision  in  the 
Charter. 

The  ultimate  aim  of  tliis  commission  is  to  bring 
into  existence  an  international  Bill  of  Rights  for 
all  peoples.  The  United  States  has  proposed  and 
the  Commission  will  recommend  that  as  an  effec- 
tive start  toward  this  objective  the  second  session 
of  the  Economic  and  Social  Council  set  up  a  sub- 
commission  on  freedom  of  information.  Tliis 
body  would  determine  just  what  obstacles  exist  to 
that  free  flow  of  information  which  is  essential  to 
enliglitened  world  public  opinion  and  how  these 
obstacles  can  be  eliminated.  The  right  of  all  peo- 
ple to  know  has  long  been  a  part  of  our  tradition. 

The  importance  of  higher  standards  of  living, 
continuous  economic  development,  and  full  em- 
ployment in  the  maintenance  of  a  peaceful  world 
was  recognized  by  the  Economic  and  Social  Coun- 
cil when  it  created  the  Economic  and  Employ- 
ment Commission.  Its  main  task  is  to  advise  the 
Council  on  the  promotion  of  world-wide  full  em- 
l^loyment  and  the  maintenance  of  economic  sta- 
bility. 

Nor  has  the  Council  overlooked  the  importance 
of  the  welfare  of  those  millions  in  the  underde- 
veloped parts  of  the  world,  who  have  had  to  strug- 
gle for  mere  existence.  The  Economic  and  Em- 
plo\inent  Commission  has  been  given  the  further 
mandate  of  advising  the  Council  on  ways  and 
means  of  assisting  the  development  of  the  econo- 
mies of  these  areas.  It  is  to  concern  itself  also 
with  the  immediate  problem  of  the  economic  re- 
construction of  devastated  ai'eas  so  that  the  peo- 
ples of  these  countries  may  be  aided  in  hastening 
their  return  to  a  decent  basis  of  life. 

This  Commission  has  been  direct  and  specific 
in  its  approach  to  its  problems.  It  has  inter- 
preted its  aims  as  "continual  world  economic  ex- 
pansion and  reasonable  economic  stability  and  se- 
curity", a  goal  which  in  the  words  of  its  report 
to  the  Council  implies  "employment  opportunity 
at  adequate  wages  for  all  who  desire  to  be  em- 
ployed". 

The  Commission's  investigations  and  surveys 
will  center  around  this  primal"}^  end  and  to  as- 
sure itself  that  its  work  will  fit  into  the  practical 
realities  of  the  modern  world,  it  is  recommending 
to  the  Council  that  it  be  technically  equipped  so 
as  to  be  able  to  advise  individual  countries  in  the 


development  of  their  resources  and  in  improving 
their  methods  and  patterns  of  productions. 

These  and  the  other  four  Commissions  have  been 
concerned  in  their  meetings  in  organizing  and  de- 
veloping their  recommendations  to  the  second  ses- 
sion of  the  Council  regarding  the  work  which 
should  be  undertaken  in  these  specialized  fields. 
These  Commissions  must  deal  with  important 
matters  of  substance  and  therefore  they  are  com- 
posed of  specialists  in  their  respective  fields. 

The  Economic  and  Social  Council  named  these 
commission  members  because  of  their  competence 
as  experts  to  bring  their  independent  judgment 
to  bear  on  world  problems  from  a  world,  rather 
than  a  national,  point  of  view.  They  serve  in 
their  individual  capacity  and  are  not  bound  by 
any  instructions  from,  their  governments.  The 
four  distinguished  United  States  citizens  who  are 
serving  on  these  commissions  are  Mi's.  Eleanor 
Roosevelt  on  the  Commission  on  Human  Rights, 
Mr.  Isador  Lubin  on  the  Economic  and  Employ- 
ment Commission,  Mr.  Stuart  Rice  on  the  Statis- 
tical Commission,  and  Mr.  George  P.  Baker  on  the 
Temporary  Transport  and  Communications  Com- 
mission. 

There  are  two  other  important  organizational 
matters  which  the  second  session  of  the  Council 
will  take  up.  One  is  the  report  of  its  committee 
on  negotiating  specific  agreements  with  the  major 
specialized  intergovernmental  agencies  so  that 
they  may  be  brought  into  effective  relation  with 
the  Council. 

And  the  other  is  a  similar  report  of  the  com- 
mittee on  arrangements  with  certain  non-govern- 
mental organizations.  This  cooperation  is  pro- 
vided by  article  71  of  the  Charter  which  is  a 
direct  bridge  between  the  formal  organs  of  the 
United  Nations  and  the  peoples  of  the  world. 

This  committee  will  begin  its  sessions  May  20 
to  arrange  the  way  for  such  private  groups  to  co- 
operate with  the  Council,  and  insure  that  the 
Council  will  benefit  by  the  experiences  of  organi- 
zations which  do  not  represent  governments,  but 
which  reflect  the  aspirations  of  gi'oups  of  people 
directly. 

Tlie  major  objectives  we  seek  to  attain  can  be 
no  more  clearly  stated  than  by  the  Charter  of  the 
United  Nations.    I  quote  them  from  the  Charter : 

"Higher  standards  of  living,  full  employment, 
and  conditions  of  economic  and  social  progress  and 
development ; 

(Continued  on,  page  1010) 


980 


DEPARTMENT  OF  STATE  BULLETIN 


The  Philippines  Prepares  for  Independence 


Article  by  EDWARD  W.  MILL  ^ 


ON  July  i  one  of  the  most  unique  and  fruitful 
experiments  in  the  history  of  dependent  gov- 
ernments will  enter  on  a  new  and  decisive  stage. 
On  that  day  the  United  States,  which  has  exer- 
cised sovereign  power  over  the  Philippines  for 
almost  half  a  century,  will  voluntarily  relinquish 
its  sovereignty,  and  the  Philippines  will  be  pro- 
claimed an  independent  nation. 

From  the  moment  of  the  silencing  of  Dewey's 
guns  in  Manila  Bay  to  the  present  the  United 
States  has  made  it  abundantly  clear  that  it  was 
not  in  the  Philippines  for  purposes  of  exploitation 
but  that  rather  it  very  clearly  envisaged  the  day 
M-hen  the  Philippines  would  be  declared  an  inde- 
pendent nation.     The  instructions  given  by  Presi- 

The    Pattern    of    Philippine -American 
Relations 

dent  McKinley  to  the  First  and  Second  Philippine 
Commissions  concerning  the  course  to  be  estab- 
lished by  the  Commission  in  establishing  civil 
government  in  the  Islands  set  a  pattern  for  gov- 
ernance of  the  Philippines  which  was  to  be  fol- 
lowed closely  during  the  next  48  years.  In  his 
instructions  to  the  Second  Commission,  the  Presi- 
dent warned  that  "the  commission  should  bear  in 
mind  that  the  government  which  they  are  estab- 
lishing is  designed  not  for  our  satisfaction,  or  for 
the  expression  of  our  theoretical  views,  but  for  the 
happiness,  peace,  and  prosperity  of  the  people 
of  the  Philippine  Islands.  .  .  ."  - 

On  August  29.  1916,  a  decisive  step  of  impor- 
tance in  the  granting  of  self-govermnent  to  the 
Filipinos  took  place  when  the  Jones  law  became 
etfective.     In  the  Jones  law,  the  Congress  of  the 

1  Mr.  Mill  is  Acting  Assistant  Chief  of  the  Division  of 
Philippine  Affairs,  Office  of  Far  Eastern  Affairs,  Depart- 
ment of  State. 

'  Instructions  of  the  Presiilent  of  the  United  States  to 
the  Second  Philippine  Commission,  Apr.  7,  1000. 

'Organic  Act  for  the  Philippine  Lslands,  Public  Law 
240,  64th  Cong.,  approved  Aug.  29,  1916. 


United  States  stated  that  ''it  is,  as  it  has  always 
been,  the  purpose  of  the  people  of  the  United 
States  to  withdraw  their  sovereignty  over  the 
Philippine  Islands  and  to  recognize  their  inde- 
pendence as  soon  as  a  stable  government  can  be 
established  therein'".^ 

In  1931  the  Congre.ss  recognized  that  the  Philip- 
pines was  ready  for  the  independence  promised  in 
the  Jones  law.  The  Tydings-McDuffie  act  of  that 
year  provided  for  a  final  ten-year  transitional  pe- 
riod, at  the  end  of  which  time  the  Philippines  was 
to  be  given  its  outright  independence.  During 
that  transitional  period  the  Philippines  was  to 
enjoy  virtual  autonomy  in  the  conduct  of  most  of 
its  domestic  affairs.  The  United  States  continued 
to  retain  control  over  all  foreign  affairs  of  the 
Philippine  Commonwealth. 

As  a  result  of  that  act  the  Filipinos  met  in  a 
Constitutional  Convention  to  frame  a  new  Consti- 
tution. This  new  Constitution  was  duly  framed 
and  ratified  in  a  national  plebiscite  by  the  Filipino 
people.  It  is  to  be  noted  that  this  Constitution 
was  intended  to  be  not  only  the  fundamental  law 
of  the  Philippine  Commonwealth  but  also  that  of 
the  Republic  to  be  established  on  July  4, 1946.  The 
Constitution  is  the  "Constitution  of  the  Philip- 
pines", not  simply  the  "Constitution  of  the  Philip- 
pine Commonwealth",  and  the  President  is  re- 
ferred to  as  the  "President  of  the  Philippines",  not 
simply  of  the  Philippine  Commonwealth. 

Impact  of  the  War  on  Philippine- 
American  Relations 

Although  Philippine-American  relations  were 
close  before  the  war,  since  that  time  the  two  coun- 
tries have  been  brought  closer  together  than  ever 
before.  The  heroic  joint  sacrifices  of  the  two 
peoples  on  Bataan  and  elsewhere  during  the  early 
clays  of  the  war  and  the  subsequent  bitter  resistance 
of  the  mass  of  the  Filipino  people  to  the  Japanese 
occupation  amply  justified  the  faith  of  the  United 


JVI\IE  9,  1946 


981 


States  in  the  capacity  of  the  Filipinos  for  self- 
government.  President  Koosevelt,  taking  cogni- 
zance of  the  contributions  of  the  Filipino  people  to 
the  common  effort,  declared  on  December  28,  1941 
that  "the  people  of  the  United  States  will  never 
forget  what  the  people  of  the  Philippine  Islands 
are  doing  this  day  and  will  do  in  the  days  to  come. 
I  give  to  the  people  of  the  Philippines  my  solemn 
pledge  that  their  freedom  will  be  redeemed  and 
their  independence  established  and  protected."  * 
Throughout  tiie  war  years  the  President  reiterated 
this  pledge  to  the  Filii^ino  people,  and  on  October 
6, 1943  the  President  in  a  message  to  the  Congress 
recommended  that  authority  be  given  him  to  ad- 
vance the  date  of  Philippine  independence.  Con- 
gress acted  on  this  request  by  passing  Public  Law 
380  (approved  June  29,  1944),  which  authorized 
the  President,  "after  proclaiming  that  constitu- 
tional processes  and  normal  functions  of  govern- 
ment have  been  restored  in  the  Philippine  Islands 
and  after  consultation  with  the  President  of  the 
Commonwealth  of  the  Philippines,  to  advance  the 
date  of  the  independence  of  the  Philippine  Islands 
by  proclaiming  their  independence  as  a  separate 
and  self-governing  nation  prior  to  July  4,  194G." 
Though  Public  Law  380  was  never  employed  to 
advance  the  date  of  the  independence  of  the  Phil- 
ippines, it  was  fitting  recognition  of  the  part  of 
the  Congress  and  President  of  the  United  States 
that  the  Filipino  people  had  earned  their  right  to 
indejjendence  even  before  July  4, 1946. 

Restoration  of  Civil  Government 
to  the  Philippines 

Shortly  after  the  return  of  American  forces  to 
the  Islands  in  October  1944,  the  Philipi^ine  Com- 
monwealtli  Govermnent  took  over  the  responsi- 
bility for  civil  government  in  the  Islands.  Follow- 
ing the  liberation  of  Manila,  after  one  of  the  most 
vicious  battles  of  the  war,  the  Philippine  Com- 
monwealth Government,  headed  by  President  Ser- 
gio Osmeiia,  returned  to  its  pi-e-war  seat  of  govern- 
ment. 

The  Philippine  Congi'ess,  meeting  for  the  first 
time  in  four  years,  assembled  in  special  session  in 
June  1945.  President  Osmeiia  addressed  the  Con- 
gress asking  for  cooperation  in  a  program  of  re- 
construction and  rehabilitation.  Philippine  re- 
covery, however,  continued  at  a  slow  pace,  and 
sharp  political  divisions,  particularly  over  the  col- 

696662 — 46 2 


laboration  question,  tended  to  divert  attention 
from  the  more  pressing  economic  problem. 

April  Elections 

The  Congress  of  the  United  States  in  Public 
Law  258  of  December  14,  1945  and  the  Philippine 
Congress  in  Commonwealth  Act  725  of  January  5, 
1946  provided  for  the  holding  of  the  first  general 
election  in  the  Philippines  since  1941.  As  a  result 
some  three  million  Filipinos  went  to  the  polls  on 
April  23, 1946  to  vote  on  the  question  of  who  should 
be  President  of  the  Philippines  during  the  next 
four  years  and  who  should  represent  them  in  the 
Philippine  Congress. 

Manuel  A.  Eoxas,  President  of  the  Senate  and  a 
leader  in  Philippine  politics  for  many  years, 
emerged  as  the  choice  of  the  Philippine  electorate 
for  President,  though  his  rival,  the  incumbent 
President,  Sergio  Osmeiia,  polled  a  substantial 
number  of  votes.  Elected  along  with  Roxas  was  a 
Philij^pine  Congress  wliich  was  believed  to  be  gen- 
erally sympathetic  with  his  aims. 

One  of  the  first  acts  of  the  new  President-elect 
of  the  Philippines  was  to  come  by  air  with  U.  S. 
High  Commissioner  McNutt  to  the  United  States 
for  conferences  with  President  Truman  and  other 
American  officials  on  the  many  pressing  problems 
facing  the  Philippines  as  a  result  of  independence. 

The  Philippines  Faces  Independence 

1.  Economic  Adjustment 

Foremost  among  the  problems  facing  the  Philip- 
pines has  been  the  question  of  economic  rehabilita- 
tion and  reconstruction.  Tlie  war  brought  tremen- 
dous destruction  and  dislocation  to  the  nation's 
economic  life.  Manila,  the  capital  city,  was  virtu- 
ally destroyed.  High  Commissioner  McNutt, 
summing  up  the  economic  dislocation  in  the 
Islands,  said  on  February  23,  1946:  "The  Jap- 
anese shattered  that  Philippine  economy.  .  .  . 
Today  there  are  no  crops  for  export.  There  is 
almost  no  economy.  The  sources  of  income  for 
local  government  have  been  virtually  wiped  out. 
The  currency  tied  by  law  to  the  American  dollar 
is  sound,  but  values  are  unbelievably  inflated. 
Communications  among  the  7,000  islands  of  the 
Philippines  are  still  paralyzed."  ^ 

'  BuiXETiN  of  Jan.  3,  1942,  p.  5. 

"  Radio  address  by  Paul  V.  McNutt,  Feb.  23,  1946.     For 
another  graphic  description  of  the  damage  brought  to  the 


982 


DEPARTMENT  OF  STATE  BULLETIN 


In  the  face  of  this  disaster  to  the  economic  life 
of  the  countiy,  assistance  from  tlie  United  States 
has  been  imperative.  The  recent  passage  by  the 
Congress  of  the  United  States  of  the  Philippine 
Trade  Act  (Public  Law  371— H.E.  587G)  and 
the  Philippine  Rehabilitation  Act  (Public  Law 
370— S.  1610)  has  provided  such  assistance.  The 
Trade  Act  provides  for  free  trade  between  the 
Pliilippines  and  the  United  States  for  eight  years 
(to  1954),  after  wliich  incoming  Philippine  prod- 
ucts ai'e  to  be  taxed  at  the  rate  of  5  percent  pro- 
gressively over  a  span  of  20  years  until  at  the  end 
of  the  period  full  duties  are  being  assessed  Philip- 
pine goods.  The  Rehabilitation  Act  provides  for 
the  granting  to  Philippine  war-damage  claimants 
of  $400,000,000  in  war  damages,  provides  for  the 
disposal  to  the  Commonwealth  Government  (and 
Republic)  without  reimbursement  of  $100,000,000 
in  surplus  property,  and  for  the  spending  of 
$120,000,000  in  various  rehabilitation  and  training 
projects." 

These  bills  represent  an  important  start  in  le- 
habilitating  Pliilippine  economy,  but  they  must 
first  be  implemented  with  other  action  before  be- 
coming fully  effective.  The  Trade  Act,  for  ex- 
ample, before  becoming  generally  effective,  must 

PiuUiipines  liy  the  war  see  the  Repoi't  on  the  rhilifiiiine 
Islautlss  by  Senator  Millard  Tydings  made  after  his  return 
from  the  Islands  on  June  7,  1945  ( S.  Doc.  53,  79th  Cong.). 

"  Both  these  acts  are  exceptional  from  the  standpoint  of 
reguhir  American  policy.  President  Truman,  in  a  state- 
ment on  the  occasion  of  his  signing  H.R.  5S76  and  S.  1610 
on    Apr.    30,    1946,    declared: 

"In  H.R.  5876,  we  are  providing  for  the  establishment, 
tlirough  an  executive  agreement,  of  an  unprecedented  plan 
of  preferential  trade  relations  witli  the  Philippines  to  last 
for  twenty-eight  years.  We  have  never  entered  into  simi- 
lar agreement  with  any  foreign  government:  Preferential 
trade  relations  are  alien  to  the  policy  of  this  administra- 
tion. In  substance,  however,  H.R.  5876  is  a  rehabilita- 
tion act.  Its  sole  purpose  and  guiding  philosophy  is  to 
furnish  a  formula  for  the  rehabilitation  of  the  Philippine 
national  economy.  .  .  ." 

Likewise  the  House  Committee  on  Insular  Affairs  in 
reporting  out  S.  1610  stated  : 

"This  legislation  is  unique  in  .\merican  history.  Never 
before  has  the  United  States  Government  appropriated 
funds  to  pay  war  damages  suffered  by  its  citizens  or 
natiimals  in  war.  But  United  States  relations  with  the 
Philippines  are  likewise  unique  not  only  in  our  own  his- 
tory, but  in  the  history  of  the  world.  Never  before  has 
a  .sovereign  voluntarily  granted  independence  to  a  colonial 
dependency.  S.  1610  recognizes  that  unique  relation- 
ship.  .   .   ."      (See  H.  Rept.  1921,  79th  Cong.,  2d  sess.) 


first  be  translated  into  an  Executive  agreement. 
Sec.  401  of  title  IV  of  the  Trade  Act  authorizes  the 
President  of  the  United  States  to  enter  into  such  an 
agreement,  and  succeeding  sections  carefully  de- 
fine the  mode  and  manner  of  the  agreement  to  be 
effected. 

Since  certain  sections  of  the  Trade  Act,  par- 
ticularly those  (title  III,  sec.  341)  concerning  the 
future  rights  of  United  States  citizens  and  business 
enterprises  in  natural  resources,  make  necessary  the 
amendment  of  the  Philippine  Constitution  and 
have  as  a  result  come  in  for  heavy  criticism  in 
some  quarters  in  the  Philippines,  some  uncertainty 
has  resulted  regarding  the  attitude  to  be  taken 
by  the  Filipinos  towards  this  Executive  agreement. 
President-elect  Roxas  in  his  press  conference  in 
Washington  on  May  11,  1946,  stated  that  one  of 
the  purposes  of  his  visit  to  the  United  States  was 
the  "implementation  of  the  legislation  passed  by 
j'our  Congress"  and  indicated  that  the  trade 
formula  provided  for  in  the  Trade  Act  "is.  in 
general,  acceptable  to  us."  On  his  return  to  Manila 
on  May  22,  General  Roxas  is  also  reported  to  have 
defended  the  trade  legislation  as  the  best  legisla- 
tion that  could  be  devised  and  passed  by  the  United 
States  at  this  time.  Speaking  of  the  so-called 
"equal  rights"  provision,  the  President-elect  is  re- 
ported to  have  declared  :  "The  Americans  have  had 
equal  rights  with  the  Filipinos  since  they  have  been 
here.  If  their  intention  had  been  to  exploit  the 
country  as  imperialists  they  would  have  done  it 
while  they  owned  our  country.  How  can  you  feel 
now  that  they  are  preparing  to  exploit  us  after 
independence?  We  can  adjust  our  own  laws  to 
prevent  that."  Meanwhile  attempts  are  being 
made  to  reach  a  mutually  satisfactory  agreement 
on  the  Executive  agi-eement  in  question. 

At  the  same  time  that  the  Trade  Act  awaits  im- 
plementation to  become  full}'  effective  the  Rehabil- 
itation Act  stands  in  need  of  similar  implementa- 
tion to  become  effective.  Title  YI  of  the 
Rehabilitation  Act  stij^ulates  that  "No  payments 
under  Title  I  of  this  Act  in  excess  of  $500  shall  be 
made  until  an  executive  agreement  shall  have  been 
entered  into  between  the  President  of  the  United 
States  and  the  President  of  the  Philippines,  and 
such  agreement  shall  have  become  effective 
according  to  its  terms,  providing  for  trade  re- 
lations between  the  United  States  and  the 
Phililipines  .  .  ."  This  stipulation  means  that 
i^ayment  of  claims  for  war  damage  in  excess  of 


Jl^E  9,  1946 


983 


$500  must  await  the  conclusion  of  the  aforesaid 
Executive  agTcement  jarovided  for  under  the  Trade 
Act."  Similarly  title  III  of  the  Rehabilitation  Act, 
which  authorizes  an  expenditure  of  $120,000,000 
and  certain  additional  sums  for  the  restoration  and 
improvement  of  public  property  and  essential 
public  services  in  the  Philippines,  is  incomplete 
without  Congress  next  actually  appropriating  the 
funds  for  the  projects  already  authorized.  It  is 
believed,  however,  that  congressional  assent  to 
tliese  appropriations  will  not  be  long  in  coming. 
Although  these  Acts  (370  and  371)  are  vitally 
important  in  the  rehabilitation  of  the  Philippine 
economy,  they  represent  in  actuality  but  a  start 
in  the  restoration  of  Philippine  economy.  It  will 
take  many  years  before  the  wartime  economy  of  the 
Philippines  achieves  anything  like  normalcy. 
During  this  time  the  Philippines  will  undoubtedly 
make  efforts  to  diversify  and  reorient  its  economy, 
and  attempts  will  be  made  to  shift  the  Philippines 
away  from  its  position  of  almost  absolute  depend- 
ence on  the  American  market. 

2.  Treaty  Arromgements 

In  addition  to  economic  preparations  for  inde- 
pendence, intensive  political  preparations  are  be- 
ing made.  The  Tydings-McDufhe  act  contains  a 
number  of  provisions  relating  to  the  establislnnent 
of  the  independent  Philippine  Republic.  Among 
these  are  provisions  calling  for  the  recognition 
on  the  part  of  the  United  States  of  the  independ- 
ence of  the  Philippines  as  a  separate  and  self- 
governing  nation,  notification  to  other  governments 
by  the  United  States  of  such  independence  and 
provision  for  the  assumption  by  the  Philippine 
Republic  of  all  continuing  obligations  assumed  by 
the  United  States  under  the  treaty  of  peace  ceding 
the  Philippine  Islands. 

It  is  expected  that  the  foregoing  and  other  pro- 

'  President  Truman  in  his  statement  of  Apr.  .''.0,  1946 
concerning  the  Rehabilitation  Act  minimized  the  impor- 
tance of  tliis  provision  of  the  act,  however,  declaring: 

"While  it  is  nnfortunate  that  the  Congress  saw  fit  to 
provide  in  S.  1010  that  no  war  damage  payment  in  excess 
of  $.500  shall  be  made  until  the  executive  agreement  shall 
have  been  entered  into  betwen  the  President  of  the  United 
States  and  the  President  of  the  Philippines  under  the 
terms  of  H.R.  5876,  to  all  practical  purposes  this  provision 
is  surplusage,  as  the  benefits  which  will  flow  under  the 
enactment  of  these  two  bills  are  so  great  as  to  ensure  exe- 
cution of  the  executive  agreement  b.y  the  Republic  of  the 
Philippines." 


visions  will  be  included  in  a  treaty  of  general  re- 
lations to  be  concluded  between  the  two  countries. 
This  treaty,  incidentally,  will  be  somewhat  of  a 
pioneer  treaty  since  examples  of  the  voluntary  re- 
linquishment by  one  power  of  sovereignty  over 
another  are  not  i^lentiful. 

In  addition  to  the  basic  treaty  of  general  rela- 
tions between  the  two  countries,  a  number  of  other 
treaties  defining  the  relations  between  the  two 
countries  will  be  drawn  up.  Among  the  most  im- 
jDortant  of  this  group  will  be  a  treaty  of  friendship, 
commerce  and  navigation.  This  treaty  will  cover 
such  matters  as  the  ownership  of  personal  prop- 
erty, the  ownership  of  real  property,  succession 
to  property,  freedom  of  commerce  and  navigation, 
recognition  of  the  juridical  status  of  corporations, 
and  shipping  matters. 

As  a  result  of  Pul)Iic  Law  380  of  the  U.  S.  Con- 
gress which  authorizes  the  President  of  the  United 
States  to  negotiate  with  the  President  of  the 
Pliilippines  for  the  retention  of  militarj^  bases  in 
the  Philippines  and  Joint  Resolution  No.  4  of  the 
Joint  Session  of  the  Philippine  Congress  of  June 
22,  1945  which  concurs  in  such  negotiations,  dis- 
cussions have  been  held  concerning  the  conclusion 
of  some  military-base  agreement  between  the  two 
countries. 

The  more  usual  treaties  will  also  be  entered  into. 
These  include  a  consular  convention,  an  extradi- 
tion treaty,  an  arbitration  treaty,  and  others. 

Since  by  the  very  nature  of  the  constitutional 
requirements  involved,  it  will  not  be  possible  to 
have  all  these  treaties  ready  by  July  4,  it  is  thought 
probable  that  a  provisional  agreement  covering  in- 
terim relations  between  the  two  countries  pending 
the  coming  into  force  of  the  regular  treaties  will 
be  signed  on  July  4. 

3.  Foreign  Affairs  of  the  New  Republic 

Although  the  United  States  has  allowed  the 
Filipinos  a  great  measure  of  self-government  dur- 
ing our  48  years  in  the  Islands,  this  country  has  at 
all  times  retained  control  over  the  foreign  affairs 
of  the  Philippines.  The  new  Republic  will  con- 
sequently be  greatly  lacking  in  experience  in  this 
field. 

In  an  effort  to  meet  the  need  for  trained  Filipino 
Foreign  Service  officers  after  independence  the  De- 
partment of  State  has  for  some  time  been  conduct- 

(Oontinued  on  page  10 H) 


984 


DEPARTMENT  OF  STATE  BULLETIN 


German  Documents  on  Hungary 


Foreign  Office  Memorandum 

Berlin,  September  16,  1938. 

The  Hungarian  Minister  informed  me  on  his 
visit  of  today  that  Field  Marshal  Goring  had  in- 
vited him  to  come  today  to  Karinhall.  The  prin- 
cipal reason  for  this  invitation  was  the  Field 
Marshal's  impression  that  Hungary  was  not  doing 
enough  in  the  present  crisis.  The  Hungarian  press 
was  keeping  comparatively  silent.  In  the  Hun- 
garian minority  areas  in  Czechoslovakia  it  was 
completely  cahn  in  contrast  to  the  situation  in 
the  Sudeten  German  areas,  and  the  Hungarian 
Ministers  in  the  various  cajsitals  were  not,  in  con- 
trast to  their  Czechoslovakian  colleagues,  going  to 
visit  the  Foreign  Minister  two  or  three  times  a  day. 
Finally  neither  the  Hungarian  Government  nor 
the  leaders  of  the  Hungarian  minorities  had  clearly 
demanded  the  surrender  of  the  Hungarian  areas 
by  Czechoslovakia.  The  Hungarian  Minister  de- 
fended himself  against  these  charges,  but  had  by 
his  own  admission  acknowledged  that  they  were 
partially  true  by  presenting,  at  the  same  time, 
certain  reasons  for  the  Hungarian  conduct. 

The  Field  Marshal  then  returned  to  the  inatter 
of  Hungarian-Yugoslav  relations.  He  told  the 
Hungarian  Minister  that  he,  the  Field  Marshal,  as 
the  second  ranking  personage  in  the  state,  could 
give  him  the  definite  assurance  that  Yugoslavia 
would  remain  quiet  if  Hungary  took  no  military 
action  on  the  first  day,  but  only  after  three  or  four 
days.  He,  Herr  Sztojay,  indicated  that  he  was 
skeptical  of  this  view.  He  could  not  see  why  Yugo- 
slavia would,  in  case  of  a  Hungarian  attack,  on  the 
first  day  regard  it  as  a  case  under  the  treaty  of 
alliance  and  take  military  steps,  but,  on  the  con- 
trary, would  not  do  so  on  the  third  or  fourth  day. 
The  Field  Marshal  told  him,  however,  that  in  a 
conversation    with     a     Yugoslav     personality — 

The.se  are  translations  of  documents  on  Hungary,  se- 
cured from  German  Government  files,  and  are  among  the 
German  official  papers  which  the  Bulletin  is  currently 
publishing. 

These  documents  have  been  selected  and  translated  by 
J.  S.  Beddie,  an  officer  in  the  Division  of  Research  and 
Publication,  Office  of  Public  Affairs,  Department  of  State. 


whom  he  did  not  name — he  had  gotten  complete 
assurance  on  the  point.  In  this  connection  I  in- 
formed the  Hungarian  Minister  in  strict  confidence 
that  according  to  a  telegram  from  our  Ambassador 
at  Rome,  the  Yugoslav  Minister  in  that  capital,  on 
orders  of  Stojadinovitch,  had  expressed  himself 
in  a  similar  fashion  to  the  Italian  Government 
concerning  which  Budapest  had  already  been  in- 
formed by  Count  Ciano. 

The  Field  Marshal  finally  gave  Herr  Sztojay 
almost  as  complete  information  about  the  Berchtes- 
gaden  conference  as  had  been  set  forth  in  the  in- 
formation telegrams  to  our  own  missions.  The 
Field  Marshal  seemed  to  have  given  Herr  Sztojay 
no  information  beyond  that. 

The  Hungarian  Minister,  after  the  conversation, 
telephoned  to  Budapest  and  talked  with  Herr 
Csaky  and,  in  the  course  of  the  afternoon,  received 
orders  from  Herr  Kanya  to  make  -the  following 
statement  to  the  Field  Marshal  and  at  the  same 
time  to  the  Foreign  Ministry : 

1.  The  Hungarian  press  and  the  Hungarian 
national  elements  in  Czechoslovakia  would,  from 
then  on,  be  more  active,  especially  the  Hungarian 
press  would,  in  the  next  few  days,  express  itself  in 
much  diffeient  terms  than  previously. 

2.  The  Hungarian  Ministers  in  Prague  and 
London  would  be  ordered  to  inform  the  Govern- 
ments there  that  Hungary  demanded  a  popular 
decision  in  the  Hungarian  minority  areas.  He, 
Sztojay,  had  received  the  same  orders  for  Berlin, 
and  he  made  use  of  the  interview  with  me  to  carry 
out  this  commission.  He  was  also  ordered  to  bring 
\rp  the  point  both  with  the  Field  Marshal  and  also 
at  the  Foreign  Ministry,  of  whether  the  Fiihrer 
could  not  do  something  to  indicate  that  he  re- 
garded the  Hungarian  demands  as  his  own  also. 
Thereupon  I  told  the  Minister  that  it  would 
naturally  be  difficult  for  the  Fiihrer  to  speak  for 
other  national  elements  in  the  same  way  as  for  the 
Germans. 

3.  Between  Hungary  and  Poland  complete  un- 
derstanding prevailed.  In  that  connection  Herr 
Sztojay  remarked,  in  the  course  of  the  conversa- 
tion, that  Poland  was  making  no  demands  for  Slo- 


JUNK  9,  1946 


985 


vakia,  but  only  for  the  territory  of  Teschen  and 
for  certain  limited  frontier  adjustments  in  Slo- 
A^akian  territory,  concerning  which  agi-eements 
could  be  made  regarding  the  details.  It  was  as- 
sumed that  Slovakia  would  receive  a  considerable 
degree  of  autonomy  within  the  framework  of  the 
Hungarian  state. 

The  Hungarian  Minister  will  carry  out  this  com- 
mission in  an  interview  with  the  Field  Marshal 
tomorrow  (Saturday).  It  was  his  intention  to 
travel  to  Budapest  Saturday  night  and  to  arrive 
liere  again  on  Monday.  Woermakn 

Foreign  Office  Memorandum 

Berlin,  September  2J,  1938. 

Counselor  of  Legation  Briicklmeier  just  in- 
formed me  by  telephone  about  yesterday's  inter- 
view between  the  Fiihrer,  Premier  Imredy  and 
Foreign  Minister  Kan3'a. 

The  Fiihrer  first  made  objection  to  the  Hun- 
garians about  the  undecided  attitude  of  Hungary 
in  the  present  crisis.  He,  the  Fiihrer,  was  de- 
termined to  settle  the  Czech  question,  even  at 
the  risk  of  a  world  war.  Germany  demanded  all 
German  territories.  He  was  convinced  that  Eng- 
land and  France  would  not  move.  It  was  now  the 
last  minute  for  Hungary  to  join  in,  as  otherwise 
he  would  not  be  in  a  position  to  look  out  for  Hun- 
garian interests.  In  his  opinion  it  would  be  best 
to  destroy  Czechoslovakia.  Certainly  this  air- 
plane mother  ship  in  the  heart  of  Europe  could  not 
be  endured  permanentlj'.  He  urged  the  Hunga- 
rians (1)  to  demand  a  plebiscite  in  the  territories 
requested  by  Hungary,  (2)  to  give  no  guaranty 
of  any  sort  for  the  possible  new  boundaries  of 
Czechoslovakia.  If  necessary  Hungary  should 
threaten  to  withdraw  from  the  League  of  Nations 
and  to  create  irregular  troops  (Freikorps).  The 
Czechoslovakian  question  would  be  settled  by  the 
Fiihrer  in  three  weeks  at  the  most.  Premier  Im- 
redy answered  that  the  pace  of  the  settlement  sur- 
prised Hungary.  In  Hungary  a  solution  within 
one  or  two  years  had  been  expected.  In  the  mean- 
time the  Hungarian  minorities  had  alreadj-  asked 
for  a  plebiscite  and  the  Hungarian  Government 
would  back  u^d  this  request.  In  addition,  Hungary 
would  start  militarj^  preparations  at  once,  but 
these  could  be  only  partially  completed  within  two 
weeks.     Regarding   the   attitude   of   Yugoslavia 


Premier  Imredy  declared  the  present  regime  there 
was  weak,  but  the  Francophile  military  class 
would  have  to  be  taken  very  seriously.  Perhaps 
something  could  be  accomi^lished  there  by  money 
and  threats. 

The  Fiihrer  declared  further  that  he  had  made 
the  German  demands  on  Chamberlain  with  brutal- 
ity. In  his  opinion  the  only  satisfactory  solution 
would  be  military  action.  There  remained  the 
danger  that  the  Czechs  might  accept  everything. 

Prime  Minister  Imredy  declared  that  Hungary 
would  only  guarantee  a  new  Czechoslovakian 
boundary  if  all  Hungarian  demands  were  met. 
The  Fiihrer  declared  that  Germany  would  give 
no  guaranty  unless  all  the  states  concerned 
agreed.  In  the  further  course  of  the  conversation, 
the  Fiihrer  amplified  the  German  position  by  ex- 
plaining that  such  a  possibility  could  exist  only 
after  the  solution  of  all  problems,  including  that 
of  the  Iglau  language  enclave.  The  Fiihrer  then 
again  declared  that  he  had  presented  the  German 
demands  at  Godesberg  in  the  most  brutal  manner. 
In  case  disorder  should  break  out  in  Czechoslo- 
vakia over  the  question,  he  would  take  military 
action.  It  would  be  better,  however,  if  the  pretext 
should  be  given  by  Czechoslovakia. 

Erich  Kordt 

Telegram  from  the  German  Foreign  Minister 
to  tfte  German  Minister  in  Hungary 

Venice,  June  16, 1941, 9: 40  j).  m. 

No.  552  of  June  15. 

For  the  Minister  personally. 

I  would  like  you  to  inform  the  Hungarian 
Premier  as  follows : 

In  view  of  strong  grouping  of  Russian  troops 
on  the  eastern  German  frontier  it  would  appear 
that  the  Fiihrer  by  the  beginning  of  July  at  the 
latest  will  be  forced  to  clear  up  definitely  the 
German-Russian  relations  and  in  that  connection 
to  make  certain  demands.  As  the  outcome  of  such 
negotiations  cannot  be  foreseen,  the  German  Gov- 
ernment regards  it  as  necessary  that  Hungary  on 
her  part  should  likewise  take  steps  to  secure  her 
frontiers. 

The  foregoing  request  is  of  a  strictly  confidential 
character.  I  request  that  you  briiig  this  also  to 
the  attention  of  the  Hungarian  Foreign  Minister. 

RiBBENTROP 


986 


DEPARTMENT  OF  STATE  BULLETIN 


Telegram  from  the  Office  of  tJie  Foreign  Min- 
ister aboard  Hitler's  Special  Train  to  the  For- 
eign Ministry 

Special  Train,  January  17, 194^,  •0;  10  a.  m. 

[Received  January  1,7,  2 :  35  a.  ra.] 
No.  75  of  January  IG,  1942. 
Teletype  to  the  Ministerbiiro. 

There  follows  the  text  of  the  minutes  of  the  con- 
versations of  tlie  Reich  Foreign  Minister  in  Buda- 
pest from  January  6-1),  1942. 

In  the  course  of  the  conversations  with  the  Hun- 
garian Regent  as  well  as  with  the  Minister  Presi- 
dent Bai'doss}'  fx'om  January  6-9  of  this  year,  the 
Reich  Foreign  Minister  went  into  the  following 
subjects  with  the  Hungarian  Government : 

1.  The  Reich  Foreign  Minister  declared  to  the 
members  of  the  Hungarian  Government  the  abso- 
lute certainty  of  victory  held  by  the  Reich  Gov- 
ernment. At  the  same  time,  however,  he  showed 
them  that  as  a  result  of  the  course  of  development 
of  the  war  and  especially  through  the  common 
struggle  against  Bolshevism,  there  had  arisen  a 
commimity  of  European  destiny  which  must  be 
considered  in  the  handling  of  all  questions  affect- 
ing both  their  countries.  The  Reich  Foreign  Min- 
ister, in  that  connection,  Iiad  especially  emphasized 
the  necessity  of  finally  beating  down  Bolshevism 
during  this  year,  in  which  struggle,  as  in  the  past 
year,  tlie  German  armed  forces  would  again  have 
to  take  the  leading  role  and  would  have  to  make 
the  necessary  sacrifices  connected  therewith.  That 
brought  with  it,  for  the  armies  of  her  Allies,  the 
obligation  of  cooperating  to  the  best  of  their  abil- 
ity. Proceeding  along  this  line  of  thought  the 
Reich  Foreign  Minister  advanced  the  request  tliat 
Hungaiy,  in  the  present  year,  should  make  avail- 
able her  entire  Army  for  the  realization  of  the 
goals  which  had  been  set. 

Regent  Horthy  and  Minister  President  Bar- 
dossy,  after  several  discussions  concerning  the 
matter  with  the  other  members  of  the  Hungarian 
Government,  on  the  last  day  of  the  conference  gave 
the  Reicli  Foreign  Minister  the  answer  that  Hun- 
gary could  not  make  her  Army  100  percent  avail- 
able for  the  eastern  campaign,  but  she  was  ready  to 
go  to  the  extreme  limit  of  her  capabilities,  with  the 
intention  of  participating  in  the  campaign  to  a 
far  greater  extent  than  previously.  Details  about 
the  strength  of  the  Hungarian  participation  were 


not  gone  into,  but  were  left  to  the  forthcoming 
meetings  between  the  military  authorities,  espe- 
cially to  the  approaching  visit  of  Field  Marshal 
Keitel  in  Budapest. 

The  entire  course  of  the  conversation  with  the 
Hungarians  on  these  matters  took  place  in  an  ex- 
tremely friendly  spirit.  Before  the  Hungarians 
were  readv  to  commit  themselves  to  makino;  their 
Army  available  to  a  far-reacliing  extent,  it  was, 
however,  necessary  to  sjDeak  rather  emphatically 
since,  on  the  part  of  the  Himgarians,  every  possible 
objection  to  participating  unreservedly  in  the 
eastern  campaign  was  brought  forward,  especially 
the  presence  of  Rumania  in  the  field. 

2.  The  Hungarian-Rumanian  question  was  not 
gone  into  thoroughly.  However,  the  Reich  For- 
eign Minister  emphasized  the  necessity  of  uncondi- 
tional observance  of  the  Vienna  Award  and  asked 
the  Regent  for  the  explicit  promise  that  Hungary 
would  not  undertake  anything  against  Rumania. 

3.  The  Reich  Foreign  Minister  also  discussed 
with  the  Hungarian  Minister  President  the  ques- 
tion of  making  available  20,000  Yolksdeutsche 
from  Hungaiy  for  the  Armed  SS.  The  Minister 
President  indicated  that  he  was  not  opposed  to  this 
request  in  principle.  He  considered  it  necessary, 
liowever,  to  consult  the  other  members  of  the 
Hungarian  Govermnent.  The  result  of  this  con- 
sultation appears  already  in  the  telegram  from 
Budapest,  No.  49  of  January  15,  in  an  affirmative 
sense. 

4.  Finally  the  Reich  Foreign  Minister  pointed 
out  to  the  Hungarian  Minister  President  the 
necessity  of  appreciably  increasing  the  deliveries 
of  oil  from  Hungary  to  the  Reich  in  comparison 
with  deliveries  up  to  this  time.  The  Hungarian 
Minister  President  expressed  himself  in  a  favor- 
able sense  on  this  point  also,  but  he  stated  that  the 
Hungarian  Government  alread}-  was  doing  all  that 
it  could  in  this  direction  and  would  continue  to 
do  so. 

Weeer,  Ministerbiiro 

Telegram  from  the  German  Foreign  Minister 
to  the  German  Minister  in  Hungary 

Special  Train,  Jamiain/ 19, 19^2,  7 :10  p.  m. 
No.  93  of  January  19,  1942  [Relayed  to  Budapest 
as  No.  123]. 

{Continued  on  page  0S9) 


The  United  Nations 


Meeting  of  the  Security  Council 

DISCUSSION  OF  SOVIET-IRANIAN  MATTER 


Remarks  by  the  U.  S.  Representative  ^ 

I  would  like  to  suggest  that  the  Council  again 
defer  action  on  the  Iranian  matter.  My  Govern- 
ment does  not  feel  that  the  Council  has  sufficient 
basis  for  taking  definite  action  today.  In  view  of 
the  conflicting  reports  relating  to  the  current 
troubled  situation  in  Iran,  and  in  view  of  the 
record  of  the  Soviet-Iranian  difficiilties  and  differ- 
ences, my  Government  would  consider  it  most  un- 
fortunate for  the  Security  Council  at  this  time  to 
drop  the  Iranian  question  from  the  list  of  matters 
on  which  the  Council  is  seized. 

It  will  be  recalled  that  in  the  Council's  resolu- 
tion of  4  April  the  Council  requested  the  Soviet 
Government  and  the  Iranian  Government  to  re- 
port by  6  May  whether  the  withdrawal  of  all  Soviet 
troops  from  the  whole  of  Iran  had  been  completed. 
The  Soviet  Government  has  made  no  report  to  the 
Council  and  no  statement  on  this  subject.  The 
Iranian  Government  has  been  unable  until  today  to 
report  any  official  findings  as  to  Azerbaijan.  It  has 
today  made  a  report  which  on  its  face  value  is  not 
complete  since  it  deals  with  only  a  portion  of  the 
province  of  Azerbaijan. 

I  would  like  to  pause  a  moment  to  read  from  the 
telegram  submitted  to  us  by  Ambassa'dor  Ala,  in 
which  it  is  stated  that  "The  telegraphic  reports  are 
to  the  effect  that  no  trace  whatsoever  of  Soviet 
troops,  equipment  or  means  of  transport  was  found 
in  certain  localities  and  that  according  to  trust- 
worthy local  people  who  were  questioned  in  all 
these  places,  Soviet  troops  evacuated  Azerbaijan 
on  6  May." 

I  wish  to  point  out  that  the  statement  has  been 
made  relative  to  only  five  communities  in  the 
western  part  of  Azerbaijan  by  trustworthy  local 
people.  In  the  view  of  my  Government,  that  is  not 
conclusive  evidence,  nor  the  final,  definite,  specific 
evidence  that  we  felt  was  to  be  submitted  to  the 

'Made  by  Edward  R.  Stettinius,  at  the  foity-third  meet- 
ing of  the  Security  Council  on  May  22. 


Council  at  the  time  that  the  Council  last  deferred 
this  Iranian  matter. 

Moreover,  we  must  bear  in  mind  that  the  pres- 
ence of  Soviet  troops  on  Iranian  territory  has 
been  only  one  of  the  subjects  which  has  been  a  mat- 
ter of  dispute  between  the  Soviet  and  Iranian 
Governments.  For  these  reasons  my  Government 
earnestly  believes  that  the  Security  Council  should 
postpone  further  consideration  of  the  matter  at 
this  time. 

I  wish  to  add  that  my  Government,  as  is  well 
known,  has  followed  developments  in  the  Iranian 
matter  with  the  greatest  concern  and  has  recently 
been  giving  careful  consideration  to  requesting, 
upon  its  own  initiative,  an  investigation  by  the 
Council  of  the  situation  in  northern  Iran  in  order 
to  assist  the  Council  to  determine  whether  the  con- 
tinuance of  the  situation  there  is  likely  to  endanger 
international  peace  and  security. 

I  do  not  want  to  suggest  at  this  time  however 
that  the  Council  take  action  along  this  line.  I  do 
wish  to  emphasize  the  feeling  of  my  Government, 
that  it  is  most  desirable  that  the  Council  continue 
to  remain  seized  of  the  Iranian  matter,  indicating 
thereby  its  continuing  concern  in  this  potentially 
dangerous  and  as  yet  unclarified  situation. 


United  Nations  Documentation 

To  give  a  more  complete  picture  of  the  work  of 
the  United  Nations,  including  the  present  sessions 
of  the  Security  Council  and  other  bodies,  and  to 
supply  convenient  reference,  the  Bulletin  prints 
certain  available  documents.  The  Statement  by 
the  Delegations  of  the  Four  Sponsoring  Govern- 
ments on  Voting  Procedure  in  the  Security  Council 
of  June  7,  1945  as  reprinted  in  the  Bulletin  of 
May  19,  1946,  p.  851,  was  first  announced  in  San 
Francisco  as  Document  852,  III/1/37  (1),  dated 
June  8,  1945  (See  Bulletin  of  June  10,  1945, 
p.  1047)  and  is  also  Security  Council  Document 
S/Procedure/79  May  4,  1946. 

987 


988 


DEPARTMENT  OF  STATE  BULLETIN 


International  Trade  Conference 

ANNOUNCEMENT  BY  THE  SECRETARY-GENERAL 


Mr.  President  and  Members  or  the  Economic  and 
Social  Council  : 

The  Economic  and  Social  Council  approved  a 
Resolution  on  18  February  1946,  concerning  the 
calling  of  an  International  Conference  on  Trade 
and  Employment. 

As  you  know,  paragraph  1  of  this  Resolution 
stated  that  the  Conference  would  be  called  in  the 
latter  part  of  1940.  Paragraph  2  concerned  the 
constitution  of  a  Preparatory  Committee  to  elabo- 
rate an  annotated  draft  agenda,  including  a  draft 
Convention,  for  consideration  by  the  Conference. 
Finally,  paragraph  5  requested  the  Preparatory 
Committee  to  report  to  a  subsequent  session  of  the 
Council  recommendations  regarding  the  date  and 


place  of  the  Conference,  as  well  as  other  important 
points. 

In  view  of  the  scope  and  complexity  of  the  pre- 
paratory work  which  will  be  necessary  before  the 
International  Conference  on  Trade  and  Employ- 
ment can  be  held,  it  will  not  be  possible  to  hold  the 
Conference  until  next  year.  A  decision  must,  how- 
ever, be  taken  now  in  connection  with  the  calling 
together  of  the  Preparatory  Committee;  I  have, 
therefore,  the  honor  to  announce  that  arrangements 
are  being  made  for  the  Preparatory  Committee  of 
the  Conference  on  Trade  and  Employment  to  meet 
in  London  on  the  15th  of  October  next,  so  that  a 
further  constructive  step  may  be  taken  towards 
freeing  the  productive  forces  of  the  world. 


Resignation  of  Edward  R.  Stettinius,  Jr.,  as 
U.  S.  Representative  to  U.  N. 

EXCHANGE  OF  LETTERS  BETWEEN  MR.  STETTINIUS  AND  THE  PRESIDENT 


[Released  to  the  press  by  the  White  House  May  31] 

Dear  Mr.  President  : 

The  day  after  Mr.  Roosevelt's  funeral,  a  little 
more  than  a  year  ago,  when  I  submitted  my  resig- 
nation as  Secretary  of  State,  you  asked  me  to  carry 
on  for  a  time  longer.  The  San  Francisco  Confer- 
ence to  write  a  Charter  for  the  United  Nations  was 
then  less  than  two  weeks  away.  President  Roose- 
velt, under  whom  I  had  been  privileged  to  serve, 
was  gone.  Secretary  Hull,  that  great  statesman, 
was  ill.  I  felt  that  it  was  my  obligation  to  do  all 
within  my  power  to  carry  the  San  Francisco  Con- 
ference through  to  a  successful  conclusion.  I  ac- 
cepted your  assignment. 

Nine  weeks  later  I  talked  with  you  again  at  the 
Fairmont  Hotel  in  San  Francisco.  The  Charter 
had  been  completed  and  agreed  upon  unanimously 
by  all  the  60  countries  represented. 

'  Made  to  the  Ecouomic  and  Social  Council  on  May  28 
and  released  to  tlie  press  by  the  United  Nations  on  the 
same  date. 


I  liad  entered  government  service  at  the  begin- 
ning of  the  war  emergency  in  May,  1940,  at  Mr. 
Roosevelt's  request,  with  the  purpose  of  remaining 
in  the  service  of  my  Government  only  as  long  as 
I  might  be  needed  during  the  period  of  the  war. 
At  San  Francisco,  I  told  you  this. 

You  accej^ted  my  resignation  as  Secretary  of 
State,  but  you  asked  me  to  accept  appointment  as 
United  States  Representative  to  the  United  Na- 
tions. You  asked  me  specifically  to  take  charge 
of  the  Administration's  case  for  ratification  of  the 
Charter  by  the  United  States  Senate ;  to  represent 
the  United  States  in  the  Preparatory  Commission 
at  London ;  to  be  chairman  of  the  United  States 
delegation  to  the  first  Assembly;  to  serve  on  the 
Security  Council  and  to  organize  the  United  States 
representation  to  the  United  Nations.  You  asked 
that  I  carry  on  with  the  United  Nations  until  the 
institution  was  a  going  enterprise. 

I  have  now  completed  what  you  asked  me  to  do. 
The  Charter  was  overwhelmingly  approved  liy  the 


JUNE  9,  1946 


989 


United  States  Senate  and  ratified  by  every  other 
count  r jr.  The  fii-st  Assembly  has  completed  its 
organizational  meeting  and  the  various  councils 
and  commissions  of  the  United  Nations  are  at 
work.  The  Organization  is  functioning  at  its  in- 
terim headquarters  and  the  permanent  United 
States  delegation  is  established. 

The  ship  whose  keel  was  laid  at  Dumbarton 
Oaks  and  launched  at  San  Francisco  lias  put  to 
sea — fully  equipped  and  manned. 

Having  now  completed  what  you  asked  me  to 
do,  I  believe  that  the  time  has  arrived  when  I  can 
rightfully  ask  you  to  accept  my  resignation  as 
United  States  Kepresentative  to  the  United 
Nations,  to  take  effect  as  early  as  circumstances 
permit. 

As  I  submit  iny  resignation  I  want  you  to  know 
how  deeply  I  appi'eciate  tlie  opportunities  you 
have  given  me  for  service  in  tlie  cause  of  peace. 

You  may  be  sure  that  my  faith  in  the  United 
Nations  and  my  devotion  to  the  cause  it  represents 
will  always  remain  uppermost  in  my  heart  and 
mind. 

With  kindest  personal  regards  and  best  wishes, 
I  am, 

Yours  faithfully, 

Edward  K.  Stettinius,  Jr. 

[Releaspd  to  the  press  by  the  White  House  June  3] 

Dear  Ed  : 

When  I  received  your  letter  of  resignation  a  few 
days  ago  I  stated  that  I  did  not  want  to  accept  it 
and  hoped  that  I  might  persuade  you  to  remain  in 
office. 

This  morning  when  you  reminded  me  of  my 
statement  that  I  would  relieve  you  after  the  United 
Nations  organization  was  establislied  and  func- 
tioning I  still  hoped  that  I  might  induce  you  to 
withdraw  your  resignation.  Only  because  of  your 
earnest  insistence  have  I  decided  to  comply  with 
your  request  and  accept  your  resignation. 

In  doing  so  I  wish  to  express  to  you  my  sincere 
appreciation  of  your  cooperation  and  of  your 
splendid  service.  As  Under  Secretary  and  later 
as  Secretary  of  State  you  made  a  valuable  contri- 
bution to  the  United  Nations,  serving  at  Dum- 


barton Oaks  and  San  Francisco.  In  the  Security 
Council  you  have  represented  our  Govei-nment  in 
a  manner  reflecting  credit  upon  yourself  and  upon 
the  United  States. 

I  accejjt  without  question  the  statements  in  your 
letter  as  to  the  reasons  for  your  wishing  to  resign 
at  tliis  time  and  wish  you  good  fortune  in  what- 
ever you  may  determine  to  do. 
Sincerely  yours, 

Harry  S.  Truman 

GERMAN  DOCUMENTS— Conrjnwed  from  page  986. 
Urgent.  State  Secret.  For  the  Minister  person- 
ally. 
In  connectif)n  with  the  forthcoming  visit  of 
Field  Marshal  Keitel  to  Budapest,  at  which  the 
details  with  regard  to  the  participation  of  the 
Hungarian  Army  in  the  eastern  campaign  will  be 
settled  between  the  German  and  the  Hungarian 
military  authorities,  I  note  for  your  information 
that  I,  personally,  have  informed  Field  Marshal 
Keitel  here  about  the  course  of  my  conversations 
in  Hungary.  As  is  known  to  you,  these  conver- 
sations led  to  the  result  that  the  Hungarian  Gov- 
erimient  declared  that  their  forces  could  not  par- 
ticipate fully  100  percent  in  the  eastern  campaign, 
but  that  in  their  participation  they  wanted  to  go 
to  the  limit  of  their  capabilities.  I  took  this 
promise  to  mean  that,  in  any  case,  there  could  be 
counted  on  the  participation  of  two  thirds  of  the 
Himgarian  forces  in  the  eastern  campaign  and 
Field  Marshal  Keitel  will  carry  on  his  own  con- 
ferences tliere  proceeding  on  the  same  assumption. 
In  case,  in  course  of  the  conversations,  the  necessity 
arises  for  reenforcing  the  efforts  of  Field  Marshal 
Keitel  from  the  political  side  by  a  new  presenta- 
tion of  the  matter  to  the  Minister  President,  I  re- 
quest you  take  the  necessary  steps.  If  necessary, 
I  request  that  you  let  me  know  by  telephone  or 
telegraph  whether  it  seems  desirable  to  you  that 
I  should  enter  once  more  into  the  conferences,  in 
which  case  I  would  then  request  you  on  my  direct 
orders,  to  obtain  assurances  from  the  head  of  the 
govei-nment  concerning  the  pledges  given  to  me. 

RiBBENTROP 


696662—46-^ 


International  Organizations  and  Conferences 


Calendar 


of  Meetings 


Council  of  Foreign  Ministers: 
Meeting  of  Foreign  Ministers 

Meeting  of  Deputies 
Far  Eastern  Commission 
Allied-Swiss  Negotiations  for  Gorman  External  Assets 

PICAO  : 

European  and  Mediterranean  Air  Route  Services  C'ln- 

ference 
Meeting  of  the  First  Annual  Assembly 

Allied-Swedish  Negotiations  for  German  External  Assets 

Inter-American  Conference  of  Experts  on  Copyright 

ILO:  28th  (Maritime)  Session  of  the  International  Labor 
Conference 

The  United  Nations : 
Security  Council 
Military  Staff  Committee 

Special  Connnittee  on  Refugees  and  Displaced  I'ersons 
Commissions  of  the  Economic  and  Social  Council 
Economic  and  Social  Council 
Commission  on  Atomic  Energy 
International  Health  Conference 
General  Assembly:  Second  I'art  of  First  Session 


I'aris 

I'aris 

Washington 

Washington 

I'aris 

Jlontreal 
Washington 
Washington 
Seattle 


New  York 
New  York 
London 
New  Y'ork 
New  York 
New  York 
New  York 
New  York 


April   2") — ad.iduriied   on    May 

16  until  June  To 
May  27 

February  20 

Marcli  IS 

April  24 

.May  21 
.May  31 
June  1 
.Time  G 


.March  2.5 
March  25 
April  8 
April  29 
Jlay  25 
June  14 
June  19 
September  3 


The  dates  in  the  calendar  are  as  of  June  2. 


Activities  and  Developments 


I.  The    Far    Eastern    Commission    on   IMay   2!) 

itnaniiiioiisly  approved  a  policy  .'-statement  with 
resi)ect  to  the  ball-  and  roller-beaiino:  industry 
which  will  form  part  of  tlie  over-all  Interim  Repa- 
rations Removals  Program  for  Japan.  ( Text  not 
printed.)  This  policy  supplements  the  policy 
statements  which  the  Commission  approved  and 
released  to  the  press.  The  Commission  has  now 
approved  ])o]icy  statements  on  seven  of  the  ten  in- 
dustries covered  by  the  Patdey  Report  on  an  in- 
terim removals  program. 

II.  The  Commission  today  approved  a  paper  en- 
titled "Standard  Procedures  for  Formal  Commis- 
sion Action",  which  further  perfects  the  internal 


organization  of  the  Commission's  affairs.  The  pa- 
per describes  the  principal  formal  actions  of  the 
Commission  as  (17)  Policy  Decisions  provided  for 
in  ])aragraph  II,  A,  1,  of  the  Terms  of  Reference, 
and  (h)  Formal  Requests  to  the  Chairman  of  the 
Commission  for  consultation  with  the  Supreme 
Commander  for  the  Allied  Powers,  provided  for 
in  paragraph  VI,  1.  of  the  Terms  of  Reference. 
The  paper  then  describes  proper  form  and  style 
as  a  guide  to  the  Secretariat  and  the  various  com- 
mittees of  the  Commission  in  the  preparation  of 
documents  of  these  types. 

III.  Sometime  ago  the  Far  Eastern  Commission 
requested  considtation   with  the  Supreme  Com- 


990 


]U^E  9.  194h 


991 


inaiuler  for  the  Allied  Powers  with  respect  to  pro- 
cedures for  the  adoption  of  a  Japanese  Constitu- 
tion.    (Text  enclosed.) 

The  Chairman  on  May  2!)  reported  to  the  Com- 
mission that  he  iiad  received  the  following  from 
the  Department  of  State: 

■"The  retjuest  of  the  Far  Eastern  Connnission 
that  (leneral  MacArthur  send  to  Washington  a 
start'  officer  to  confer  with  the  Commission  on  the 
matter  of  Japanese  constitutional  ref(jrm  con- 
tained ill  your  letter  of  April  12,  1946,  has  been 
referred  to  the  Supreme  Commander  and  a  reply 
has  now  been  received  from  General  MacArthnr 
in  which  he  states  that  he  is  in  full  agreement  with 
tiie  need  for  a  closer  working  arrangement,  and 
understanding  between  SCAP  and  tlie  Commis- 
sion and  stands  ready  to  do  everything  in  his 
power  to  further  this  end.  He  states,  however, 
that  it  is  imi)ossible  for  him  to  send  an  officer  to 
act  as  his  de])uty  in  the  broad  matters  involving 
constitutional  reform,  as  he  has  given  his  personal 
attention  to  this  question  and  there  is  no  officer  in 
a  position  to  express  in  detail  his  views.  Further- 
more, due  to  the  rapid  demobilization  of  officer 
personnel,  the  release  of  a  key  officer  for  this  pur- 
pose could  iKjt  be  effected  without  impairment  to 
the  Command.  He  also  adds  tlnit  the  situation  in 
Japaiiis  a  fluid  one,  necessitating  constant  on-the- 
ground  observation  to  permit  a  comprehensive 
understanding  of  it  from  day  to  day."' 

The  Commission  referred  tlie  reply  to  Commit- 
tee No.  3  for  consideration  and  icport  at  the  next 
meeting  of  the  Commission. 

The  Chairman  informed  the  Commission  that 
he  was  engaged  in  completing  arrangements 
whereby  there  might  be  closer  liaison  between  the 
Connnission  and  the  Supreme  Commander,  who 
had  agreed  that  a  closer  working  arrangement  and 
niiderstaiidiiig  was  desirable. 

1  Enclosure,  extract  | 

Consultation  With  the  Supreme  Commander 
for  the  Allied  Powers  on  Procedures  for 
the  Adoption  of  a  Japanese  Constitution 

1.  The  Far  Elastern  Commission  has  a  responsi- 
bility to  ensure  that  any  new  Japanese  Constitu- 
tion conforms  to  the  principles  of  the  Pofsdam 
Declaration.  The  Commission  has  under  consider- 
ation a  draft  of  a  set  of  principles  by  which  any 
in-oposed  Constitution  should  be  judged  in  tiie 


light  of  the  Potsdam  Declaration.  To  discharge 
appropriately  its  duties  in  tliis  respect,  the  Far 
Eastern  Commission  is  concerned,  however,  not 
only  with  the  actual  content  of  a  Constitution, 
finally  adopted  by  the  Japanese  people,  but  also 
with  the  method  and  machinery  by  which  the  Con- 
stitution is  adopted  in  order  to  ensure  that  the 
Constitution  embodies  the  "freely  expressed  will 
of  the  Japanese  jjeople".  The  Commission  is  also 
of  the  opinion  that  sufficient  time  should  be  allowed 
for  the  mature  consideration  of  all  these  constitu- 
tional problems  by  as  wide  a  section  of  the  Japa- 
nese peojDle  as  possible. 

2.  In  the  meantime,  the  Conmiission  believes 
that  as  regards  the  method,  machinery,  and  i^ro- 
cedure  for  the  adoption  of  a  new  Constitution, 
there  are  many  different  paths  by  which  the  basic 
objective  of  a  democratic  Constitution  embodying 
the  will  of  the  Japanese  people  could  be  reached. 
Accordingly,  the  Commission  considers  that  it  is 
most  important  that  it  should  be  kept  informed  of 
the  plans  of  the  Japanese  Government  in  this  re- 
spect, and  of  the  hopes  and  ideas  of  the  Japanese 
people  as  voiced  by  individuals  or  associations, 
in  the  press,  or  in  public  discussion. 

3.  It  is  not  an  easy  matter  f(n-  the  Commission 
to  formulate  exactly  the  specific  inf oi-mation  which 
it  requires,  because  the  Commission  lacks  much 
of  the  necessary  knowledge  of  current  develop- 
ments and  plans  of  the  Japanese  Government.  In 
order  to  assist  the  Supreme  Commander  for  the 
Allied  Powers  to  appreciate  the  scope  of  the  in- 
formation desired,  the  following  are  some  in- 
stances of  matters  upon  whicli  the  Commission 
would  like  to  l)e  informed  : 

a.  To  what  extent  and  in  wliat  manner  have 
other  drafts  of  constitutions  been  brt)Ught  to  the 
knowledge  of  the  Japanese  people  and  how  have 
they  been  discussed? 

h.  What  evidence  have  the  Japanese  people 
shown  of  applying  democratic  principles  in  con- 
sidering a  new  proposed  Constitution? 

c.  In  what  manner  have  the  Japanese  people 
been  encouraged  to  abolish  the  Imperial  institution 
or  to  reform  it  along  more  democratic  lines  ? 

d.  Ave  the  various  methods  for  adoption  of  a 
new  Constitution  being  discussed  irrespective  of 
the  limitations  imposed  by  Article  73,  of  the  Con- 
stitution of  1889?  In  particular,  and  only  by  way 
of  example,  are  the  following  possible  methods 
of  adoption  being  considered : 


992 


DEPARTMENT  OF  STATE  BULLETIN 


(1)  By  the  Diet, 

(2)  By  constitutional  convention, 

(3)  By  plebiscite? 

4.  For  these  reasons  the  Far  Eastern  Commis- 
sion requests  its  Chairman  to  ask  the  Supreme 
Commander  to  send  a  member  of  his  staff  to  Wash- 
ington to  inform  the  Commission  on  the  plans  of 
the  Japanese  Government  for  the  adoption  of  a 
Constitution,  and  also  to  discuss  with  the  Com- 
mission board  questions  relating  to  a  new  Consti- 
tution for  Japan.  The  Commission  would  also 
profit  greatly  if  the  deputed  officer  were  also  in 
a  position  to  communicate  to  it  the  Supreme  Com- 
mander's own  views  on  these  matters. 

Allied-Swedish  Negotiations  for  German  Ex- 
ternal Assets : ' 

Negotiations  on  the  disposition  of  German  assets 
in  Sweden  and  related  problems  were  convened  at 
10:  30  a.m.  on  May  31  in  the  Department  of  State 
between  Delegations  of  the  United  States,  the 
United  Kingdom,  and  France,  and  the  Delegation 
of  the  Royal  Swedish  Government. 

William  Clayton,  Assistant  Secretary  of  State, 
welcomed  the  Swedish  Delegation  and  introduced 
S.  J.  Rubin  as  Chief  Negotiator  for  the  United 
States.  Mr.  Rubin  has  recently  been  appointed  bj' 
the  President  as  the  United  States  Representative 
to  conduct  these  negotiations. 

The  Swedish  Delegation  is  headed  by  Justice 
Emil  Sandstrom.  Other  members  of  the  Delega- 
tion are :  Tage  Gronwall  of  the  Swedish  Foreign 
Office  and  Leif  de  Belfrage,  Commercial  Counselor 
of  the  Swedish  Legation  in  Washington. 

The  British  and  Frencli  Delegations  are  headed 
by  F.  W.  McCombe  (U.K.)  and  Christian  Valensi, 
Financial  Counselor  of  the  French  Embassy  in 
AVasliington. 

Additional  discussions  will  be  lield  beginning 
Monday,  June  3. 

Inter-American  Copyright  Conference 

The  U.  S.  Delegation  to  the  Inter- American 
Conference  of  Experts  on  Copyright,^  which  was 
approved  by  the  President,  was  announced  liy  tlie 
Secretary  of  State  on  May  29. 

'  Released  to  the  press  May  31. 
^  Released  to  tlie  press  May  29. 

'Released  to  tlie  press  by  the  Pan  Anieritan  Union 
May  31. 


Delegate: 

Luther  H.  Evans,  Librarian  of  Congress. 

Advisers: 

Richard  C.  de  Wolf,  Former  Assistant  Register  of  Copy- 
right, Library  of  Congress. 

Waldo  Lelaud,  Director,  American  Council  of  Learned 
Societies. 

William  Sanders,  Associate  Chief,  Division  of  Interna- 
tional Organization  Affairs,  Department  of  State. 

Sam  Ba.ss  Warner,  Register  of  Copyrights,  Library  of 
Congress. 

S/iccial  Assistants: 

Charles  I.  Bevans,  Assistant  Clilef,  Treaty  Bramh,  Divi- 
.slon  of  Research  and  Publication,  Department  of 
State. 

James  L.  Brown,  Legal  Adviser  to  the  Bureau  of  For- 
eign and  Domestic  Commerce,  Department  of  Com- 
merce. 

Harry  Warfel,  Acting  Assistant  Chief,  Division  of  In- 
ternational Exchange  of  Persons,  Department  of  State. 

Simon  N.  Wilson,  Division  of  Research  for  American 
Republics,  Department  of  State. 

The  members  of  the  United  States  Delegation 
will  have  the  benefit  of  the  advice  and  counsel  of 
the  following  representatives  of  national  organiza- 
tions interested  in  copyright  problems  who  will 
serve  as  consultants  to  the  Delegation : 

Herman  Finkelstein,  Resident  Counsel  of  ASCAP,  New 
York,  N.  Y. 

Sidney  Fleisher,  Legal  Counsel,  Authors'  League,  New 
York,  N.  Y. 

Justin  Miller,  President  of  the  National  Association  of 
Broadcasters,  Washington,  D.  0. 

Edward  A.  Sargoy,  Chairman  of  the  Section  of  Patent, 
Trade-mark,  and  Copyright  Laws  of  the  American  Bar 
Association,  New  York,  N.  Y. 

Benjamin  H.  Stern,  Counsel  for  Book  Publishers"  Asso- 
ciation, New  York,  N.  Y. 

The  United  States  was  invited  to  be  represented 
at  the  forthcoming  Conference  by  tlie  Pan  Ameri- 
can Union.  The  object  of  the  Conference  is  to 
improve  the  inter-American  copyright  system  by 
means  of  a  new  or  revised  multilateral  convention. 

Copyright  experts  ^  from  all  countries  of  the 
Western  Hemisphere  will  assemble  on  June  1  at 
the  Pan  American  Union  for  the  opening  session 
of  the  Inter-American  Conference  of  Experts  on 
Copyright. 

Tlie  primary  purpose  of  this  meeting  is  to  study 
and  I'eview  all  previously  existing  multilateral 
agreements  in  an  effort  to  draw  up  a  more  gen- 
erally comj^rehensive  document  which  will  then 
be  submitted  to  the  governments  of  the  21  repub- 
lics for  ratification. 


JUNE  9,  1946 


993 


Many  efforts  have  been  made  to  bring  about 
a  uniform  system  for  the  protection  of  intellec- 
tual works  in  the  Americas,  but  because  of  the 
complexity  of  the  problems  progress  has  been  slow 
and  inadequate.  The  great  number  of  existing 
agi-cements  and  the  different  points  of  view  in- 
volved can  be  harmonized  only  by  free  discussion 
at  a  special  conference  of  experts  on  the  subject, 
and  it  was  in  i-ecognition  of  this  fact  that  the 
Eighth  International  Conference  of  American 
States  in  1938  proposed  the  present  meeting.  It 
has  been  delayed  until  the  present  by  the  war  and 
transportation  difficulties. 

This  Conference,  during  the  course  of  which 
the  delegates  will  make  a  thorough  study  of  copy- 
right as  it  affects  all  fields  of  intellectual  endeavor, 
is  the  culmination  of  many  years  of  preparatory 
work. 

Assistant  Secretary  of  State  Clayton  will  ad- 
dress the  delegates  on  June  1. 

ILO:  2Sth  (Maritime)  Session  of  the  Interna- 
tional Labor  Conference  :^  The  President  on  May 
'29  approved  the  designation  of  those  whose  names 
appear  on  the  following  list  as  members  of  the 
United  States  Delegation  to  the  Twenty-eighth 
(Maritime)  Session  of  the  International  Labor 
Office,  which  is  scheduled  to  convene  at  Seattle, 
Washington,  on  June  6,  1946. 

The  Twenty-eighth  Session  of  the  International 
Labor  Office  will  be  devoted  entirely  to  the  con- 
sideration of  matters  pertaining  to  social  policy 
in  the  maritime  industry.  The  groundwork  for 
this  Conference  was  laid  by  the  Maritime  Prepar- 
atory Technical  Conference  at  Copenhagen,  No- 
vember-December, 1915.  Among  the  major  items 
of  social  policy  pertaining  to  seafarers  to  be  con- 
sidered at  Seattle  will  be  the  question  of  establish- 
ing an  international  minimum-wage  standard. 
Other  topics  which  will  receive  consideration  are : 
the  problem  of  hours,  of  working  standards,  of 
manning  procedures,  crew  accommodations,  holi- 
days with  pay,  continuation  of  employment,  food 
and  catering  on  board,  and  social  security  for  sea- 
farers. The  agenda  planned  for  the  Conference 
will  entail  entry,  training,  and  promotion  as  well 
as  recognition  of  seafarers  organizations. 

Representing  the  Government  of  the  United  States 
Delegates: 

Lewis  B.  Scliwellenbacli,  Secretary  of  Labor. 

'  Released  to  the  press  b.y  the  White  House  May  29. 


Henry  M.  Jackson,  Member  of  the  Marine  and  Fisheries 
Committee,  House  of  Representatives. 

Special  Assistant  to  the  U.  S.  Govkenment  Dei-eoates 

John  L.  Salter,  Technical  Expert,  Marine  and  Fisheries 
Committee,  House  of  Representatives. 

Advisers: 

Clara  M.  Beyer,  Assistant  Director,  Division  of  Labor 
Standards,  Department  of  Labor. 

Wilbur  J.  Cohen,  Technical  Adviser  to  the  Social  Secu- 
rity Board. 

Substitute: 

Ida  C.  Merriam,  Chief,  Division  of  Coordination 
Studies,  Bureau  of  Research  and  Statistics,  Social 
Security  Board. 

L.  James  Falck,  Assistant  Chief,  Shipping  Division, 
Department  of  State. 

Thomas  W.  Holland,  Associate  Chief,  Division  of  Inter- 
national Labor,  Social  and  Health  Affairs,  Depart- 
ment of  State. 

Capt.  H.  T.  Jewell,  Chief,  Merchant  Marine  Personnel 
Division,  U.  S.  Coast  Gnard. 

Dagny  Johnson,  Office  of  the  Solicitor,  Department  of 
Labor. 

William  K.  McComb,  Deputy  Administrator,  Wage-Hour 
&  Public  Contracts  Division,  Department  of  Labor. 

Erich  Nielson,  Special  Assistant  to  the  United  States 
Maritime  Commission. 

Capt.  Mortimer  K.  O'SuUivan,  Joint  Crews'  Quarters 
Committee,  Maritime  Commission- War  Shipping  Ad- 
ministration. 

Harold  S.  Roberts,  Assistant  Cliief,  Industrial  Relations 
Branch,  Bureau  of  Labor  Standards,  Department  of 
Labor. 

Charles  W.  Sanders,  Special  Assistant  to  the  Adminis- 
trator, War  Shipping  Administration. 

Comdr.  Paul  N.  Savonis,  U.S.N.R.,  U.  S".  Coast  Guard. 

Commodore  H.  C.  Shepheard,  Special  Assistant  to  the 
Commandant,  U.  S.  Coast  Guard. 

Richard  J.  Welch,  Member  of  tlie  Merchant  Marine  and 
Fisheries  Committee,  House  of  Representatives. 

Reipresenting  the  Employers  of  the  United  States 

Delegate: 

Maitland  S.  Pennington,  Vice  President,  National  Fed- 
eration of  American  Shipping,  Washington,  D.  C. 

Advisers: 

Oliver  Burnham,  Lake  Carriers'  Association,  Cleveland, 
Ohio. 

J.  B.  Bryan,  President,  Pacific  American  Steamship  Com- 
pany, San  Francisco,  Calif. 

Hugli  Gallagher,  Vice  President,  Matson  Navigation  Com- 
pany, San  Francisco,  Calif. 

Joseph  A.  Gibson,  Lukenbach  Steamsliip  Company,  New 
York,  N.  Y. 

Gilbert  Johnson,  General  Counsel,  Lake  Carriers'  Asso- 
ciation, Cleveland,  Ohio. 

{Continued  on  page  lOOS) 


Agreements  on  Economic  and  Financial  Problems  Reached 
by  U.  S.  and  Provisional  French  Governments 


[Keleased  to  the  press  May  28] 

The  representatives  of  the  Government  of  the 
United  States  of  America  and  the  Provisional 
Government  of  the  French  Republic  on  May  28 
concluded  their  discussions  of  the  economic  and 
financial  problems  of  interest  to  their  respective 
countries. 

Texts  of  the  agreements  reached  follow : 

1.  A  joint  declaration  by  the  President  of  the 
United  States  and  the  President  of  the  Provisional 
Government  of  the  French  Republic. 

DECLARATION  MADE  IN  WASHINGTON  BY 
AND  IN  PARIS  BY  THE  PRESIDENT  OF 
FRENCH  REPUBLIC  ON  MAY  28,   1946 

The  two  Governments  have  reached  complete 
agreement  for  the  final  settlement  of  all  lend-lease 
and  recii)rocal  aid,  including  military  and  civilian 
supplies  furnished  by  each  Government  to  the 
other.  They  have  also  agieed  on  the  acquisition 
of  United  States  army  and  navy  surjjlus  property 
located  in  France  and  certain  French  overseas 
territories.  Under  this  Agi'eement.  credits  of  $720 
million  have  been  provided  for  the  purchase  of 
surplus  property  and  for  goods  supplied  to  France 
since  the  end  of  the  war. 

Discussions  are  taking  place  for  an  additional 
credit,  subject  to  the  provisions  of  the  Merchant 
Ship  Sales  Act  of  1940.  whereby  France  will  ac- 
quire approximately  750,00(1  tons  of  merchant 
shipping  owned  by  the  Government  of  the  TJnited 
States. 

The  two  Governments  believe  that  the  results 
of  the  discussions  which  have  now  been  concluded 
will  help  France  in  reconstructing  and  moderniz- 
ing the  French  economy  and  are  a  substantial  step 
towards  the  achievement  of  the  international  eco- 
nomic cooperation  which  is  the  prerequisite  of  a 


2.  A  joint  declaration  on  commercial  policy  and 
related  nuitters. 

3.  A  memorandum  of  understanding  regarding 
the  settlement  of  lend-lease,  reciprocal  aid,  surplus 
war  property,  and  financiid  claims  arising  out  of 
the  conduct  of  the  war. 

4.  Understanding  of  the  Govermnent  of  the 
United  States  of  America  and  the  Provisional 
Government  of  the  French  Republic  with  respect 
to  the  exhibition  of  American  motion  pictures  in 
France. 

THE  PRESIDENT  OF  THE  UNITED  STATES 
THE   PROVISIONAL  GOVERNMENT  OF  THE 

peaceful  and  prosperous  world.  They  welcome  the 
support  of  all  of  the  United  Nations  in  establish- 
ing a  world  trading  and  monetary  system  wliicli 
will  assure  a  full  fiow  of  commerce  to  the  benefit 
of  the  peoples  of  all  countries. 

Eejj resent atives  of  the  Govermnent  of  the 
United  States  and  the  Provisional  Government 
of  the  French  Republic  have  met  together  in  Wash- 
ington and  have  discussed  important  economic 
and  fimincial  problems  of  common  interest.  These 
problems  have  included  the  need  for  foreign 
credits  for  reconstructing  and  modernizing  the 
French  economy,  the  settlement  of  lend-lease,  re- 
ciprocal aid  and  other  war  accounts,  the  purchase 
of  United  States  surplus  property  situated  in 
France  and  certain  French  overseas  territories,  the 
purchase  of  ships  owned  by  the  United  States,  and 
international  commercial  policj'. 

The  discussions  have  brought  out  clearly  the 
full  agreement  of  the  two  Governments  on  co- 
operation in  the  fulfillment  of  the  economic  objec- 
tives which  both  Governments  recognize  as  essen- 


994 


J  LINE  V,  1946 


995 


t  i.il  III  world  peiice  and  proHperity.  Tlu>  well-bciiiji' 
of  the  people  of  all  nations  can  be  advanced 
through  a  full  flow  of  trade  which  enables  each 
country  to  maintain  higher  levels  of  production 
and  better  standards  of  living.  These  benefits  of 
woild  trade  can  be  realized  only  as  the  markets 
of  the  world  are  opened  to  all  countries  on  fair  and 
equal  terms.  The  twt)  Governments  are  deter- 
mined to  work  together  in  securing  general  inter- 
national acceptance  of  the  world  trade  proposals 
of  the  TTnited  States  to  be  considered  by  a  confer- 
ence of  the  United  Nations. 

The  reconstruction  and  modernization  of  the 
French  economy  will  facilitate  the  integration  of 
Europe  in  the  world  economy  and  enable  France 
to  resume  her  place  as  a  great  producing  and  trad- 
ing nation.  The  French  Delegation  has  presented 
a  program  for  reconstructing  and  modernizing 
the  ectjnomy  of  France.  The  innnediate  objective 
is  to  restore  French  production  to  the  pre-war 
level ;  the  ultimate  objective  is  to  expand  French 
production  to  higher  levels  connntiisurate  with  the 


technical  progress  of  the  ])ast  two  decades.  One 
requisite  for  the  fulfillment  of  this  program  is  an 
adecjuate  and  assured  supply  of  coal,  not  only  from 
increased  French  production,  but  also  from  im- 
ports of  German  coal.  The  United  States  Govern- 
ment will  continue  to  assist  France  in  securing  an 
adequate  supply  of  coal  from  Germany. 

In  the  opinion  of  the  American  representatives, 
attainment  of  the  objectives  of  increased  produc- 
tion and  trade  presented  by  the  French  Delegation 
is  necessary  to  the  full  and  eifective  participation 
of  France  in  the  world  economy.  In  furtherance 
of  the  efforts  of  the  French  people  to  this  end,  the 
United  States  lias  agreed  to  the  extension  of  addi- 
tional ci'edits  to  France. 

At  the  end  of  1945  the  Export-Import  Bank 
made  a  loan  of  $550  million  to  France.  The  Board 
of  Directors  of  the  Export-Import  Bank  have  now 
approved  a  new  line  of  credit  of  $fi5(J  million. 
This  action  has  been  taken  pending  the  time  when 
the  International  Bank  for  Reconstruction  and 
Development  will  be  in  full  operation. 


DECLARATION  BY  THE  GOVERNMENT  OF  THE  UNITED  STATES  OF  AMERICA  AND  THE 
PROVISIONAL  GOVERNMENT  OF  THE  FRENCH  REPUBLIC  ON  COMMERCIAL  POLICY 
AND  RELATED  MATTERS 


The  Government  of  the  United  States  of  Amer- 
ica and  the  Provisional  Government  of  the  French 
Republic,  having  concluded  comprehensive  discus- 
sions on  connnercial  policy  and  related  matters, 
find  themselves  in  full  agreement  on  the  general 
principles  which  they  desire  to  .see  established  to 
achieve  the  liberation  and  exj)ansi()n  of  interna- 
tional trade,  which  they  deem  to  be  essential  to 
the  realization  of  world-wide  prosperity  and  last- 
ing peace. 

The  French  Government  has  made  known  to  the 
United  States  Government  the  measures  which  it 
has  taken  and  intends  to  take  to  make  ])ossible  the 
attainment  of  this  common  objective.  The  French 
Government  has  also  made  known  to  the  United 
States  Government  its  plan  for  the  reconstruction 
and  modernization  of  the  French  economy.  In  ac- 
cordance with  the  letters  exchanged  on  November 
8.  1045.  the  two  Governments  have  examined  this 
plan  and  have  agreed  that  the  attainment  of  its 
objectives  should  make  possible  full  participation 
by  France  in  the  cooperative  achievement  of  an 
expanding  world  econom}^ 

The  two  Govermnents  have  studied  the  problems 
involved  in  the  construction  of  a  general  frame- 


work for  world  trade  anf!  have  also  examined  a 
lunnber  of  specific  questions  relating  to  connner- 
cial policy  and  other  matters  wdiich  are  of  interest 
to  themselves  and  to  other  countries.  The 
following  joint  statement  liy  the  two  Governments 
summarizes  the  understandings  reached  in  these 
discussions. 

I 
The  two  Governments  are  in  complete  agree- 
ment, at  all  important  points,  on  the  principles 
expressed  in  the  "Proposals  for  Consideration  by 
an  International  Conference  on  Trade  and  Em- 
]doyment"  submitted  to  the  French  Government 
by  the  Government  of  the  United  States.  They 
have  therefore  resolved  to  continue  discussions 
between  themselves  and  with  other  like-minded 
countries  in  order  to  give  effect  to  these  principles 
in  the  Charter  of  the  proposed  International  Trade 
Organization.  The  two  Governments  are  of  the 
opinion  that  the  prior  conclusion  of  agreements 
among  the  major  trading  nations  of  the  world  for 
the  substantial  reduction  of  tariffs  and  other  bar- 
riers to  trade  and  for  the  removal  of  discrimina- 
tory arrangements  would  contribute  greatly  to  the 
success  of  the  World  Conference. 


996 


DEPARTMENT  OF  STATE  BULLETIN 


II 

The  French  Government  has  advised  the  United 
Stales  Government  of  the  following  policies : 

(a)  A  new  French  tariff  is  being  prepared  which 
will  contain  ad  valorem  duties  only  and  which  will 
not  increase  the  degree  of  protection  over  the  level 
which  existed  prior  to  the  war.  This  new  tariff 
will  serve  as  the  level  from  which  i-eciprocal  reduc- 
tions will  be  negotiated  in  the  forthcoming  multi- 
lateral conference. 

(b)  France  has  definitely  abandoned  its  pre-war 
policy  of  protecting  French  producers  with  import 
quotas. 

(c)  The  French  Government  has  reiterated  that 
it  has  abandoned  the  price  equalization  (perequa- 
tion)  procedure  which  it  was  compelled  to  use  pro- 
visionally during  the  period  prior  to  the  revalua- 
tion of  the  franc  in  o/  der  to  facilitate  exports. 

Ill 

The  French  Government  has  made  clear  that  it 
must  maintain  import  controls  within  the  frame- 
work of  an  impoi't  program  but  that  it  will  main- 
tain such  controls  only  so  long  as  they  are  neces- 
sary to  safeguard  the  equilibrium  of  its  balance 
of  payments  and  to  achieve  in  an  orderly  way  its 
plan  of  reconstruction  and  modernization.  The 
French  Government  will  administer  the  issuance 
of  import  licenses  under  the  French  import  pro- 
gram without  discrimination  as  among  'foreign 
sources  of  supply  as  soon  as  France  possesses,  or  is 
able  to  earn,  sufficient  free  foreign  exchange  so  that 
it  is  no  longer  necessary  for  her  to  make  her  pur- 
chases within  the  limits  of  bilateral  trade  and  fi- 
nancial arrangements. 

IV 

The  two  Governments  have  reached  a  mutually 
satisfactory  understanding  on  the  return  to  pri- 
vate channels  of  trade  between  France  and  the 
United  States.  The  French  Government  has  al- 
ready restored  to  private  channels  a  large  part  of 
the  import  trade  of  France  and  its  colonies,  and 
will  continue  to  curtail  the  foreign  procurement 
activities  of  the  Government. 

French  Government  procurement  in  the  United 
-States  will  be  limited  to  equipment  for  public 
corporations  and  agencies.  For  the  time  being, 
Government  procurement  will  also  be  continued  for 
a  restricted  list  of  items,  such  as  short  supply  food- 
stuffs, steel,  lumber,  fires  and  certain  medical 
supplies. 


Temporarily,  a  part  of  French  imports  will  be 
handled  by  associations  of  private  ti-aders,  groupe- 
ments)  until  the  difficulties  of  loading,  shipment, 
and  transport  of  essential  supplies  and  their  dis- 
tribution in  France  are  overcome. 

The  French  Supply  Council  in  the  United  States 
will  continue  to  operate  on  a  reduced  scale,  engag- 
ing principally  in  the  liquidation  of  outstanding 
contracts  and  governmental  j^i-ocurement  as  indi- 
cated above.  It  will  limit  its  purchases  to  the 
satisfaction  of  essential  civilian  requirements;  it 
will  make  the  maximum  practicable  use  of  normal 
trade  channels ;  it  will  pursue  methods  consistent 
with  commercial  practices  and  it  will  cease  opera- 
tions as  soon  as  possible. 

V 

The  two  Governments  have  agreed  that  impor- 
tant benefits  would  acciue  to  both  countiies  from 
a  substantial  expansion  of  French  exports  to  the 
United  States.  They  have  discussed  certain  United 
States  laws  and  regulations,  which,  in  the  opin- 
ion of  the  French  Government,  tend  to  hamper 
unduly  the  importation  of  French  products  into 
the  United  States.  Special  attention  has  been 
given  to  trade  mark  and  copyright  legislation,  the 
use  of  geographic  names  related  to  particular  prod- 
ucts, price  control  of  imported  goods,  aild  valua- 
tion of  imported  goods  for  the  assessment  of  cus- 
toms duties.  The  various  agencies  of  the  United 
States  Government  which  are  concerned  with  these 
matters  have  agreed  to  give  careful  and  sympa- 
thetic consideration  to  the  views  of  the  French 
Government,  and  to  study  the  possibility  of  alter- 
ing their  administrative  procedures  or  recommend- 
ing to  the  Congress  the  revision  of  existing 
legislation. 

VI 

The  two  Governments  have  agreed,  subject  to 
participation  in  the  program  by  other  important 
industrial  nations,  each  to  license  freely  and  with- 
out royalty  to  the  nationals  of  the  other,  on  condi- 
tions of  reciprocity,  all  former  German-owned 
jjatents  which  have  come  into  the  full  possession 
of  either  Government,  reserving  only  those  rights 
which  have  already  bee.i  granted  with  respect  to 
such  patents.  The  two  Goverimrents  believe  that 
the  general  adoption  of  this  policy  will  eliminate 
an  important  barrier  to  international  trade  and 
will  contribute  substantially  to  the  achievement  of 
expanding  world  economy.  In  accordance  with 
these  objectives,  they  have  agreed,  at  some  future 


JUNE  9,  1946 


997 


time,  jointly  to  consider  other  questions  rohiting 
to  German  patents. 

VII 

Tlie  Frencli  (irovernment  will  accord  to  Ameri- 
can nationals  who  have  suffered  damage  to  their 
properties  in  France,  through  causes  originating 
in  the  war,  compensation  equal  to  that  payable  to 
French  nationals  having  the  same  types  and  extent 
of  losses.  The  United  States  Government  has  in- 
formed the  French  Govermnent  that  equality  of 
treatment  is  accorded  to  French  and  American 
nationals  with  reference  to  war  damages  to  prop- 
erty in  the  United  States. 

VIII 

In  order  to  provide  a  sound  framework  for  the 


expansion  of  mutually  beneficial  economic  rela- 
tions between  their  two  countries,  the  Govern- 
ments of  France  and  the  United  States  have  agreed 
to  begin  negotiations  as  soon  as  possible  looking 
toward  the  conclusion  of  a  modern  and  compre- 
hensive Treaty  of  Establishment,  Commerce  and 
Navigation. 

DoxE  at  Washington,  in  duplicate,  in  the  Eng- 
lish and  French  languages,  this  28th  day  of  May, 
1946. 

For  the  Government  of  the  United  States  of 
America : 
James  F.  Byrnes 

For  the  Provisional  Government  of  the  French 
Republic: 
Leon  Blum 


MEMORANDUM  OF  UNDERSTANDING  BETWEEN  THE  GOVERNMENT  OF  THE  UNITED 
STATES  OF  AMERICA  AND  THE  PROVISIONAL  GOVERNMENT  OF  THE  FRENCH  RE- 
PUBLIC REGARDING  SETTLEMENT  FOR  LEND-LEASE,  RECIPROCAL  AID,  SURPLUS 
WAR  PROPERTY,  AND  CLAIMS 


1.  The  Government  of  the  United  States  of 
America  and  the  Provisional  Government  of  the 
French  Republic  have  reached  an  understanding 
for  the  final  settlement  of  lend-lease  and  recipro- 
cal aid,  and  of  the  French  obligation  to  the  United 
States  Government  under  the  military  supply 
program  (Plan  A) ;  the  acquisition  by  the  French 
Government  of  certain  United  States  Army  and 
Navy  surplus  property,  including  installations, 
located  in  France  and  certain  French  overseas 
territories,  and  for  the  final  settlement  of  other 
financial  claims  of  each  Government  against  the 
other  arising  out  of  the  conduct  of  the  war.  In 
arriving  at  this  understanding  both  Governments 
have  recognized  the  considerations  expressed  in 
Article  VII  of  their  Preliminary  Agreement  of 
February  28,  1945,  on  the  principles  applying  to 
mutual  aid,  as  well  as  the  benefits  accruing  to  each 
from  the  contributions  of  both  to  the  defeat  of 
their  common  enemies.  In  the  light  of  the  fore- 
going, both  Governments  agree  that  no  further 
benefits  will  be  sought  as  consideration  for  lend- 
lease  and  reciprocal  aid. 

2.  The  net  amount  due  from  the  French  Gov- 
enmient  to  the  United  States  Government  for  the 
foregoing,  including  all  indebtedness  arising  from 
provisions  of  the  lend-lease  and  reciprocal  aid 


agreements  of  February  28,  1945,  is  $720,000,000, 
made  up  in  part  of  amounts  now  agreed  upon  and 
in  part  of  estimated  amounts  subject  to  revision. 
The  latter,  for  which  the  best  available  figures 
have  been  used  pending  their  final  determination 
by  agreed  accounting  procedures,  represent  in  the 
main  transfers  after  September  1, 1945. 

3.  The  French  Government  will  pay  interest 
on  the  net  amount  due  to  the  United  States  Gov- 
ernment from  July  1,  194G,  at  the  rate  of  two  per- 
cent per  annum.  Such  interest  payments  will  be 
made  annually  on  the  first  day  of  July  of  each  of 
the  years  1947  to  1950,  inclusive.  Beginning  on 
July  1,  1951,  interest  and  principal  will  be  paid 
in  thirty  (30)  equal  annual  installments.  Each 
installment  shall  consist  of  the  full  amount  of  the 
interest  due  for  the  year  preceding  the  July  1  on 
which  the  payment  is  made,  and  the  remainder 
of  the  installment  shall  be  the  principal  due  in 
that  year.  Nothing  herein  shall  be  construed  to 
prevent  the  French  Government  from  anticipat- 
ing the  payment  of  any  of  such  installments,  or 
of  any  part  thereof.  If,  by  agreement  of  both  Gov- 
ernments, it  is  determined  that  because  of  extraor- 
dinary and  adverse  economic  conditions  arising 
during  the  course  of  payment,  the  payment  of  any 
installment  would  not  be  in  the  joint  interest  of 


998 


DFJ'ARTMENT  OF  STATE  BULLETiy 


both   Govenunents.   payincnl    may  be  postponed 
for  an  agreed  upon  jieriod. 

To  the  extent  that  the  terms  of  payment  pro- 
vided in  this  paragraph  .">  are  inconsistent  with 
those  contained  in  jnevious  agreements,  the  pro- 
visions of  this  paragrajjh  shall  i)revail. 

4.  The  two  Govermnents  have  agreed  ni)on  ar- 
rangements and  procednres  for  the  settlement  of 
past  and  fntnre  troop  pay  and  procnrement  of 
Tnited  States  Armed  Forces  in  France  and 
French  overseas  territories. 

5.  As  and  when  requested  by  the  United  States 
Government  from  time  to  time  prior  to  January 
1,  1950,  the  French  Government  will  transfer  to 
the  United  States  Government  real  property  to  be 
nuitually  agreed  upon  and  not  to  exceed  a  total 
dollar  value  of  $15,()0U.O()0.  In  addition,  the 
Fi'ench  Government  will  provide,  at  the  i-equest 
of  the  United  States  Government,  francs  repre- 
senting an  aggregate  dollar  value  not  in  excess  of 
$10.()0(),()00.  Any  francs  so  transferred  will  be 
fiu-nished  at  the  exchange  rate  established  in  con- 
formity with  procedures  of  the  International  Mon- 
etary Fund,  or  if  no  such  rate  exists,  at  the  rate 
used  in  official  French  Government  transactions  at 
the  time  of  such  transfer.  The  United  States  Gov- 
ci-nment  will  use  francs  so  transferred  exclusively 
to  ai'cpiire  or  improve  real  i)r()peity  for  United 
States  Government  use  or  to  carry  out  educational 
programs  agreed  between  the  two  (iovernments. 

Transfers  made  in  accordance  with  this  para- 
graph 5  will  l)e  credited  first  to  interest  then  due 
and  then  to  installments  of  principal  in  direct 
order  of  maturity. 

6.  The  two  Governments  have  also  agreed  upon 
the  following: 

a)  All  claims  and  financial  obligations  lietween 
the  two  Governments  arising  out  of  the  acquisition, 
operation,  disposition  or  loss  of  French  vessels  and 
cargoes  of  such  vessels  wliile  under  United  States 
control  will  be  settled  by  the  United  States  for 
$17,500,000  in  accordance  with  the  provisions  of 
an  agreement  relating  to  the  purchase  bj'  France 
of  up  to  75  Liberty  ships. 

b)  Both  Governments  express  their  intention  of 
entering  into  a  maritime  claims  agreement,  pro- 
viding for  the  mutual  waiver  of  intergovernmental 
claims  arising  from  maritime  accidents,  and  for 
the  handling  by  each  Government  of  claims  as- 


serted in  its  cotu'ts  by  its  nationals  against  the 
other  Government  and  based  on  maritime  accidents 
occurring  prior  to  November  1, 1945. 

c)  As  part  of  the  general  settlement,  the  French 
Government  has  agreed  to  process  and  pay  all  un- 
paid claims  of  French  residents  against  the  United 
States  Government  arising  out  of  the  use  or  in- 
fringement in  war  production  of  patent  rights  held 
by  them,  out  of  the  requisitioning  by  the  United 
States  Government  for  use  in  the  war  program  of 
any  pi'oi)erty  interest  owned  by  French  residents, 
and  out  of  acts  or  omissions  prior  to  July  1.  194(i. 
in  France  or  French  overseas  territories  of  mem- 
bers of  the  United  States  Armed  Forces  or  civilian 
persomiel  attached  to  such  Forces. 

d)  During  the  course  of  the  negotiations  botli 
Governments  have  reached  agreement  on  the  dis- 
position of  certain  specific  claims  of  one  Govern- 
ment against  the  other.  All  other  financial  claims 
of  either  Govermnent  against  the  other,  except 
where  liability  has  heretofore  been  acknowledged 
and  the  method  of  computation  agreed,  which  ( 1 ) 
arose  out  of  lend-lease  or  reciprocal  aid,  or  (2) 
otherwise  arose  on  or  after  Sejjtember  3, 1939,  and 
prior  to  Sejitember  2,  1945,  out  of  or  incidental 
to  the  conduct  of  the  war.  not  otherwise  dealt  witli 
in  this  Memorandum  of  Understanding,  are  hereby 
waived. 

e)  A])propi'iate  non-discriminatory  treatment 
will  be  extended  by  the  French  Government  to 
United  States  nationals  in  the  use  and  disposition 
of  installations  in  the  building  of  which  there  has 
been  a  United  States  Government  contribution  and 
which  are  transferred  under  this  settlement. 

f)  The  United  States  Government  reserves  its 
right  of  recapture  of  any  lend-lease  articles  held 
by  the  French  Armed  Forces,  except  petroletun 
products  and  an  agreed  list  of  non-combat  air- 
craft. The  Ignited  States  Government  has  indi- 
cated that  it  does  not  intend  to  exercise  generally 
this  right  of  recapture,  exce]3t  that  vessels  of  the 
United  States  Navy  and  lend-lease  merchant  ves- 
sels are  to  be  returned  to  the  United  States  Govern- 
ment unless  otherwise  agreed. 

g)  Disposals  for  military  use  to  forces  other 
than  the  French  Armed  Forces  of  lend-lea.se  ar- 
ticles held  on  September  2, 1945.  or  received  thei'e- 
after  by  the  French  Armed  Forces,  and  disposals 
for  civilian  use  other  than  in  France  and  French 
overseas  territories  of  such  lend-lease  articles,  will 


JLNF.  9.  1946 


999 


be  niadc  only  witli  the  consent  of  the  United  States 
(irovernineut  and  any  net  proceeds  will  be  paid  to 
the  Ignited  States  Government.  The  French  (iov- 
ernnient  will  not,  except  to  a  very  limited  extent, 
release  for  civilian  use  in.  or  export  from,  France 
and  French  overseas  territories  lend-lease  articles 
held  by  the  French  Armed  Forces. 

h)  Excei)t  as  otherwise  provided  in  this  Memo- 
randum of  Understanding,  the  French  Govern- 
ment and  the  United  States  Government  receive 
full  title  to  lend-lease  and  recipi'ocal  aid  articles 
respectively  held  as  of  September  2,  l!l4ri,  or  trans- 
fei-red  thereafter.  If  any  United  States  surjilus 
installation  not  transferred  under  this  IMemoran- 
dum  of  I'nderstiinding  contains  a  lend-lease  in- 
terest, such  lend-lease  interest  is  retained  liy  the 
Ignited  States.  • 

i )  The  United  States  Government  will  under- 
take to  make  available  to  the  French  Govei'nment 
])art  of  the  United  States  Government's  share  of 
captured  German  and  Jajjanese  surface  naval  ves- 


sels when  such  vessels  become  excess  to  United 
States  needs  and  are  no  longer  needed  for  any  task 
connected  with  the  implementation  of  the  (Terman 
and  Japanese  .surrenders. 

7.  The  two  Governments  agree  to  conclude  such 
specific  agreements  as  may  be  necessary  to  imple- 
ment this  general  understanding. 

8.  This  Memorandum  of  Understanding  will  be 
effective  upon  signature,  and  instruments  of  rati- 
fication will  be  exchanged  as  soon  as  possible. 

Done  at  Washington,  in  duplicate,  in  the  Eng- 
lish and  French  languages,  both  texts  being  equally 
authentic,  this  28th  day  of  May,  1946. 

For   the    Government   of   the    United  States   of 
America: 

James  F.  Bykn?:s 

For  the  Provisional  Governuwnt  of  the  French 
Republic: 

Leon  Blum 


UNDERSTANDING  BETWEEN  THE  GOVERNMENT  OF  THE  UNITED  STATES  OF 
AMERICA  AND  THE  PROVISIONAL  GOVERNMENT  OF  THE  FRENCH  REPUBLIC 
WITH  RESPECT  TO  THE  EXHIBITION  OF  AMERICAN  MOTION  PICTURES  IN 
FRANCE 


The  Government  of  the  United  States  of  Amer- 
ica and  the  Provisional  Government  of  the  French 
Republic,  in  the  light  of  their  broad  agreement  of 
this  date  on  commercial  policy  objectives,  and  with 
special  regard  to  changes  brought  about  by  the 
war.  have  reexamined  certain  problems  relating  to 
the  exhibition  in  France  of  dubbed  American  mo- 
tion picture  films.  As  a  result  of  these  conversa- 
tions, the  French  Government  has  informed  the 
American  Govermnent  that  it  will  take  the  follow- 
ing measures  which  will  be  applied  in  the  customs 
territory  of  France : 

Effective  July  1,  19-16,  all  previous  provisions 
concerning  the  number  of  dubbed  films  permitted 
to  be  shown  in  France  will  be  abandoned.  On  the 
same  date,  a  "screen  quota"  system  will  be  insti- 
tuted, as  a  temporary  protective  measure,  to  assist 
the  Frencli  motion  picture  industry  to  I'ecover 
from  the  disorganization  caused  by  enemy  occupa- 
tion of  France.  Under  this  system,  motion  pic- 
ture exhibitors  in  France  will  be  required  to  ex- 
hibit French  films  for  a  certain  number  of  weeks 
per  quarter.     During  the  remaining  weeks,  French 


exhibitors  will  be  allowed  free  choice  of  films,  for- 
eign or  domestic. 

Beginning  July  1, 1946,  the  screen  quota  reserved 
for  French  films  will  be  not  more  than  four  (4) 
weeks  per  quarter. 

The  screen  quota  shall  continue  at  the  level  of 
four  (4)  weeks  i^er  quarter  unless  reduced  to  three 
(3)  weeks  per  quarter  by  the  operation  of  the  fol- 
lowing automatic  formula : 

If,  in  any  two-year  period  ending  on  June  30, 
1948.  or  on  June  30  of  any  subsequent  year,  feature 
films  produced  in  Fiance  should  obtain  total  play- 
ing time  in  French  theatres  equal  to  or  greater 
than  an  average  of  five  (5)  weeks  per  quarter,  the 
screen  quota  shall  automatically  be  reduced  to  thi'ee 
( o)  weeks  per  quarter  effective  October  1  following 
the  expiration  of  such  two-year  period. 

If,  through  the  oiieration  of  the  above  formula, 
the  screen  quota  should  be  reduced  to  three  (3) 
weeks  per  quarter,  it  shall  continue  at  that  level 
unless  terminated  entirely  by  the  operation  of  the 
following  automatic  formula: 

If,  in  any  two-year  period  ending  on  September 


1000 


DEPARTMENT  OF  STATE  BULLETIN 


30,  during  the  whole  of  which  period  a  screen  quota 
of  three  (3)  weeks  per  quarter  is  in  effect,  feature 
films  produced  in  France  should  obtain  total  play- 
ing time  in  French  theatres  equal  to  or  greater 
than  an  average  of  five  (5)  weeks  per  quarter,  the 
screen  quota  shall  be  entirely  abolished  effective 
January  1  following  the  expiration  of  such  two- 
year  period. 

The  French  Government  has  agreed  that,  in  the 
period  during  which  the  screen  quota  remains  in 
force,  it  will  impose  no  restrictions  whatever  on 
the  importation  of  American  films  into  France, 
and  no  restrictions  other  than  the  screen  quota 
on  the  exhibition  of  American  films  in  France,  ex- 
cept such  restrictions  as  are  also  ai^plied  to  French 
films.  If,  through  the  operation  of  tliis  plan,  the 
screen  quota  should  be  entirely  abolished,  there 
will  be,  on  and  after  the  effective  date  of  such 
abolition,  no  restrictions  on  the  importation  of 
American  films  into  France,  and  no  restrictions 
on  the  exhibition  of  American  films  in  France, 
except  such  restrictions  as  are  also  applied  to 
French  films. 

The  United  States  Government  has  noted  with 
satisfaction  that  the  new  measures  to  be  taken  by 
the  French  Government  contemplate  the  complete 
elimination  of  protection  when  the  French  pro- 
ducing industry  has  regained  its  competitive 
strength. 

If,  in  the  opinion  of  either  Government,  this 
plan  should,  at  some  f  utui'e  time,  be  inappropriate 
to  the  conditions  then  prevailing  in  the  French 
motion  picture  producing  industry  or  in  the 
French  motion  picture  market,  each  Government 
has  reserved  the  right  to  request  the  other  to  un- 
dertake negotiations  looking  toward  its  modifica- 
tion or  termination.  If,  upon  the  expiration  of  six 
months  from  the  date  of  such  a  request,  these  nego- 
tiations shall  not  have  reached  a  conclusion  satis- 
factory to  both  Governments,  the  terms  of  the 
Reciprocal  Trade  Agreement  which  is  then  in 
effect  between  them  shall  apply. 

Done  at  Washington,  in  duplicate,  in  the 
English  and  French  languages,  this  28th  day  of 
May,  1946. 

For  the  Government  of  the  United  States  of 

America : 

James  F.  Byrnes 


For  the  Provisional  Government  of  the  French 

Repithlic: 

Leon  Blum 


Surplus  Property  iu  Foreign 
Areas' 

Amendment  of  Executive  Order  No.  9630  of 
September  27,  1945,  Redistributing  Foreign 
Economic  Functions  and  Functions  With 
Respect  to  Surplus  Property  in  Foreign 
Areas 

By  virtue  of  the  authority  vested  in  me  by  the 
Constitution  and  the  statutes,  including  Title  I  of 
the  First  War  Powers  Act,  1941,  and  as  President 
of  the  United  States  and  Commander  in  Chief  of 
the  Army  and  Navy,  I  hereby  amend  paragraph  8, 
Part  II,  of  Executive  Order  No.  9630  of  Septem- 
ber 27,  1945,  entitled  "Redistribution  of  Foreign 
Economic  Functions  and  Functions  with  Respect 
to  Sui-plus  Propery  in  Foreign  Areas,"  by  adding 
thereto  the  following  sentence : 

"Nothing  in  this  order  shall  be  construed  to  limit 
the  authority  of  the  Department  of  State  to  engage 
such  personnel  and  make  such  other  expenditures 
as  the  Secretary  of  State  may  deem  necessary  to 
the  discharge  of  the  functions  and  responsibilities 
of  the  Department  of  State  under  this  Part  or  any 
functions  and  responsibilities  assigned  to  it  under 
the  Surplus  Property  Act  of  1944." 

Harry  S.  Truman 
TuE  White  House, 
May  '21,,  19 k6. 


'Ex.  Or,  9730  (11  Federal  Register  5777). 


Letters  of  Credence 

INHNISTER  OF  ETHIOPIA 

The  newly  appointed  Minister  of  Ethiopia,  Ras 
H.  S.  Imrii,  presented  his  letters  of  credence  to 
the  President  on  May  15.  For  the  texts  of  the 
translation  of  the  Minister's  remarks  on  the  occa- 
sion of  the  presentation  of  his  credentials  and 
the  President's  reply,  see  Department  of  State 
press  release  327. 


JUNE  9,  1946 


mil 


Inter-American  Military  Cooperation 


STATEMENT  BY  THE  SECRETARY  OF  STATE 


Mr.  Chaikman  : 

I  appreciate  the  opportunity  of  meeting  with 
the  members  of  the  Committee  on  Foreign  Affairs 
today  in  regard  to  the  Inter-American  Military 
Cooperation  Bill.  H.  R.  G326. 

The  subject  matter  of  the  bill  which  you  are 
considering  has  been  given  extended  considera- 
tion by  the  State,  War  and  Navy  Departments. 
Representatives  of  the  War  and  Navy  D.^part- 
ments  liave  discussed  with  you  the  purposes  of  the 
bill  in  the  light  of  military  and  naval  policy,  and 
have  presented  from  the  military  viewpoint  the 
princii^al  explanation  of  why  passage  of  the  bill 
is  considered  desirable  in  the  interests  of  the 
United  States.  I  must,  of  course,  limit  my  remarks 
to  consideration  of  the  objectives  and  purposes  of 
the  bill  as  they  affect  the  foreign  relations  of  the 
United  States  in  general. 

The  purpose  of  the  proposed  legislation  is  to 
clarify  the  authority  of  the  President,  and  through 
him  of  the  executive  departments  of  the  Gov- 
ernment, to  extend  training  facilities,  and  to  trans- 
fer military  equipment,  subject  to  certain  condi- 
tions, to  other  American  states,  as  a  means  of  im- 
plementing the  cooperation  of  the  American 
nations  in  military  and  naval  matters.  Present 
legislation  authorizes  such  activities  only  to  a 
limited  and  inadequate  extent. 

The  long  range  objective  of  the  military  cooper- 
ation which  this  bill  would  authorize  is  the  con- 
tinued and  closer  coordination  of  the  efforts  which 
the  American  nations  have  made  over  many  years 
to  promote  their  mutual  security  and  preserve 
their  peace. 

The  basis  for  the  cooperation  among  the  Amer- 
ican states  in  the  military  field  lies  in  the  obliga- 
tions they  have  assumed  for  their  mutual  defense 
and  for  the  maintenance  of  peace  in  the  Western 
Hemisphere.  In  the  Act  of  Chapultepec  which 
was  signed  by  the  American  republics  in  March 
of  1945,  these  21  countries  stated  that  an  attack 
by  any  state  against  any  one  of  them  would  be 
considered  an  attack  against  all  of  them.    If  such 


an  attack  occurs,  the  Act  of  Chapultepec  provides, 
the  American  republics  will  consult  with  each 
other  to  agree  upon  measures  it  may  be  advisable  to 
take.  The  measures  which  the  Act  of  Chapultepec 
authorized  the  American  republics  to  take  in- 
cluded, for  the  first  time  in  inter-American  agree- 
ments, the  use  of  armed  force  if  necessary. 

The  Act  of  Chapultepec  thus  represents  a  dis- 
tinct advance  over  previous  inter-American  secu- 
rity arrangements.  It  created  for  the  first  time  a 
system  for  maintaining  the  peace  and  security  of 
the  American  republics  regardless  of  whence  an 
attack  might  come. 

The  Act  of  Chapultepec  also  provided  that  the 
arrangements  made  under  it  should  be  consistent 
with  the  United  Nations,  tlie  Charter  of  which 
had  not  j^et  been  drafted  when  the  Act  of  Chapul- 
tepec was  signed.  Since  that  time  the  United 
Nations  has  become  a  reality.  The  Charter  of  the 
United  Nations  recognizes  that  regional  arrange- 
ments for  the  maintenance  of  peace  and  security, 
which  are  consistent  with  the  Charter,  may  exist, 
and  stipulates  the  conditions  under  which  such 
regional  ai-rangements  as  the  Inter-American  Sys- 
tem may  act  in  the  maintenance  of  international 
peace  and  security. 

In  case  of  an  armed  attack,  all  members  of  the 
United  Nations  may  exercise,  under  the  Charter, 
their  rights  of  individual  and  collective  self- 
defense  until  the  Security  Council  acts.  If  aggres- 
sion is  threatened — without  an  armed  attack  hav- 
ing occurred — it  is  possible  for  regional  arrange- 
ments to  be  directed  by  the  Security  Council  to 
enforce  the  peace  or  to  be  authorized  to  take  en- 
forcement action  on  their  own  initiative.  The 
chief  restriction  upon  the  activity  of  a  regional 
arrangement  such  as  the  Inter-American  System 
is  that  it  may  not,  except  in  the  case  of  an  armed 
attack,  undertake  any  enforcement  measures 
without  the  authorization  of  the  Security  Coun- 

'Made  at  Hearings  before  the  House  Foreign  Affairs 
Committee  on  H.  R.  6326  on  May  29  and  released  to  the 
press  on  tlie  same  date. 


7002 


DEPARTMENT  OF  STATE  BULLETIN 


cil.  By  virtue  of  this  provision  the  Sei'iuity  Coun- 
cil remains  the  supreme  authority  in  regaid  to  the 
enforcement  of  international  peace  and  secni'ity. 

I  am  sure  that  you  are  familiar  with  the  fact 
that  the  complete  fulfillment  by  this  Government 
of  the  terms  <>f  the  Act  of  Chapnltepec  depends 
upon  the  exercise  of  the  war  powers  of  the  execu- 
tive. The  American  republics  have  announced 
tlieir  intention,  which  this  CJovernment  shares,  of 
signing  a  treaty,  as  called  for  by  the  Chapnltepec 
agreement,  which  will,  when  ratified,  give  perma- 
nent validity  to  the  principles  of  mutual  defense 
and  collective  action  for  the  maintenance  of  peace 
and  security  in  the  Americas  as  a  regional  ar- 
]-angenient  under  tlie  United  Nations. 

The  Act  of  Chapultepec  places  upon  each  of  the 
American  republics  a  responsibility  to  collaborate 
in  the  conmum  effort  to  maintain  the  peace  and 
security  of  all  the  Americas.  The  perfection  of 
the  entire  structure  of  this  regional  arrangement 
is  still  in  the  future  in  that  there  remains  to  be 
concluded  the  basic  treaty  called  for  in  the  Act  of 
Chapultepec.  However,  the  advantage  of  cooper- 
ative relations  among  the  military  establishments 
which  the  American  governments  will  continue  to 
nuiintain,  and  of  the  acceptance  of  common  techni- 
cal standards  as  a  means  of  facilitating  those  rela- 
tions, is  obvious.  I  trust  that  the  passage  of  this 
legislation  will  do  much  to  place  this  Government 
in  a  position  to  play  its  part  in  this  general  coop- 
erative undertaking.  It  will  be  an  indication  to 
the  other  American  states  that  the  United  States 
desires  to  go  for\vard  with  such  collaboration  sub- 
ject to  the  overriding  considerations  of  our  gen- 
eral foreign  policy — particulaidy  our  support  of 
the  United  Nations  as  the  supreme  international 
authority  for  the  maintenance  of  peace  and 
security. 

The  bill  has  been  drafted  so  as  to  permit  this 
Government  to  extend  the  same  cooperation  to 
Canada,  with  whom  our  relations  in  all  matters, 
including  defense,  are  of  special  importance. 

The  President  clearly  indicated,  in  his  message 
of  May  6  to  the  Congress  concerning  the  legislation 
Under  discussion,  other  aspects  of  our  foreign  pol- 
icy which  bear  upon  this  inter-American  military 
cooperation.  I  should  like  to  express  very  strongly 
the  opinion  that  it  would  not  be  in  the  interests  of 
the  XTnite<l  States  to  enter  upon  an  extensive  pro- 
gram of  adding  to  the  armaments  of  other  coun- 
tries.    It   would  be  in  conflict  with  oui'  jvaceful 


aims  to  stimulate  an  arms  race  with  all  the  disas- 
trous consequences  which  such  a  development 
might  bring  about.  It  is  a  jiurpose  of  our  foreign 
policy  to  work  for  a  regulation  of  armaments  in 
the  light  of  requireiuents  for  the  maintenance  of 
interiuil  order  and  of  international  peace  and 
security.  AVe  desire  to  see  the  world  freed  from 
both  the  fears  and  the  economic  burdens  which  the 
maintenance  of  unnecessarily  large  armed  forces 
imposes  upon  peoples,  whose  energies  and  resources 
must  be  directed  to  world  reconstruction  and  im- 
l^rovement  of  living  staiulards.  There  has  not  yet 
been  time  since  the  cessation  of  hostilities  to  estab- 
lish any  svu'h  system  of  arms  regulation.  I  am  con- 
fident, however,  that  this  objective  which  we  so 
sincerely  desire  can  be  achieved.  With  respect  to 
the  American  republics,  the  cooperation  which  this 
Government  will  be  empowered  to  extend  if  the 
bill  under  discussion  is  passed  will  be  guided  by 
our  purpose  of  keeping  armaments  down  to  the 
mininumi.  The  authority  to  extend  such  coopera- 
tion will,  I  hope,  place  this  Government  in  a  better 
position  to  work  out  with  the  other-American  gov- 
ernments arrangements  both  for  the  regulation  of 
armaments  and  for  the  maintenance  of  continental 
peace  and  security. 

The  bill  itself  explicitly  recognizes  that  any  op- 
erations which  this  Government  carries  out  under 
it  will  be  subordinate  to  any  international  agree- 
ment for  the  regulation  of  armanu-nts  to  which  the 
United  States  is  a  party.  It  further  calls  for  the 
exchange  wherever  possible  of  non-standard  arms 
for  those  which  this  Government  may  make  avail- 
able, indicating  that  the  objective  of  such  transfers 
shall  be  the  standardization,  rather  than  the  in- 
crease, of  arms  in  the  possession  of  other  countries. 

The  initiative  in  planning  specific  activities  un- 
der this  bill  will,  of  course,  rest  with  the  "War  and 
Navy  Departments.  However,  the  Department  of 
State  will  have  a  part  in  that  it  will  negotiate  with 
other  countries  the  agreements  called  for  in  the 
bill.  Moreover,  the  Department  of  State  will  con- 
tinue to  work  in  the  closest  collaboration  with  the 
War  and  Navy  Departments  with  regard  to  any 
activities  under  this  bill  which  may  touch  upon  our 
foreign  policy.  On  the  basis  of  the  discussions 
which  the  three  Departments  have  had  in  the  past 
on  this  subject,  I  am  sure  that  I  can  sjDeak  not  only 
for  the  State  Department,  but  for  the  War  and 
Navy  Departments  also,  in  saying  that  any  activi- 
ties which  we  may  recommend  to  the  President  in 


}V!\E  9,  1946 


1003 


the  event  this  bill  is  passed  will  be  gDVerned  by  the 
basic  i)bjectives  of  our  policy  towanl  the  countries 
immediately  concerned.  Those  objectives  include, 
along  with  the  protection  of  the  peace  and  security 
of  the  Americas,  assistance  to  our  sister  American 
nations  in  the  raising  of  living  standards  for  their 
peoples  and  in  the  pi-ogrcssively  greater  acliieve- 


ment  of  the  jjolitical,  economic  and  cultuial  oljjec- 
tives  of  a  democratic  society.  Through  continuing 
consultation  among  the  State,  War  and  Navy  Ue- 
]3artments  I  am  confident  that  these  objectives  can 
be  given  constant  and  full  consideration  in  plan- 
ning the  cooperation  in  military  affairs  wliicli  the 
proposed  bill  would  authorize. 


Intergovernmental  Refugee  Committee 


Exchuitf/e  of  L('tfer><  Betweev  Sintator  Vaiidenbei'g 
(/in/  T'ndcr  Secietai'tj  Ac/iesoii 

United  States  Sex.\te 

April  9,  1946 
Honoialile  Ja.mes  F.  Byknes, 
Siriiiiirij  of  St-ate, 
Wiixhingfoiu  D.  ('. 
]My  Dear  Mu.  Secretary  : 

The  "National  Committee  of  Americans  of  Po- 
lish Descent"  and  the  ''Polish  American  Congress" 
is  distressed  by  certain  published  statements  re- 
garding American  policy  attributed  to  our  repre- 
sentative (Mr.  Wood)  in  the  recent  UNRRA  Con- 
ference. He  is  charged  with  recommending  that 
control  over  Polish  D.P.  camps,  in  the  American 
zone  in  Gernuiny,  shall  be  sliifted  to  representa- 
tives of  the  Polish  Provisional  Gt)vernment.  I 
shall  be  indebted  to  you  if  I  may  have  an  early 
report  from  your  Department  regarding  the  ac- 
tual fdftx  in  this  connection. 

It  occui's  to  me  that  any  such  order  would  violate 
the  position  which  we  took  at  London  (and  which 
UNO  ratified)  in  opposition  to  the  Soviet  proposal 
that  all  such  D.P.  and  refugee  camps  should  be 
in  the  hands  of  representatives  of  the  government 
of  which  the  D.P.'s  and  the  refugees  are  nationals. 
We  took  this  position  for  obvious  leasons  which 
apply  with  [Particular  force  to  displaced  Poles  who 
decline  to  trust  themselves  to  the  Polish  Provi- 
sional Government. 

Inasmuch  as  the  UNO  "Conunittee  on  Refugees 
and  Displaced  Persons"  is  now  opening  its  consid- 
eration of  this  whole  subject  at  London,  it  would 
seem  to  be  specially  important  that  this  matter  be 
cleared  up  at  once.  I  shall  appreciate  an  early 
report  from  your  Department. 

In  connection  with  this  London  meeting,  I  want 


to  urge  again  tiiat  our  Government  earnestly  con- 
sider whether  it  would  not  be  greatly  helpful  to  the 
D.P.  problem  if  our  representative  at  London  were 
instructed  to  propose  a  renewal,  in  some  appropri- 
ate form,  of  the  so-called  "Nansen  Passports" 
which  were  issued  after  World  War  One  by  the 
League  of  Nations.  I  should  also  welcome  your 
conuuents  upon  this  matter. 

With  warm  personal  regards  and  best  wishes, 
Cordially  and  faithfully, 

Arthur  H.  A^axoexberg 

Mm/  14. 1!)'/; 
M\  Dear  Senator  A'axdexberg  : 

Thank  you  for  bringing  to  my  attention,  in  your 
letter  of  April  9,  the  distress  felt  by  certain  of  the 
Polish  groups  in  this  country  concerning  United 
States  policy  in  coiuiection  with  Displaced  Persons 
camps,  as  they  understand  it. 

Yoiu-  recollection  of  the  official  United  States 
jiosition  taken  in  London  on  the  control  of  refugee 
camps  is,  of  course,  perfectly  correct.  We  opposed 
then  and  continue  to  oppose  any  requirement  that 
the  controlling  personnel  of  such  camps  should  be 
comprised  of  representatives  of  states  of  which  the 
Displaced  Persons  are  citizens. 

The  question  under  discussion  at  the  recent 
UNRRA  conference  in  Atlantic  City  was.  however, 
a  different  one;  it  concerned  the  liaison  officers. who 
are  stationed  in  these  camps  to  assist  the  repatria- 
tion of  those  refugees  who  wish  to  return  to  tlieir 
countries.  These  officers  are  in  no  way  in  control 
of  the  camps.  In  view  of  the  functions  of  the 
liaison  personnel,  it  has  appeared  to  the  Depart- 
ment obviously  desirable  that  they  should  be  ac- 
ceptable to  the  governments  of  the  countries  to 
which  the  Displaced  Persons  are  returning.  For 
your  information,  I  am  enclosing  a  co]\v  of  that 


1004 


DEPARTMENT  OF  STATE  BULLETIN 


portion  of  UNRRA  Resolution  No.  92  bearing  on 
this  subject. 

We  recognize  that  the  position  of  the  liaison  offi- 
cei's  allows  them  an  opportunity  to  influence  those 
with  whom  they  are  in  contact  to  some  extent.  To 
the  extent  that  tlie  influence  of  the  new  liaison  offi- 
cers in  Polish  Displaced  Persons  cami)s  facilitates 
repatriation  of  those  willing  to  return  to  Poland, 
we  feel  the  whole  problem  of  Displaced  Persons 
may  be  reduced  to  manageable  proportions,  and 
the  Army  thereby  relieved  of  some  of  its  respon- 
sibilities in  this  connection.  To  the  extent  that 
this  opportunity  for  influencing  the  displaced  per- 
sons is  misused  by  the  liaison  officers,  you  may  be 
sure  that  this  Government  will  exert  pressure  for 
a  correction  of  the  situation. 

Your  letter  further  discusses  the  possibility  of 
renewing  the  so-called  "Nansen  Passport"  system. 
As  vou  doubtless  know,  the  subject  of  the  renewal 


of  the  system  of  issuing  Nansen  passjiorts  or  sim- 
ilar documents  has  been  under  consideration  by  the 
Intergovernmental  Committee  on  Refugees  for 
some  time  j^ast.  A  comprehensive  report  on  this 
subject  has  been  prepared  and  I  am  enclosing  a 
copy  herewith.  The  Department  has  at  no  time 
objected  to  the  issuance  of  documents  of  this  nature 
and  I  will  be  glad  to  instruct  the  representative 
of  this  Government  at  any  meeting  concerning  this 
subject  actively  to  favor  the  adoption  thereof. 

I  trust  the  foregoing  will  be  useful  to  you  and 
!-egret  the  delay  in  responding  to  your  letter.  II 
there  are  any  further  points  on  this  or  related 
matters  on  which  we  could  be  helpful,  please  let 
me  iinow. 

With  best  personal  wishes. 
Sincerely  yours. 

Dean  Acheson 
Acting  Secretary  of  State 


Chicago  Convention  on  International  Civil  Aviation 

STATEMENT  BY  ASSISTANT  SECRETARY  CLAYTON 


On  March  12.  1945  President  Roosevelt  sent  to 
the  Senate  for  its  advice  and  consent  the  Chicago 
Convention  on  International  Civil  Aviation.  On 
March  19,  1945  I  appeared  before  a  subcommittee 
of  this  Conunittee  during  the  hearings  then  in 
progress  to  urge  the  ratification  of  the  Convention 
on  International  Civil  Aviation.  Under  Secretary 
of  State  Dean  Acheson,  William  A.  M.  Burden, 
Assistant  Secretary  of  Commerce  for  Aviation 
Matters,  L.  Welch  Pogue,  Chairman  of  the  Civil 
Aeronautics  Board,  Edward  Warner,  Vice  Chair- 
man of  the  Civil  Aeronautics  Board,  Robert 
A.  Lovett,  Assistant  Secretary  of  War  for  Air, 
ArtemusL.  Gates.  Assistant  Secretary  of  the  Navy 
for  Air,  Gen.  H.  R.  Harris,  Chief  of  Stal!  of  Air 
Transport  Command,  all  likewise  testified  in  sup- 
port of  ratification  of  the  convention.  I  am  firmly 
convinced  that  the  rapid  expansion  of  air  trans- 
port throughout  the  world  has  made  the  need  for 
the  convention  greater  and  more  urgent  than  ever. 

The  Convention  on  International  Civil  Aviation 

Made  before  the  Senate  ("onimittee  on  Foreign  Rela- 
tions on  May  i!9  and  released  to  tlie  press  on  the  same  date. 


was  drawn  up  at  the  International  Civil  Aviation 
Conference  which  was  held  in  Chicago.  November 
1,  1944  to  December  7.  1944.  Because  of  the  fact 
that  three  other  agreements  i-elating  to  inter- 
national aviation  were  drawn  up  at  the  same  con- 
ference, there  has  been  some  confusion  concerning 
the  relationship  between  the  four  documents  and, 
in  some  respects,  concerning  just  what  is  provided 
for  in  the  convention.  For  this  reason  I  wish  to 
speak  briefly  about  all  four  documents  before  di- 
recting my  remarks  to  the  specific  provisions  of 
the  convention. 

The  convention  is  entirely  independent  of  the 
other  three  agreements.  It  is  a  treaty  or  conven- 
tion which  will  come  into  force  on  the  thirtieth 
day  after  twenty-six  countries  have  ratified  it.  Its 
provisions  are  in  no  way  dependent  upon  the  pro- 
visions of  the  other  three  agreements  and  a  state 
which  becomes  a  party  to  the  convention  does  not 
thereby  become  a  party  to  any  of  the  other  agree- 
ments, nor  does  it  obligate  itself  to  do  so.  If  the 
other  agreements  had  never  become  effective,  in 
fact  even  if  they  had  never  been  drafted,  the  con- 


A 


JUNE  9,  1946 


1005 


vention  would  still  be  necessary  and  could  still  be 
ratified  as  it  stands. 

Among  the  other  three  documents  drafted  at 
Chicago  is  the  Interim  Agreement  on  Interna- 
tional Civil  Aviation.  It  is  independent  of  the 
other  two  and  of  the  convention.  It  could  have 
been  drawn  up  in  its  present  terms  and  become 
effective  without  eitlier  the  convention  or  the  other 
two  agreements  having  been  drafted. 

The  Interim  Agreement  provides  ,f  or  the  estab- 
lishment of  a  provisional  organization  whose  prin- 
cipal function  is  to  prepare  aviation  standards  for 
the  consideration  of  the  permanent  organization 
envisaged  by  the  convention.  The  provisional  or- 
ganization, known  as  PICAO,  is  already  function- 
ing in  Montreal  where  a  meeting  is  currently  being 
held  on  these  questions.  The  provisional  organi- 
zation, however,  under  the  terms  of  the  agreement, 
can  only  remain  in  existence  for  approximately 
two  more  years  or  until  the  convention  establishing 
a  permanent  International  Civil  Aviation  Organ- 
ization comes  into  force. 

The  remaining  two  agreements  drawn  up  at 
Chicago  are  the  International  Air  Services  Tran- 
sit Agreement,  known  as  the  "two  freedoms'" 
agreement,  and  the  International  Air  Transport 
Agreement,  known  as  the  "five  freedoms"  agree- 
ment. Tlie  first  exclianges  the  rights  to  fly  over 
and  make  non-traffic  stops  in  the  territory  of  the 
other  parties,  and  the  second  agreement  grants  in 
addition  to  those  included  in  the  "two  freedoms" 
agreement  commercial  traffic  rights  to  the  parties 
which  have  accepted.  Both  of  these  agreements 
relate  exclusively  to  scheduled  airline  services. 
The  "two"  and  "five  freedoms"  agreements  are  in- 
dependent of  each  other  and  a  nation  may  be  a 
party  to  either  one  without  being  a  party  to  the 
other  or  may  be  a  party  to  both  without  violating 
its  obligations  under  either. 

In  order  to  illustrate  the  distinctions  between 
the  convention  and  the  other  three  agreements,  I 
have  brought  with  me  a  chart  illustrating  the  chief 
purposes  of  each  of  the  documents.  It  will  be 
noted  that  45  nations  have  become  parties  to  the 
Interim  AgTeement;  8  nations  have  ratified  the 
convention  and  in  several  other  nations  the  process 
of  ratification  is  in  its  final  stages;  27  nations  have 
accepted  the  "two  freedoms"  agi-eement;  and  15 
nations  have  accepted  the  "five  freedoms"  agree- 
ment. 

Since  the  convention  is  independent  of  the  other 


three  agreements,  we  can  examine  its  provisions 
without  further  reference  to  the  others.  The  con- 
vention provides  for  an  International  Civil  Avia- 
tion Organization,  known  as  ICAO,  having  an 
assembly  on  which  every  nation  a  party  to  the  con- 
vention is  entitled  to  be  represented,  as  well  as  a 
21-member  council  to  be  elected  by  the  assembly, 
due  regard  being  given  to  the  importance  of  each 
nation  in  the  field  of  international  aviation,  to  the 
contributions  of  each  nation  to  the  development  of 
international  aviation,  and  to  representation  of  all 
geogi-aphic  areas  of  the  world.  The  convention 
also  provides  a  basic  set  of  standards  and  practices 
to  govern  modern  international  civil  aviation. 
The  principles  contained  in  the  convention  apply 
to  air  navigation,  air  transport,  and  their  related 
technical  phases  but  do  not  cover  the  rights  of 
connnercial  entry  of  scheduled  airlines  into  the 
territory  of  contracting  parties.  The  convention 
is  the  most  recent  development  in  a  field  in  which 
some  progress  has  already  been  made. 

In  1931  the  United  States  ratified  the  Conven- 
tion on  Civil  Aviation,  signed  at  Havana  in  1928. 
This  convention  was  adhered  to  by  10  other  nations 
all  in  the  Western  Hemisphere.  In  addition  tliere 
is  tlie  Convention  Eelating  to  the  Kegulation  of 
International  Air  Navigation,  which  was  signed 
in  Paris  in  1919.  The  United  States  is  not  a  party 
to  the  Paris  convention. 

In  many  respects  the  Paris  and  Havana  con- 
ventions contain  similar  principles,  but  there  was 
a  divergence  between  their  provisions  that  made 
for  confusion  in  the  operation  of  air  services  be- 
tween the  points  of  the  Western  Hemisphere  and 
the  points  in  Europe.  A  comparison  of  the  Chi- 
cago, Paris,  and  Havana  conventions  was  set  forth 
in  last  year's  hearings  before  the  subcommittee  of 
this  Committee.  Today  air  navigation  is  world- 
wide in  scope  and  involves  routes  traversing  all 
continents.  To  avoid  confusion  between  two  pre- 
war arrangements  adhered  to  by  different  sets  of 
countries,  it  is  important  to  have  a  single  agree- 
ment which  would  have  wide  acceptance  and  the 
Chicago  convention  is  intended  to  fill  this  role. 

Let  us  turn  now  to  a  more  detailed  examination 
of  the  provisions  of  the  convention  drafted  in  Chi- 
cago which  is  now  before  you. 

Part  I  contains  general  provisions  pertaining  to 
air  navigation  and  restates  a  number  of  the  basic 
principles  appearing  in  the  Paris  and  Havana  con- 
ventions which  in  the  light  of  experience  have 


1006 

been  found  to  be  satisfactory.  These  principles 
relate  to  matters  such  as  the  following : 

—exclusive  sovereignty  of  each  state  over  the 
air  space  above  its  territory; 

— reservation  by  each  state  to  its  own  aircraft 
of  the  exclusive  privilege  of  carrying  traffic  be- 
tween any  two  points  in  the  territory  of  such  state ; 

— requirement  that  foreign  aircraft  will  com- 
ply with  the  rules  and  regulations  of  the  country 
flown  over  or  into; 

— agreement  by  each  state  to  keep  its  aeronauti- 
cal regulations  uniform  to  the  greatest  possible 
extent  with  those  established  under  the  conven- 
tion; provision  for  adoption  and  amendment  of 
such  regulations,  standards,  and  procedures; 

—exchange  of  the  rights  of  transit  and  non-traf- 
fic stop  among  contracting  states  with  respect  to 
non-scheduled  services,  and  the  exchange  of  rights 
of  commercial  entry  for  such  non-scheduled  serv- 
ices subject  to  whatever  conditions  or  limitations 
each  state  considers  desirable ; 

— provision  that  scheduled  international  serv- 
ices cannot  be  operated  except  by  special  permis- 
sion of  the  state  concerned ; 

—rules  of  the  air  established  by  convention  shall 
apply  to  flights  over  the  high  seas ; 

— measures  to  prevent  spread  by  means  of  air 
navigation  of  cholera,  typhus,  smallpox,  yellow 
fever,  plague,  and  other  communicable  diseases; 

— non-discriminatory  charges  for  airports  and 
facilities ; 

— agreement  to  adopt  all  practicable  measures 
for  facilitating  and  expediting  air  navigation ; 

— provision  for  practicable  measures  to  assist 
aircraft  in  disti'ess; 

— investigation  of  accidents ;  and 

—conditions  to  be  fulfilled  with  respect  to  air- 
craft, such  as  documents,  certificates  of  airworthi- 
ness, licenses  of  personnel,  and  use  of  radio  equip- 
ment. 

Part  II  provides  for  the  establishment  of  the 
International  Civil  Aviation  Organization  and  de- 
fines the  duties  of  its  constituent  assembly  and 
council.  All  of  the  contracting  states  are  to  be 
represented  on  the  assembly,  which  is  scheduled  to 
meet  annually  and  take  appropriate  action  upon 
reports  of  the  council.  It  may  also  deal  with  mat- 
ters referred  to  it  by  the  council,  and  refer  other 
matters  to  the  council  for  appropriate  action. 
The  council  is  a  smaller  21-member  body  which 


DEPARTMENT  OF  STATE  BULLETIN 

functions  largely  in  an  executive  capacity. 
Among  other  things,  it  will  set  up  an  Air  Trans- 
port Committee  and  an  Air  Navigation  Commis- 
sion to  make  studies  in  those  fields ;  it  will  collect, 
study,  and  disseminate  information  on  air-navi- 
gation and  air-transport  matters ;  and  it  will  pass 
upon  and  refer  to  the  contracting  states  the  ap- 
proved technical  annexes  together  with  their 
amendments. 

These  technical  annexes,  which  comprise  inter- 
national standards  and  recommended  practices, 
are  intended  to  reflect  recent  developments  in  the 
art  of  flying;  they  will  enable  aircraft  to  fly  all 
over  the  world  following  signals  and  practices 
which  will  be  understood  everywhere.  They  will 
come  into  force  as  such  unless  a  majority  of  the 
contracting  states  signify  their  disapproval.  A 
contracting  state  is  privileged  to  withliold  per- 
mission from  those  foreign  aircraft  which  do  not 
satisfy  these  accepted  international  practices. 

The  Air  Navigation  Commission,  wliich  will  op- 
erate under  the  council,  is  to  be  composed  of  quali- 
fied and  experienced  persons  charged  with  the  duty 
of  making  studies  of  technical  aviation  opera- 
tional matters  and  the  findings  of  this  commission 
are  to  be  submitted  to  the  council  for  action. 
Among  the  matters  dealt  with  would  be  such  prob- 
lems as  radio-communication  procedures,  air-navi- 
gation aids,  rules  of  the  air,  air-traffic  control,  air- 
worthiness of  aircraft  and  aeronautical  meteorol- 
ogy. The  gi'eat  advantages  of  such  a  study  of 
these  questions  on  a  world-wide  basis  will  be  appar- 
ent. The  fast  increasing  number,  size,  and  speed 
of  aircraft  using  the  airspace  makes  it  more  and 
more  necessary  to  simplify,  improve,  and  stand- 
ardize air-navigation  procedures. 

Part  III  of  the  convention  is  entitled  "Inter- 
national Air  Transport",  but  does  not  cover  the 
grant  of  any  rights  for  scheduled  air-transport 
services.  I  have  already  mentioned  the  provision 
in  part  I  which  specifically  states  that  no  sched- 
uled international  air  service  may  be  operated 
over  or  into  the  territory  of  a  contracting  state  ex- 
cept with  the  specific  permission  of  that  state. 
Part  III  does  contain  important  provisions  em- 
powering the  council  to  assist  contracting  states, 
at  their  request,  to  construct,  improve,  or  maintain 
airports  and  air-navigation  facilities  for  the  use 
of  international  air-transport  services,  and  under 
financial  arrangements  agreed  upon  by  the  inter- 
ested states. 


JUNE  9,  me 


1007 


Part  IV  contains  the  final  provisions  of  the  con- 
vention, providing  for  the  abrogation  of  conven- 
tions and  agreements  inconsistent  with  tlie  Chi- 
cago convention;  for  the  registration  witli  the 
council  of  existing  and  future  arrangements  to 
which  the  contracting  states  are  parties ;  the  settle- 
ment of  disputes  arising  under  the  convention ;  the 
method  of  ratification,  adherence,  amendment,  and 
denunciation  of  the  convention.  The  convention 
also  provides  that  the  International  Civil  Aviation 
Organization  to  be  established  may,  by  vote  of  the 
assembly,  enter  into  appropriate  arrangements 
with  any  world  organization  for  the  preservation 
of  peace. 

I  should  like  to  repeat  that  international  avia- 
tion is  developing  very  fast  and  is  spurred  on  by 
the  present  need  for  rapid  and  safe  communica- 
tion between  the  various  parts  of  the  world.  If 
this  growth  is  permitted  to  continue  without  the 
ajjplication  of  general  uniform  principles  which 
will  make  the  development  an  orderly  process,  the 
world  may  shortl}'  be  faced  with  confusion  of  regu- 
lations, techniques,  and  practices  which  cannot 
help  but  deprive  us  of  the  many  advantages  which 
aviation  can  offer.  For  these  reasons,  we  believe  it 
to  be  urgently  necessary  for  the  Chicago  Conven- 


tion on  International  Civil  Aviation  to  come  into 
force  quickly. 

A  number  of  the  foreign  delegates  to  the  provi- 
sional organization  at  Montreal  have  informally 
expressed  surprise  that,  in  view  of  our  leadership 
in  aviation  matters,  we  have  not  yet  ratified  the 
convention.  As  has  been  noted,  eight  nations  al- 
ready have  deposited  their  ratifications,  and  several 
other  nations  are  about  ready  to  clo  so.  The 
present  PICAO  Assembly  meeting  in  Montreal  un- 
doubtedly will  stimulate  additional  countries  to 
take  similar  action,  and  it  is  the  opinion  of  many 
obsei-vers  that  the  required  number  of  countries 
will  complete  ratification  within  the  very  near 
future. 

If  the  convention  comes  into  force  without  ratifi- 
cation by  us  and  tlie  Council  of  the  Permanent 
Organization  begins  to  function,  we  will  be  de- 
prived of  exerting  our  considerable  influence  in 
the  development  of  standards  and  techniques  at  a 
most  critical  time,  which  is  bound  to  affect  the 
expansion  of  our  airlines  throughout  the  world. 

It  is  therefore  my  earnest  recommendation  that 
the  Senate  give  its  advice  and  consent  for  the 
ratification  by  the  United  States  of  the  Convention 
on  International  Civil  Aviation. 


Protest  to  Rumania  Against  Non-fulfilment  of 
Assurances  to  Tripartite  Commission 


[Released  to  the  press  June  1] 

On  Monday,  May  £7,  the  Representative  of  the 
United  States  in  Rumania,  Burton  T.  Berry,  de- 
livered to  the  Rumanian  Minister  for  Foreign 
A  fairs  a  note  of  protest  against  the  non-fulfilment 
of  the  assurances  given  hy  the  Rumanian  Govern- 
ment in  January  of  this  year  to  the  Tripartite 
Commission  which  was  sent  to  Bucharest  pursuant 
to  the  decisions  of  the  Moscoxo  Conference  of  For- 
eign Ministers,  December  1946,  with  regard  to 
Rumania.    The  text  of  the  note  is  as  follows: 

Upon  instructions  from  my  Government,  I  wish 
to  draw  to  your  Government's  attention  two  as- 
pects of  political  life  in  Rumania  that  ai'e  giving 
concern  to  the  Government  of  the  United  States. 
First,  the  fact  that  no  election  law  has  been  pro- 
mulgated or  date  set  for  the  elections,  and,  sec- 
ondly, the  abuses  of  the  freedoms  and  particulai'ly 
the  increasing  frequency  of  actions  of  violence 


which  mock  at  the  application  of  the  freedoms 
guaranteed  by  the  Eunumian  Government  through 
its  acceptance  of  the  Moscow  decisions. 

It  is  now  more  than  four  months  since  the  reor- 
ganization of  the  Government  and  not  only  has  no 
date  been  fixed  for  the  elections  but  no  electoral  law 
for  such  elections  has  been  promulgated.  This 
situation,  incompatible  with  the  Moscow  decisions, 
gives  the  impression  tliat  the  Government  is  pro- 
crastinating in  the  fulfilment  of  its  promise. 

While  a  measure  of  free  expression  has  been  pro- 
vided bj^  the  authorization  of  the  National  Peasant 
and  National  Liberal  Parties  to  publish  news- 
papers, the  exercise  of  censorship  has  in  certain 
notable  instances  prevented  the  free  dissemination 
of  public  announcements,  and  the  suspension  or 
suppression  of  papers  has  restricted  the  free  ex- 
pression of  political  views.  Thus  a  form  of  cen- 
sorship prevented  the  prompt  and  full  distribution 


1008 


DEPARTMENT  OF  STATE  BULLETIN 


of  the  address  of  the  United  States  Secretary  of 
State  on  February  28.  Important  passages  were 
also  deleted  by  eensoi-ship  from  the  address  of 
Senator  Vandenberg  on  February  27.  In  addi- 
tion to  such  official  impediments  to  the  free  dis- 
semination of  news,  I  have  been  infoi-med  of  cases 
where  the  printers  union  has  exercised  an  effective 
censorship  and  of  others  where  an  unequal  distri- 
bution of  newsprint  acts  as  a  means  of  censorship. 

Access  to  the  state  broadcasting  facilities,  ac- 
cording- to  my  information,  remains  a  monopoly  of 
certain  parties  within  the  Government  contrary  to 
the  Government's  commitments  under  the  Moscow 
decisions. 

An  increasing  number  of  instances  have  been 
brought  to  the  attention  of  this  Mission  where  or- 
ganized bands  of  hooligans  have  broken  up  meet- 
ings called  by  the  National  Peasant  and  National 
Liberal  parties  or  interfered  with  movements  of 
members  of  those  parties  when  going  to  attend 
such  meetings.  While  there  is  little  point  in  list- 
ing all  such  instances,  I  do  desire  to  state  that  a 
sufficient  number  of  them  have  been  investigated 
or  witnessed  by  Amei'ican  officers  to  establish  be- 
yond any  doubt  the  fact  that  political  violence  is 
on  the  increase. 

The  legal  proceedings  against  the  National 
Peasant  and  National  Liberal  Party  members 
charged  as  being  responsible  for  incidents  on  No- 
vember 8  are  continuing,  according  to  Bucharest 
newspapers  dated  April  15,  in  spite  of  the  Prime 
Minister's  assurance  to  Ambassador  Harriman 
and  Sir  Archibald  Clark  Kerr  that  they  would  be 
dismissed. 

The  Ministers  of  State  representing  the  Na- 
tional Peasant  and  National  Liberal  Parties  have 
not  been  given  opportunity  to  cooperate  fully  with 
the  Government.  Full  cabinet  meetings  are  rarely 
called  and  important  pending  legislation  fre- 
quently is  not  discussed  in  them ;  in  many  instances 
Ministers  are  not  given  adequate  time  to  study 
draft  laws  and  in  some  other  important  cases  de- 
cree laws  are  published  without  having  been  sub- 
mitted to  these  Ministers  for  their  study. 

In  bringing  these  matters  to  your  attention,  it 
is  my  purpose  to  point  out  that  a  definite  impres- 
sion is  being  created  abroad  concerning  the  pres- 
ent Rumanian  Government.  The  impression  is 
that  through  the  Government's  actions  and  inac- 
tions, while  trying  to  give  the  appearance  of  carry- 
ing out  the  assurances  of  the  Moscow  decisions,  it 


is  in  reality  circumventing  commitments  which  it 
has  made.  My  Government,  being  a  party  to  the 
Moscow  Agreement,  has  an  interest  in  seeing  that 
this  impression  is  dispelled.  I  therefore  urge  you 
to  take  the  necessary  steps  without  delay  to  see 
that  it  be  dispelled. 

Accordingly,  it  is  believed  that  a  different  im- 
pression will  be  attained  through  prompt  action 
on  the  part  of  the  Rumanian  Government  in  im- 
plementing the  assurances  given  the  Allied  Com- 
mission in  January  by  promulgating  an  electoral 
law  and  setting  a  date  for  elections,  at  the  same 
time  taking  adequate  measures  during  this  period 
prior  to  elections  that  all  democratic  parties  may 
put  forward  their  candidates  with  the  assurance 
that  the  freedoms  set  forth  in  the  Moscow  deci- 
sions apply  equally  to  members  of  all  sucli  parties. 

ILO — Continued  from  page  993. 

Capt.  John  Raymond  Jones,  Standard  Oil  Company  of 
California,   San  Francisco,  Calif. 

A.  R.  Lintner,  President,  American  Mail  Lines,  San  Fran- 
cisco, Calif. 

Walter  Maloney,  Associate  General  Counsel,  American 
Merchant  Marine  Institute,  New  York,  N.  Y. 

Thomas  G.  Plant,  Vice  President,  American-Hawaiian 
Steamship  Company,  San  Francisco,  Calif. 

C.  E.  Shaw,  Standard  Oil  Company  of  New  Jersey,  New 
York,  N.  Y. 

Paul  Warfield,  United  States  Lines,  New  York,  N.  Y. 

Representing  the  Wokke3)s  of  the  United  States 

Delegate: 

Harry  Lundeberg,   President,   Seafarers'  International 

Union  of  North  America,  San  Francisco,  Calif. 

Advisers: 

Dave  Beck,  Vice  President,  International  Brotherhood 
of  Teamsters,  Chauffeurs,  Warehousemen  and  Help- 
ers, Seattle,  Wash. 

Herbert  L.  Daggert,  Port  Agent,  Marine  Engineers  Na- 
tional Association,  Seattle,  Wash. 

Joseph  Harris,  Port  Agent,  National  Marine  Cooks  and 
Stewards  Association,  Seattle,  Wash. 

Seth  Levine,  CIO  Maritime  Committee,  Washington, 
D.C. 

Capt.  C.  F.  May,  A^ice  President,  National  Organiza- 
tion of  Masters,  Mates,  and  Pilots  of  America,  San 
Franci.sco,  Calif. 

Andrew  McDonald,  Chairman,  Radio  Officers'  Union, 
Commercial  Telegraphers  Union  of  North  America, 
Baltimore,  Md. 

Jack  Wlnocur,  Acting  Vice  Pi-esident,  American  Com- 
munications Association,  New  York,  N.Y. 

Seceet.aey  op  the  U.  S.  Dei-egation 
Clarke  L.  Willard,  Assistant  Chief,  Division  of  Inter- 
national Conferences,  Deijartment  of  State. 


JUNE  9,  1946 


1009 


Report  of  Textile  Mission  to  Japan 


[Released  to  the  press  May  29] 

Japan's  textile  industry  now  has  one  fifth  of  its 
23ie-war  cotton  textile  capacity  and  one  third  of  its 
pre-war  rayon  capacity,  according  to  the  report 
of  the  recent  International  Textile  Mission  to 
Japan,  released  May  29  by  the  State  and  War  De- 
l^artments.  Tlie  Mission's  50-page  report  is  the 
result  of  a  lO-week  survey  of  tlie  Japanese  textile 
industry  made  while  the  members  were  attached 
to  General  MacArthur's  headquarters. 

The  five  United  States  representatives  on  tlie 
mission  were :  Fred  Taylor,  Department  of  State, 
Chairman ;  Harry  L.  Bailey,  retired  chairman  of 
Wellington-Sears  Company;  H.  Wickliffe  Rose, 
American  Viscose  Company;  Frank  E.  Eowe, 
Riverside  and  Dan  River  Cotton  Mills,  Inc. ;  and 
Stanley  Nehmer,  Department  of  State.  Observers 
from  the  United  Kingdom,  China,  and  India  were : 
Frank  Winterbottom,  British  member  of  the  Com- 
bined Textile  Committee,  United  Kingdom;  S.  Z. 
Yang  and  Andrew  Young,  China;  and  Bharat 
Ram,  Managing  Director,  Delhi  Cloth  and  General 
Mills,  India.  The  following  conclusions  sum- 
marize their  findings. 

The  installed  spindleage  of  the  Japanese  cotton 
textile  industry  in  February  1946  was  2,150,000, 
of  which  1,115,000  were  operable.  It  is  estimated 
that  by  the  return  of  stored  equipment  and  repair 
of  damaged  machinery,  this  installed  spindleage 
will  increase  by  Jamiary  1947  to  3,285,000,  of 
which  an  estimated  2,990,000  will  be  operable.  Be- 
yond this  date,  an  additional  235,000  spindles  may 
be  added  tlirough  further  repairs.  The  recent 
USCC-CCC  ^-War  Department  raw-cotton  import 
program  is  based  on  this  current  capacity.  The 
Mission  is  satisfied  that  the  maximum  output  in 
1946  from  workable  spindles  is  sufficient  to  take 
care  of  the  225,000  short  tons  of  cotton  to  be  im- 
ported. Tlie  Mission  believes  it  is  unable  to  pre- 
sent a  realistic  appraisal  of  the  1947  position  until 
its  estimates  of  production  in  1946  from  installed 
and  operable  spindles  are  proved.  The  Mission 
assumes  a  continuation  of  sliipments  of  cotton 
during  1947  including  sufficient  supplies  to  build 
up  a  workable  stock  equal  to  at  least  two  months' 
consumi^tion.  By  the  end  of  November,  144  mil- 
lion pounds  of  yarn  are  estimated  to  be  produced 


for  the  export  part  of  the  USCC-CCC-War  De- 
partment agreement.  .This  should  produce  in  1946, 
in  addition  to  900,000  pounds  of  knit  goods  and  30 
million  pounds  of  yarn,  approximately  350  million 
square  yards  of  cloth. 

Japan's  current  potential  productive  capacitj' 
of  rayon  is  354  million  pounds  annually,  of  which 
306  million  pounds  represents  machinery  in  place. 
Of  the  present  potential  capacity,  120  million 
pounds  represents  rayon  yarn  and  234  million 
pounds  rayon  staple.  The  present  shortages  of  raw 
materials  have  reduced  the  output  of  the  industry 
to  about  13  million  pounds  a  year.  The  pounds  of 
rayon  staple  would  represent  more  than  the  total 
capacity  of  spindles  available  for  processing. 
About  118  million  pounds  is  tlie  maximum  which 
could  be  spun  on  all  existing  worsted,  woolen,  and 
silk  spindles,  together  with  those  cotton  spindles 
in  the  hands  of  the  rayon  companies.  Beyond 
these  118  million  pounds,  there  would  be  a  possi- 
bility of  export  of  rayon  staple;  on  the  basis  of 
pre-war  markets  the  United  States,  China,  and 
Mexico  might  offer  a  potential. 

Tlie  reliability  of  estimates  of  reconversion  and 
production  in  the  woolen  and  worsted  industry  in 
1946  is  more  uncertain  than  in  the  case  of  cotton. 
Woolen  and  worsted  manufacturers  have  esti- 
mated that  they  could  produce  about  25  million 
pounds  of  woolen  yarn  and  35  million  pounds  of 
worsted  yarn  in  the  next  12  months  if  raw  ma- 
terials are  made  available.  No  import  pro- 
gram has  as  yet  been  set  up  and  the  rate  of  con- 
sumi^tion  of  the  present  stocks  of  raw  wool  and 
substitute  fibei's  has  yet  to  be  determined.  The 
mixture  cloths  made  from  the  materials  at  pres- 
ent available  in  Japan  are  unlikely  to  be  of  use  for 
exjDort  since  100  percent  wool  and  worsted  cloths 
form  the  bulk  of  such  demand.  The  modern  tend- 
ency in  the  United  States  and  the  United  Kingdom 
is  to  develop  wool  and  rayon  staple  mixture  cloths. 
The  Mission  is  of  the  opinion  that  any  wool  import 
program  should  be  carefully  considered  along  with 
that  for  other  fibres. 

In  the  Mission's  survey  of  Japan's  stocks  of 
clothing,  raw  materials,  yarn,  and  cloth,  incom- 

^  U.  S.  Commercial  Company — Commodity  Credit  Cor- 
poration. , 


1010 


DEPARTMENT  OF  STATE  BULLETIN 


plete  reports  show  that  as  of  the  end  of  Februai'j- 
Japan  had  stocks  of  575  million  squai'e  j'ards  of 
cloth  and  raw  materials  and  yarn  sufficient  to  pro- 
duce an  additional  425  million  square  yards  of 
cloth.  The  availability  of  a  part  of  these  stocks 
for  export  will  depend  upon  an  estimation  of 
Japan's  clothing  requirements,  which  the  Mission 
suggests  should  be  based  upon  a  survey  of  the 
actual  clothing  being  worn  by  the  Japanese  today. 
The  INIission  has  not  found  direct  evidence  of  un- 
due clothing  shortage  in  comparison  with  other 
countries. 

Japan's  four  major  textile  machinery  manufac- 
turers, who  account  for  approximately  75-85  per- 
cent of  new  machinery  production,  have  the  capac- 
ity to  increase  Jaj^an's  spindleage  and  loomage  in 
1946  by  290,000  and  11,300,  respectively.  In  1947 
they  will  be  able  to  produce  over  785,000  spindles 
and  16,800  looms.  The  peacetime  reconversion  of 
Japan's  textile  machinery  manufacturers  is  com- 
plicated by  the  problems  of  reparations  and  re- 
moval of  Japan's  war  potential. 

A  i^roblem  facing  the  Japanese  textile  industry 
is  the  availability  of  labor.  The  jaresent  shortage 
is  due  directly  to  the  shortage  of  the  food  which  the 
mills  make  available  to  their  workers,  who  are  girls 
and  who  prefer  to  remain  in  rural  areas  where  food 
is  plentiful.  Mill  owners  have  been  forced  to 
dej)end  ujDon  the  black  market  to  secure  additional 
food  for  their  workers. 


WIJ^ANT—Confinucd    from   page   979. 

''Solutions  of  international  economic,  social, 
health,  and  related  problems;  and  international 
cultural  and  educational  cooperation;  and 

"Universal  respect  for,  and  observance  of,  human 
rights  and  fundamental  freedoms  for  all  without 
distinction  as  to  race,  sex,  language,  or  religion." 

Taken  together,  these  constitute  a  large  order, 
but  the  jseoples  of  the  world  will  be  satisfied  with 
nothing  less. 

To  obtain  these  objectives  the  Economic  and 
Social  Council  has  the  power  of  making  recom- 
mendations to  the  governments  of  the  world.  This 
power  to  recommend,  to  draw  up  draft  treaties  and 
conventions  for  putting  the  recommendations  into 
effect,  to  focus  the  spotlight  of  world  opinion  on 
violations  of  human  rights,  on  economic  failure 
and  social  injustice,  can  be  a  very  great  power  if 
rightly  used. 

The  Council's  task  is  a  continuous  one  and  it  will 
never  be  finished.  The  "economic  and  social  ad- 
vancement of  all  peoples"  is  limited  by  no  horizon. 
This  is  the  very  substance  of  peace  itself. 

We  stand  at  the  crossroads  of  our  civilization 
on  a  brave  front  with  the  greatest  future  of  all 
time  before  us  and  the  gravest  responsibility  with 
us  and,  I  believe,  a  faith  and  a  capacity,  if  organ- 
ized, to  drive  "through  hardship  to  the  stars'". 


Statements,  Addresses,  and  Broadcasts  of  the  Week 


The  Secretary  of  State 


Assistant  Secretary  Braden 


Assistant  Secretary  Clayton 


John  G.  Winant 
U.S.    Representative    to    the    Eco- 
nomic ami  Social  Council 

Estlier  C.  Brunaiier 

U.S.     Representative    to    UNESCO 
Preparatory  Commission 
Charles  Thomson 

Adviser  on  UNESCO  Relations,  Of- 
fice of  International  Informa- 
tion and  Cnltural  Affairs 


Inter-American  Military  Cooperation. 
Printed  in  this  issue. 

"Policy  Based  on  I'rinciples."  Not 
printed.  Text  issued  as  press  re- 
lease 376  of  May  31. 

Chicago  Convention  on  International 
Civil  Aviation.  Printed  in  this 
issue. 

"Pursuit  of  Happiness  in  the  Econom- 
ic and  Social  World."  Printed  in 
this  issue. 


'Is  UNESCO  the  Key  to  Internation- 
al Unde;-standing?"  Not  printed. 
Text  issued  as  press  release  374 
of  May  31. 


Statement  made  on  May  29  at  Hear- 
ings before  the  House  Foreign  Af- 
fairs Committee  on  H.  R.  6326. 

Address  made  at  the  Albright  College 
Commencement  at  Reading,  Pa., 
on  June  2. 

Statement  made  on  May  29  before  the 
Senate  Committee  on  Foreign  Re- 
lations. 

An  address  made  before  the  American 
Association  for  the  United  Na- 
tions on  May  16  in  New  York, 
N.  Y. 


A  radio  program  over  the  NBC  net- 
work on  June  1. 


]U!\E  9,  1946 


1011 


Statement  on  Repatriation 
of  Germans  in  Spain 

[Released  to  the  press  May  29] 

On  May  18  the  United  States  Government  pre- 
sented to  the  United  Nations  Security  Council 
Subcommittee  on  S^Dain  a  statement  which  in- 
chided  information  on  the  Germans  remaining  in 
Spain.  There  still  remain  in  Spain  il,-20i>  Nazis, 
exchisive  of  families,  whose  repatriation  the 
United  States  Government  wishes  to  effect  as 
soon  as  250ssible.  These  Germans  include  931 
officials,  794  intelligence  agents,  450  technicians, 
scientists,  engineers,  and  businessmen,  and  30 
border  guai'ds.  To  expedite  the  removal  of 
these  Germans  the  United  States  Government  is 
making  available  a  War  Shipping  Administra- 
tion vessel,  the  Marine  Perch,  capable  of  carry- 
ing 947  passengers,  which  will  arrive  on  June 
6  at  the  Spanish  port  of  Bilbao  on  its  wa}^  to  Ger- 
many. The  American  Embassy  in  Madrid,  in  co- 
operation with  the  British  and  French  representa- 
tives there,  has  made  available  to  the  Spanish  Gov- 
ernment this  information,  giving  that  govei'n- 
ment  one  month  advance  notice  in  which  to  con- 
centrate an  adequate  number  of  Germans  for 
removal. 


Release  of  Property  of 
German  and  Japanese  Refugees 

[Released  to  the  press  May  29] 

Refugees  from  Germany  and  Japan  who  are  not 
residing  in  Germany,  Japan,  Ital3%  Rumania,  Hun- 
gary, or  Bulgaria  may  now  secure  the  release  of 
their  property  in  the  United  States  from  the  spe- 
cial blocking  restrictions  imposed  by  reason  of 
their  German  or  Japanese  nationality,  according 
to  a  joint  announcement  issued  May  29  by  the  State 
Department,  Treasury  Department,  and  the  Alien 
Property  Custodian.  Accordingly  such  refugees 
may  avail  themselves  of  all  the  liberal  general  and 
blanket  licenses  issued  by  the  Treasury  Depart- 
ment once  their  status  as  ho7ia  fide  refugees  has 
been  established. 

This  new  step  is  in  conformity  with  the  Govern- 
ment's policy  of  giving  immediate  assistance  to 
those  groups  who  were  the  victims  of  Nazi  and 
Japanese  oppression  as  soon  as  information  con- 
cerning them  becomes  available,  despite  the  fact 


that  such  persons  may  technically  be  enemies  of 
the  United  States.  Applications  for  the  removal 
of  property  belonging  to  these  i^ersons  from  the 
special  restrictions  of  Treasury's  General  Ruling 
No.  IIA  should  be  filed  with  the  Treasury  Depart- 
ment through  the  appropriate  Federal  Reserve 
Bank  by  banks  and  other  persons  in  the  United 
States  holding  the  property.  Refugees  in  foi-eign 
countries  should  supplement  such  applications  by 
submitting  to  the  American  Mission  in  the  country 
in  which  they  reside  affidavits  or  statements  by 
responsible  organizations  and  other  evidence 
which  indicates  that  the  refugees  did  not  act  in  a 
manner  inimical  to  the  Allied  cause  during  the 
war.  The  applications  will  be  considered  jointly 
hy  the  Treasury  Department  and  the  Office  of  the 
Alien  Property  Custodian. 

It  was  also  pointed  out  that  refugees  living  in 
European  countries  which  have  concluded  defrost- 
ing arrangements  with  this  Government — namely, 
France,  Belgium,  the  Netherlands,  Czechoslovakia, 
Luxembourg,  Norway,  and  Finland — may  obtain 
unrestricted  use  of  their  property  upon  the  joint 
recommendation  of  the  appropriate  authorities  of 
such  countries  and  the  American  Missions  therein. 


Philip  K.  Hitti  To  Visit 
Near  East 

The  Department  of  State  and  the  Lebanese  Le- 
gation announced  on  April  30  that  Philip  K. 
Hitti,  head  of  the  department  of  oriental  lan- 
guages at  Princeton  University,  Princeton,  N.  J., 
is  leaving  shortly  for  a  four  months'  lecture  and 
research  tour  in  the  Near  East  under  the  sponsor- 
shi^J  of  the  Lebanese  Government  and  the  De- 
partment's cultural-cooperation  program. 

As  one  of  the  United  States  foremost  oriental 
scholars,  Dr.  Hitti  will  lecture  in  Lebanon,  Syria, 
Iraq,  and  Egypt  on  Near  Eastern  history,  with 
particular  emphasis  on  the  contributions  of  Amer- 
ican scholarship  to  that  field.  He  will  bring  up 
to  date  an  almost  completed  exhaustive  history 
of  a  section  of  the  Near  East  and  will  investigate 
further  possibilities  for  American  archeological 
and  historical  research  in  the  area.  As  an  Amer- 
ican of  Lebanese  origin  who  is  making  significant 
scientific  and  cultural  contributions  to  American 
life,  Dr.  Hitti  will  also  be  able  to  report  on  the 
contributions  of  other  Arab-Americans  to  the 
United  States. 


1012 


DEPARTMENT  OF  STATE  BULLETIN 


Responsibility  for  Institute  of  Inter- American  Affairs 
and  Inter-American  Educational  Foundation 

REMARKS  BY  ASSISTANT  SECRETARY  BRADEN 


[Released  to  the  press  May  28] 

On  May  20,  as  you  know,  under  the  provisions 
of  President  Truman's  order,  the  Institute  of 
Inter-American  Affairs  and  the  Inter-American 
Educational  Foundation  became  direct  responsi- 
bilities of  the  Department  of  State.  This  means 
that  if  in  the  past  the  Department's  interest  in  the 
programs  conducted  by  tliese  corporations  under 
the  sponsorsliip  of  tlie  Office  of  Inter-American 
Affairs  was  less  direct,  although  always  of  the 
deepest  concern,  it  is  now  by  its  nature  immediate 
and  of  even  greater  concern.  This  interest  can 
best  be  expressed  by  the  fact  that  Secret ai'y  Byrnes 
has  asked  Assistant  Secretaries  Benton,  Clayton, 
Russell,  and  me  to  sit  on  the  Boards  of  the  Institute 
and  the  Foundation  to  shape  their  policies  and 
assure  the  successful  accomplishment  of  their 
programs. 

The  past  success  of  these  important  cooperative 
programs  in  the  fields  of  healtli  and  sanitation. 


agriculture,  and  education  is  due  in  no  small  mea- 
sure to  the  zeal  and  enthusiasm  shown  by  each  and 
every  one  of  you  in  your  daily  work  here  in  Wash- 
ington and  the  equally  fine  spirit  demonstrated  by 
the  workers  who  are  carrying  out  these  programs 
in  the  field.  These  unremitting  efforts  must  neces- 
sarily continue  if  these  programs  are  to  succeed, 
and  succeed  they  must  if  the  good-neighbor  policy 
of  which  they  are  a  concrete  and  tangible  expres- 
sion is  to  represent  what  it  actually  does  mean — 
continuous  and  permanent  cooperation  among  the 
countries  of  this  hemisphere.  This  is  a  real  chal- 
lenge to  each  and  every  one  of  us  and  particularly 
to  you  who  are  the  laborers  in  this  vineyard  of 
inter-American  solidarity.  I  know  that  Mi*. 
Byrnes  can  count  on  your  continued  and  loyal  sup- 
port, and  I  am  certain  that  he  would  want  you  to 
know  that  he  and  everyone  in  the  Department  are 
fully  behind  the  important  work  that  you  are 
accomplishing. 


Parcel  Post  Service  to  U.  S.  Zone  in  Germany 


[Released  to  the  press  May  281 

Effective  June  1,  a  limited  one-way  parcel-post 
service  will  be  established  from  the  United  States 
to  the  American  Zone  of  Occupation,  Germany, 
except  the  American  sector  of  Berlin. 

This  service  is  limited  to  ordinary  (uni-egistered 
and  uninsured)  gift  parcels  not  exceeding  11 
pounds  in  weight.  Only  one  parcel  per  week  may 
be  sent  by  or  on  behalf  of  the  same  sender  to  or 
for  the  same  addressee.  The  contents  of  the  par- 
cels will  be  limited  to  such  essential  relief  items 
as  non-i:)erishable  foods,  clothing,  soap,  mailable 
medicines,  and  other  similar  items  for  the  relief  of 
human  suffering.  The  inclusion  of  writing  or 
printed  matter  is  prohibited. 

Each  parcel  must  be  conspicuously  marked 
"Gift  Parcel"',  and  the  sender  must  attach  a  cus- 
toms declaration  in  which  the  contents  and  value 


of  the  parcels  are  properly  itemized.  The  postage 
rate  will  be  14  cents  per  pound  or  fraction  thereof. 
The  iDarcels  should  bear  the  name  of  the  ad- 
dressee, street  and  house  number,  town,  postal  dis- 
trict number  (if  known),  province,  American 
Zone,  Germany. 

The  indication  "American  Zone,  Germany"  is 
essential,  since  the  service  is  to  that  zone  only. 
Box  numbers  may  be  used  as  pnvt  of  the  address, 
provided  the  name  of  the  box  holder  is  shown. 
Parcels  will  not  be  accepted  for  mailing  when 
addressed  "General  Delivery"  or  when  addressed 
for  delivery  in  Berlin. 

Parcels  may  be  mailed  to  the  following  prov- 
inces and  cities  which  are  located  in  the  American 
Zone  of  Occupation : 

Provinces.  Northern    Baden,   except   Kreis    of 


JUNE  9.  1946 


1013 


Rastatt  and  Buhl,  Northern  Wiirttemberg,  Ba- 
varia, Land  Hessen,  Kurhessen,  Nassau. 

Cities.  Bremen,  Bremerhaven. 

Parcels  which  are  undeliverable  will  not  be  re- 
turned to  the  sender,  but  will  be  turned  over  to 
authorized  German  relief  organizations  for  distri- 
bution to  the  needy. 

The  export  control  regulations  of  the  Office  of 


International  Trade  Operations  of  the  Depai'tment 
of  Commerce  are  applicable  to  the  service. 

Fui'ther  information  concerning  this  service 
may  be  obtained  at  local  post  offices. 

The  question  of  the  resumption  of  parcel-post 
service  between  the  United  States  and  Austria  is 
under  active  consideration  and  it  is  expected  that 
an  announcement  to  that  effect  will  be  made  in  the 
near  future. 


English  Language  and  Orientation  Courses 
for  Foreign  Students  and  Trainees 


A  number  of  colleges  and  universities  are  plan- 
ning to  conduct  English  language  and  orientation 
centers  during  the  summer  of  1946  for  the  instruc- 
tion of  foreign  students  and  trainees  who  expect 
to  enter  American  institutions  in  the  fall  or  take 
up  training  in  government  or  industry.  These 
courses  are  especially  designed  to  meet  the  require- 
ments of  foj'eign  students  and  trainees  for  inten- 


Insliiuiion 

Bucknell  Universit)',  Lewis- 
burg,  Pa. 

Colorado  School  of  Mines, 
Golden,  Colo. 

University  of  Indiana,  Bloom- 
ington,  Ind. 

Louisiana  State  Univ.,  Baton 
Rouge,  La. 

University  of  Michigan,  Ann 
Arbor,  Mich. 

Mills  College,  Oakland,  Cahf. 

Orientation  Center,  Wilson 
Teachers  College,  Washing- 
ton, D.  C. 

Queens  College,  Flushing, 
N.  Y. 

Swarthmore-Hamilton,  Hamil- 
ton College,  Clinton,  N.  Y. 

Wellesley  College,  Wellesley, 
Mass. 


Inclusive  Dates  of  Session 
July  8-Aug.  31 

Begins  June  3  for  about 

12  weeks 
June  19-Aug.  16 

July  10-Sept.  3 

July  1-Aug.  23 

July  6-Aug.  17 
Continuous;  entrance  any 

Monday    for    required 

length  of  time 
June  3-Aug.  23 

July  1-Sept.  21 

July  28-Sept.  7 


The  total  cost  of  the  sessions  varies  according 
to  the  place  but  will  range  between  $200  and  $250, 
including  tuition,  room,  and  board. 

The  language  and  orientation  centers  at  Welles- 
ley College,  Louisiana  State  University,  Bucknell 
University,  and  Mills  College  may  accept,  free  of 
tuition,  not  more  than  2.5  foreign  students  or  train- 
ees who  come  to  the  United  States  under  the  spon- 


sive  refresher  courses  in  tlie  English  language 
prior  to  regular  academic  work  in  this  country.  In 
addition,  the  courses  generally  provide  orienta- 
ti(m  in  American  customs  and  civilization  and  uni- 
versity organization. 

The  following  information  has  so  far  become 
available  to  the  Department : 


Name  of  Director 
Dr.  C.  Willard  Smith 

Dr.  Harry  M.  Crain 

Mr.  Wihiam  J.  Jansen 

Dr.  John  A.  Thompson 

Dr.  Charles  C.  Fries 

Dr.  Dominic  Rotunda 
Mrs.    Margaret    L.    Em- 
mons (Acting  Director) 

Mr.  W.  Virgil  Nestrick 

Mrs.  Helen  Hall 

Miss  Carol  M.  Roehm 


Kind  of  Instruction 
English  for  foreign  students 

English    for   foreign   engineering 

and  scientific  students 
English  for  foreign  students  and 

Latin  American  teachers 
English  for  Latin  Americans 

English  for  Latin  Americans  and 

Chinese 
English  for  Latin  Americans 
English  for  foreign  students  and 

trainees,     under     Government 

auspices 
English  for  foreign  students 

English  for  foreign  students 

English  for  foreign  students 


sorship  of  a  United  States  Government  agency  or 
a  recognized  private  institution  acting  as  agent 
for  a  Government  program. 

Further  information  may  be  obtained  by  com- 
mmiicating  direct  with  the  institution  in  question 
or  with  the  Student  and  Trainee  Branch,  Division 
of  International  Exchange  of  Persons,  Depart- 
ment of  State. 


J014 


DEPARTMENT  OF  STATE  BULLETIN 


MILL — Continued  from  page  983. 

ing  a  Philippine  Foreign  Affairs  Training  Pro- 
gram.* Selected  groups  of  Filipinos  have  been 
brought  to  this  coimtry  to  participate  in  sessions 
arranged  jointly  by  the  Division  of  Training  Serv- 
ices and  the  Division  of  Philippine  Affairs.  A 
number  of  the  graduates  of  the  Pliilippine  Foreign 
Affairs  Training  Program  are  now  serving  abroad 
at  Ajnerican  Foreign  Service  establishments  where 
they  are  receiving  valuable  experience. 

With  independence  it  is  expected  that  Philip- 
pine foreign  relations  will  be  patterned  closely 
after  American  practice.  The  Department  will  in 
all  probability  continue  its  Philippine  Foreign  Af- 
fairs Training  Program,  and  it  is  probable  that 
this  country  will  represent  Philippine  interests 
abroad  while  the  Philippine  Foreign  Service  is  be- 
ing developed. 

Inevitably  the  Philippines  will  develop  close 
working  relations  with  the  peoples  and  countries 
of  Southeast  Asia  and  China.  At  the  same  time 
the  Philippines  will  be  expected  to  play  an  active 
part  in  the  deliberations  of  the  United  Nations 
of  which  it  is  already  a  member. 

4-  Inauguration  Ceremonies 

Plans  are  now  being  completed  for  the  July  4 
independence  ceremonies  of  the  Philippine  Re- 
public in  Manila.  Invitations  will  be  extended 
jointly  by  the  United  States  and  Philippine  Com- 
monwealth Government  to  all  nations  with  whom 
the  United  States  maintains  diplomatic  relations. 
It  is  hoped  that  President  Truman  may  be  able 
to  attend  these  ceremonies.  The  event  is  being 
planned  with  its  historic  significance  clearly  in 
mind. 

Philippine  Future 

With  the  ushering  in  of  the  new  independent 
Republic  of  the  Philippines,  a  historic  era  in 
American-Philippine  relations  will  have  come  to 
an  end  and  a  new  era  in  such  relations  will  be- 
gin. The  Philippines  has  during  the  present  cen- 
tury been  the  voice  of  America  in  the  Far  East. 

'For  an  article  by  Mr.  Mill  on  the  Philippine  Foreign 
Affairs  Training  Program,  see  Buixetin  of  Feb.  3,  1S>46, 
p.  148. 


The  Far  East  has  tended  to  judge  us  by  what  we 
have  done  or  not  done  in  the  Philippines.  The 
fact  that  we  will  have  kept  our  promise  to  the 
Filipinos  to  gi'ant  them  independence  cannot  but 
fail  to  make  a  deep  impression  on  the  peoples  of 
Asia  and  further  increase  the  reservoir  of  good 
will  we  have  built  up  in  that  area. 

But  the  granting  of  independence  to  the  Philip- 
pines will  by  no  means  indicate  that  the  United 
States  is  severing  itself  completely  from  the  Phil- 
ipjjines.  Our  ties  with  the  Islands  will  continue 
to  be  extremely  close  after  independence.  Eco- 
nomically, politically,  militarily,  the  two  coun- 
tries will  be  on  common  ground  for  many  yesivs 
to  come. 

Even  the  most  optimistic  do  not  deny  that  the 
Philippines  is  being  given  its  independence  at 
a  very  critical  time  in  its  history.  The  United 
States  is  keenly  aware  that  the  Philippines  faces 
major  problems  in  the  days  to  come.  The  coun- 
try's economic  life  must  be  restored  and  put  in 
better  balance ;  a  broad  program  of  social  reform 
must  be  put  in  effect;  the  prosecution  of  collabo- 
rators must  be  carried  forward;  the  country's 
badly  depleted  revenues  must  be  restored;  and 
law  and  order  under  democratic  processes  must  be 
maintained.  In  all  these  matters,  however,  the 
United  States  is  jirepared  to  give  the  Pliilippines 
the  maximmn  assistance  possible  to  another  sov- 
ereign nation.  Thus  aided  and  encouraged  there 
is  no  doubt  that  the  Philippines  will  be  able  to 
meet  the  challenee  of  the  future. 


Foreign  Commerce  Weekly 

The  following  article  of  interest  to  readers  of 
the  Bulletin  appeared  in  the  June  1  issue  of  the 
Foreign  Commerce  Weekly,  a  publication  of  the 
Department  of  Commerce,  copies  of  which  may 
be  obtained  from  the  Superintendent  of  Docu- 
ments, Government  Printing  Office,  for  10  cents 
each : 

"Italy's  Tobacco  Trade :  Critical  Problems 
Faced"  by  .John  I.  Kross,  agricultural  economist, 
American  Embassy,  Rome. 


JUNE  9,  1946 


1015 


Termination  of  the  President's 
War  Relief  Control  Board 

[Released  to  the  press  by  tbe  White  House  May  14] 

The  President's  War  Kelief  Control  Board, 
which  had  expected  to  cease  its  activities  on  March 
31  but  M'hich,  at  the  request  of  the  President  and 
executive  agencies,  was  continued,  completed  its 
work  on  May  14;  and  on  its  recommendation  the 
President  signed  an  Executive  order  ^  terminating 
the  activities  of  the  Board  as  a  wartime  agency. 

The  President's  War  Eelief  Control  Board  for 
five  years  has  supervised  relief  agencies,  handling 
more  than  one  billion  dollai's  contributed  by  the 
American  public  for  foreign  and  domestic  war 
relief.  Regulations  of  the  Board  were  effective 
in  reducing  the  number  of  agencies  from  700  to 
less  than  100,  and  it  was  through  the  Board  that 
the  National  War  Fund  was  conceived  and  oper- 
ated. The  Board  also  was  instrumental  in  re- 
ducing the  overhead  costs  of  relief  agencies  from 
as  much  as  80  percent  in  some  cases  to  less  than  5 
percent  in  many,  thereby  saving  for  charitable 
purposes  approximately  20  million  dollars  out  of 
the  contributors'  dollars. 

The  Board  assisted  in  the  development  of  a 
non-profit  program  of  food-package  relief  through 
the  establishment  by  24  American  voluntary  relief 
agencies  of  the  Cooperative  for  American  Remit- 
tances to  Europe  (CARE),  which  is  now  engaged 
in  sending  several  million  packages  to  individuals 
and  institutions  in  the  food-deficit  countries  of 
Europe. 

Joseph  E.  Davies,  former  United  States  Am- 
bassador to  Russia,  has  served  as  the  Board's  chair- 
man since  its  establishment  on  March  13,  1941. 
Charles  P.  Taft  was  also  an  original  member. 
Charles  Warren  succeeded  Dr.  Frederick  P. 
Keppel  in  December  1943,  ujion  the  death  of  the 
latter. 

The  Board  is  notifying  the  various  agencies  con- 
cerned that  no  further  reports  will  be  required  for 
the  period  subsequent  to  March  31,  1946  and  that 
the  use  of  the  phrase  President's  War  Relief  Con- 
trol Board  Registration  should  be  discontinued. 

"  Ex,  Or.  9723  (11  Federal  Register  5345) . 

•  Functions  transferred  from  War  Areas  Economic 
Division. 

'  These  functions  were  transferred  from  the  UNRRA 
Operations  Branch  of  the  Office  of  the  Foreign  Liquidation 
Comml.ssioner. 


The  Departiiiejit 


Departmental  Regulations 

131.2     Special  Assistant  to  the  Assistant  Secretary  for 
Economic  Affairs:     (Effective  .3-115^6) 
I         RESPONSiBir.iTiES.     The     Special    Assistant    to    the 
Assistant    Secretary    shall    have    the    following    respon- 
sibilities : 

A  General.  Advise  and  assist  the  Assistant  Secre- 
tar.v  on  assigned  aspects  of  the  relations  of  the  Department 
of  State  witli  other  departments  and  agencies,  interna- 
tional bodies,  and  representatives  of  other  Government 
bodies. 

B  United  Nations  Relief  and  Rehabilitation  Ad- 
ministration Affairs  ( UNRRA  ).- 

1  Act  as  alternate  for  the  Assistant  Secretary  on 
all  UNRRA  matters. 

2  Be  the  primary  liaison  point  for  the  Department 
with  UNRRA. 

3  Establish  or  approve,  and  provide  general 
guidance  in  the  execution  of,  all  policies  and  programs 
governing  the  operations  of  the  UNRRA  Division  (UD), 
Office  of  Budget  and  Finance  (OBF). 

4  Exercise  the  authority  and  perform  the 
functions  relating  to  the  expenditure  of  funds  and  the 
provision  of  supplies  and  services  in  connection  with 
United  States  participation  in  UNRRA  except  for  the 
functions  specifically  assigned  to  OBF  by  Departmental 
Regulation  124.4,  and  the  functions  carried  on  by  UD. 

5  Execute  such  documents  on  behalf  of  the 
Department  of  State  as  may  be  necessary  in  the  dis- 
charge of  the  responsibility  delegated  to  him  in  respect 
to  UNRRA.  The  Special  Assistant  may  redelegate  this 
authority. 

124.4  UNRRA  Division  (UD)  of  the  Office  of  Budget  and 
Finance  (OBF) : '    (Effective  3-S-46) 

I  Functions.  UD,  under  the  general  direction  of  the 
Director  of  OBF  and  in  accoi'dance  with  policies  and  pro- 
grams established  or  approved  liy  the  Special  Assistant  to 
the  Assistant  Secretary  for  Economic  Affairs  (designated 
to  represent  the  Assistant  Secretary  on  United  Nations 
Relief  and  Rehabilitation  Administration  (UNRRA) 
affairs),  shall : 

A  Have  general  responsibility  for  directing  the  var- 
ious phases  of  the  UNRRA  supply  operations  tlirough  the 
facilities  of  U.  S.  Government  procuring  agencies. 

B  Provide  such  assistance  in  regard  to  the  formula- 
tion of  policies  and  programs  in  connection  with  U.  S. 
participation  in  UNRRA  as  may  be  requested  by  the 
Special  Assistant. 

C  Assist  UNRRA  in  processing  relief  supply-require- 
ments. 

D  Process  UNRRA  requisitions  for  supplies  to  be 
procured  from  U.  S.  contributions  to  UNRRA. 

B  Prepare  commitment  letters  and  other  procure- 
ment documents. 


1016 


DEPARTMENT  OF  STATE  BULLETIN 


F  Maintain  continual  liaison  witli  UNRRA  and  the 
procuring  and  servicing  agencies  on  procurement  and 
movement  of  relief  supplies. 

G  Maintain  adequate  accounting  and  operating 
records. 

H  Prepare  periodic  and  special  reports  as  required 
by  the  Special  Assistant,  and  Government  agencies  and 
the  Congress. 

122.8  Secretariat  of  the  Board  of  Examiners  for  the  For- 
eign Service  (Effective  3-1-46).  The  Board  of  Ex- 
aminers for  the  Foreign  Service  conducts  examinations 
to  determine  the  eligibility  of  candidates  for  the  Foreign 
Service  of  the  United  States.  It  is  composed  as  follows : 
the  A.ssistant  Secretary  of  State  for  Administration  who 
shall  be  Chairman;  the  Director  of  tlie  Office  of  the  For- 
eign Service  (OFS)  who  shall  act  as  Chairman  in  the 
absence  of  the  Assistant  Secretary  ;  the  Chief  of  the  Divi- 
sion of  Foreign  Service  Personnel  (FP)  ;  the  Executive 
Director  of  the  Board  of  Examiners  for  the  Foreign 
Service ;  an  officer  of  the  Department  of  Commerce  desig- 
nated by  the  Secretary  of  Commerce  and  acceptable  to 
the  Secretary  of  State;  an  officer  of  the  Department  of 
Agriculture  designated  by  the  Secretary  of  Agriculture 
and  acceptable  to  tlie  Secretary  of  State;  and  the  Chief 
Examiner  of  the  Civil  Service  Commission. 
I  Functions.  The  Secretariat  will  assist  the  Board 
of  Examiners  for  the  Foreign  Service  in  the  formulation, 
coordination,  and  administration  of  all  matters  pertaining 
to  the  Written  and  Oral  Examinations  for  admission  to 
the  Foreign  Service  of  the  United  States.  Its  functions 
will  include : 

A  Preparation  of  the  Written  Examinations  to  in- 
sure that  they  constitute  a  suitable  means  of  selection  of 
candidates  for  the  Foreign  Service. 

B  Supervision  of  the  printing  of  the  Written  Exam- 
inations. 

C  Preparation  and  direction  of  a  suitable  program 
of  publicity  to  insure  that  all  interested  individuals  and 
institutions  are  informed  of  the  times  and  pl.ices  of 
examinations,  of  their  general  character,  and  of  the  pro- 
cedures to  be  followed  in  making  application  for  designa- 
tion to  take  the  examinations. 

D  Supervision  of  all  arrangements  in  the  United 
States  and  abroad  for  the  actual  conduct  of  the  Written 
Examinations  and  the  Oral  Examinations.  This  func- 
tion will  include  liaison  with  tlie  War  Department,  the 
Navy  Department,  the  Civil  Service  Commission,  the  Col- 
lege Entrance  Examination  Board,  private  institutions 
and  organizations  and  with  Foreign  Service  establish- 
ments and  will  include  the  organization,  direction,  and 
administration  of  examining  panels  to  conduct  Oral  Ex- 
aminations in  the  United  States  and  abroad. 

E  Supervision  of  the  scoring,  grading,  and  averaging 
of  the  Written  Examinations,  including  the  making  of  all 
neceissary  arrangements  with  the  Civil  Service  Commis- 
sion, the  College  Entrance  Examination  Board,  and  experts 
selected  to  read  and  score  examinations. 

F  Handling  of  all  necessary  correspondence  and  in- 
terviews with  prospective  applicants  and  with  candidates. 

G        Maintenance  of  liaison  with  the  Committee  on  the 


Revision  of  the  Foreign  Service  Examinations  and  with  the 
College  Entrance  Examination  Board  in  respect  to  matters 
dealt  with  by  these  organizations  in  connection  with  the 
preparation  of,  and  the  administration  of  the  examinations. 

H        Maintenance  of  liaison  with  universities  and  col- 
leges which  educate  candidates  for  the  Foreign  Service. 

I  Maintenance  of  the  records  of  the  Board. 
II  Organization.  Tlie  Secretariat  will  function  under 
the  direction  of  the  Board  of  Examiners  for  tlie  Foreign 
Service,  but  will  be  considered  a  part  of  OFS  for  admin- 
istrative and  budgetary  purposes.  The  Executive  Direc- 
tor of  the  Board  of  Examiners  for  the  Foreign  Service  will 
also  serve  as  Executive  Director  of  the  Secretariat. 

230.1  Requests  for  Information  From  German,  Italian- 
Fascist,   and   Japanese   Archives:      (Effective  2-15-46). 

I  In  the  interest  of  security  and  in  order  to  expedite 
the  flow  of  essential  policy  information  from  the  flies  of 
German,  Italian-Fascist,  and  Japanese  official  and  quasi- 
official  organizations  to  interested  Divisions  and  Offices 
of  the  Department,  and  to  facilitate  arrangements  with 
other  Allied  Governments  on  investigative  procedure  foi 
combined  exploitation  of  enemy  documents,  the  Depart- 
ment hereby  centralizes  responsibility  of  supervising  the 
collection  and  processing  of  information  from  these 
sources  in  the  Division  of  Foreign  Activity  Correlation 
(FC),  Office  of  Controls  (CON). 

II  All  requests  from  other  Offices  and  Divisions  of  the 
Department,  regardless  of  the  nature,  for  information 
from  the  sources  mentioned  above  shall  be  made  to  FC. 

III  All  i-equests  to  assign  investigative  personnel  to 
this  project,  regardless  of  the  purpose,  shall  be  submitted 
to  FO  for  approval. 

IV  All  instructions  to  our  diplomatic  missions  abroad 
concerning  the  review  of  enemy  diplomatic  and  consular 
records  shall  continue,  as  in  the  past,  to  be  made  by  or 
with  the  full  approval  of  FC. 

V  Liaison  with  the  War,  Navy,  and  Justice  Depart- 
ments on  all  matters  relating  to  the  archives  mentioned 
above  shall  continue  to  be  the  responsibility  of  FC. 

322.1  Employment  of  Aliens:  (Effective  1-28^6). 
The  Department  of  State  has  adopted  the  following  policy 
with  regard  to  the  employment  of  aliens  in  the  depart- 
mental and  field  services :  (This  does  not  apply  to  the 
Foreign  Service.) 

I  No  alien  may  be  employed  in  the  Department  to 
serve  within  the  continental  limits  of  the  United  States. 

II  Naturalized  citizens  may  be  considered  for 
employment  in  the  Department  within  the  continental 
limits  of  the  United  States:  Provided,  That  they  have 
received  their  naturalization  papers  prior  to  the  date  of 
their  application  for  employment. 

III  Aliens  may  be  employed  on  a  temporary  basis  and 
for  specific  service  outside  the  continental  limits  of  the 
United  States:  Provided,  That  no  qualified  American 
citizen  is  available.  The  recommendation  for  such  an 
appointment  must  be  accompanied  by  a  statement  to  the 
effect  that  no  qualified  American  citizen  is  available  for 
appointment. 


i 


JUNE  9,  1946 


1017 


139.1  Delegation  of  Authority  to  the  Special  Assistant  to 
the  Secretary  of  State  and  Foreign  Liquidation  Commis- 
sioner: (Effective  4-22— 16) . 

[To  information  printed  in  Bulletin  of  October  28,  1945, 
p.  704,  and  BuiXErriN  of  December  30,  1945,  p.  1061,  add 
the  following  information:] 

II  RESPONSIBnJTT  FOR  FUNCTIONS  AStsUiNED  TO  THE  SEC- 
RETARY OF  State  by  Execittive  Order  tfrt.  The  Commis- 
sioner shall  be  responsible  for  initiation  and  coordina- 
tion of  policies  and  action  in  connection  with  the 
functions  assigned  to  the  Secretary  of  State  by  Executive 
Order  9689,  dated  January  31,  1946,  and  the  preparation 
of  such  regulations  or  other  documents  requiring  action 
by  tlie  Secretary  in  the  discharge  of  his  responsibilities 
under  that  order. 

III  AuPHOKiTY  To  Execute  Contracts  and  Othek 
Documents.  The  Commissioner  is  authorized  to  execute 
such  contracts  and  other  documents  on  behalf  of  the 
United  States  or  the  Department  of  State  as  may  be  neces- 
sary or  desirable  in  the  performance  of  the  functions 
delegated  to  him,  including,  without  derogating  from  the 
generality  of  the  foregoing: 

A  Commitment  letters  authorizing  the  procurement 
and  transfer  of  materials,  equipment  or  services,  the 
charging  of  the  cost  thereof  to  program  allocations  to  the 
extent  that  funds  are  available,  the  releasing  for  export 
and  the  retransfer  of  any  such  materials,  equipment,  and 
services. 

B  Allocation  letters  authorizing  the  allocation  and 
transfer  of  funds. 

C  Revocation  letters  revoking  any  authority  granted 
under  paragraphs  III  A  and  B. 

139.2  Authorization  to  the  Special  Assistant  to  the  Sec- 
retary of  State  and  Foreign  Liquidation  Commissioner 
To  Effect  Sales  of  Surplus  Property  Through  Disposal 
Agencies  of  Foreign  Governments:    (Effective  4-22-46). 

II  The  Commissioner  is  authorized  to  effect  the  sales 
of  lend-lease  property  located  in  the  Africa-Middle  East 
Theater  and  Persian  Gulf  Command  areas  through  estab- 
lished British  disiwsal  agencies  and  to  delegate  to  these 
agencies  authority  to  dispose  of  surplus  property  in  single 
transactions  not  exceeding  $25,000  in  reported  cost, 
subject  to  the  following  conditions : 

A  Disposal  of  United  States  property  will  be  made 
with  the  same  care  and  favor  accorded  to  property  of 
other  origins. 

B  The  United  States  representatives  will  have  the 
right  to  reclaim  any  property  prior  to  final  disposition. 

C  Due  consideration  will  be  given  to  the  needs  of 
United  States  medical,  educational  or  philanthropic 
institutions. 

D  Consideration  will  be  given  to  the  legitimate  in- 
terests of  United  States  manufacturers  by  affording  them 
a  prior  opportunity  to  acquire  at  competitive  prices  any 
items  readily  identifiable  as  of  their  manufacture. 

E  Disposal  will  be  made  subject  to  such  conditions 
as  will  prevent  reexport  to  the  United  States. 


F  All  proposed  sales  will  be  submitted  to  the  United 
States  representative  for  his  prior  approval  or  veto  as  to 
price,  purchaser,  and  condition. 

G  Custodial  responsibility  for  the  care  and  main- 
tenance of  projjerty  pending  disposition  will  remain  with 
the  appropriate  British  disposal  agency. 

251.1  Advice  and  Assistance  on  Treaties  and  Other  In- 
ternational Agreements:  (Effective  4-15-46).  This 
Departmental  Regulation  is  issued  with  a  view  to  facilitat- 
ing use  of  the  background  information  and  technical  serv- 
ices of  the  Treaty  Branch  of  the  Division  of  Research  and 
Publication  (RP)  on  matters  pertaining  to  treaties  and 
other  international  agreements. 

I  Negotiation  of  New  Treaties  and  Agreements. 
Whenever  the  negotiation  of  a  new  treaty  or  other  inter- 
national agreement  is  being  considered,  the  policy  Office 
concerned  will  request  of  the  Treaty  Branch  background 
material  and  advice  regarding  relevant  provisions  in  exist- 
ing treaties  and  agreements,  the  general  treaty  relations 
of  this  Government  with  the  government  concerned,  and 
other  pertinent  information.  As  soon  as  tentative  provi- 
sions may  be  considered  or  drafted,  the  Treaty  Branch 
will  be  requested  to  make  available  to  the  policy  Office  the 
services  of  a  technical  adviser  on  treaties  to  insure  that 
the  agreement  is  properly  drafted  and  agreed  policy  is  ex- 
pressed clearly  and  fully.  The  Treaty  Branch  will  pre- 
pare a  draft  in  the  first  instance  upon  the  request  of 
another  office.  Before  a  proposed  treaty  or  other  agree- 
ment is  submitted  to  the  Central  Secretariat  (ESC)  of  the 
Executive  Staff  Committees  for  consideration,  it  will  be 
cleared  with  the  Treaty  Branch.  Before  any  agreement  is 
prepared  for  signature  in  tlie  Department  incorporated 
into  an  exchange  of  notes  or  an  instruction  to  the  field, 
the  draft  of  the  agreement  will  be  initialed,  in  addition  to 
any  other  relevant  Divisions  or  Offices,  by  the  Office  of  the 
Legal  Adviser  (Le)  and  the  Treaty  Branch. 

II  International  Conferences  and  so  forth. 

A  In  connection  with  preparations  for  international 
conferences  or  meetings  at  which  new  treaties  or  other 
international  agreements  may  be  formulated  or  existing 
ones  considered,  the  Treaty  Branch  will  be  called  upon 
for  background  material  and  advice,  and  for  assistance  in 
the  preparation  of  instructions  to  representatives  of  this 
Government.  Wherever  necessary,  technical  assistance 
from  the  Treaty  Branch  will  be  provided  at  such  confer- 
ences. 

B  No  text  of  any  treaty  or  other  international  agree- 
ment formulated  at  an  international  conference  or  meet- 
ing shall  be  agreed  upon  as  acceptable  to  the  United  States 
until  such  text  shall  have  been  reviewed  by  the  appropriate 
offices,  which  shall,  in  all  instances,  include  Le  and  the 
Treaty  Branch. 

III  Signing.  The  signing  of  treaties  and  other  inter- 
national agreements  or  acts  is  a  technical  matter  on  which 
the  Treaty  Branch  will  be  consulted  in  every  instance  in 
which  tlie  United  States  is  to  be  a  party  or  is  to  serve  as 
depositary.  Requests  for  the  preparation  of  full  powers 
or  other  authorizations  for  persons  to  sign  such  instru- 
ments for  the  United  States  will  be  made  to  the  Treaty 
Branch.     Full  powers  and  other  authorizations  for  for- 


1018 


DEPARTMENT  OF  STATE  BULLETIN 


eign  plenipotentiaries  to  sign  under  the  auspices  of  tbis 
GoveruQient  sucli  instruments  and  any  questions  resjiecting 
such  documents  will  be  referred  to  the  Treaty  Branch  for 
consideration.  Likewise,  the  Treaty  Branch  will  be  con- 
sulted before  any  commitments  are  made  as  to  who  will 
sign  an  international  instrument.  If  the  instrument  is  to 
be  signed  by  someone  other  than  the  Secretary  or  Under 
Secretary  or  an  ambassador  or  minister,  there  may  be  a 
question  regarding  the  appropriateness  of  signature  which 
should  be  resolved  by  the  appropriate  offices  in  the  Depart- 
ment, which  shall  in  all  instances  include  Le  and  the 
Treaty  Branch.  The  Treaty  Branch  will  be  requested  to 
make  all  arrangements  for  the  signing  of  treaties  or  other 
international  agreements  by  the  Secretary  or  the  Under 
Secretary,  or  by  any  other  person  authorized  to  sign  for 
this  Government,  as  well  as  arrangements  for  foreign 
plenipotentiaries  to  sign. 

IV  Tkansmission  to  Senate.  Requests  for  the  prep- 
aration of  reports  by  the  Secretary  of  State  to  the  Presi- 
dent and  for  messages  by  the  President  for  the 
transmission  of  treaties  to  the  Senate  for  its  advice  and 
consent  to  ratification  will  be  directed  to  the  Treaty 
Branch.  Such  requests  will  be  accompanied  by  any 
background  information  and  .suggestions  which  the  office 
concerned  may  consider  helpful  in  explaining  the  purposes 
and  provisions  of  the  treaties  involved. 

V  Status  of  Existing  Agreement.s.  Inquiries  with 
re.spect  to  the  existence,  status,  and  application  of  inter- 
national agreements,  including  agreements  to  which  this 
Government  is  not  a  party  as  well  as  those  to  which  it  is 
a  party,  will  be  made  of  the  Treaty  Branch  which  com- 
piles and  maintains  authoritative  analytical  and  docu- 
mentary records  on  such  instruments.  To  insure  that 
these  records  are  at  all  times  complete  and  up-to-date,  it 
is  of  the  utmost  importance  that  all  relevant  papers  be 
referred  to  the  Treaty  Branch.  The  Treaty  Branch  will 
initiate  any  inquiries  that  should  be  made  of  other  gov- 
ernments or  international  organizations,  as  the  case  may 
be,  in  the  event  that  the  records  of  the  Department  are 
not  clear  or  complete  with  re.spect  to  a  particular  inter- 
national agreement. 

VI  Ratifications.  Adherence,  and  so  forth.  Re- 
quests for  the  preparation  of,  and  advice  and  assistance 
respecting  instruments  of  ratification,  instruments  of  ad- 
herence, and  notifications  of  acceptance  or  approval  of 
treaties  or  other  international  agreements  will  be  made 
to  the  Treaty  Branch. 

VII  Exchange  or  Deposit  of  Ratifications,  and  so 
forth. 

A  Arrangements  for  the  exchange  or  deposit  of  in- 
struments of  ratification,  the  dejiosit  of  instruments  of 
adherencBj  and  the  receipt  of  notifications  of  acceptance 
or  approval  of  treaties  and  other  international  agree- 
ments will  be  handled  by  the  Treaty  Branch.  Instruc- 
tions to  American  diplomatic  missions  abroad  and 
communications  to  foreign  diplomatic  missions  in  Wash- 
ington respecting  such  matters  will  be  prepared  in  the 
Treaty  Branch. 

B        Inquiries  from  representatives  of  foreign   diplo- 

'  Bui.i-KTiN  of  Mar.  .3, 1946,  p.  348. 


matic  missions  in  Wa.shington  and  from  American  diplo- 
matic missions  abroad  with  respect  to  the  preparation  or 
deposit  of  such  instruments  relating  to  any  multilateral 
agreement  of  which  the  United  States  is  depositary  will 
be  referred  to  the  Treaty  Branch.  The  Treaty  Branch 
will  be  notified  immediately  of  the  receipt  of  any  such 
document  anywhere  in  the  Department,  inasmuch  as  a 
depositary  is  required  to  ascertain  whether  those  docu- 
ments are  properly  executed  before  accepting  them  for 
deposit,  and  is  required  to  keep  accurate  records  on  and 
inform  other  governments  concerned  of  the  order  and 
date  of  receipt  of  such  documents. 

VIII  Proclamations.  Policy  officers  will  contact  the 
Treaty  Branch  with  respect  to  proclamations  of  treaties 
and  other  international  agreements.  Proclamations  pre- 
pared l)y  other  offices  with  respect  to  the  application  of 
an  existing  treaty  or  other  international  agreement  will 
be  referred  to  the  Treaty  Branch  for  consideration 
before  being  transmitted  to  the  President  for  signature. 

IX  Agreements  Negotiated  by  Other  Agencies. 

A  Officers  re.sponsible  for  lijti.son  with  other  agencies 
of  this  Government  will  consult  with  the  Treaty  Branch 
regarding  procedures  to  be  followed  with  respect  to  the 
drafting  and  approving  of  international  agreements  nego- 
tiated by  such  other  agencies  and  regarding  the  custody  of 
the  originals  of  those  agreements.  While  other  agencies 
primarily  interested  in  particular  agreements  may  often 
conduct  initial  negotiations  and  preliminary  drafting,  the 
Department  has  the  over-all  responsibility  for  foreign 
relations.  The  final  tests  of  all  international  agreements 
must  therefore  conform  to  approved  and  established  De- 
partment procedure.  Originals  of  such  international 
agreements  and  extensions,  modifications,  and  amend- 
ments thereto  will  be  retained  in  the  permanent  files  of  the 
Department  of  State.  In  the  event  that  the  liaison  officer 
concerned  is  unable  to  arrange  for  the  Department  to  have 
custody  of  the  signed  original  of  a  ijarticular  agreement 
which  commits  the  United  States,  either  on  a  Government 
level  or  through  any  agency  of  the  Government,  that  officer 
shall  be  held  responsible  for  insuring  that  the  Department 
has  at  least  a  certified  copy  of  any  such  agreement. 

B  In  all  other  respects,  the  general  principles  out- 
lined in  paragraphs  I  through  VIII  above  will  be  observed. 

240.1  Responsibilities  Under  the  International  Organ- 
izations Immunities  Act:'  (Effective  2-21—46).  The 
International  Organizations  Immunities  Act,  enacted  De- 
cember 29,  1945  (Public  I-aw  291,  79th  Congress)  provides 
that  certain  privileges,  exemptions,  and  immunities  shall 
lie  extended  to  such  public  international  organizations  and 
to  their  officers  and  employees  as  shall  have  been  desig- 
nated by  the  President  through  appropriate  Executive 
( )rdpr  as  being  entitled  thereto.  By  Executive  Order  9698 
of  February  19,  1946,  the  President  designated  the  follow- 
ing organizations  as  being  entitled  to  the  privileges  pro- 
vided in  the  Act  of  December  29, 104.5 : 

Food  and  Agriculture  Organization 
International  Labor  Organization 
Pan-American  Union 
United  Nations 

United  Nations  Relief  and  Rehabilitation  Administra- 
tion 


]U!\E  9,  1946 


1019 


The  Executive  Order  designated  the  Department  of  State 
as  the  agency  to  receive  applications  and  authorized  the 
Secretary  of  State  to  require  such  information  as  he  may 
deem  necessary  from  those  international  organizations 
which  apply  to  receive  the  privileges  conferred  by  the 
Act,  and  to  prepare  recommendations  to  the  President  as 
to  whether  the  applicant  organizations  should  be  desig- 
nated by  Executive  Order  as  public  international  organiza- 
tions entitled  to  enjoy  the  privileges,  exemptions,  and 
immunities  conferred  by  the  Act. 

I  Responsibilities  or  the  Diwsion  of  Protocol  (PR), 
Office  of  Departmental  Administration  (ODA).  The  Di- 
vision is  given  responsibilities  for  the  performance  of  the 
Department  of  State  under  the  International  Organiza- 
tions Immunities  Act,  as  follows  : 

A  Receiving,  in  belialt  of  the  Secretary,  applications 
of  organizations  desiring  privileges,  exemptions,  and  im- 
munities provided  in  the  Act. 

B  Reviewing  in  the  first  instance,  such  applications 
to  a.ssure  that  tliey  satisfy  the  announced  requirements 
for  consideration  by  the  Department. 

C  Maintaining  a  complete  record  of  organizations  and 
individuals  accorded  privileges,  exemptions,  and  immuni- 
ties provided  in  the  Act. 

D  Serving  as  the  center  of  information  and  services 
for  the  administration  of  the  Act,  and  acting  as  liai-son 
with  other  Government  agencies  concerned  with  the  execu- 
tion of  the  Act. 

II  Responsibilities  of  the  Division  of  Interna- 
tional Organization  Affairs  (OA),  Office  of  Special 
Political  Affairs  (SPA). 

A  The  Division  is  given  responsibilities  for  the  per- 
formance of  the  Department  of  State  under  the  Interna- 
tional Organizations  Immunities  Act,  as  follows : 

1  Reviewing  applications  which  PR  has  founil  to 
.satisfy  the  announced  requirements  for  consideration 
in  order  to  determine  eligibility  of  organizations  for 
benefits  envisaged  by  the  Act. 

2  Drafting  the  necessary  Executive  Orders,  and 
submitting  recommendations  to  tlie  Secretary  for  his 
approval  and  transmittal  to  the  President. 

B  In  the  performance  of  the  foregoing  responsibili- 
ties, OA  will  consult  when  appropriate,  with  PR,  the 
Office  of  the  Legal  Adviser  (Le),  the  Division  of  Inter- 
national Conferences  (IC),  the  Visa  Division  (VD),  the 
geographic  Divisions,  and  other  Divisions  whose  responsi- 
bilities or  interests  are  directly  concerned  with  the  ap- 
plicant organizations. 

121.10  Division  of  Protocol.  (PR):  (Effective  2-21-46). 
I  Functions.  PR  is  given  responsibility  for  the  per- 
formance, in  behalf  of  the  Secretary,  and  in  collabora- 
tion with  the  Division  of  International  Organization 
Affairs  (OA),  of  the  Department's  responsibilities  under 
the  International  Organizations  Immunities  Act.  (See 
DR  240.1  for  a  statement  of  the  general  provisions  of  the 
Act  and  PR's  responsibilities  thereunder. ) 

115.11  Division  of  International  Organization  Af- 
fairs  (OA)  :      (E^ffective  2-21-46). 

I  Functions.  OA  is  given  responsibility  for  the  per- 
formance, in  behalf  of  the  Secretary,  and  in  collaboration 


with  the  Division  of  Protocol  (PR),  of  the  Department's 
responsibilities  under  the  International  Organizations 
Immunities  Act.  (See  DR  240.1  for  a  statement  of  the 
general  provisions  of  the  Act  and  OA's  responsiliilities 
thereunder. ) 


The  Congress 


Joint  Resolution  To  Authorize  the  Use  of  Naval  Vessels 
To  DeteiTiiine  the  Effect  of  Atomic  Weapons  upon  Such 
Vessels :  Hearing  Before  the  Committee  on  Naval  Affairs, 
United  States  Senate  Seventy-ninth  Congress,  second  ses- 
sion, on  H.J.  Res.  307,  a  joint  resolution  to  autliorize  the  use 
of  naval  ves.sels  to  determine  the  effect  of  atomic  weapons 
upon  such  vessels.     Part  2,  April  18,  1&46.     ill,  24  pij. 

Atomic  Energy  Act  of  1946:  Hearings  Before  the  Spe- 
cial Committee  on  Atomic  Energy,  United  States  Senate, 
Seventy-ninth  Congress,  second  session,  on  S.  1717,  a  bill 
for  the  development  and  control  of  atomic  energy.  Part  5, 
April  4  and  8,  1946.     iii,  43  pp. 

Authorizing  ApiX)intment  of  Additional  Foreign-Service 
Officers  in  the  Classified  Grades.  H.  Rept.  1590,  79th 
Cong.,  To  accompany  H.R.  5244.  3  pp.  [Favorable  re- 
port.] 

Second  Deficiency  Appropriation  Bill,  19^6.  H.  Rept. 
1977,  79th  Cong.,  To  accompany  H.R.  5890.  6  ijp.  [De- 
partment of  State,  p.  5.] 

Facilitating  the  Admission  into  tlie  United  States  of  the 
Alien  Fiancees  or  Fiances  of  Members  of  the  Armed  Forces 
of  the  United  States.  H.  Rept.  21  OS,  79th  Cong.,  To  accom- 
pany H.R.  6279.     4  pp.     [Favorable  report.] 

Sixth  Report  to  Oingress  on  Operations  of  UNRRA. 
Message  From  the  President  of  the  United  States  Trans- 
mitting the  Sixth  Report  to  Congress  on  UNRRA  Opera- 
tions for  the  Quarter  Ending  December  31,  1945.  H.  Doc. 
533,  79th  Cong,     m  pp. 

Supplemental  Estimate  of  Appropriation  t'op  United 
Nations  Relief  and  Rehabilitation  Administration.  Com- 
munication from  the  President  of  the  United  States  trans- 
mitting supplemental  estimate  of  appropriation  for  the 
fiscal  year  1946  in  the  amount  of  $600,000,000  for  the 
United  Nations  Relief  and  Rehabilitation  Administration. 
H.  Doc.  543,  79th  Cong.     2  pp. 

Draft  of  Propo.sed  Provision  Pertaining  to  Existing  Ap- 
propriations, Together  With  Supplemental  Estimate  of 
Appropriations  for  the  Department  of  State.  Communi- 
cation from  the  President  of  tlie  United  States  transmit- 
ting draft  of  proposed  provision  pertaining  to  existing  ap- 
proiiriations,  togetlier  with  supplemental  estimate  of 
appropriations  for  the  fiscal  year  1946  in  tlie  amount  of 
$37,261.42,  for  the  Department  of  State.  H.Doc.  591,  79th 
Cong.     2  pp. 

Reorganization  Plan  No.  1  of  1946.  Message  from  the 
President  of  the  United  States  transmitting  Reorganiza- 
tion Plan  No.  1  of  1946,  prepared  in  accordance  with  the 
provisions  of  the  Reorganization  Act  of  1945.  H.Doc.  594, 
70th  Cong.     13  pp.     [Department  of  State,  pp.  1,  7-8.] 


1020 


DEPARTMENT  OF  STATE  BULLETIN 


Training  Announcements 


Wednesday  11  o'clock  Orientation  Series 

Prof.  Frederick  L.  Scluiman  of  Williams  College,  a 
widely  known  author  in  the  field  of  foreign  affairs, 
will  speak  on  "United  States  -  Soviet  Relations  and 
World  Affairs"  at  11  a.m.,  Wednesday,  June  19. 

Departmental  Orientation  Series 

Gen.  John  H.  Hilldring,  Assistant  Secretary  of  State 
for  occupied  areas,  will  speak  at  10  a.m.,  Wednes- 
day, June  26,  instead  of  on  the  previously  an- 
nounced date  of  June  17.  General  Hilldring  will 
discu.ss  "American  Policies  in  Occupied  Areas." 

Mr.  Willard  L.  Thorp.  Deputy  to  Assistant  Secretary 
for  economic  affairs,  will  outline  the  "Economic 
Objectives  of  American  Foreign  Policy"  at  10  a.  m. 
and  11  a.  m.  on  Tuesday,  June  18. 

Economic  Pi'oblems  of  Occupation  in  Japan  will  be 
explained  by  Mr.  Roswell  H.  Whitman,  Assistant 


Chief,  Division  of  Japanese  and  Korean  Economic 
Affairs,  on  June  21  at  11  a.m. 

Foreign  Service  Orientation  Series 

The  "I'ulitical  Objectives  of  American  Foreign  Pol- 
icy" will  be  outlined  on  June  20,  at  9  a.  m.,  by  Mr. 
Robert  McClintock.  Foreign  Service  Officer  and 
Special  Assistant  to  the  Director,  Office  of  Sijecial 
Political  Affairs,  for  Foreign  Service  per.sonnel  in 
training.  This  lecture,  as  well  as  the  other  lec- 
tures in  the  Foreign  Service  Orientation  Series,  is 
open  to  personnel  of  other  Government  departments 
who  are  assigned  to  foreign  duty  upon  special  ar- 
rangement, in  advance,  with  the  Registrar  of  the 
Training  Division,  and  to  Department  of  State  per- 
sonnel interested  in  tlie  subjects  covered. 

rhe.se  lectures  will  be  held  in  Room  474,  main  State 
Department  building. 


Contents— Continued 


Treaty  Information 

Agreements  on  Economic  and  Financial  Problems  Reached      ^^"^'^ 

by  U.  S.  and  Provisional  French  Governments.    .    .    .        994 

Inter-American  Military  Cooperation 1001 

Statement  by  the  Secretary  of  State 
Chicago  Convention  on  International  Civil  Aviation.    .    .    .      1004 

Statement  by  Assistant  Secretary  Clayton 

Cultural  Cooperation 

English    Language    and    Orientation    Courses    for    Foreign 

Students  and  Trainees 1013 

Philip  K.  Hitti  to  Visit  Near  East 1011 

Publications 

Foreign  Commerce  Weekly 1014 

The  Congress 1019 

Training  Announcements 1020 


PUBLISHED  WITH  APPROVAL  OP  DIRECTOR  OF   BUREAU  OP  THE   BUDGET 
U.  S.  60VERNMENT  PRtHTING  OFFICE:  194S 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  NO.  363 


JUNE  16,  1946 


"Random  Harvest" 

Address  by  UNDER  SECRETARY  ACHESON page  1045 

Proposals  for  Ameiidinent  of  ILO  Constitution 

Article  ))y  BERNARD  WIESMAN page  1028 

German  Documents  on  Relations  With  Japan  .    page  io38 
The  Paris  Agreement  on  Reparation  From  Germany 

Article  by  JOHN  B.  HOWARD page  1023 

Selective  Service  Processing  of  American  Citizens 
Outside  the  U.  S page  1035 


VveNT  o^ 


For  complete  contents 
see  inside  cover 


THE  DEPARTMENT  OF  STATE 

BULLETIN 


Vol.  XIV  •No.  363* 


Publication  2552 


June  16,  1946 


for  gale  by  the  Superintendent  of  Documents 

U.  S.  Government  Printing  Office 

Washington  25,  D.  C. 

SuBSCmiTloN; 

S2  iesues,  $3.50;  single  copy,  10  cents 

Special  offer:  13  weeks  for  $1.00 

(renewable  only  on  yearly  basis) 


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  BVLLETIIS 
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  thefunctions 
of  the  Department.  Information  con- 
cerning treaties  and  international 
agreements  towhich  the  VnitedStates 
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 
legislatit^e  material  in  the  field  of  inter- 
national relations,  are  listed  currently. 


JUL    8    i94« 

Contents 

Economic  Affairs  Page 
The  Paris  Agreement  on  Reparation  From  Germany 

Article  by  John  B.  Howard 1023 

Proposals  for  Amendment  of  ILO  Constitution 

Article  by  Bernard  Wiesman 1028 

Election  of  Bank  and  Fund  Officials lO-l-l 

The  Proclaimed  List • 1052 

Signing  of  Protocol  Modifying  the  Income-Tax  Convention 

Withthe  United  Kingdom 1052 

General  Policy 

"Random  Harvest" 

By  Under  Secretary  Acheson 1045 

Rumanian  Reply  to  U.S.  Note  on  General  Elections  and 

Public  Liberties 1048 

Mission  To  Observe  Revision  of  Greek  Electoral  Lists   .    .    .      1050 

Letters  of  Credence: 

Ambassador  of  the  U.S.S.R 1050 

Ambassador  of  Haiti 1050 

Ambassador  of  Great  Britain 1050 

Philippine  Independence  Day  Ceremonies 1051 

Occupation  Matters 

Far  Eastern  Commission 1042 

Policy  Statement  Regarding  Aliens  in  Japan 1042 

German  Documents 

German  Documents  on  Relations  With  Japan 1038 

The  United  Nations 

Representative  on  Commission  on  Narcotic  Drugs   ....      1052 

Treaty  Information 

The     Paris    Agreement    on     Reparation     From     Germany 

Article  by  John  B.  Howard 1023 

Treaty  Obligations  and  Philijipine  Independence: 

Exchange  of  Notes  between  the  U.S.  and  Bolivian  Gov- 
ernment    1049 

Signing  of  Military  Mission  Agreement  With  Venezuela   .    .      1050 

Transit  Use  of  Azores  Airports 1051 

Signing  of  Protocol  Modifying  the  Income-Tax  Convention 

With  the  United  Kingdom 1052 

International  Organizations  and  Conferences 

Calendar  of  Meetings 1042 

Activities  and   Development.s 1042 

Cultural  Cooperation 

Visit  of  Haitian  Economist 1053 

Visit  of  Chinese  Scientist 1053 

The  Department 

Resignation  of  George  P.  Baker 1054 

Appointment  of  Officers 1054 

The  Congress 1053 

The  Foreign  Service 

Selective  Service  Processing  of  American  Citizens  Outside 

the  U.S 1035 

Confirmations 1053 

Consular  Offices 1053 

Training  Announcements 1054 


The  Paris  Agreement  on  Reparation  From  Germany 


Article  by  JOHN  B.   HOWARD 


THE  EiGiiTEEN-powER  Pai'is  Conference  on  Repa- 
ration was  in  session  from  November  9  to  De- 
cember 21,  1945.  It  was  convened  upon  the  invi- 
tation of  the  Governments  of  the  United  States, 
the  United  Kingdom,  and  France,  as  the  powers 
occupying  the  three  western  zones  of  Germany. 
The  otlier  participating  coiaitries  were  Albania, 
Australia,  Belgium,  Canada,  Czechoslovakia,  Den- 
mark, Egypt,  Greece,  India,  Luxembourg,  the 
Netherlands,  New  Zealand,  Norway,  the  Union  of 
South  Africa,  and  Yugoslavia.  James  W.  Angell, 
United  States  representative  on  the  Allied  Com- 
mission on  Reparation — Germany,  was  the  Dele- 
gate of  the  United  States  at  the  Conference.  D. 
Maynard  Phelps,  deputy  United  States  repre- 
sentative on  the  Allied  Commission  was  Deputy 
Delegate. 

The  Paris  Conference  recommended  to  the  par- 
ticipating governments  the  adoption  of  the  Paris 
Agreement  on  Reparation.^  This  agreement  was 
signed  on  January  14,  1946  by  a  sufficient  number 
of  governments  to  bring  it  into  force  on  that  date 
and  has  now  been  signed  by  all  of  the  18  gov- 
ernments which  participated  in  the  Paris  Con- 
ference. 


The  basic  program  of  the  United  States  and  its 
Allies  for  the  satisfaction  of  their  reparation 
claims  against  defeated  Germany  is  contained  in 
two  complementary  agreements — the  tripartite 
Potsdam  x4.greement  ^  of  August  2,  1945  and  the 
18-power  Paris  Agreement  on  Reparation  of  Jan- 
uary 14,  1946  resulting  from  the  Paris  Confer- 
ence on  Reparation. 

At  the  Potsdam  Conference  the  Govermnents 
of  the  United  States,  the  Union  of  Soviet  So- 
cialist Republics,  and  the  United  Kingdom  agreed 
upon  the  principles  of  a  plan  for  the  exaction  of 
reparation  which  formed  an  integral  part  of  a 
coordinated  Allied  political  and  economic  pol- 
icy toward  Germany.     The  AVorld  AA'ar  I  con- 


ception of  reparation  as  the  maximum  obtain- 
able financial  comi:)ensation  in  fixed  sums  of 
money  for  the  staggering  costs  of  war  to  the 
Allies  was  abandoned.  The  application  of  this 
conception  had  actually  transferred  much  of  the 
real  -burden  of  German  reparation  to  the  Al- 
lies, in  the  form  of  repudiated  loans.  Instead, 
the  Potsdam  Agi-eement  established  two  major 
new  principles.  First,  it  was  agreed  that  the 
primary  objective  should  be  the  establishment 
of  military  and  economic  security  against  renewed 
German  aggression,  not  the  maximizing  of  repara- 
tion receipts.  Second,  it  was  agreed  that  repai-a- 
tion  should  be  paid  by  Germany  in  kind,  rather 
than  in  cash,  the  payment  in  kind  to  be  made  out  of 
such  German  assets  as  would,  if  left  under  German 
control,  constitute  an  economic  base  for  future  ag- 
gression by  Germany  but  would,  if  received  as 
reparation,  hasten  the  economic  recovery  of  the 
United  Nations.  The  total  amount  and  dura- 
tion of  reparation  and,  to  some  extent,  the  char- 
acter of  the  reparation  assets  to  be  made  avail- 
able by  Germany  were  not  fixed  in  advance  but 
were  made  dependent  upon  subsequent  determina- 
tions to  be  reached  by  the  Control  Council  for 
Germany  with  respect  to  the  establishment  of  the 
German  economy  on  a  peaceful  basis. 

Agreement  was  also  reached  at  Potsdam  upon  a 
plan  for  the  division  of  German  reparation  as.sets 
between  the  Union  of  Soviet  Socialist  Republics 
and  Poland,  on  the  one  hand,  and  the  United 
States,  the  United  Kingdom,  and  other  countries 
entitled  to  reparation,  on  the  other  hand.  Under 
this  plan  and  subsequent  decisions  the  principal 


'  Special  Adviser  to  James  W.  Angell,  U.  S.  representa- 
tive on  the  Allied  Commission  on  Reparations  for  Germany 
and  U.  S.  Delegate  to  the  Paris  Conference  on  Reparation. 
Mr.  Howard  also  acted  subsequently  as  alternate  to  the 
V.  S.  Delegate  to  the  Inter-Allied  Reparation  Agency. 

'For  test  of  the  Paris  Agreement  on  Reparation,  see 
Bulletin  of  Jan.  27,  1946,  p.  114. 

=  For  text  of  the  Potsdam  Agreement,  see  Buluh'in  of 
Aug.  5,  1945,  p.  153. 


1023 


1024 


DEPARTMENT  OF  STATE  BULLETIN 


assets  out  of  which  the  reparation  claiins  of  the 
countries  in  the  hitter  group  are  to  be  satisfied 
include : 

1.  German  enemy  assets  witliin  the  jurisdiction 
of  these  countries. 

2.  German  external  assets  within  the  countries 
which  remained  neutral  in  the  war  against 
Germany. 

3.  75  percent  of  the  industrial  capital  equip- 
ment to  be  removed  from  the  western  zones  of 
Germany.'' 

4.  Two  thirds  of  the  German  merchant  marine.^ 

5.  The  commodities  to  be  delivered  by  the  Union 
of  Soviet  Socialist  Republics  (referred  to  liere- 
after  as  Russian  reciprocal  deliveries)  in  ex- 
change for  receipt  of  15  jiercent  of  the  industrial 
capital  equipment  to  be  removed  from  the  western 
zones  of  Germany." 

At  the  Paris  Conference  on  Reparation  the  gov- 
erning principles  and  the  mechanism  were  estab- 
lished for  the  division  of  these  reparation  assets 
among  the  18  governments  which  participated  in 


*  Of  the  2.5  percent  which  is  to  be  allocated  to  the  U.S.S.R 
and  Poland,  10  percent  represents  reparation  to  these  coun- 
tries and  15  percent  is  to  be  paid  for  liy  the  U.S.S.R.  in 
food,  raw  materials,  and  other  products. 

"  The  Potsdam  Agreement  ijrovided  for  e(inal  distribution 
of  the  .surrendered  German  merchant  marine  among  the 
tJ.S.S.R.,  United  States,  and  United  Kingdom.  It  pro- 
vided furtlier  tliat  the  U.S.S.R.  would  provide  out  of  its 
share  for  Poland  and  that  the  United  States  and  United 
Kingdom  would  provide,  from  their  shares,  appropriate 
amounts  for  other  Allied  countries  whose  merchant  ma- 
rines have  suffered  heavy  losses  in  the  war  against  Ger- 
many. The  .ships  allocated  to  the  United  States  and  United 
Kingdom,  in  accordance  with  their  respective  one-third 
shares,  have  been  made  available  by  these  countries  to  the 
Inter-Allied  Reparation  Agency,  referred  to  below,  for 
ilistribution  by  the  Agency  among  the  18  member  gov- 
ernments in  accordance  with  the  principles  of  alloca- 
tion established  in  the  Paris  Agreement. 

"  Although  the  Potsdam  Agreement  does  not  expressly 
so  provide,  it  has  been  decided  that  Russian  reciprocal  de- 
liveries should  constitute  a  source  of  reiiarution  to  the 
countries  other  than  U.S.S.R.  and  Poland. 

'For  text  of  the  report  on  the  Crimea  (Yalta)  Confer- 
ence, see  Bm,i,ETiN  of  Feb.  18,  194.5,  p.  213. 

*  Reparation  assets  were  divided  into  two  categories 
because  of  the  decision  of  the  United  States,  discussed 
below,  not  to  claim  so  large  a  share  of  industrial  equip- 
ment as  of  other  forms  of  reparation  assets  and  because 
of  the  greater  administrative  convenience  of  allocating 
individual  items  of  reparation  in  accordance  with  sepa- 
rate shares  for  these  two  categories. 


the  conference.  Arrangements  are  under  consider- 
ation whereby  certain  other  governments  which  are 
entithnl  to  receive  reparation  from  Germany  and 
whicii  did  not  participate  in  the  conference  will 
.meet  tlieir  reparation  claims  from  German  ex- 
ternal assets  within  their  several  jurisdictions. 

II 

Several  major  results  were  achieved  by  the 
Paris  Conference  and  by  the  Paris  Agreement: 

1.  Agreement  was  readied  among  the  18  gov- 
ernments on  their  respective  shares  in  all  assets 
available  to  these  governments  collectively  as 
reparation  from  Germany. 

In  the  establishment  of  reparation  shares  the 
Paris  Conference  was  guided  by  the  principle, 
agreed  upon  at  the  Yalta  Conference  of  February 
1945,"  that  reparation  ,from  Germany  should  be 
received  in  the  first  instance  by  those  countries 
which  have  borne  the  main  burden  of  the  war, 
have  suffered  the  heaviest  losses,  and  liave  organ- 
ized victory  over  the  enemy.  To  insure  the  at- 
tainment of  an  equital)le  distribution  of  repara- 
tion assets  in  the  light  of  this  principle,  the 
conference  examined  extensive  data  submitted  by 
the  participating  governments  relating  to  their 
reparation  claims  against  (Jermany.  Tlie  data 
covered  a  number  of  categories  such  as  war  dam- 
age, war  expenditures,  costs  of  German  occupa- 
tion, man-years  spent  in  the  armed  forces  and 
war  jH-oduction,  and  loss  of  life.  The  sum  total 
of  claims  for  direct  damage,  war  expenditures, 
and  occupation  costs  alone  amounted  to  almost 
$300  billion,  an  anioinit  obviously  tremendously 
in  excess  of  the  total  value  of  any  probable  avail- 
able German  reparation  assets. 

This  statistical  data  necessarily  provided  much 
of  the  basis  for  determining  the  rehitive  sizes  of 
the  reparation  shares  of  tlie  several  countries. 
Nevertheless,  it  was  clear  to  the  delegates  to  the 
conference  that  no  single  formula  could  be  de- 
vised which  would  adequately  take  into  account 
the  statistical  non-comparability  of  the  different 
categories  of  lo.sses  and  the  numerous  non-statis- 
tical factors  inherent  in  tlie  Yalta  principle  for  the 
equitable  division  of  reparation  assets. 

The  reparation  shares  agreed  upon  assign  sep- 
arate percentage  shares  to  each  government  in 
two  different  categories  of  reparation  assets.*  One 
category,  designated  A,  includes  all   reparation 


]UNE  16,  1946 

assets"  except  iiulustrial  and  other  capital  equip- 
ment removed  from  Germany  and  merchant  ships 
and  inhmd  water  transport.  The  latter  types  of 
assets  comprise  the  other  category,  designated  B. 
These  percentage  shares  for  the  18  governments 
are  as  follows : 

Table  of  Shares 

Percentage  share 
Couiitrii  Category  A     Category  B 

Alliaiiia      0.05  0.  35 

United  States  of  America 28.  00  11.  80 

Australia      0. 70  0.  95 

Belgium     2.  70  4.  50 

Canada      .3.  50  1.  50 

Denmark 0.  25  0.  35 

Ks.vpt      0.  05  0.  20 

France 16.  00  22.  80 

I'nited     Kingdom 28.  00  27.  80 

Greece     .   .' 2.  70  4.  35 

India 2,  00  2.  90 

LiUxeml>ourg 0.  15  0.  40 

Norway      1.  30  1.  90 

New     Zealand 0.  40  0.  60 

Netherlands 3.  90  5.  60 

Czechoslovakia      3.  00  4.  30 

Union  of  South  Africa 0.  70  0.  10 

Yugoslavia    . 6.60  9.60 

100.  00  100.  00 

The  reparation  receipts  to  which  the  United 
States  is  entitled,  as  a  consequence  of  its  jjercent- 
age  shares  as  shown  above  and  of  the  special  pro- 
visions of  the  Paris  Agreement  applying  to 
German  external  assets  and-  to  receipts  of  German 
merchant  ships,  may  be  summarized  as  follows :  ^^ 

(a)  All  German  external  assets  within  the  ju- 
risdiction of  the  United  States,  estimated  at  some 
$200  million  ; 

(&)  28  percent  of  German  external  assets  in 
neutral  countries; 

(c)  A  share  of  German  merchant  shipping  pro- 
portionate to  the  relative  tonnage  losses  of  the 
United  States ; " 

{(l)  11.8  percent  of  industrial  and  other  capital 
equipment  removed  from  the  western  zones  of 
Germany  and  made  available  to  the  governments 
participating  in  the  Paris  Conference ;  and 

{e)  28  percent  of  the  value  of  all  other  German 
assets  made  available  for  reparation  to  these  gov- 
ernments, including  such  assets  as  Eussian  recip- 
rocal deliveries. 

At  the  Paris  Conference  the  United  States  did 
not  claim  so  large  a  percentage  share  of  industrial 
equipment  as  of  other  types  of  reparation  assets. 
This  decision  was  based  on  the  fact  that  the  early 
receipt  of  such  equipment  is  especially  impoi'tant 
to  the  war-devastated  countries  of  Em-ope, 
whereas  the  United  States,  as  a  capital  exjjorting 


102^ 

nation,  has  only  a  limited  intei'est  in  such  equip- 
ment. The  share  of  the  United  States  is  large 
enough  to  cover  equipment  which  may  be  removed 
from  Germany  as  reparation  in  which  there  are 
l^rivate  American  pre-war  financial  interests  of  a 
substantial  character,^-  and  also  to  make  possible 
the  receipt  of  a  relatively  small  volume  of  special 
items  likely  to  be  desired  by  the  United  States  and 
its  nationals.  Canada  and  the  Union  of  South 
Africa  likewise  decided  at  the  Paris  Conference 
not  to  claim  so  large  a  share  of  industrial  equip- 
ment as  of  other  types  of  reparation  assets.  It  is 
quite  likely,  in  view  of  the  restricted  class  of  Ger- 
man industrial  equipment  and  of  German  mer- 
chant ships  which  the  United  States  will  wish 
to  receive  as  reparation,  that  the  United  States 
will  not  submit  requests  to  IAEA  to  the  full  extent 
of  its  share  of  these  items. 

"The  Potsdam  Agreement  does  not  determine  wliether 
current  production  and  labor  shall  be  regarded  a.s  sources 
of  reparation.  The  agreement  does  provide,  however, 
tliat  the  proceeds  of  exports  from  current  production 
and  stocks  shall  be  available  in  the  first  place  for  pay- 
ment for  imports.  The  reparation  shares  assigned  at 
the  Paris  Conference  have  been  adjusted  in  recognition 
of  the  benefits  accruing  from  past  use  and  the  then  an- 
ticipated future  use  b.v  the  participating  governments  of 
German  ijrisoner-of-war  labor. 

"  In  order  that  countries,  such  as  the  United  States  and 
Canada,  which  decided  not  to  claim  so  large  a  share  of 
industrial  equipment  as  of  other  forms  of  reparation  as- 
sets, should  not  be  penalized  in  their  receipt  of  other  assets 
as  the  result  of  these  decisions,  section  G  of  article  1  of 
part  I  of  the  Paris  Agreement  was  adopted.  Under  this 
section  such  a  country,  in  accounting  for  receipts  of  mer- 
chant ships  and  of  German  external  assets  within  its 
jurisdiction,  is  entitled  to  regard  its  Category  B  percentage 
share  of  ships  as  equal  to  its  larger  Category  A  percentage 
share  and  to  charge  off  excess  external  assets  (as  provided 
in  section  E  of  the  same  article)  against  the  additional 
share  to  which  the  country  would  have  been  entitled  if  its 
share  in  Category  B  were  equal  to  its  Category  A  per- 
centage share.  The  statements  in  paragraplis  a  and  c  in 
the  text  are  based  on  the  United  States  percentage  of 
losses  of  ships  and  on  a  reasonable  assumption  regard- 
ing the  minimum  total  value  of  industrial  equipment 
removals  envisaged  by  the  Potsdam  Agreement.  Para- 
graph 6  results  from  section  C  of  article  1,  part  I,  of 
the  Paris  Agreement. 

"  The  Paris  Agreement  provides  that  the  German  mer- 
chant ships  available  as  rejjaration  to  the  signatory  gov- 
ernments shall  be  distributed  among  them  in  proportion 
to  the  respective  over-all  losses  of  merchant  shipping,  on 
a  gross-tonnage  basis,  of  the  signatory  governments  and 
their  nationals  through  acts  of  war. 

'-  See  the  allocation  principle  discussed  below,  which 
gives  priority  to  a  claimant  country  having  a  substantial 
interest  in  industrial  eqtiiiunent  removed  from  Germany. 


1026 


DEPARTMENT  OF  STATE  BULLETIN 


In  order  to  insure  an  equitable  distribution  of 
individual  items  of  industrial  equipment  among 
tbe  several  governments,  within  the  limits  of  their 
respective  reparation  shares,  and  to  promote  the 
effective  use  of  industrial  equipment  for  recon- 
struction purposes,  the  Paris  Conference  adopted 
certain  general  principles  to  govern  the  allocation 
of  industrial  equipment  as  reparation.  One  is  that 
no  government  shall  request  allocation  to  it  of 
industrial  equipment  except  for  use  in  its  own 
territory  or  for  use  by  its  own  nationals  outside  its 
own  territory.  A  second  principle  adopted  is  that 
items  of  industrial  equipment  in  which  a  country 
has  a  substantial  pre-war  financial  interest  shall 
be  allocated  to  that  country  if  it  so  desires." 
Under  these  principles,  a  property  may  not  be 
requested  merely  for  resale  to  another  country; 
and  if  a  property  is  removed  from  Germany  in 
which  a  substantial  American  interest  existed, 
that  property  will  be  allocated  to  tlie  United 
States  upon  its  request,  regardless  of  competing 
claimants,  and  may  be  relocated  in  western  Eu- 
rope or  elsewhere  under  American  ownership. 
The  allocation  of  an  item  of  industrial  equipment 
between  two  or  more  countries  having  substantial 
interests  in  the  item,  or  between  claimant  coun- 
tries none  of  which  has  such  an  interest,  is  to  be 
guided  by  certain  general  criteria  such  as  the 
urgency  of  need  for  economic  rehabilitation,  the 
extent  of  loss  of  similar  property,  the  relation 
of  the  item  to  the  claimant  country's  pre-war  econ- 
omy and  post-war  development,  requirements  of 
countries  with  small  shares  for  specific  items,  and 
the  maintenance  of  a  reasonable  balance  among 
the  rates  at  which  the  reparation  shares  of  the  sev- 
eral claimant  governments  are  satisfied. 

It  is  worth  noting  that  although  the  reparation 
shares  assigned  by  the  Paris  Agreement  are  based 
in  part  on  a  consideration  of  private  losses  re- 
sulting from  war  damage  to  property,  as  well  as  of 
in  part  on  a  consideration  of  private  losses  re- 
a  public  or  general  character,  the  allocation  of 
German  assets  as  reparation  is  made,  not  to  the 
individual  persons  who  suffered  losses,  but  to  the 
several  governments  involved.  The  compensation 
of  private  persons  who  hold  claims  against  Ger- 

"  The  term  substantial  is  not  defined  by  the  Paris  Agree- 
niout,  and  the  definition  must  he  supplied  by  the  Inter- 
Allied  Reparation  Agency,  which  is  responsible  for  the 
allocation  of  industrial  equipment  among  the  .signatory 
governments. 


many  arising  out  of  the  war  is  a  matter  for  the 
several  Allied  governments,  to  be  handled  in  ac- 
cordance with  their  respective  governmental  pro- 
cedures. It  should  also  be  noted  that  the  repara- 
tion mechanism  is  independent  of  the  procedures 
which  have  been  agreed  upon  for  the  restoration, 
by  way  of  restitution,  of  property  which  was 
looted  by  Germany  and  subsequently  recovered 
and  identified. 

2.  Agreement  was  reached  by  the  governments 
participating  in  the  Paris  Conference  that  their 
respective  shares  of  reparations  shall  be  regarded 
by  each  of  them  as  covering  all  its  claims  and  those 
of  its  nationals  against  the  former  German  Gov- 
ernment and  its  agencies  arising  out  of  the  war. 
By  virtue  of  this  agreement  the  several  govern- 
ments undertook  not  to  present  reparation  claims 
against  Germany  for  satisfaction  outside  the 
framework  of  the  reparation  program  envisaged 
under  the  Potsdam  Agreement.  This  undertaking 
was  without  prejudice  to  the  final  determination 
of  the  total  amount  of  reparation  and  the  right 
each  government  may  have  in  the  final  settlement 
of  German  reparation,  which  may  become  the  sub- 
ject of  negotiations  at  the  peace  settlement  with 
Germany. 

o.  The  Paris  Agreement  also  established  the 
principle  that  no  signatory  govermnent  shall 
assert  or  support  claims  against  any  other  signa- 
tory government  or  its  nationals  in  respect  of 
property  received  by  that  government  as  repara- 
tion. Accordingly,  where  a  signatory  government 
receives  property  in  which  other  signatory  gov- 
ernments or  their  nationals  have  financial  interests, 
the  latter  governments  will  not  support  any  claims 
of  their  nationals,  and  will  not  assert  any  claims 
of  their  own,  against  the  receiving  government  or 
its  nationals.  The  giving  of  clear  title  to  repara- 
tion assets  received,  to  which  this  j^rinciple  con- 
tributes, is  desirable  in  order  to  help  avoid  j'ears 
of  complex  litigation  over  such  property  iia  the 
courts  of  the  recipient  coinitries  involving  the 
nationals  of  other  countries.  Sucli  litigation  would 
engender  friction,  and  tlie  possible  later  assertion 
of  claims  against  property  removed  might  impede 
the  reparatit)!!  plant-removal  program. 

4.  The  charter  was  written  for  an  Inter- Allied 
Reparation  Agency  which  would  allocate  specific 
items  of  German  reparation  among  the  member 
govermnents.  All  of  the  18  governments  which 
participated  in  tlie  Paris  Conference  have  since 
become  members  of  the  Agency,  which  has  been  in 


JUNE  16,  1946 

operation  several  months  with  headquarters  at 
Brussels." 

5.  Agreement  \^as  reached  on  a  series  of  provi- 
sions implementing  the  United  Nations  effort  to 
remove  all  German  foreign  assets  from  German 
control.  Each  government  shall  hold  or  dispose  of 
German  enemy  assets  within  its  jurisdiction  in 
manners  designed  to  achieve  this  end.  In  addi- 
tion, each  government  undertook  to  charge  the  net 
proceeds  of  liquidation  of  all  German  enemy 
assets  within  its  jurisdiction  against  its  i-eparation 
account  and  to  provide  the  Inter-Allied  Repara- 
tion Agency  with  all  information  for  which  it  asks 
as  to  the  value  of  such  assets  and  the  amounts 
realized  from  their  liquidation. 

It  was  further  agreed  that  German  assets  in  the 
neutral  countries  shall  be  liquidated  or  disposed  of 
in  accordance  with  the  authority  of  the  United 
States,  the  United  Kingdom,  and  France,  pursuant 
to  arrangements  to  be  negotiated  with  these  coun- 
tries. The  net  proceeds  of  such  liquidation  or 
disposition  shall  be  made  available  to  the  Inter- 
Allied  Reparation  Agency  for  distribution  among 
the  member  govermnents  on  reparation  account. 
Switzerland,  the  first  neutral  country  to  reach 
agreement  on  this  subject  with  the  United  States, 
France,  and  the  United  Kingdom,  has  recently 
undertaken  to  make  available  50  percent  of  the 
proceeds  from  German  assets  within  Switzerland.'^ 
Similar  negotiations  are  being  or  will  be  held  with 
other  neutral  countries. 

6.  A  share  of  German  reparation  was  allocated 
to  the  large  number  of  non-repatriable  victims  of 
German  persecution,  who  are  not  in  a  position  to 
turn  to  an  Allied  government  for  present  help 
through  the  reparation  mechanism. 

The  group  of  non-repatriable  persons  for  whom 
this  aid  is  intended,  estimated  to  number  hundreds 
of  thousands,  is  made  up,  in  part,  of  German  and 
Austrian  refugees  and,  in  part,  of  nationals  of 
countries  formerly  occupied  by  the  Germans  who 
were  victims  of  Nazi  concentration  camps.  All  of 
this  group  have  suffered  severely  from  German 
action,  and  many  have  lost  not  only  all  their 
property  but  also  their  families,  friends,  and  con- 
nections in  the  wholesale  massacres  carried  out  by 
the  Nazis. 

The  share  of  reparation  set  aside  to  aid  this 

"An  article  in  a  following  issue  of  the  Bulletin  will 
describe  the  Agency  and  its  role  in  the  Allied  reparation 
program. 

'  ■  Bulletin  of  June  2.  194G.  p.  955. 


1027 

group  of  persons  consists  of  all  the  non-monetary 
gold  found  by  the  Allied  armed  forces  in  Europe — 
in  particular  the  boxes  of  SS  loot  collected  from 
Nazi  crematories  and  composed  primarily  of 
tooth-fillings,  rings,  and  other  items  removed  by 
tlie  Nazis  from  their  victims — a  sum  of  $25  mil- 
lion to  be  met  out  of  the  proceeds  of  German 
assets  in  neutral  countries,  and  also  assets  in  neu- 
tral countries  of  victims  of  Nazi  action  who  have 
since  died  and  left  no  heirs.  Representatives  of 
the  Governments  of  the  United  States,  France,  the 
United  Kingdom,  Czechoslovakia,  and  Yugo- 
slavia are  presently  meeting  in  Paris  to  work  out, 
as  provided  in  the  Paris  Agreement,  a  general  plan 
for  the  use  of  the  fund  thus  to  be  made  available. 
The  fund  is  to  be  used  to  further  the  rehabilitation 
and  resettlement  of  eligible  persons  and  does  not 
prejudice  their  claims  against  a  future  German 
Government  for  compensation  or  other  benefits. 

7.  Agreement  was  reached  upon  a  method  for 
the  restitution  of  the  monetary  gold  looted  by  or 
wrongfully  removed  to  Germany  and  subsequently 
recovered  by  the  United  Nations.  The  bulk  of  the 
gold  recovered  was  captured  by  United  States 
armed  forces  in  Germany.  The  gold  recovered  is 
being  restored  to  the  countries  from  which  it  was 
looted  or  removed,  in  recognition  of  their  right  to 
restitution  under  the  principles  of  the  Allied 
Declaration  on  Axis  Acts  of  Dispossession  of 
January  5,  1943,  and  the  United  Nations  Gold 
Declaration  of  February  22,  1944.  These  declara- 
tions— particularly  the  Gold  Declaration — warned 
the  neutral  countries  that  Germany  was  looting 
property  in  the  occupied  areas  and  that  she  had 
exhausted  the  legitimate  gold  reserve  with  which 
she  had  entered  the  war,  with  the  result  that  gold 
offered  to  the  neutrals  after  these  declarations 
must,  of  necessity,  have  been  looted.  Under  this 
assumption,  gold  found  in  Germany  by  the  Allied 
forces  must  likewise  have  been  looted. 

The  so-called  "gold  pot"  principle  of  restitu- 
tion was  adopted,  under  which  all  monetary  gold 
found  in  Germany  by  the  Allied  forces,  or  re- 
covered from  a  third  country  to  which  it  was  trans- 
ferred by  Germany,  is  to  be  pooled  for  distribution 
as  restitution  among  the  countries  participating 
in  the  pool  in  proportion  to  their  respective  losses 
of  gold  through  looting  or  by  M'rongful  removal 
to  Germany.  The  monetary  gold  thus  accruing 
to  a  country  will  be  accepted  in  full  satisfaction 
of  all  its  claims  against  Germany  for  restitution 

(Continued  on  paye  lOo.i) 


1028 


DEPARTMENT  OF  STATE  BULLETIN 


Proposals  for  Amendment  of  ILO  Constitution 


Article  by  BERNARD  WIESMAN 


Ar  A  TIME  when  new  public  international 
agencies  are  beginning  their  activities  or  are 
being  established,  especial  interest  attaches  to  the 
l^roiDosed  revision  of  the  constitution  of  the  Inter- 
national Labor  Organization  which  was  originally 
adopted  in  1919  as  part  XIII  of  the  Treaty  of 
Versailles.  For  the  past  two  years  a  continuing 
discussion  of  possible  alterations  has  been  carried 
on  at  meetings  of  the  Governing  Body  and  its 
Committee  on  Constitutional  Questions  and  at  the 
International  Labor  Conferences  of  Philadelphia 
in  1941  and  Paris  in  1915.  At  the  latter  meeting 
it  was  voted  to  place  the  approximately  one  hun- 
dred such  suggestions  in  the  hands  of  a  small 
"Working  Party"  for  the  purpose  of  achieving 
specific  reconmiendations  for  the  consideration  of 
member  governments  and  subsequent  submission 
to  the  1916  International  Labor  Conference  which 
will  convene  at  Montreal  on  September  19. 

In  keeping  with  the  tripartite  character  of  the 
Conference,  the  government,  employers'  and 
workers'  delegates  respectively  selected  repre- 
sentatives to  serve  on  the  Working  Party,  with 
the  understanding  that  they  would  seek  to  reach 
agreement  on  a  practicable  constitution  acceptable 
to  the  three  groups.  Six  governments  were  named 
to  i^articipate,  each  to  name  its  representative,  and 
three  employer  and  three  worker  representatives 
were  elected.  The  Working  Party  convened  on 
January  21  in  the  offices  of  the  Ministry  of  Labor 
and  National  Service,  St.  James  Square,  London, 
and  adjourned  on  February  15.  The  following 
individuals  composed  the  group,  with  the  Chair- 
man of  the  Governing  Body  of  the  ILO,  Mr.  G. 
Myrddin  Evans,  presiding: 

Government  Representatives  : 

United  States  of  America;  Miss  Frieda  Miller, 
Chief  of  the  Women's  Bureau,  Department  of 
Labor. 


Mr.  Wlesman  Is  Chief  of  the  International  Labor  Or- 
ganiiiations  Branch,  Division  of  International  Lalior, 
Social  and  Health  Affairs,  Department  of  State. 


Adviser:  Bernard  Wiesman,  Chief,  Interna- 
tional Labor  Organizations  Branch,  Depart- 
ment of  State. 

China:  Pao  Hua-Kuo,  Member  of  the  Planning 
Commission,  Ministry  of  Social  Affairs. 
Adviser:  Djang  Tien  Kai,  Chief  of  the  Bureau 
of  Factory  and  Mining  Inspection,  Ministry 
of  Social  Affairs. 

Cuba:  Orlando  Aranalde,  Chief  of  Statistics  Sec- 
tion, Secretary  of  National  Minimum  Wage 
Committee. 

France:  Henry  Hauck,  Director  of  Labor  Rela- 
tions and  Social  Questions  in  the  Ministry  of 
Labor  and  Social  Security. 
Adviser :  Jean  Morellet,  Member  of  the  Council 
of  State. 

United  Kingdom  of  Great  Britain  and  Northern 
Ireland:  G.  Myrddin  Evans,  C.B.,  Deputy 
Secretary,  Ministry  of  Labor  and  National 
Service,  Chairman  of  the  Governing  Body  of 
the  ILO. 
Adviser:  H.  M.  Phillips,  Assistant  Secretary, 
Ministry  of  Labor. 

Union  of  /South  Africa:  A.  D.  Lee,  Workmen's 
Compensation  Commissioner,  Department  of 
Labor. 

Employers'  Representatives  : 

F.  Yllanes  Ramos,  Member  of  the  Executive  Com- 
mittee of  the  Confederation  of  Chambers  of 
Industry,  Mexico. 

P.  Waline,  General  Secretary  of  the  Federation  of 
Metal  and  Mining  Industries,  France. 

Sir  John  Forbes-Watson,  Director  of  the  British 
Employers'  Confederation. 

Substitutes:  D.  S.  Eridkar,  Chairman  of  the  In- 
dian Chamber  of  Commerce  in  Great  Britain. 
Jules  Lecocq,  Secretary-General,  International 
Organization  of  Industrial  Employers. 

Workers'  Representati\'es  : 

Joseph  Hallsworth,  General  Secretary  of  the  Na- 
tional LT^nion  of  Distributive  and  Allied 
Workers,  United  Kingdom. 


JUNE  16,  1946 


1029 


Leon  Jouhaux,  General  Secretary  of  the  General 
Confederation  of  Labor,  France. 

Eobert  J.  Watt,  International  Representative, 
American  Federation  of  Labor. 

Substitute:  Gunnar  Andersson,  President  of  the 
Swedish  Confederation  of  Trade  Unions. 

For  the  discussions  on  the  sections  dealing  with 
the  representation  and  the  seat  of  the  organiza- 
tion, the  Belgian  Government  participated 
through  Mr.  Fernand  Dehonsse  and  the  Swiss 
Government  through  Prof.  William  Rappard  and 
Ml-.  Max  Kaufmann.  The  International  Labor 
Office  Mas  represented  by  the  Assistant  Director, 
Mr.  Lindsay  Rogers,  and  the  Legal  Adviser,  Mr. 
C.  Wilfred  Jenks,  whose  skill  in  draftsmanship 
I^roved  of  particular  value  in  expediting  the  work 
of  the  delegation. 

The  proposed  revision  and  accompanying  re- 
port were  agreed  to  by  all  members  of  the  delega- 
tion on  February  15  except  that  the  French  Gov- 
ernment representative  dissented  on  the  section 
concerning  representation  and  that  both  Mr. 
Jouliaux  and  Mr.  Andersson  were  unable  to  be 
present  on  the  closing  days  of  the  session.  It 
was  understood,  of  course,  that  individual  govern- 
ments Avere  not  bound  by  the  actions  of  their  rep- 
resentatives and  that,  in  the  event  that  the  draft 
should  prove  generally  unacceptable  to  the  con- 
ference, individual  meimbers  would  be  free  to 
withdraw  their  assent  to  particular  proposals  or 
to  resubmit  i^roposals  which  were  yielded  in  the 
W^orking  Party's  discussion. 

Before  analyzing  the  recommendations  of  the 
Working  Party  reference  should  be  made  to  the 
action  of  the  Twenty-seventh  Session  of  the  In- 
ternational Labor  Conference  at  Paris  in  adopting 
three  amendments  foi'  submission  to  member  gov- 
ernments to  assure  continuance  and  autonomy  of 
the  organization  upon  the  dissolution  of  the 
League  of  Nations,  with  which  cei-tain  structural 
ties  were  established  in  the  treaty  of  191!).  The 
first  of  these  changes  provided  that  amendments 
to  the  constitution  could  henceforth  be  adopted  by 
two-thirds  majority  vote  of  the  conference  and 
acceptance  or  ratification  by  two  thirds  of  the 
members  of  the  organization  including  five  of  the 
eight  states  members  of  chief  industrial  impor- 
tance. This  provision  also  required  ratification 
by  each  member  of  the  Council  of  the  League  of 
Nations  and  by  three  foui'ths  of  the  ILO  mem- 
bers, a  requirement  which  involvetl  a  delaj'  of 


several  years  in  the  adoption  of  the  onlj'  amend- 
ment of  the  inter- war  period. 

The  second  proposal  of  the  conference  was  that 
the  International  Labor  Organization  should  be 
authorized  to  make  appropriate  financial  and 
budgetary  arrangements  with  the  United  Nations 
and  that,  until  or  except  when  such  arrangements 
are  in  effect,  the  conference  by  two-thirds  vote 
might  arrange  for  approval,  allocation,  and  col- 
lection of  the  budget  with  expense  allocation 
among  members  to  be  determined  by  a  committee 
of  government  representatives.  This  amendment 
would  also  introduce  a  general  rale  that  members 
in  arrears  for  an  amount  of  contributions  due  for 
the  preceding  two  full  years  should  have  no  vote. 

The  third  major  amendment  eliminates  the 
present  arrangement  whereby  membership  in  the 
League  of  Nations  carried  with  it  membership 
in  the  ILO  and  provides  that  any  member  of  the 
United  Nations  may  become  a  member  of  the  ILO 
upon  communicating  to  the  Director  its  formal  ac- 
ceptance of  the  obligations  contained  in  the  ILO 
constitution.  Other  states  may  be  admitted  by 
a  vote  of  two  thirds  of  the  delegates  including  two 
thirds  of  the  government  delegates  present  and 
voting. 

These  amendments  have  been  transmitted  to  the 
House  of  Representatives  and  the  Senate  of  the 
United  States  for  acceptance  since  it  was  on  the 
basis  of  Public  Resolution  43  of  193-1  that  the  Pres- 
ident was  authorized  to  accept  membership. 

Relations  With  United  Nations 

In  addition  to  the  jiroposed  amendments  as  to 
financing  and  as  to  the  right  of  membership  in  the 
ILO  on  the  part  of  members  of  the  United  Nations, 
a  resolution  was  adopted  at  Paris  expressing  the 
desire  of  the  ILO  to  enter  into  relations  with  the 
United  Nations  on  mutually  acceptable  terms  and 
authorizing  the  Governing  Body  to  enter  into  such 
necessary  or  desirable  agreements  with  the  appro- 
priate authorities  for  this  purpose,  subject  to  the 
approval  of  the  conference.  The  Working  Party, 
noting  that  a  pledge  of  cooperation  is  already  con- 
tained in  the  Declaration  of  Philadelphia,  agreed 
that  an  additional  explicit  declaration  should  be 
proposed  for  inclusion  within  the  constitution 
stating  that  "the  International  Labor  Organiza- 
tion shall  cooperate  within  the  terms  of  this  Con- 
stitution with  any  general  international  organiza- 
tion entrusted  with  the  coordination  of  the  activi- 
ties of  public  international  organizations  having 


1030 


DEPARTMENT  OF  STATE  BULLETIN 


specialized  responsibilities  and  with  piiblic  inter- 
national organizations  having  specialized  resjion- 
sibilities  in  related  fields."  In  the  accompanying 
report  it  is  made  clear  that  the  tei'm  piihlic  inter- 
national organisations  refers  to  intergovernmental 
agencies  and  has  been  so  nsed  in  several  interna- 
tional instruments  of  this  sort. 

In  addition,  amendments  have  been  propo.sed  to 
authorize  arrangements  for  the  non-voting  partici- 
pation in  ILO  deliberations  by  representatives  of 
public  international  organizations,  in  accordance 
with  the  general  jjattern  for  such  collaboration 
contained  in  the  report  of  the  Preparatory  Com- 
mission of  the  United  Nations.  The  Governing 
Body  would  be  required  to  consider  any  sugges- 
tions for  the  agenda  item  of  the  conference  which 
may  be  made  by  any  public  international  agency 
under  a  proposed  insertion  in  the  text  of  article  14. 

Pending  actual  negotiations  with  the  United 
Nations,  the  Working  Party  concluded  that  the 
present  and  proposed  provisions  would  be  suffi- 
ciently broad  and  flexible  to  meet  the  probable 
constitutional  requirements  for  entering  into  the 
desired  relation  with  the  United  Nations.^ 

Effectiveness  of  Code 

The  central  unique  character  of  the  ILO  is  found 
in  the  formulation  through  its  tripartite  Inter- 
national Labor  Conference  of  international  stand- 
ards which  member  governments  are  bound  to 
submit  for  possible  ratification  or  legislative  im- 
plementation. Toward  that  objective  the  major 
work  of  the  organization  is  directed,  with  expert 
committees  and  the  highly  skilled  research  and  ad- 
visory staff  of  the  office  both  prepai-ing  the  \\ay 
for  and  following  up  after  the  discussions  and 
decisions  of  the  representatives  of  member  gov- 
ernments, employers,  and  workers.  These  stand- 
ards are  embodied  in  conventions  or  recommen- 
dations which  became  major  influences  upon  the 
social  legislation  of  member  and  even  non-member 
nations  during  the  inter-war  period. 

'  Terms  of  a  draft  agrpement  between  the  United  Nations 
and  the  International  Labor  Organization  were  agreed 
upon  by  the  negotiating  committee  of  the  ELOnomic  and 
Social  Council  of  the  United  Nations  and  the  negotiating 
committee  of  the  International  Labor  Organization  at 
New  York  City  on  May  28  and  29  and  were  initiated  by 
the  respective  chairmen  on  May  30.  Thi.s  agreement  will 
be  snbniitted  for  apiiroval  by  the  Economic  and  Social 
Council  and  the  General  Assembly  of  the  I'nited  Nations 
and  by  the  International  Liibor  Conference  before  becom- 
ing effective. 


Under  the  existing  constitution  each  member  is 
obligated  to  bring  each  convention  and  recommen- 
dation before  the  authority  or  authorities  within 
whose  competence  the  matter  lies  for  the  enactment 
of  legislation  or  other  action. 

The  appropriate  action  involves  ratification, 
except  in  the  case  of  federal  states  which  may  treat 
conventions  as  recommendations  if  constitutional 
limitations  upon  legislative  authority  of  the 
federal  state  prevent  such  ratification.  During 
the  United  States  period  of  membership,  the 
President  has  submitted  only  eight  ILO  conven- 
tions to  the  Senate  for  advice  and  consent  to 
ratification,  five  of  which  concerning  maritime 
labor  were  ratified.  If  the  competent  authority 
fails  to  ratify,  there  is  no  further  obligation  under 
the  present  constitution.  Similarly,  no  obligation 
except  that  of  submission  now  exists  with  respect 
to  recommendations.  When  a  convention  has  been 
ratified,  formal  notification  must  be  made,  and 
any  necessary  legislative  implementation  pro- 
vided. Periodic  reports  as  to  the  aj^plication  of 
ratified  conventions  are  required. 

More  than  900  ratifications  of  the  67  conven- 
tions have  been  registered  bj'  the  approximately 
50  members  during  the  inter-war  period,  despite 
the  extreme  economic  difficulties  during  the  latter 
half  of  the  period  and  the  tenseness  of  the  political 
atmosphere  preceding  the  outbreak  of  war  in  1939. 
The  influence  of  these  conventions  iipon  social 
legislation  in  member  countries  is  probably  re- 
flected in  but  scanty  fashion  by  the  actual  count 
of  ratifications,  but  the  high  value  and  pervasive 
influence  of  the  international  labor  code  thus 
created  have  been  beclouded  by  the  failure  of  some 
members  to  ratify  or  adequately  to  implement 
their  formal  acceptance. 

The  Working  Party  accepted  the  thesis  pro- 
pounded by  the  British  employers'  representative 
that  the  moral  obligation  with  respect  to  conven- 
tions must  be  fully  reenforced  without  impair- 
ment of  sovereign  authority  and  that  the  major 
test  of  effectiveness  must  be  sought  in  tlte  extent  of 
application  even  more  than  in  the  number  of 
ratifications. 

Although  Mr.  Jouhaux  and  some  other  members 
of  the  Working  Party  asserted  that  the  world 
must  move  toward  an  international  authority  in 
economic  as  well  as  political  fields,  it  was  agreed 
unanimously  that  previous  proposals  for  seeking 
to  make  conventions  mandatory  upon  members 
would   be   entirely   imi^racticable    at   this   time. 


JUNE  16.  1946 


1031 


Hence  the  AVorking  I'arty  sought  a  formula  to 
increase  government  responsibility  vmder  both 
conventions  and  recommendations  without  en- 
croachment upon  the  legislative  sovereignty  of 
member  nations. 

These  clianges  include  one  to  remove  the  am- 
biguity inherent  in  the  existing  term  "draft  con- 
vention" which  has  led  to  a  conception  in  some 
circles  that  submission  for  ratification  was  op- 
tional. Since  the  position  was  taken  that  a  con- 
vention adopted  by  the  International  Labor  Con- 
ference but  not  yet  ratified  is  the  equivalent  of  a 
diplomatic  convention  signed  but  not  yet  ratified 
rather  than  of  an  unsigned  and  unratified  instru- 
ment, the  "Working  Party  agreed  that  the  word 
"draft"  should  be  deleted. 

Significant  new  obligations  would  be  imposed 
upon  members  under  the  following  four  amend- 
ments designed  to  emphasize  and  implement  the 
quasi-legislative  character  of  the  conference  and 
yet  not  to  limit  in  any  way  the  freedom  of  decision 
by  member  nations.  Thus  it  is  proposed  first  that 
members  shall  report  on  the  measures  taken  to 
submit  conventions  and  recommendations  to  the 
competent  authority  or  authorities  and  give  par- 
ticulars as  to  the  agencies  regarded  as  competent 
and  as  to  the  action  taken  by  them. 

Secondly,  it  is  proposed  to  amend  the  present 
provision  that  if  a  convention  is  not  ratified  by 
the  competent  authority,  "no  further  obligation 
shall  rest  upon  the  Member".  The  amendment 
would  add  "except  that  it  shall  report  to  the  Di- 
rector of  the  International  Labor  Office,  at  appro- 
priate intervals  as  requested  by  the  Governing 
Body,  the  position  of  its  law  and  practice  in  regard 
to  the  matters  dealt  with  in  the  Convention  and 
showing  the  extent  to  which  effect  has  been  given 
or  is  proposed  to  be  given  to  any  of  the  provisions 
of  the  Convention  by  legislation,  administrative 
action,  collective  agreement  or  otherwise  and  stat- 
ing the  difficulties  which  prevent  or  delay  the  rati- 
fication of  such  Convention." 

The  third  change  would  provide,  in  the  case  of 
reconmiendations  upon  which  no  i-eports  are  now 
constitutionallj'  required,  a  similar  obligation  to 
report  upon  request  "the  position  of  the  law  and 
practice  in  their  country  in  regard  to  the  matters 
dealt  with  in  the  Recommendation  and  showing 
the  extent  to  which  effect  has  been  given  or  is  pro- 
posed to  be  given  to  the  provisions  of  the  Recom- 
mendation and  such  modifications  of  these  provi- 


sions as  have  been  found  or  may  be  found  necessary 
to  make  in  adopting  or  applying  them." 

It  is  then  proposed  that  each  member  be  obli- 
gated to  communicate  copies  of  such  information 
and  reports  to  its  country's  most  representative 
organizations  of  employers  and  workers,  which 
constitutionally  must  respectively  be  consulted  for 
the  selection  of  delegates  from  each  of  the  two 
groups. 

Two  other  closely  associated  changes  are  pro- 
posed. To  clarify  the  appropriate  use  of  recom- 
mendations, a  test  is  proposed  to  describe  them  as 
designed  "to  meet  circumstances  where  the  sub- 
ject, or  aspect  of  it,  dealt  with  is  not  considered 
suitable  or  appropriate  at  that  time  for  a  Conven- 
tion." The  existing  clause  that  the  adoption  of 
a  convention  or  recommendation  shall  not  serve  to 
lessen  the  protection  of  existing  law  to  workers 
concerned  would  be  strengthened  under  a  proposed 
clarifying  amendment. 

CoiXECTivE  Agreements  Recognized 

The  proposed  requirements  for  reporting  con- 
stitute the  major  change  in  the  ILO  constitution 
recommended  by  the  Working  Party.  It  was  felt 
by  the  group  that  the  completeness  of  the  report- 
ing program  would  not  only  give  impetus  to  the 
ratification  of  conventions  and  recommendations 
but  would  also  afford  a  realistic  yardstick  of  the 
effectiveness  of  the  ILO  in  stimulating  interna- 
tional improvement  of  working  conditions.  The 
proposed  changes,  if  adopted,  would  focus  the  at- 
tention of  national  organizations  as  well  as  their 
counterparts  in  other  countries  upon  the  real 
standards  of  working  conditions  as  distinguished 
fi'om  statutory  minima. 

The  proposals  are  especially  significant  in  that 
they  represent  a  recognition,  it  is  believed  for  the 
first  time  on  an  intei'governmental  basis,  of  the 
effectiveness  of  collective-bargaining  agi'eements 
as  a  substitute  for  or  supplement  to  governmental 
action  in  improving  conditions  of  employment. 
Although  the  ILO  is  the  only  major  public  inter- 
national agency  in  which  employers  and  workers 
together  have  the  authority  and  responsibility  of 
voting  on  a  par  with  governments,  the  focus  of 
its  efforts  to  improve  conditions  has  been  through 
the  governmental  implementation  of  international 
mininuun  standards.  Like  any  minimum-wage 
legislation,  the  level  has  been  below  that  generally 
in  practice  in  industrialized  countries,  at  least 
for  the  members  of  the  labor  unions  from  which 


1032 


DEPARTMENT  OF  STATE  BULLETIN 


the  delegates  and  advisers  are  chosen.  Within 
the  United  States  where  exceptional  effort  to  se- 
cure Federal  action  would  be  necessary  on  matters 
at  least  traditionally  regarded  as  witliin  the  com- 
petence of  State  rather  than  of  the  Federal  Gov- 
ernment, labor  unions  liave  lacked  any  real  incen- 
tive to  seek  ratification  of  conventions  which  set 
forth  standards  below  those  established  through 
collective  agreement.  Furthermore,  many  trade 
unionists  here  believe  that  collective  agreements 
rather  than  legislation  pi-dvide  the  proper  medium 
for  improvement  of  working  conditions.  In  in- 
troducing the  concept  of  collective  agreements  as 
one  of  the  measurements  of  national  progress 
toward  social  goals,  the  ILO  thus  makes  a  limited 
but  significant  step  towards  official  recognition  of 
employer-union  responsibility  for  social  progress 
and  suggests  a  tendency  away  from  reliance  upon 
government  intervention. 

Recognition  of  existing  liigh  standards  based 
on  legislation  or  administrative  action  is  also  im- 
plicit in  the  proposed  procedure  for  reporting  on 
unratified  conventions. 

These  steps  are  not  proposed  as  substitutes  for 
ratification.  The  Working  Party  recognized  that 
conventions  constitute  a  relatively  long-range 
commitment  among  ratifying  states  to  maintain 
standards  and  that  neither  statutory  provisions 
nor  collective  agreements  can  provide  the  same 
assurance  to  competing  nations  that  established 
standards  will  be  maintained  for  a  stated  period, 
usually  of  ten  years. 

The  emphasis  upon  reporting,  if  adopted,  will 
impose  an  administrative  burden  upon  tlie  United 
States  wliere  tlie  legislation  of  48  States  plus  the 
District  of  Columbia  and  Territoi-ies  would  have 
to  be  analyzed  for  such  reports.  At  the  same  time, 
however,  it  will  provide  recognition  of  the  rela- 
tively high  levels  in  force  here  which  are  ignored 
under  the  present  criteria  of  the  number  of 
ratifications. 

Other  Questions  on  Conventions 

Proposals  to  amend  the  present  provisions  con- 
cerning federal  states  were  held  in  abeyance 
pending  a  session  of  the  ^Vorking  Party  at  Mon- 
treal to  which  tlie  representatives  of  federal  gov- 
ernments are  to  be  invited.  Since  this  Govern- 
ment was  the  only  federal  state  among  the  six 
governments  represented  at  London,  it  was  felt 
unwise  to  attempt  a  decision  on  the  proposal  which 
would  i-equire  federal  govermnents  to  transmit  to 


the  states  or  provinces  such  conventions  as  appear 
outside  the  competence  of  the  federal  government. 

It  is  proposed  to  delete  present  provisions  to 
authorize  commissions  of  enquiry  to  indicate 
measures  of  an  economic  character  wliich  might 
be  taken  by  other  members  against  a  defaulting 
government.  Tlie  Governing  Body  deemed  such 
references  inappropriate  in  view  of  the  highly 
political  character  of  such  moves  and  in  view  of 
the  terms  of  the  Charter  of  the  United  Nations. 

Suggestions  for  the  establishment  of  interna- 
tional inspection  agencies  appeared  inappropri- 
ate, but  the  Working  Party  agreed  that  great  em- 
phasis should  be  placed  upon  the  development  of 
competent  national  inspection  services.  Sugges- 
tions for  early  consideration  of  a  convention  on 
the  subject  are  therefore  to  be  placed  before  the 
Governing  Body.  A  model  clause  for  use  in  fu- 
ture conventions  requiring  use  of  adequate  inspec- 
tion services  is  also  proposed.  Also  the  Working 
Party  proposes  that  article  10  of  the  constitution 
be  amended  to  authorize  the  office,  subject  to  Gov- 
erning Body  directions,  to  provide  technical  as- 
sistance to  member  governments,  on  request,  in 
the  framing  of  laws  and  regulations  and  in  the 
improvement  of  systems  of  administration  and 
inspection. 

Projjosals  are  also  included  for  referral  of  ques- 
tions concerning  the  constitution  or  conventions 
to  the  International  Court  of  Justice  and  for  the 
appointment  of  a  tribunal  for  expeditious  deter- 
mination of  questions  affecting  the  interpretation 
of  conventions. 

Governing  Body 

New  provisions  concerning  the  Governing  Body 
are  designed  to  recognize  the  responsibilities  and 
authority  which,  in  practice,  are  already  lodgeil 
in  that  group  and  to  assure  the  authority  of  the 
Governing  Body  in  controlling  the  work  of  the 
office  without  any  undue  interference  with  its 
effectiveness.  No  changes  in  composition  are 
reconunended. 

Regional  Activities 

With  general  agreement  existing  as  to  the  de- 
sirability of  strengthening  regional  activities,  such 
as  that  represented  in  the  April  1, 1946  Third  Con- 
ference of  American  States  Members  of  the  ILO  at 
Mexico  City,  it  was  agreed  to  include  an  authori- 
zation to  the  organization  "to  convene  such  re- 
gional conferences  and  establish  such  regional 


JUNE  16,  1946 


1033 


agencies  as  may  be  desirable  to  promote  the  aims 
and  purposes  of  the  Organization." 

At  the  same  time  it  \Yas  found  unwise  to  suggest 
regional  conventions  since  the  basic  concept  of  the 
ILO  is  to  promote  world-wide  improvement  of 
conditions.  The  possibility  of  including  within 
general  conventions  modifications  designed  to  rec- 
ognize regional  circumstances  having  already  been 
demonstrated,  it  was  felt  that  regional  conferences 
could  fulfil  reliable  functions  in  advising  on  the 
need  for  and  nature  of  such  modifications. 

Application  to  Territories 

Clarification  of  procedure  and  responsibilities 
with  respect  to  the  ajjplication  of  conventions  to 
dependent  territoi-ies  is  undertaken  through  a 
series  of  amendments  too  detailed  to  permit  full 
analysis  here.  Essejitiaily  it  was  aimed  to  achieve 
a  maxinuun  of  ILO  service  to  territories  through 
the  application  of  conventions  by  the  responsible 
metropolitan  powers  or  their  own  authorities 
wherever  sufficient  autonomy  has  been  achieved. 
The  Working  Party  sought  to  balance  the  desire 
for  prompt  application  with  respect  for  the  delays 
encountered  wherever  the  metropolitan  power  has 
accepted  a  substantial  degree  of  autonomy  by  the 
territories  and  has  therefore  yielded  its  authority 
to  legislate  on  behalf  of  such  territories.  The  pro- 
posed amendments  call  for  detailed  reports  as  to 
the  application  and  implementation  of  conventions 
in  each  category  of  territory. 

Respect  for  local  autonomy  where  it  exists  is 
also  seen  in  the  proposal  to  include  in  article  3  a 
provision  which,  in  the  language  of  the  report, 
woidd  authorize  "each  IMember  responsible  for  the 
international  relations  of  non-metropolitan  terri- 
tories to  appoint  as  additional  advisers  to  each  of 
its  delegates  persons  nominated  by  it  as  represen- 
tatives of  territories  which  have  already  attained 
a  certain  stage  of  autonomous  development  and 
persons  nominated  by  it  to  advise  its  delegation  in 
regard  to  matters  concerning  non-self-governing 
territories." 

Representation 

The  only  issue  upon  which  unanimity  was  not 
reached  was  that  of  representation  at  international 
labor  conferences.  Tlie  considerations  which  in- 
duced the  Versailles  conferees  to  agree  upon  the 
existing  ratio  of  two  government  delegates  to  one 
employer  and  one  worker  reiiresentative  still 
proved   valid   in    the    opinion   of   the   majority. 


Leon  Jouhaux,  on  whose  behalf  the  discussion  was 
originally  delayed  until  February  6,  was  unable  to 
be  present  because  of  duties  on  a  World  Federation 
of  Trade  Unions  Commission  studying  conditions 
in  Germany.  His  exact  position  is  therefore  not 
known,  but  his  two  associates  representing  work- 
ers did  not  press  for  an  increase  in  worker  repre- 
sentation as  proposed  in  two  pending  suggestions, 
one  which  had  been  advanced  officially  by  the 
Belgian  Government  for  a  2-2-2'  ratio  and  one  by 
a  group  of  Latin  American  workers  with  Vi- 
cente Lombardo  Toledano  as  spokesman  for  a 
2-1-2  ratio.  Fernand  Dehousse  was  designated  by 
the  Belgian  Government  to  attend  the  meeting  on 
February  C  at  which  the  proposal  was  discussed, 
in  accordance  with  the  invitation  of  the  Confer- 
ence, but  since  he  was  not  a  member  of  the  Work- 
ing Party  the  advocacy  of  the  proposal  within 
the  Working  Party  was  performed  by  Henry 
Hauck,  who  ofRcially  presented  the  French  Gov- 
ernment's support  of  the  Belgian  proposal.  Mr. 
Hauck  argued  with  great  skill  and  effectiveness, 
but  the  conclusion  of  the  other  members  was  that 
the  usefulness  of  the  ILO  depends  upon  the  equal- 
ity of  employer  and  worker  representation  and 
the  present  degree  of  government  responsibility 
for  the  adoption  of  decisions  which  can  be  imple- 
mented effectively  at  this  time  only  by  government 
action. 

The  Belgian  proposal  would  have  afforded  rep- 
resentation for  minority  as  well  as  "the  most 
lepresentative"  organization  of  workers  and 
would  have  designated  one  of  the  two  employer 
delegates,  in  the  case  of  countries  with  mixed 
economies,  to  represent  the  socialized  part  of  in- 
dustry. The  Latin  American  proposal  specifically 
opposed  the  rej^resentation  of  minority  groups 
and  proposed  that  the  second  workers'  delegate 
be  named  by  the  most  representative  organization 
of  workers  to  represent  those  engaged  in  social- 
ized undertakings. 

One  consequence  of  the  Belgian  proposal  would 
be  that  the  workers'  delegation  would  become  rep- 
resentatives (1)  of  the  most  representative  or- 
ganization, and  (2)  of  the  minority  group  or 
groups,  rather  than  as  at  present  the  representa- 
tive of  all  the  workers  of  the  country.  It  was 
feared  by  the  group  that  this  would  transfer  the 
lU'oblems  of  domestic  labor  disunity  within  any 
country  to  the  international  level,  with  probable 
disastrous  effect  upon  the  negotiation  in  connnit- 
tees  and  conferences.     The  idea  advanced  by  Mr. 


1034 

Dehousse  that  each  delegate  would  have  his  own 
group  of  advisers  if  agreement  on  a  single  slate 
were  not  feasible  proved  particularly  disconcert- 
ing to  the  Working  Party,  which  also  saw  no 
easing  of  governmental  difficulties  in  selection 
if  the  second  delegate  must  be  accredited  speciti- 
cally  as  a  minority  delegate  representing  not  only 
the  second  largest  but  also  any  other  representa- 
tive minorities.  It  was  pointed  out  that  if  domes- 
tic agreement  could  not  be  reached  in  the  selection 
of  delegates  and  advisers,  it  would  be  unlikely 
that  agreement  would  be  reached  if  two  rival 
groups  were  participating  at  the  international 
level. 

As  for  the  Latin  American  proposal,  the  work- 
ers' delegates  insisted  that  workers  in  socialized 
undertakings  have  essentially  the  same  interest  as 
workers  in  private  employment  and  that  any  rea- 
sonable need  for  representation  of  such  workers 
could  be  obtained,  as  it  was  in  the  American  dele- 
gation to  the  1945  conference,  by  the  inclusion  of 
an  officer  of  a  state  employees'  organization 
among  the  advisers  to  the  workers'  delegate. 

With  respect  to  the  Belgian  proposal  concern- 
ing the  representation  of  the  managements  of 
socialized  undertakings,  it  was  pointed  out  that 
such  an  individual  would  presumably  i-eflect  gov- 
ernment views  and  might  more  properly  be  in- 
cluded within  the  government  representation  or, 
with  the  concurrence  of  the  most  representative 
organization  of  employers,  might  be  included 
within  the  employers'  delegation  as  on  at  least  one 
previous  occasion.  It  was  also  noted  that  during 
the  period  of  U.S.S.R.  participation  representa- 
tives of  Soviet  industrial  management  were  ac- 
cepted as  employers'  delegates  since  no  other  such 
representation  was  possible  under  the  Soviet 
economy. 

All  delegates  emphasized  the  essential  neces- 
sity of  maintaining  the  tripartite  character  of  the 
organization  and,  except  for  the  French  Govern- 
ment spokesman,  all  agreed  that  the  present  ratio 
is  the  one  under  which  the  financial,  legislative, 
and  the  proposed  increase  in  administrative  re- 
sponsibility of  the  governments  could  be  properly 
reflected.  It  was  also  noted  that  equality  of  vot- 
ing is  practiced  in  the  influential  committees  of 
the  conference  and  among  the  seven  newly  estab- 
lished industrial  committees,  but  that  neither  of 
those  agencies  possesses  the  authority  inherent  in 
the  conference  to  draft  conventions  and  reconi- 


DEPARTMENT  OF  STATE  BULLETIN 

mendations  which  create  certain  obligations  upon 
the  national  states  which  compose  the  Interna- 
tional Labor  Organization. 

Other  Important  Actions 

Existing  practice  is  recognized  by  a  proposal 
that  the  constitution  provide  for  the  election  of  a 
chairman  and  two  vice-chairmen  of  the  Governing 
Body,  each  from  one  of  the  three  component 
groups,  and  a  further  strengthening  provides  for 
the  election  of  the  three  vice-chairmen  of  the  con- 
ference to  reflect  the  three  groups. 

A  proposal  is  made  similar  to  that  of  article  71 
of  the  Charter  of  the  United  Nations  whereby 
"The  International  Labor  Organization  may  make 
suitable  arrangements  for  such  consultation  as  it 
may  think  desirable  with  recognized  non- 
governmental international  organizations,  in- 
cluding international  organizations  of  employers, 
workers,  agriculturists  and  cooperators." 

Similarly,  the  resources  of  non-governmental 
organizations  may  be  utilized  through  article  18, 
which  would  permit  the  conference  to  appoint  to 
its  committees  technical  experts  without  the  power 
to  vote. 

Authorization  for  laublications  in  such  lan- 
guages as  the  body  may  think  desirable  would 
I'eplace  the  present  more  restrictive  language 
under  another  proposal. 

Another  change  of  more  than  technical  impor- 
tance is  proposed :  a  simple  majority  of  votes  cast 
by  delegates  present  will  be  sufficient  except  as 
otherwise  specified  in  the  constitution  "or  by  the 
terms  of  any  Convention  or  other  instiiunent 
conferring  powers  upon  the  Conference  or  of  the 
financial  and  budgetary  arrangements  adopted  in 
virtue  of  Article  13". 

The  international  character  of  the  responsi- 
bilities of  the  staff  would  be  made  entirely  clear 
and  exclusive  under  other  changes. 

The  Working  Party  also  made  a  number  of 
administrative  recommendations  for  considera- 
tion of  the  Governing  Body,  arising  out  of  the 
suggestions  before  it. 

The  Declaration  of  Philadelphia 

The  objectives  stated  in  the  preamble  of  the 
constitution  of  the  ILO  and  the  principles  set 
forth  in  article  41  were  regarded  in  1919  as  em- 
bodying unrealized  objectives;  in  1946  they  had 
(Continued  on  page  1052) 


JUNE  16,  1946 


1035 


Selective  Service  Processing  of  American  Citizens 


Outside  the  United  States 


THE  Selective  Training  and  Service  Act  of 
19-1:0,  both  before  and  after  aniemlments,  pro- 
vided for  the  registration,  training,  and  service  of 
"every  male  citizen  of  the  United  States"  within 
specified  age  grouiJS.  Section  2  of  the  act,  rehiting 
to  registration,  provided  that  a  citizen  liable  for 
registration  under  the  act  should  "present  himself 
for  and  submit  to  registration  at  such  time  or  times 
and  place  or  places  and  in  such  manner  and  in  such 
age  group  or  groups  as  shall  be  determined  by  laws 
and  regulations  prescribed  hereunder." 

In  pursuance  of  this  authority  regulations  were 
issued  requiring  persons  liable  for  registration  un- 
der the  act  to  present  themselves  at  such  time  and 
place  as  might  be  fixed  by  presidential  proclama- 
tion. Thus,  while  there  was  a  general  obligation 
for  all  male  citizens  within  the  specified  age  limits 
to  register,  the  specific  obligation  did  not  arise  in 
the  case  of  any  individual  until  called  upon  by 
jjresidential  proclamation. 

Between  September  16,  1940  and  November  17, 
1942  the  President  issued  a  series  of  six  proclama- 
tions calling  upon  citizens  in  different  age  groups 
to  present  themselves  for  registration.  In  each 
case  the  proclamation  excepted  citizens  residing 
outside  the  "United  States"  (continental  United 
States,  Alaska,  Hawaii,  and  Puerto  Rico)  and  pro- 
vided that  such  citizens  must  register  within  five 
clays  after  their  return  to  this  country.  By  im- 
plication citizens  who  had  not  been  in  the  "United 
States"  at  a  time  when  tliey  were  liable  for  regis- 
tration had  no  obligations  under  tlie  Selective 
Service  law. 

In  the  early  days  of  Selective  Service  operations 
the  armed  forces  were  concentrating  on  numbers 
of  inductees  to  such  an  extent  that  little  thought 
was  given  to  potential  registrants  living  outside 
the  continental  United  States,  Alaska,  Hawaii, 
and  Puerto  Rico.  When  over  400,000  men  a  month 
were  being  inducted  it  did  not  seem  urgent  to  ex- 
pend valuable  time  and  effort  on  the  scattered 
American  citizens  in  outlying  areas.  Accordingly, 
no  procedures  were  established  prior  to  October  26, 


1943  to  bring  these  citizens  within  the  scope  of  the 
operation  of  Selective  Service. 

During  the  latter  part  of  1943,  when  there  began 
to  be  a  serious  shortage  of  manpower  in  the  United 
States,  when  claims  for  both  occupational  and  de- 
j^endency  deferments  were  being  scrutinized  care- 
fully, and  when  a  large  perc&tage  of  such  claims 
were  being  denied,  a  demand  arose  for  Selective 
Service  to  take  some  action  to  impose  equal  obliga- 
tions upon  United  States  citizens  who,  by  reason  of 
their  geographic  location,  had  not  previously  been 
lecjuired  to  register. 

On  October  26,  1943  the  President,  having  in 
mind  the  situation  as  outlined  above,  issued  a  proc- 
lamation calling  for  the  registration  between  No- 
vember 15, 1943  and  January  1, 1944  of  all  United 
States  citizens  between  the  ages  of  18  and  45  re- 
siding outside  the  United  States  who  had  not 
previously  been  registered.  In  practical  effect 
only  three  groups  of  men  were  affected  by  the  proc- 
lamation :  those  living  in  foreign  countries ;  those 
in  the  Panama  Canal  Zone ;  and  those  in  the  Virgin 
Islands.  In  his  proclamation  the  President  called 
upon  all  other  United  States  Government  agencies 
to  assist  Selective  Service  as  far  as  possible. 

The  Department  of  State,  thi'ough  the  instru- 
mentality of  its  Foreign  Service,  was  the  obvious 
agency  to  assist  Selective  Service  with  respect  to 
Americans  in  foreign  countries.  The  Office  of  the 
Panama  Canal  was  the  obvious  agency  to  operate 
on  behalf  of  Selective  Service  in  the  Canal  Zone. 
Following  the  initial  registration  in  the  Virgin 
Islands,  which  was  accomplished  by  special  regis- 
trars, the  usual  Selective  Service  machinery  was 
set  up  there  to  operate  in  essentially  the  same  way 
as  in  continental  United  States. 

In  order  to  enable  them  to  fulfil  their  role  in  the 
registration,  American  diplomatic  and  consular 
officers  were  appointed  by  the  Director  of  Selec- 

This  article  was  prepared  in  the  Division  of  Foreign 
Service  Administration,  Office  of  the  Foreign  Service,  De- 
partment of  State. 


1036 

tive  Service  to  serve  without  additional  compensa- 
tion as  chief  registrars.  In  th:it  capacity  they 
were  not  only  enipowered  personally  to  receive 
registrations  but  also  to  appoint  reliable  American 
citizens  as  volunteer  registrars.  American  men 
and  women  signed  waiver-of-compensation  forms 
and  were  sworn  in  as  registrars  under  such  ap- 
pointments at  hundreds  of  outlying  locations 
where  there  was  no  American  diplomatic  or  con- 
sular office.  Thus  it  was  made  as  convenient  as 
possible  for  every  American  man,  wherever  situ- 
ated, to  meet  his  obligation  to  register  by  appear- 
ing in  person  before  a  duly  authorized  registrar. 
Through  the  press  and  radio,  by  the  mailing  of 
circular  letters  and  by  the  posting  of  notices  in 
public  places,  the  American  diplomatic  and  con- 
sular offices  gave  publicity  to  the  registration  re- 
quirement.^ The  registration  proceeded,  com- 
mencing November  16,  1943  as  required  by  the 
proclamation,  without  untoward  incident;  19,557 
citizens  were  registered  in  foreign  countries  from 
November  16  to  December  31,  1943,  inclusive,  and 
the  registration  cards  were  forwarded  to  the  Se- 
lective Service  System  through  the  Department 
of  State.  Citizens  continued  to  be  registered 
after  January  1,  1944  in  foreign  countries  at  the 
rate  of  about  600  a  month  for  the  first  few  months, 
a  rate  which  gradually  decreased. 

As  of  November  1,  1945  there  had  been  for- 
warded to  the  Selective  Service  System  6,120 
registration  cards  dated  later  than  December  31, 
1943.  Some  of  the  6,120  were  the  registrations  of 
persons  attaining  the  age  of  18  years,  but  a  number 
were  those  of  older  men  registering  tardily  for 
miscellaneous  reasons.  Many  of  the  latter  were 
Americans,  including  some  internees,  who,  be- 
cause they  were  in  enemy  or  enemy-occupied  ter- 
ritory during  November  and  December  of  1943, 
could  not  possibly  have  registered  during  those 
months.  Their  registrations  came  in  only  when 
one  area  after  another  was  taken  from  the  enemy 
during  1944  and  1945  and  representation  of  the 
Department  of  State  reestablished  in  those  areas. 
The  19,557  "on  time"  registrations,  added  to 
the  6,120  "late"  registrations,  make  a  total  of 
25,677.  This  total  does  not  include  the  figure  for 
the  Panama  Canal  Zone,  which  was  about  3,475, 
or  that  for  the  Virgin  Islands,  which  was  about 
3,500  persons. 

All  the    foregoing  figures  are  inclusive  of  men 

•  Bui.ij;tin  of  Oct.  30,  1943,  p.  300. 


DEPARTMENT  OF  STATE  BULLETIN 

up  to  45  years  of  age.  It  is  to  be  borne  in  mind 
that,  except  for  routine  transmittal  and  record- 
ing operations,  the  cases  of  persons  over  38  have 
been  permitted  to  become  inactive,  since  men  in 
that  age  bracket  have  not  been  acceptable  for  in- 
duction either  at  the  time  of  the  foreign  registra- 
tion or  subsequently.  The  foregoing  figures  do 
laot,  however,  include  several  thousands  of  men 
who  had  registered  directly  with  local  boards  in 
the  United  States  in  compliance  with  previous 
proclamations  and  who,  subsequent  to  registering, 
left  the  country  without  having  been  called  for 
military  service.  Many  had  gone  overseas  as 
civilians  on  war-connected  work,  and  others  in 
line  of  their  normal  pursuits.  In  any  event,  the 
net  number  of  cases  subject  to  processing  through 
Department  of  State  facilities  in  foreign  countries, 
regardless  of  when  or  where  originally  registered, 
proved  prior  to  V-E  Day  to  be  about  25,000  in 
the  active  bracket  over  18  and  under  38  years  of 
age.  Since  V-J  Day  when  men  over  26  years  of 
age  became  unacceptable  to  the  armed  forces,  the 
net  number  of  active  cases  has,  of  course,  been 
gi'eatly  reduced. 

When  citizens  are  registered  abroad  a  special 
form  of  registration  card  (DSS  Form  1-F)  is 
used.  This  form  allows  the  registrant  to  desig- 
nate a  residence  in  the  United  States,  and  the  local 
boai'd  having  jurisdiction  over  that  place  becomes 
his  local  board,  to  which  his  registration  card  is 
forwarded.  If  he  does  not  designate  a  place  of 
residence  in  the  United  States  his  registration  card 
is  forwarded  to  a  specially  established  local 
board,  designated  as  Local  Board  No.  1  (For- 
eign) of  Washington,  D.  C.  All  registrants  fail- 
ing to  designate  a  place  of  residence  in  the 
United  States  thus  become  registrants  of  Local 
Board  No.  1  (Foreign).  Approximately  60  per- 
cent of  all  outside  registrations  have  fallen  within 
the  jurisdiction  of  Local  Board  No.  1  (Foreign) 
of  Washington.  The  remaining  40  percent  have 
been  distributed  among  the  local  boards  through- 
out the  United  States.  A  copy  of  every  registra- 
tion card  has  been  retained  at  National  Head- 
quarters of  the  Selective  Service  System. 

Local  Board  No.  1  (Foreign)  has  as  many  regi- 
strants as  some  of  the  larger  local  boards  in  the 
United  States.  Under  the  special  circumstances 
of  the  "outside'"  registration,  it  has  been  necessary 
for  the  board  to  process  these  registi'ants  within 
the  space  of  a  few  months,  wheieas  most  local 
boards  have  done  the  same  work  gradually  over 


JUNE  16,  1946 


1037 


a  period  of  four  years.  The  actual  operational 
functions  have  been  much  greater  than  for  those 
of  ''inside"  registrants,  since  all  communications 
witli  registrants  are  of  necessity  in  writing  and 
subject  to  special  routing.  Moreover,  there  are 
difficulties  of  citizenship,  transportation,  unusual 
occuijations,  and  dozens  of  decisions  which  are  out 
of  the  ordinary  and  require  special  action.  Special 
connnendation  should  be  given  to  the  members  of 
Local  Board  No.  1  (Foreign)  and  its  clerks  for 
an  excellent  handling  of  the  situation. 

Prior  to  1944,  the  Selective  Service  System  had 
adhered  to  a  concept  that  registrants  in  foreign 
countries  were  liable,  when  summoned,  to  report  at 
their  respective  local  board.s  (or  at  least  at  the 
office  of  some  local  board  in  the  United  States)  at 
their  own  expense.  With  the  extension  of  the 
registration  requirement  to  Americans  living  in 
foreign  countries.  Selective  Service  regulations 
were  relaxed  to  make  systematic  allowance  for 
the  time  required  to  jirocess  individual  cases  out- 
side the  United  States,  and  to  provide  for  the  fur- 
nishing of  Government  transportation  to  a  regis- 
trant who  elected  to  report  for  induction  at  a  near- 
by installation  of  the  United  States  armed  forces 
in  lieu  of  reporting  to  his  local  board  in  the  United 
States  (Selective  Service  Local  Board  Memoran- 
dum No.  189) . 

The  actual  classification  of  "outside"  registrants 
has  been  fundamentally  no  different  from  that 
of  registrants  in  this  country.  However,  during 
the  war  it  was  most  difficult  to  determine  whether 
or  not  a  registrant  was  in  war  work  if,  for  ex- 
ample, he  was  working  in  a  neutral  country  or  in 
a  co-belligerent  nation  which  was  in  fact  not  sup- 
plying either  food  or  troops  for  the  war  effort. 
In  certain  instances,  the  advice  was  sought  of  the 
United  States  Department  of  Conunerce,  the  De- 
partment of  State,  and  other  United  States  govern- 
mental repiesentatives. 

Under  the  system  adopted  for  the  processing  of 
cases  in  foreign  countries.  Selective  Service  reg- 
isli'ants  (other  than  delinquents)  have  not  been 
ordered  to  report  for  final  i^hysical  examination 
and  induction  before  they  have  had  preliminai-y 
physical  examinations  at  or  near  their  places  of 
foreign  residence.  American  diplomatic  and 
consular  officers  have  made  arrangements  for  these 
preliminary  examinations,  utilizing  the  services 
of  medical  officers  of  the  United  States  armed 
forces  or  civilian  medical  officers  of  the  United 

697654— 4G 3 


States  Government  wliere  available.  AVhere 
American  Government  physicians  have  been  un- 
available, private  American  or  foreign  doctors 
have  been  engaged  to  conduct  the  examinations 
and  furnish  sworn  reports  thereof.  As  of  Novem- 
ber 1,  194.5  the  Medical  Division  of  National 
Headquarters  of  the  Selective  Service  System  in 
Washington  had  received  through  the  Department 
of  State  and  had  reviewed  4,.587  reports  of  pre- 
liminary jihysical  examinations.  The  same  foi-ms 
have  been  used  and  (with  the  exception  that 
practical  considerations  have  necessitated  the 
omission  of  chest  X-rays  in  most  cases)  the  same 
items  have  been  covered  as  at  induction  stations  in 
the  United  States,  including  serological  tests  and 
urinalj'ses. 

About  one  fourth  of  the  4,587  examinees  were 
found,  on  tlie  basis  of  the  reports  of  preliminary 
examinations,  to  have  disqualifying  defects  and 
were  classified  bj^  the  Selective  Service  System  as 
physically  unfit  (4-F).  Men  whose  preliminary 
physical  reports  disclosed  no  disqualifying  defects 
were  retained  in  class  1-A,  to  be  processed  for 
induction. 

A  special  form  of  "Order  To  Eeport  for  Induc- 
tion" (DSS  Form  150-F)  was  prescribed  for 
use  by  local  boards  in  connection  with  the  induc- 
tion of  men  residing  in  foreign  countries.  This 
form,  in  the  name  of  the  President  of  the  United 
States,  orders  the  registrant  to  report  at  his  own 
expense  to  the  office  of  liis  local  board  within  60 
days  of  the  date  of  the  order,  or  permits  him  either 
to  enlist  at  an  armed-forces  installation  outside  of 
the  United  States  or  to  report  at  Government 
exjDense  for  induction  at  the  particular  installa- 
tion named  on  the  form,  on  a  date  specified.  The 
installation  to  which  the  registrant  may  jaroceed 
at  Govermnent  expense  is  designated  in  each  case 
by  either  the  Army  or  the  Navy;  the  date  upon 
which  the  registrant  sliould  report  is  determined 
by  the  American  diplomatic  or  consular  officer 
allowing  normal  transit  time  from  the  registrant's 
home  to  the  place  of  induction  plus  10  days. 

Of  1,790  men  known  as  of  November  1,  1945  to 
have  entered  the  United  States  armed  forces  under 
this  method  of  processing,  300  returned  at  their 
own  expense  to  the  offices  of  the  respective  local 
boards ;  699  proceeded  at  their  own  expense  to  en- 
list at  an  armed-forces  installation  of  their  own 
choice  outside  the  United  States;  and  891  pi'o- 
( Continued  on  page  1051 ) 


1038 


DEPARTMENT  OF  STATE  BULLETIN 


German  Documents  on  Relations  With  Japan 


Foreign  Office  Memorandum 

Berlin,  Augmt  26,  1939 
St.  S.  Nr.  648.     Secret. 

I  received  the  Japanese  Ambassador  this  eve- 
ning at  his  request.  As  we  had  already  been  in- 
formed by  Ambassador  Ott,  he  had  two  matters 
to  discuss  and  took  them  up  in  the  following 
oi'der : 

1.  He  handed  me  a  note  in  which  the  Japanese 
Government  directed  to  the  German  Government 
an  "earnest  protest"  on  account  of  the  alleged  in- 
consistency of  tiie  German-Russian  non-aggres- 
sion pact  with  the  German- Japanese  agreement. 

2.  He  read  me  a  communication  according  to 
which  the  Japanese  Government  took  the  view 
that  by  the  conclusion  of  the  German-Russian 
pact  the  negotiations  which  had  been  previously 
carried  on  for  a  German-Italian-Japanese  alliance 
were  terminated. 

In  accordance  with  instructions,  I  stated  to  the 
Ambassador  tliat  I  did  not  wish  to  discuss  the 
matter  with  him  officially,  but  as  a  friend  and 
comrade.  As  far  as  tlie  contents  of  the  note  went, 
it  was  known  that  it  had  been  agreed  between 
the  Reich  Foreign  Minister  and  Oshima  that  the 
legal  exj^erts  should  get  together  to  consult  about 
the  alleged  inconsistency  of  the  two  treaties.  I 
wanted  to  deny  completely  any  inconsistency. 
Besides,  in  such  serious  periods  in  the  life  of  na- 
tions, it  was  not  legal  technicalities  that  were  of 
consequence,  but  realities  as  they  were  understood 
between  men  and  soldiers.  If  at  the  present  mo- 
ment tlie  Japanese  Government  considered  it  de- 
sirable to  come  to  us  with  such  complaints  and 
even  to  present  them  to  us  in  written  form  as 
an  "earnest  protest",  I  could  only  assure  Oshima 
that  his  Government  would  get  an  ill-tempered 
answer,  which  would  not  be  serviceable  to  the 
friendlj'  relations  between  Japan  and  Germany 
for  which  we  were  all  concerned. 

With  regard  to  placing  tlie  blame  for  the  ap- 
parent end  of  the  conversations  about  our  treaty 
alliance,  I  said  to  Oshima  that  if  the  matter  of 
blame  was  to  be  discussed,  we  were  of  the  opinion 
that  the  blame  was  solely  that  of  Foreign  Minister 


Arita,  who  liad  let  us  wait  in  a  most  unsuitable  way 
for  the  last  six  months  in  spite  of  Germany's  com- 
plete readiness.  It  was  this  conduct  whicli  would 
liave  to  be  blamed  for  the  present  development.  I 
could  a.ssure  Oshima  also  that  this  second  part  of 
his  business  would  be  rejected  just  as  firmly  by  the 
Reich  Foreign  Minister  if  it  came  to  his  attention. 

Then  I  suggested  to  Oshima,  as  a  friend,  that  our 
conversation  be  treated  as  though  it  had  never 
taken  place  and  as  if  he  had  not  even  seen  me  at 
the  Foreign  Ministi-y.  He  could  take  his  note  back 
again  and  think  over  for  twenty-four  hours  how 
lie  could  get  around  carrying  out  the  orders  of  his 
Government,  which,  however  they  might  perhaps 
be  required  by  Japanese  domestic  policy,  did  not 
correspond  to  tlie  well-known  interests  of  both  of 
our  countries. 

Oshima  took  his  documents  back  again  and  he 
left  me  with  the  intention  of  considering  once  more 
what  he  would  do,  but  giving  the  impression  of 
deep  anxiety  over  his  course  since  he  had  received 
unequivocal  directions  from  Tokyo. 

Weizsacker 

Foreign  Office  Memorandum 

Berlin,  Septeviber  18,  1939 
St.  S.  Nr.  734 

The  Japanese  Ambassador  was  given  consider- 
able information  about  the  situation  today  by  me. 
He  referred  to  the  visit  of  Take  Ushi  \_sic].  He 
congratidatcd  us  on  the  success  of  the  Polish  cam- 
paign, etc.  In  conclusion,  he  came  out  in  a  some- 
what ashamed  manner  with  the  attached  docu- 
ment, which  is  dated  August  26  and  in  connection 
with  which  lie  had  the  following  to  say : 

Admittedly  I  had,  at  the  end  of  August,  talked 
him — Oshima — out  of  the  idea  of  lodging  the  ear- 
nest protest  of  the  Japanese  Government  on  ac- 
count of  the  inconsistency  of  the  German-Russian 
non-aggression  laact  with  the  secret  agreement  be- 
tween Germany  and  Japan.  Out  of  consideration 
for  the  German  Government  at  that  critical  stage, 
he  had  followed  my  advice.  However,  it  was  im- 
possible for  him  to  go  dii'ectly  contrary  to  the 
orders  of  his  Government.    He  had,  therefore, 


JUNE  16,  1946 


1039 


simply  telegraphed  his  Government  that  he  had 
followed  their  directions.  In  reality  he,  Oshima, 
had  postponed  carrying  out  the  step  until  now. 
He  had  waited  for  the  conclusion  of  the  Polish 
campaign  and  he  declared  that  now  the  step  was  no 
longer  of  so  much  consequence,  especially  since  he 
had,  on  his  own  account,  taken  all  the  bitterness 
out  of  the  oi'ders  from  Tokyo.  He  asked  that  I 
understand  the  accompanying  note  in  that  light. 

I  read  the  note,  which  really  is  no  longer  of  very 
great  consequence,  but  I  received  it  from  him  for 
study  only  in  my  personal  capacity  and  not  offi- 
cially. Oshima  will  explain  the  matter  further 
himself  if  he  sees  the  Reich  Foreign  Minister  soon. 
He  will  then  suggest  that  this  document,  with  our 
consent,  be  allowed  to  disappear  in  the  archives. 
He  did  not  consider  a  discussion,  especially  one  of 
a  legalistic  nature,  to  be  desirable  or  timely. 

I  said  to  the  Ambassador,  in  conclusion,  that 
his  view  did  not  agree  entirely  with  ours  and  that 
I  had  hoped  that  the  matter  could  be  finally  dis- 
posed of.  I  was,  however,  ready  to  inform  the 
Eeich  Foreign  Minister  in  advance  to  the  effect 
that  he,  Oshima,  considered  that  he  was  bound  to 
bring  the  matter  to  a  formal  conclusion  in  some 
way. 

I  did  not  consider  it  correct  to  refuse  to  receive 
the  note  from  the  Ambassador  for  consideration, 
since  Oshima  was  apparently  honestly  concerned 
about  disposing  of  the  matter  completely. 

Weizsacker 

[Enclosure] 

The  Japanese  Embassy  in  Berlin  to  the  German 
Foreign  Office 

The  Japanese  Embassy  has  the  honor,  on  in- 
structions from  the  Japanese  Government,  to 
inform  the  Foreign  Office  of  the  views  of  the  Jap- 
anese Government  in  connection  with  the  non- 
aggression  and  consultative^  pact  recently  con- 
cluded between  the  German  Government  and  the 
Government  of  the  Union  of  Soviet  Socialist  Ee- 
publics,  as  follows: 

"The  Japanese  Government  regards  the  non- 
aggression  and  consultative  pact,  recently  con- 
cluded between  the  German  Government  and  the 
Government  of  the  Union  of  Soviet  Socialist  Re- 
publics, as  in  contradiction  to  the  secret  annex  to 
the  agreement  against  the  Communist  Inter- 
national." 

Berlin,  August  26, 1939. 


Telegram  from  the  German  Ambassador  in 
Japan  (Ott)  to  the  German  Foreign  Office 

Tokyo,  June  19, 191,0, 10:  IS  a.m. 

[Received  June  19,  9 :  30  p.m.] 

No.  594  of  June  19. 

Urgent.     For  the  Reich  Chancellery.     Secret. 

The  Chief  of  the  European  Bureau  of  the  For- 
eign Ministry  informed  me  confidentially  that  the 
Japanese  Ambassador  in  Bei-lin  today  received 
instructions  to  express  to  the  German  Government 
the  congratulations  of  the  Japanese  Government 
on  the  German  victory,  and  on  this  occasion  to 
call  attention  to  the  special  interest  of  Japan  in 
the  future  fate  of  French  Indochina.  The  Am- 
bassador was  to  repeat  the  thanks  of  Japan  for  the 
friendly  attitude  of  Germany  in  the  Chinese  con- 
flict, and,  at  the  same  time,  to  indicate  that  Japan 
believed  that  she  had  furnished  substantial  as- 
sistance to  Germany  during  the  European  war  by 
holding  the  American  forces  in  the  Pacific  Ocean. 
The  Ambassador  was  instructed  to  suggest  to  the 
German  Government,  in  return  for  this  attitude 
of  Japan,  a  friendly  gesture  with  i-espect  to  Indo- 
china. To  the  question  of  what  form  such  a 
gesture  should  take,  the  Chief  replied  that  the 
Foreign  Ministry  had  in  mind  a  German  declara- 
tion to  the  effect  that  Japan  would  have  a  free  hand 
in  Indochina.  According  to  the  press  the  Japanese 
Ambassador  to  Rome  has  received  similar  instruc- 
tions. 

Since,  in  the  course  of  the  French  collapse,  the 
pressure  of  popular  opinion  urging  the  Govern- 
ment to  action  has  become  stronger,  the  Foreign 
Minister  decided  on  this  step  to  save  his  policy 
and  his  cabinet  from  an  otherwise  unavoidable 
fall.  There  was  danger,  however,  that  the  For- 
eign Minister  would  make  tactical  use  of  the  Ger- 
man free  hand  with  respect  to  Indochina  in 
negotiations  for  an  agreement  with  America. 
Characteristic  of  the  unaltered  basic  position  of 
the  J'oreign  Minister  is  the  fact  reported  else- 
where that,  on  the  same  day,  he  came  to  a  friendly 
agreement  with  England  and  France  on  [the  ques- 
tion of]  Tientsin. 

As  seen  from  Tokyo,  the  strengthening  of  Jap- 
anese power  in  East  Asia  through  the  addition 
of  Indochina  would  be  likely  to  be  in  the  German 
interest.  Thereby,  on  the  one  hand,  the  pros- 
pects for  a  speedy  conclusion  of  the  China  conflict 
would  be  heightened  and,  on  the  other  hand,  the 
tension  between  Japan  and  the  Anglo-Saxon  pow- 


1040 

ers  would  be  so  increased  that  danger  of  agree- 
ment would  be  eliminated  for  some  time.  If, 
therefore,  it  is  intended  to  comply  with  the  Jap- 
anese desire,  a  formula  must  be  found  which  will 
bind  Japan  finally  and  unreservedly  to  our  side. 
This  could  be  accomplished  especially  if  Japan 
had  to  pledge  herself  to  take  immediate  possession 
of  Indochina. 

I  learn  confidentially  from  Army  circles  that  in 
those  circles  the  idea  of  occupation  of  the  strate- 
gically important  Yunnan  Road  is  being  agitated. 
If  the  Government  should  evade  a  similarly  ex- 
pressed demand  for  the  occupation  of  Indochina, 
in  case  the  matter  should  become  public,  it  would 
have  to  expect  at  least  that  its  position  would  be 
shaken  and  possibly  that  it  would  be  dissolved 
and  replaced  by  a  cabinet  closer  to  us. 

Ott 

Foreign  Office  Notation  on  Telegram  No.  594 
of  June  19  from  Tolcyo  on  the  Subject  of 
Indochina 

The  thanks  of  Japan  for  the  friendly  attitude  of 
Germany  in  the  China  conflict  come  rather  late. 
The  sacrifice  which  we  have  made  on  behalf  of 
Japan  (shutting  off  of  delivery  of  war  materials 
to  China  and  the  loss  thereby  of  important  Chinese 
raw  materials)  have  so  far  received  no  recognition 
on  the  Japanese  side,  far  less  has  any  economic 
compensation  been  made.  The  Japanese  request 
for  a  friendly  gesture  on  the  part  of  Germany  is, 
in  view  of  the  attitude  adopted  by  Japan  toward 
Germany  during  the  war  in  economic  relations, 
somewhat  surprising. 

In  case  this  is  mentioned  to  the  Japanese  Ambas- 
sador in  the  course  of  the  forthcoming  discussion, 
the  following  examples  may  be  cited : 

1.  Japanese  shipping  has,  from  the  beginning, 
and  in  a  most  comprehensive  manner,  submitted 
itself  to  the  English  and  French  blockade  controls. 

2.  The  Japanese  Government  for  a  long  time  did 
not  accede  to  the  German  desires  for  transit  of 
goods  through  Japan  and  only  in  the  last  few 
months  has  she  displayed  some  evidence  of  becom- 
ing more  accommodating.  Thus  a  shipment  of 
wolfram  from  Canton  and  a  shipment  of  tin  from 
Colombia  were  transmitted  to  Germany.  The 
Japanese  Government  also  recently  offered  us, 
from  its  own  supply,  100  tons  each  of  wolfram  and 
tin  to  be  delivered  without  charge.  There  con- 
tinue to  be,  however,  requests  that  are  still  not  com- 


DEl'ARTMENT  OF  STATE  BULLETIN 

plied  with ;  for  instance,  increase  of  Japanese  sea 
trade  with  Vladivostok,  which  route  is  covered 
only  tlaree  times  per  month  by  a  Japanese  steamer. 
Also,  further  shipment  of  tin  from  Colombia  has 
so  far  been  impossible  on  account  of  the  refusal 
of  the  Japanese  shipping  line. 

3.  Japan,  in  January  of  this  year,  concluded  a 
monopoly  agi"eement  with  Manchukuo  for  her  sup- 
ply of  soy  beans  without  saying  anything  about  it 
to  us,  although  previously  we  were  the  largest  im- 
jjorter;  in  1938 — for  example — to  the  extent  of 
800,000  tons.  After  representations  were  made, 
Japan  so  far  has  only  allotted  70,000  tons  for  de- 
livery to  us  from  Manchukuo. 

4.  Japan  continues  to  refuse  the  return  trans- 
portation from  America  in  small  gi'oups  of  the 
crew  of  almost  500  men  of  the  Columbus,  since  the 
members  of  the  crew  are  regarded,  from  the 
English  point  of  view,  as  participants  in  the  war, 
although  according  to  the  American  view  they  are 
regarded  as  shipwrecked  individuals. 

5.  Japan,  it  is  true,  is  delivering  to  us  her  entire 
production  of  whale  oil  from  tlie  last  catch,  some 
75,000  tons.  We  know,  however,  from  confidential 
sources,  that  she  first  offered  half  of  it  to  England 
a7id  decided  to  malie  delivery  to  us  only  when  she 
got  no  satisfactory  English  offer. 

For  transmittal  to  the  Secretary  of  State. 
Berlin,  June  £0, 1940. 

WiEHL 

Telegram  from  the  German  Foreign  Minister 
to  the  German  Ambassador  in  Japan 

(Clear  to  the  Foreign  Ministry,  in  ciplier  to  Tolcyo) 
EuROPA,  July  1, 1941, 6:  S6  p.  m. 
Europa  No.  634  (Forwarded  to  Tokyo  as  No.  9.42) 
Priority.     Urgent.     Secret. 

I  request  you  to  deliver  to  the  Foreign  Minister 
as  speedily  as  possible  the  following  telegram  from 
me  addressed  to  him  personally.  The  telegram 
is  to  be  drawn  up  there  on  white  paper,  without 
heading,  and  with  my  signature.  The  text  of  the 
telegram  follows: 

"To  His  Excellency  the  Japanese  Foreign  Minister, 

Herr  Matsuoka,  Tokyo. 

Personal.  At  the  time  of  Your  Excellency's 
visit  in  Berlin  it  was  our  intention  that  on  the 
occasion  of  events  which  were  of  especial  impor- 
tance for  the  welfare  of  both  our  countries,  we 


JUNE  16,  1946 


1041 


would  get  into  communication  j)ersoniilly.  Sucli 
a  moment  has  now  arrived  and  I  liave  the  honor 
to  inform  Your  Excelknicy  as  follows: 

(1)  By  the  mighty  blows  of  the  German  Armed 
Forces  we  have  succeeded,  in  the  first  eight  days 
of  the  German-Russian  campaign,  in  breaking  the 
backbone  of  the  Russian  Army.  A  considerable 
part  of  the  best  combat  divisions  of  the  enemy 
liave  been  in  part  annihilated,  in  part  captured,  in 
part  so  shattered  that  the  remnants  will  scarcely 
be  able  to  appear  again  as  effectives  during  the 
course  of  this  war.  The  enemy  air  force  is  almost 
completely  defeated,  so  that  on  the  principal  fight- 
ing front,  since  yesterday,  German  mastery  of  the 
air  has  become  complete.  Incalculable  stores  of 
material  have  been  captured  or  destroyed.  De- 
tailed information  about  the  cpiantities  of  such 
material  will  be  given  in  the  Gernum  Army 
communique. 

Meanwhile  the  German  armies  are  continuing 
to  push  farthei'  east  along  the  whole  front.  The 
coming  operations  of  the  German  Army  will,  I 
have  no  doubt,  destroy  the  remaining  forces  of  the 
enemy  in  the  same  manner  and  it  can  be  counted 
on,  that  perhaps  even  in  only  a  few  weeks  Russian 
resistance  over  the  whole  European  area  of  the 
Soviet  Union  will  be  broken.  It  is  very  likely, 
as  I  already  told  Your  Excellency  a  few  days  ago 
through  Ambassador  Ott,  that  this  in  turn  will  re- 
sult shortly  in  the  total  collapse  of  the  Bolshevist 
regime. 

2.  From  this  military  success,  unparalleled  in 
history,  for  which  we  have  to  thank  first  of  all 
the  valor  of  the  German  soldiery,  and  by  which 
the  great  military  threat  to  which  Europe  was 
exposed  has  been  eliminated,  arises  the  obligation 
on  the  part  of  the  German  leadership  to  create  for 
the  future  a  political  situation  in  the  East  which 
would  prevent  for  all  time  a  repetition  of  such 
events.  It  is  also  our  conviction  that  as  long  as 
Russia  continues  to  exist  as  the  nucleus  of  Bol- 
shevism, neither  Europe,  nor  East  Asia,  nor  the 
world  at  large  will  ever  have  quiet.  Germany  is 
determined  to  draw  the  necessary  consequences 
from  this  knowledge.  She  hopes  to  have  the  col- 
laboration of  Japan,  since  a  final  solution  of  the 
Russian  question  could  be  brought  about  most 
speedily  and  completely  by  Japan  and  Germany 
together. 

3.  The  approaching  collapse  of  the  militai-y 
power  of  Russia  and  the  probable  fall  of  the  Bol- 
shevist regime  itself  offers  to  Japan  the  unique 


opportunity  to  free  herself  from  the  Russian  threat 
and  to  give  the  Japanese  Empire  security  in  the 
north,  which  is  a  necessary  prereciuisite  to  her 
expansion  in  the  south  in  accordance  with  her 
vital  needs.  It  seems  to  me,  therefore,  the  require- 
ment of  the  hour  that  the  Japanese  Army  should, 
as  quickly  as  possible,  get  into  possession  of  Vladi- 
vostok and  push  as  far  as  possible  toward  the 
west.  The  aim  of  such  an  operation  should  be 
that,  before  the  coming  of  cold  weather,  the  Jap- 
anese Army  advancing  westward  should  be  able 
to  shake  hands  at  the  half-way  mark  with  the 
German  troops  advancing  to  the  east,  that  both 
by  way  of  the  Trans-Siberian  Railroad  and  by  air 
uninterrupted  communication  should  be  estab- 
lished between  Germany  and  Jajian  by  way  of 
Russian  territory,  and  that  finally  the  whole  Rus- 
sian question  should  be  solved  by  Germany  and 
Japan  in  common  in  a  way  which  would  eliminate 
the  Russian  threat  to  both  Germany  and  Japan 
for  all  time. 

4.  The  defeat  of  the  Soviet  Union  by  Germany 
and  Japan  would  allow  us  to  bring  the  actual 
power  of  the  states  allied  in  the  Three  Power  Pact 
into  effective  cooperation  for  the  first  time.  Ger- 
many and  Italy  would  then  be  the  completely  con- 
trolling elements  in  the  entire  European-African 
Hemisphere.  They  would  then  be  in  a  position  to 
strengthen  their  pressure  on  England  enormously 
by  bombardments  from  the  air  and  by  U-boats, 
and  by  appropriate  operations  bring  about  the 
final  destruction  of  England.  Japan,  on  her  part, 
with  her  back  free,  would  be  able  to  devote  her 
whole  force  to  the  final  solution  of  the  problems 
affecting  her  in  the  south.  That  the  elimination 
of  the  Soviet  regime  would  also  ease  the  solution  of 
the  Chinese  conflict  is  mentioned  only  in  passing. 

In  respect  to  America,  I  hope  that,  after  the  de- 
feat of  Russia,  the  weight  of  the  Three  Power 
states,  Germany,  Italy,  and  Japan,  and  the  powers 
allied  to  them,  to  whom  I  hope  a  considerable 
number  of  additional  European  states  will  soon  be 
added,  will  suffice  to  paralyze  any  rising  tendency 
in  the  United  States  to  participate  in  the  war. 

Summing  up  I  would  like  to  state  that : 

I  am  convinced  that  with  the  triumph  of  Gennan 
arms  in  the  past  weeks  the  historic  opportunity  has 
now  come,  perhaps  never  to  recur,  for  Japan,  to- 
gether with  Germany,  to  solve  the  Russian  question 
and  to  free  our  peoples  for  a  long  time  from  every 
(Continued  on  page  1050) 


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Commission  on  Atomic  Enei^gy 
International  Health  Conference 
General  Assembly  :  Second  Part  of  First  Session 


Paris 

Paris 
Washington 

Paris 


April  25 — adjourned  on   May 

16  until  June  15 
May  27 

February  26 


April  24 


Montreal 

May  21 

Washington 

May  31 

Washington 

June  1 

Seattle 

June  6 

New  York 

March  25 

New  York 

March  25 

London 

April  8 

New  York 

April  29 

New  York 

Jlay  25 

New  York 

June  14 

New  York 

June  19 

New  York 

September 

The  dates  in  the  calendar  are  as  of  June  9. 


Activities  and  Developments 


The  Far  Eastern  Commission  at  its  fourteenth 
meeting  on  June  5  apiDroved  unanimously  a  policy 
statement  with  respect  to  aliens  in  Japan  (text 
follows).  This  policy  statement  embodies  minor 
changes  in  the  basic  directive  from  the  United 
States  Government  by  which  the  Supreme  Com- 
mander for  the  Allied  Powers  has  hitherto  been 
governed. 

The  Commission  considered  a  proposed  request 
for  consultation  with  the  Supreme  Commander  for 
the  Allied  Powers  on  the  subject  of  the  recent  tours 
of  the  Emperor  through  Japan.  It  was  unani- 
mously agreed  that  the  Commission  should  take  no 
action  on  this  subject  at  present,  pending  consid- 
eration by  the  Commission  of  the  basic  question 


of  democratic  reform  or  abolition  of  the  Emperor 
institution,  and  that  both  matters  should  be  re- 
ferred to  Committee  3  for  reconsideration  and 
report. 

I.  Statesient  of  Policy  Regarding  Aliens 
IN  Japan 

1.  The  major  policies  in  regard  to  aliens  in  Ja- 
pan including  Formosan-Chinese  and  Koreans  are 
that : 

a.  Aliens  should  be  allowed,  if  they  so  desire, 
to  leave  Japan  as  early  as  possible,  except  such 
persons  who  are  held  as  war  criminals  or  for 
security  reasons;  and 

h.  Subject  to  the  general  control  of  the  Supreme 


1042 


JUNE  16,  1946 


1043 


Commander  the  Japanese  authorities  should  be 
hekl  responsible  for  the  care,  safety,  and  welfare 
of  such  persons  and  for  their  transportation  to 
jiorts  of  embarkation. 

2.  To  carry  out  these  policies,  the  following 
steps  should  be  taken : 

a.  Neutral  Nati07ials. 

All  nationals  of  neutral  nations  should  be  re- 
quired to  register  with  the  appropriate  military 
authorities  and  their  respective  governments 
should  be  notified  as  to  the  location  and  status  of 
these  persons.  All  nationals  of  neutral  nations 
who  have  actively  participated  in  any  way  in  the 
war  against  one  of  the  United  Nations  should  be 
arrested  for  disposition  in  conformity  with  other 
instructions.  Neutral  nationals  should  be  ac- 
corded no  special  privileges  of  communications 
or  business  relations  with  their  home  countries 
or  people  resident  outside  Japan.  The  persons, 
archives,  and  property  of  diplomatic  and  con- 
sular officials  of  neutrals  should  be  accorded  full 
protection. 

1).  United  Nations  Nationals. 

(1)  Civilians  who  are  nationals  of  the  United 
Nations  should  be,  except  as  noted  below,  repatri- 
ated, if  they  so  desire  upon  the  concurrence  of  the 
government  concerned.  All  such  civilians  resi- 
dent or  interned  in  Japan  should  be  identified, 
examined  closely  and,  if  the  Supreme  Commander 
deems  it  advisable,  placed  in  custody  or  restricted 
residence.  The  Supreme  Commander  should  in- 
form the  representatives  of  the  nationals'  govern- 
ment of  the  reasons  for  the  arrest  or  restricted 
residence  of  those  nationals  and  consult  with  them 
concerning  future  treatment  of  such  persons. 
Anj'  such  person  who  has  played  an  active  part 
in  the  formulation  or  execution  of  the  Japanese 
program  of  aggression  or  who  is  believed  to  be  de- 
sired by  his  government  as  a  renegade  or  quisling 
should  be  held  for  disposition  in  accordance  rfith 
ai^plicable  directives. 

(2)  Persons  of  Japanese  race  claiming  citizen- 
shiji  of  any  other  United  Nation  should  be  repa- 
triated only  upon  concurrence  of  the  government 
of  such  nation. 

c.  Stateless  persons,  Central  European  refugees 
from  Nazi  oppression  and  Italian  non-Fascists 
should  be  assimilated  in  treatment  to  United  Na- 
tions nationals,  providing  such  persons  have  not 
supported  the  Axis  cause. 


d.  Responsibilities  of  the  Japanese  Authorities. 
Measures  should  be  taken  on  behalf  of  United 

Nations  nationals  and  neutrals  to  insure  the 
health,  welfare  and  transportation  to  a  port  from 
which  they  may  embark  for  transoceanic  desti- 
nations, and  shoidd,  in  so  far  as  practicable,  be 
the  responsibilitj'  of  the  Japanese  Government. 
Any  deficiencies  resulting  in  the  carrying  out  of 
these  measures  in  respect  to  United  Nations  na- 
tionals should  be  supplied  by  the  Supreme  Com- 
mander and  the  cost  thereof  should  be  charged 
to  the  Japanese  Government.  Repatriation  from 
such  a  port  should  be  provided  in  accordance  with 
appropriate  arrangements  between  the  govern- 
ments concerned. 

e.  Political,  Racial  and  Religious  Prisoners. 
Prisoners  of  non-Japanese  nationality  found 

held  by  the  Japanese  should  be  examined  for  iden- 
tification and  their  records  reviewed  for  determi- 
nation of  the  cause  of  detention.  All  those  found 
to  be  detained  solely  on  political,  racial  or  religious 
grounds,  should  be  released  except  those  whom  the 
Supreme  Commander  decides  to  hold  for  security 
reasons.  Those  detained  should  be  given  prompt 
trial. 

/.  Non-Japanese  Nationals  of  the  Countries  which 
are  or  have  been  at  war  with  the  United  Nations 
in  the  Second  World  War. 

(1)  All  nationals  of  countries  except  Japan 
with  which  any  of  the  United  Nations  are  or  have 
been  at  war  in  the  Second  World  War  (Bulgaria, 
Finland,  Germany,  Hungary,  Italy,  Rumania  and 
Siam)  should  be  identified  and  registered  and  may 
be  interned  or  their  activities  curtailed  as  may  be 
necessary  under  the  circumstances.  Diplomatic 
and  consular  otHcials  of  such  countries  except  those 
identified  as  loyal  to  the  cause  of  the  United  Na- 
tions should  be  taken  into  honorable  custody,  held 
for  investigation,  and  thereafter  repatriated  in 
accordance  with  the  provisions  of  subparagraphs 
(2),  (3),  (4)  and  (5)  below. 

Property,  real  and  personal,  owned  or  controlled 
by  persons  who  have  been  detained  or  arrested 
under  the  provisions  of  the  foregoing  paragraph 
should  be  taken  under  control  pending  directions 
as  to  its  eventual  disposition. 

(2)  Those  non- Japanese  enemy  nationals  who 
were  known  as  agents  or  propagandists  of  Nazism 
and  Fascism  (including  research  experts  and 
students,  scientifically  skilled  persons,  persons 
holding  administrative  posts  in  commerce  or  gov- 


1044 


DEPARTMENT  OF  STATE  BULLETIN 


ernnient  and  all  those  who  sought  repatriation  to 
enemy  countries  during  the  period  of  hostilities) 
should  be  interned  and.  after  confirmation  and 
agreement  by  the  appropriate  authorities  in  their 
home  countries,  repatriated. 

(3)  Those  non-Japanese  enemy  nationals  not 
subject  to  internment  and  repatriation  should  be 
given  their  freedom  unless  internment  is  necessary 
for  their  protection. 

(4)  The  voluntary  repatriation  of  enemy  or 
ex-enemy  nationals  of  non-Japanese  nationality 
not  subject  to  forceable  repatriation  should  be 
permitted. 

(5)  Transportation  to  a  port  of  embarkation 
for  transoceanic  destination  should  be  at  the  ex- 
pense of  Japan  and  repatriation  therefrom  should 
be  provided  in  accordance  with  appropriate  ar- 
rangements between  the  governments  concerned. 

g.  Forinosan-Chinese  and  Koreans. 

(1)  The  Supreme  Commander  should  treat 
Formosan-Chinese  and  Koreans  as  liberated 
people  in  so  far  as  military  security  permits.  They 
are  not  included  in  the  term  "Japanese"  as  used  in 
this  paper  but  they  have  been  Japanese  subjects 
and  may  be  treated,  in  case  of  necessity,  as  enemy 
nationals.  They  should  be  identified  as  to  nation- 
ality, place  of  residence  and  present  location. 
They  may  be  repatriated  if  they  so  desire  under 
such  regulations  as  the  Supreme  Commander  may 
establish.  However,  priority  will  be  given  to  the 
repatriation  of  nationals  of  the  United  Nations. 

The  Supreme  Commander,  if  he  finds  it  neces- 
sary, should  direct  the  repatriation  of  Formosan- 
Chinese  and  Koreans  and  coordinate  such  repatri- 
ation with  the  repatriation  of  Japanese  nationals 
from  Korea  and  Formosa. 

(2)  Arrangements  for  the  repatriation  of  For- 
mosan-Chinese should  be  made  with  the  govern- 
ment of  China  by  the  United  States  Government. 

(.3)  Pending  completion  of  arrangements  for 
the  i-epatriation  of  Koreans  formerly  resident  in 
Korea  north  of  38°  North  Latitude,  between  the 
Soviet  Unioii  and  the  United  States,  the  Supreme 
Commander,  if  he  finds  it  necessary,  may  repatri- 
ate such  Koreans  to  that  part  of  Korea  south  of 
38°  North  Latitude. 


(4)  When  arrangements  have  been  entered  into 
as  indicated  in  subparagraphs  (2)  and  (3)  above, 
and  subject  to  such  arrangements,  the  Supreme 
Commander  should  permit  voluntary  i-epatriation 
of  Formosan-Chinese  and  Koreans  and  may  direct 
their  repatriation  if  he  deems  such  action  neces- 
sary. Priority,  however,  should  be  given  to  the 
rei^atriation  of  nationals  of  the  United  Nations. 

(5)  Formosan-Chinese  and  Koreans  should  be 
protected  from  hostile  Japanese  elements.  The 
Supreme  Commander  should  insure  that  the  Japa- 
nese authorities  make  adequate  provision  in  fact 
for  the  care,  safety  and  welfare  of  Formosan- 
Chinese  and  Koreans  pending  their  repatriation. 

/;.  Protection  of  Property. 

(1)  Within  sucii  limits  as  are  inn^osed  by  the 
military  situation,  the  Supreme  Commander 
should  take  all  reasonable  steps  necessary  to  pre- 
serve and  protect  the  pi'operty  of  United  Nations 
Nationals  in  Japan. 

(2)  Record  of  wages,  bank  deposits  and  owner- 
ship of  securities  and  other  personal  property  of 
all  aliens  should  be  preserved. 

i.  Return  to  Homes  in  Japan. 

Aliens  having  homes  in  Japan  and  not  held  as 
war  criminals  or  for  security  reasons,  should  be 
permitted  to  return  to  their  homes  as  soon  as  con- 
ditions permit. 

y.  Use  of  UiVRRA  and  Voluntary  Agencies. 

UNRRA  and  private  relief  agencies  may  be  used 
at  the  discretion  of  the  Supreme  Commander  wher- 
ever available  in  the  cai'e  and  repatriation  of 
United  Nations  nationals  and  those  assimiliated  to 
them  in  treatment. 


Election  of  Bank  and  Fund  Officials.  Eugene 
Meyer  of  the  United  States  was  unanimously 
elected  President  of  the  International  Bank  for 

Reconstruction  and  Development  on  June  -t. 

Camille  Gutt  of  Belgium  was  elected  Managing 
Direct<^r  of  the  International  Monetary  Fund  at  its 
meeting  on  May  6. 


The  Record  of  the  Week 


'Random  Harvest" 


BY  UNDER  SECRETARY  ACHESON 


LITE  Fdi!  ALL  OF  VH  has  been  so  concentrated  on 
I  the  iinniediate  in  these  past  years — each  day 
with  its  pressing  task;  each  meeting  with  its 
agenihi ;  each  conversation  with  its  nrgent  need  for 
relevancy — that  one  faces  a  gathering  which  is  not 
going  to  end  in  a  vote  with  a  sense  of  emptiness. 
For  it  takes  a  wise  man  and  the  long  habit  of  con- 
templation to  spin  threads  from  one's  own  in- 
nards. The  rest  of  us  can  only  splice  those  odd 
fragments  of  conclusion  which  tliis  unaccustomed 
effort  pi'oduces. 

The  first  task  is  repression.  One  who  has  been 
serving  in  the  field  of  foreign  affairs  must  beware 
at  a  moment  like  this  of  tliose  ''pernicious  ab- 
stractions", in  the  Lincolnian  phrase,  which  rise 
in  the  heart  and  gather  to  the  eyes — albeit  only 
the  mind's  eyes.  Sovereignty,  security — in  a  curi- 
ous way  so  many  of  them  begin  with  "s" — selfish- 
ness, survival,  sacrifice,  self-executing,  society, 
social  significance,  and  suicide.  The  "inters"  also 
dig  a  pit  for  the  unwary — interdependent,  inter- 
national, inextricably  intermingled.  We  turn 
to  tliem  from  an  almost  biological  urge  to  stretch 
from  where  we  are  to  somewhere  brighter,  like  a 
sprout  coming  through  the  earth.  But  speeches 
in  which  they  appear  usually  jiortray  a  mood 
rather  than  a  thought,  and  are  apt  to  end  with  a 
paraphrase  of  the  closing  sentence  of  the  Gettys- 
burg address. 

If  one  is  to  spin  from  his  own  visceral  wisdom, 
he  nuist  say,  first,  "I  shall  not  be  a  fake";  and, 
second,  "What  do  I  know,  or  think  1  know,  from 
my  own  experience  and  not  by  literary  osmosis?" 
An  honest  answer  would  be  "Not  much;  and  I  am 
not  too  sure  of  most  of  it." 

One  thing,  however,  seems  pretty  sure — that  the 
tasks  which  grow  out  of  the  relations  of  our 
country  with  other  countries  are  hard  ones.  This 
does  not  come  from  any  lack  of  ideas  and  sug- 
gestions. These  pour  out  on  the  unhappy  laborer 
in  this  vineyard  in  a  generous,  if  varied,  flood. 
]Mr.  Morrow  remarked  that  there  were  two  classes 


of  people :  those  who  talked  about  things,  and 
those  who  did  things.  And  he  added  that  the 
competition  in  the  second  group  was  not  keen. 

No,  the  difficulty  does  not  come  from  any  meager- 
ness  of  choice  of  direction  or  method.  It  comes 
pretty  directly  from  the  medium  with  which  one 
works,  the  human  animal  himself.  Senator  Bark- 
ley  observes  resignedly  from  time  to  time  that  one 
man  has  about  as  much  human  nature  as  another — 
and  perhaps  a  little  more.  And  so,  \^hen  we  tackle 
the  fundamental  task  in  the  conduct  of  our  foreign 
affairs,  which  Mr.  Hull  has  described  as  focusing 
the  will  of  140,000,000  people  on  problems  beyond 
our  shores,  we  find  ourselves  in  trouble.  The  trou- 
ble comes  from  the  fact  that  people  are  focusing  on 
140,000,000  other  things — or,  more  accurately,  not 
focusing  on  them,  but  getting  very  nuich  mixed  up 
with  and  about  them — and  the  people  in  other 
countries  are  doing  the  same  thing. 

The  reasons  M'hy  this  is  so  lie  beyond  the  limits 
of  my  knowledge  and  so  talk  about  them  is  banned 
bv  my  self-restraining  ordinance.  But  there  is  one 
contributing  factor  wiiich  I  have  observed  and 
believe  causes  an  immense  amount  of  trouble. 
Man  has  been  poking  about  within  his  own  mind 
and  has  found  out  too  nmch  about  it  for  his  own 
wisdom  to  handle. 

For  a  long  time  we  have  gone  along  with  some 
well-tested  principles  of  conduct :  that  it  was  better 
to  tell  the  truth  than  falsehoods ;  that  a  half  truth 
was  no  truth  at  all ;  that  duties  were  older  than 
and  as  fundamenal  as  rights;  that,  as  Justice 
Holmes  put  it,  the  mode  by  which  the  inevitable 
came  to  pass  was  effort ;  that  to  perpetrate  a  harm 
was  always  wrong  no  matter  how  many  joined  in 
it,  but  to  perpetrate  it  on  a  weaker  person  or  people 
was  particularly  detestable;  and  so  on. 

Our  institutions  are  founded  on  the  assumption 
that  most  people  follow  these  principles  most  of 

'  An  address  delivered  before  the  Associated  Harvard 
Clubs  in  Boston,  Mass.,  on  .Tune  4  and  released  to  the  press 
on  the  same  date. 


1045 


1046 


DEPARTMENT  OF  STATE  BULLETIN 


the  time  because  they  want  to,  and  the  institutions 
work  pretty  well  when  this  assumption  is  true. 
More  recently,  however,  bright  people  have  been 
fooling  with  the  machinery  in  the  human  head  and 
they  have  discovered  quite  a  lot.  For  instance,  we 
know  that  association  and  repetition  play  a  large 
part  in  the  implanting  of  ideas.  This  has  un- 
expected results.  We  no  longer  engage  in  the 
arduous  task  of  making  a  better  mouse  trap  to 
induce  the  world  to  beat  a  path  to  our  door.  We 
associate  with  our  product  a  comely  and  exposed 
damsel,  or  a  continued  story  which  speeds  daily 
through  the  air  rejected  only  by  the  ionosphere. 

So  far  the  matter  does  not  seem  too  serious.  But 
Avhen  Hitler  introduced  new  refinements  they  were 
serious.  It  appears  to  be  true  that  people  can  be 
united  most  quickly  by  hatred  of  a  comparatively 
weak  group  in  the  community  and  by  the  common 
sense  of  guilt  which  accompanies  outrages  against 
its  members.  We  have  had  some  experience  of  this 
ourselves.  With  this  as  a  start  and  all  the  per- 
verted ingenuity  of  propaganda,  which  uses  fa- 
miliar and  respected  words  and  ideas  to  implant 
the  exact  opposite  standard  and  goal,  a  whole  peo- 
ple have  been  utterly  confused  and  corrupted.  Un- 
happily neither  the  possession  of  this  knowledge 
nor  the  desire  to  use  it  was  confined  to  Hitler. 

Others  dip  from  this  same  devil's  cauldron. 
The  politician  who  knows  that  notoriety  survives 
the  context  is  anxious  to  be  mentioned  as  often  as 
possible.  The  perfect  tool  at  hand  is  controversy. 
For  controversy  is  far  more  diverting  than  expo- 
sition, and,  therefore,  the  press  and  radio  ai-e  more 
than  willing  to  assist.  They  have  been  known 
to  pitch  some  balls  of  their  own.  And  no  contro- 
versy is  safer  than  one  with  the  foreigner,  the 
outsider.  His  defenders  at  oiice  become  suspect. 
So  a  field  which  is  difficult  enough,  where  more 
than  anywhere  widespread  agreement  is  essential, 
becomes  a  peculiar  prey  to  controversy. 

There  is  also  the  new  psychology  of  crisis — ex- 
emplified by  the  common  expression  "to  build  a 
fire  under  him"'.  Now  in  my  archaic  profession  to 
do  that  is  to  connuit  arson,  and  the  law  takes  a  dim 
view  of  it.  But  abroad  and  at  liome  it  has  been 
observed  that  to  obtain  relief  from  the  unendurable 
produces  a  quite  irrational  sense  of  well-being. 
Thei-efore,  the  iniendurable  situation  is  created  so 
that  one  may  profit  from  the  circumstances  of 
relief. 

It  is,  I  believe,  a  Russian  fable  which  recounts 
the  advice  given  by  a  priest  to  a  peasant  who  in- 


sisted that  he  was  about  to  commit  suicide  because 
his  life  was  so  unbearable.  The  advice  was  to 
move  his  goats  and  chickens  into  his  own  hut  for 
a  week,  and  then  to  move  them  out.  The  advice, 
of  course,  was  sound.  Life  took  on  a  definitely 
rosier  hue  and  the  idea  of  suicide  was  abandoned. 
It  is  not  recommended  as  a  sound  practice,  like 
swinging  two  bats  before  going  to  the  plate. 

The  evil  is  not  merely  that  the  perpetrator  of 
the  crisis  misjudges  his  own  skill  and  involves  us 
all  in  disaster,  but  that,  as  with  all  these  practices, 
a  Gresham's  law  of  politics  and  morals  sets  in. 
The  baser  practice  drives  out  the  better.  The 
cheaper,  the  more  fantastic,  the  more  adapted  to 
prejudice,  the  more  reckless  the  appeal  or  the  man- 
euver, the  more  attention,  and  excited  attention,  it 
receives.  And  the  less  chance  there  is  that  we 
shall  listen  to  the  often  difficult  analysis  of  the 
facts  and  the  always  difficult  consideration  of  duty. 

It  is  evil  for  shrewd  men  to  play  on  the  minds 
and  loyalties  and  fears  of  their  fellows  as  on  an 
instrument.  It  produces  not  only  the  degradation 
of  the  democratic  dogma  about  which  Brooks 
Adams  warned,  but  the  degradation  of  all  man- 
kind everywhere,  paralyzing  the  very  centers  of 
moral  action,  until  these  oceans  of  cunning  words 
wash  through  the  minds  of  men  like  the  sea 
through  the  empty  portholes  of  a  derelict. 

If  the  need  for  a  remedy  seems  urgent,  it  might 
be  sought  both  through  attaining  an  intellectual 
immunity  to  this  virus  by  identifying  and  isolating 
it  and  also  by  making  it  plain  to  its  carriers  at 
home  and  abroad  by  the  plainest  words  and  acts 
that  they  are  not  fit  company  for  morally  healthy 
p-eople. 

These  practices,  I  said  a  moment  ago,  seemed 
to  me  a  contributing  factor  in  the  trouble  we  have 
in  focusing  the  will  of  people  on  problems  beyond 
our  shores.  Perhaps,  even  more  than  this,  they 
have  contributed  to  those  problems.  If  it  is  true, 
as  I  believe  it  is,  that  the  continued  moral, 
militar}',  and  economic  power  of  the  United  States 
is  an  essential  factor  in  the  organization  of  peace, 
then  these  matters  about  which  we  have  been 
talking  have  greatly  contributed  to  our  troubles. 
They  lie  at  the  root  of  the  hysteria  which  has 
wrought  such  havoc  with  our  armed  services,  and 
continues  to  do  so.  They  lie  at  the  root,  also,  of 
the  difficulty  which  we  have  in  using  our  great 
economic  power,  in  our  own  interest,  to  hasten 
recovery  in  other  countries  along  lines  which  are 
essential  to  our  own  system.    They  have  contrib- 


JUNE  16,  1946 


1047 


uted  largely  to  the  weakening  of  our  economic 
strength  itself.  The  slogans  "Bring  the  boys 
home!"  and  "Don't  be  Santa  Clans!"  are  not 
among  our  more  gifted  or  thoughtful  contribu- 
tions to  the  creation  of  a  free  and  tranquil  world. 

This  seems  to  me  true  for  the  simplest  of  all  rea- 
sons, which  is  that  the  sensible  way  to  strengthen 
a  structure  is  not  to  weaken  its  most  essential 
parts.  I  am  often  told  that  the  way  to  solve  this 
or  that  problem  is  to  leave  it  to  the  United  Na- 
tions. But  it  seems  to  me  inescapable  that  if  they 
are,  or  we  hope  will  be,  united,  they  are  still 
nations ;  and  no  more  can  be  expected  of  this  forum 
for  political  adjustment  than  the  sum  total  of  the 
contributions.  If  these  are  wise  and  steadfast  and 
supported  by  strength  determined  to  organize 
peace,  the  results  will  be  good.  But,  in  the  Arab 
proverb,  the  ass  that  went  to  Mecca  remained  an 
ass,  and  a  policy  has  little  added  to  it  by  its  place 
•  of  utterance. 

So,  when  one  sees  our  military  forces  disrupted, 
one  is  entitled  to  ask  whether  the  considerations 
which  led  to  this  were  more  valid  and  urgent  than 
the  sense  of  steadiness  and  confidence  which  our 
forces  gave  and  would  have  continued  to  give  to 
millions  all  over  a  badly  shattered  and  uncertain 
world.  The  answer  which  one  most  often  gets 
does  not  go  to  the  merits  of  the  question.  It  goes 
to  another  of  our  devices  for  finding  out  what  we 
think — opinion  polls.  It  appears  that  we  have 
become  extroverts,  if  of  a  somewhat  hj'pochon- 
driac  type,  and  ascertain  our  state  of  health  by 
this  mass  temperature  taking.  Fortunately  this 
was  not  one  of  the  hardships  of  Valley  Forge. 

So,  too,  those  who  must  labor  daily  at  the 
crossings  where  the  lives  of  many  people  meet 
imderstand  better  than  they  can  expound  that 
their  tasks  can  be  lightened  but  not  performed  by 
a  resolution  drafted  and  passed  at  Hunter  College. 
These  tasks  are  more  deeply  affected  by  how  we 
and  others  master  the  intricacies  of  the  production 
and  movement  of  food  and  other  goods,  by  how 
successfully  we  deal  with  labor  problems  and  in- 
flation, with  credits,  with  the  wise  use  of  natural 
resources.  They  even  involve  the  most  national  of 
all  problems — the  efficiency  of  the  administrative 
and  legislative  processes. 

At  this  point  I  am  aware  of  voices  whicli  say 
that  national  sovereignty  is  the  root  of  the  whole 
trouble  and  that  we  must  do  away  with  all  of  that. 
It  may  be  so,  but  to  a  sinking  heart  there  comes 
the  admonition  of  Old  Hickorv  at  the  battle  of 


New  Orleans,  apocryphally  reported  by  Paul 
Porter:  "Boys,  elevate  them  guns  a  little  lower." 
It  may  be  that  the  way  to  solve  a  difficult  prob- 
lem is  to  transfer  one's  attention  to  an  insoluble 
one.    But  I  doubt  it. 

Rather  it  seems  to  me  the  path  of  hope  is  toward 
the  concrete,  toward  the  manageable,  in  the  first 
instance.  A  forum  there  should  be,  and  there  is, 
for  the  adjustment,  as  best  we  can,  of  those  criti- 
cal issues  which  threaten  the  peace.  But  when  we 
come  to  tasks  of  common  management,  it  seems 
wise  to  start  with  those  which  through  hard  and 
intelligent  work  can  be  reduced  to  manageable 
dimensions  and  governed  by  pretty  specific  rules 
and  standards — like  the  moiretary  fund,  the  bank, 
the  trade  organization,  and,  if  possible,  the  con- 
trol of  atomic  energy.  These  are  hard  enough 
in  all  conscience.  I  have  chewed  on  them  and 
know  their  toughness  and  the  frailty  of  the  task 
forces  and  their  plans.  But  the  jobs  are  doable 
with  good  sense  and  good  luck. 

To  do  these  jobs  and  conduct  our  own  afl'airs 
with  passable  restraint  and  judgment — the  type 
of  judgment,  as  Justice  Brandeis  used  to  say, 
which  leads  a  man  not  to  stand  in  front  of  a  loco- 
motive— will  be  an  achievement.  Moreover,  it 
will  be  an  achievement  which  will  profoundly 
modify  many  situations  which  now  concern  us, 
including — and  I  am  now  guessing — our  relations 
with  the  Soviet  Union.  Problems  which  are  dif- 
ficult against  a  background  of  confusion,  hesita- 
tion, and  disintegration  may  well  become  quite 
possible  of  solution  as  national  and  international 
institutions  and  activities  become  healthy  and 
confident  and  vigorous  in  a  large  part  of  the 
world.    Certainly  our  troubles  will  not  increase. 

But  it  is  a  long  and  tough  job  and  one  for  which 
we  as  a  people  are  not  particularly  suited.  We 
believe  that  any  problem  can  be  solved  with  a  lit- 
tle ingenuity  and  without  inconvenience  to  the 
folks  at  large.  We  have  trouble-shooters  to  do 
this.  And  our  name  for  problems  is  significant. 
We  call  them  headaches.  You  take  a  powder  and 
they  are  gone.  These  pains  about  which  we  have 
been  talking  are  not  like  that.  They  are  like  the 
pain  of  earning  a  living.  They  will  stay  with 
us  until  death.  We'  have  got  to  understand  that 
all  our  lives  the  danger,  the  uncertainty,  the  need 
for  alertness,  for  efl^ort,  for  discipline  will  be  upon 
us.  This  is  new  to  us.  It  will  be  hard  for  us.  But 
we  are  in  for  it  and  the  only  real  question  is 
whether  we  shall  know  it  soon  enoueh. 


1048 


DEPARTMENT  OF  STATE  BULLETIN 


Rumanian  Reply  to  U.  S.  Note  on  General  Elections  and  Public 
Liberties 


[Released  to  the  press  June  7] 

?7ie  following  note  from  the  Rumanian  Minister 
for  Foreign  Affairs  was  received  hy  the  United 
States  representative  in  Bucharest  on  June  3,  J946 
and  has  now  been  released  for  publication  by  the 
Rumaii ian.  Go vern men t : 

Sir: 

I  have  the  honor  to  acknowledge  the  receipt  of 
your  note  dated  May  the  twenty-seventh  and  at 
the  same  time  to  forward  you  the  Rumanian  Gov- 
ernment's reply  thereto. 

From  the  contents  of  your  note  it  follows  that 
the  anxiety  expressed  by  the  United  States  Gov- 
ernment is  caused,  first,  by  the  non-fixation  of  the 
date  for  the  general  elections  and,  secondly,  by  the 
manner  in  which  the  Moscow  decisions  concernins: 
public  liberties  are  being  carried  out. 

The  Eumanian  Government  are  eager  to  effect 
the  general  elections  as  speedily  as  possible.  To 
this  end  they  have,  after  laborious  study,  set  up  the 
provisional  draft  of  the  electoral  law,  which  they 
have  submitted  to  public  discussion,  in  their  desire 
to  win  the  assent  of  the  entire  public  opinion  to 
the  final  wording  of  that  law.  After  the  law's 
promulgation  the  Government  will  proceed  with- 
out delay  to  the  establishing  of  the  electoral  lists 
and  then,  after  that  procedure  will  have  been  ac- 
complished, they  will  consult  the  electorate.  With 
regard  to  the  public  liberties,  guaranteed  by  the 
Moscow  decisions,  the  Eumanian  Government 
have  taken  all  measures  to  ensure  their  exercise. 

The  Rumanian  Government  wish  to  implement 
the  Moscow  decisions  in  their  entirety,  yet  with 
constant  mindfulness  to  defend  the  rule  of  public 
order  and  security  necessary  for  the  fulfillment  of 
the  obligations  which  they  have  assumed  under 
the  Armistice  Agreement  as  well  as  for  the  reali- 
zation of  the  commandments  of  the  States'  per- 
manent interests. 

At  present  the  opposition  parties  have  at  their 
disposal  1()  newspapers,  wherein  the  free  expres- 
sion of  opinion  is  complete,  bordering  as  it  does 
on  license,  througli  their  violence  of  language. 
On  February  the  twenty-second  last,  the  President 
of  the  Council  of  Ministers,  wishing  to  take  co'>-- 
nizance  personally  of  the  complaints  of  the  press, 
called  a  conference  of  representatives  of  all  news- 


papers in  the  country,  including  opposition  news- 
papers. No  complaint  whatever  was  raised  at  that 
conference  by  the  representatives  of  the  oppositioji 
newspapers  in  connection  with  the  action  of  the 
services  of  censorship.  The  directives  of  the  Allied 
Control  Commission  aiming  to  prevent  the  dif- 
fusion of  polemics  between  the  Allies  have  but 
rarely  been  applied  to  certain  statements  from 
abroad. 

According  to  regulations  in  force,  broadcasting 
facilities  are  and  remain  available  only  to  persons 
with  official  responsibilities  in  the  performance  of 
their  governhncntal  or  administrative  duties,  yet 
not  to  persons  without  responsibility. 

The  political  violence  which  at  times  manifests 
itself  at  public  meetings  and  demonstrations  is  due, 
for  the  most  part,  to  the  campaigns  of  agitation 
and  hatred  that  have  been  launched  lately  by  the 
opposition  parties  against  the  Government  and  its 
members,  and  the  responsible  authorities  are  mak- 
ing all  efforts  to  hamper  it  and  to  maintain  public 
order  and  tranquillity. 

The  legal  proceedings  against  the  authors  of 
the  incidents  of  November  8  have  been  continued 
only  in  regard  to  those  who,  at  the  time  of  the 
governmental  statement,  were  under  inquii-y  for 
offense  against  common  law  and  were  found  in  a 
position  of  obvious  and  legally  ascertained  guilt, 
as  the  application  of  the  law  cannot  be  suspended 
ill  favor  of  any  citizen. 

The  ministers  representing  the  National  Liberal 
Party  under  the  leadership  of  Mr.  Dinu  Bratianu 
and  the  National  Peasant  Party  under  the  leader- 
ship of  Mr.  lulius  Maniu  have  participated  and  are 
still  participating  in  all  cabinet  meetings,  where 
they  mean,  however,  to  exercise,  according  to  their 
initial  statements,  only  the  function  of  observers, 
not  that  of  collaborators. 

Thus  the  impressions  abroad,  to  which  your  note 
refers,  can  only  be  the  consequence  of  a  certain 
propaganda  that  aims  to  misrepresent  the  acts  of 
the  Government  and  to  ignore  realities  in  our 
country. 

Very  truly  j-ours, 

G.  Tatarescu 
Vice  President  of  the  Council  of  Ministers, 
Minister  for  Foreign  Affairs. 


JUNE  16,  1946 


1049 


Treaty   Obligations  and  Philippine   Independence 

EXCHANGE  OF  NOTES  BETWEEN  THE  U.  S.  AND  BOLIVIAN  GOVERNMENTS 


Excellency  : 

With  reference  to  the  forthcoming  independ- 
ence of  the  Philippines  on  July  -i,  194G,  my  Gov- 
ernment considers  that  provision  for  a  transitional 
period  for  dealing  witli  tlie  special  tariff  position 
which  Philippine  products  have  occupied  for  many 
years  in  the  United  States  is  an  essential  accom- 
paniment to  Philippine  independence.  Accord- 
ingly, under  the  Philippine  Trade  Act  approved 
April  30,  1946,  goods  the  growth,  produce  or  man- 
ufacture of  the  Philippines  will  enter  the  United 
States  free  of  duty  until  1954,  after  which  they  will 
be  subject  to  gradually  and  I'egidarly  increasing 
rates  of  duty  or  decreasing  duty-free  quotas  until 
1974  when  general  rates  will  become  applicable  and 
all  preferences  will  be  completely  eliminated. 

Since  the  enactment  of  the  Philippine  Inde- 
pendence Act  approved  March  24,  1934,  my  Gov- 
ernment has  foreseen  the  probable  necessity  of 
providing  for  such  a  transitional  period  and  has 
since  then  consistently  excepted  from  most-fav- 
ored-nation obligations  which  it  has  undertaken 
toward  foreign  governments  advantages  which  it 
might  continue  to  accord  to  Philippine  products 
after  the  proclamation  of  Philippine  independence. 
Some  thirty  instruments  in  force  with  other  gov- 
ernments, for  example,  permit  the  continuation  of 
the  excejitional  tariff  treatment  now  accorded  by 
my  Government  to  Philippine  products,  irrespec- 
tive of  the  forthcoming  change  in  the  .Common- 
wealth's political  status. 

With  a  view,  therefore,  to  placing  the  relations 
between  the  United  States  and  Bolivia  upon  the 
same  basis,  with  respect  to  the  matters  involved, 
as  the  relations  existing  under  the  treaties  and 
agreements  referred  to  i  nthe  preceding  paragraph, 
I  have  the  honor  to  pi'opose  that  the  most-favored- 
nation  provisions  of  the  treaty  of  Peace,  Friend- 


ship, Commerce  and  Navigation  between  the 
United  States  and  Bolivia  signed  May  13,  1858, 
shall  not  be  understood  to  require  the  extension 
to  Bolivia  of  advantages  accorded  by  the  United 
States  to  the  Philippines. 

In  view  of  the  inaninence  of  the  inauguration  of 
an  independent  Philippine  Government,  I  should 
be  glad  to  have  the  reply  of  Your  Excellency's 
Government  to  this  proposal  at  an  early  date. 

Accept  [etc.] 

Dean  Acheson 
Acting  Secretary  of  State 

EjMBAJADA  DE  BdLIVLV 

Washington 
Excellency  : 

I  have  the  honor  to  refer  to  Your  Excellency's 
note  of  May  4,  1946,  with  regard  to  the  provision 
that  the  most  favored  nation  clause  of  the  Treaty 
of  Peace,  Friendship,  Commerce  and  Navigation 
between  the  United  States  and  Bolivia,  signed  May 
13,  1858,  shall  not  be  understood  to  require  the 
extension  to  Bolivia  of  advantages  accorded  by  the 
United  States  to  the  Philippines. 

In  aj^preciation  of  the  facts  explained  in  Your 
Excellency's  note,  and  as  an  act  of  friendship  to 
the  Philippine  Nation  in  the  achieving  its  inde- 
pendence, I  have  the  honor  to  express,  on  behalf 
of  the  Bolivian  Government,  the  acceptance  of  this 
proposition. 

Accept  [etc.] 

V  Andrade 
WashiiHjtoiK  D.  C,  June  10. 10^0 

His  Excellency 

Mr.  James  F.  By-enes, 

Secretary  of  State, 
Washington,  D.  C. 


1050 


DEPARTMENT  OF  STATE  BULLETIN 


Mission  To  Observe  Revision  of 
Greek  Electoral  Lists 

The  United  States  Government  has  accepted  an 
invitation  of  the  Greek  Government  to  observe  a 
revision  of  the  Greek  electoral  lists  preparatory  to 
the  plebiscite  scheduled  in  Greece  for  September  1 
on  the  question  of  tlie  return  of  King  George  II. 
The  rei^ort  of  the  Allied  Mission  which  observed 
the  Greek  elections  on  March  31  had  recommended 
that  before  any  national  question  was  again  sub- 
mitted to  the  people  a  complete  revision  of 
registration  lists  be  made. 

The  United  States  delegation  will  consist  of 
about  50  to  60  people,  a  number  of  whom  were  in 
the  United  States  delegation  which  assisted  in 
observing  the  March  31  elections. 

It  was  pointed  out  that  the  United  States  dele- 
gation will  not  participate  in  any  manner  in  the 
plebiscite.  Its  sole  function  is  to  assist  in  the 
revision  of  voting  lists  which  have  not  been  revised 
since  1936. 


Letters  of  Credence 

Ambassador  of  the  U.  S.  S.  R. 

The  newly  appointed  Ambassadoi'  of  the  Union 
of  Soviet  Socialist  Republics,  Nikolai  Vasilievieh 
Novikov,  presented  his  letters  of  credence  to  the 
President  on  June  3.  For  the  texts  of  the  Am- 
bassador's remarks  and  the  President's  reply,  see 
Department  of  State  press  release  378. 

Ambassador  of  Haiti 

The  newly  apixiinted  Amba.ssador  of  Haiti, 
Dantes  Bellegarde,  presented  his  letters  of  cre- 
dence to  the  President  on  June  ;i.  For  the  texts 
of  the  Ambassador's  remarks  and  the  President's 
reply,  see  Department  of  State  press  release  379. 

Ambassador  of  Great  Britain 

The  newly  appointed  British  Ambassador, 
Lord  Inverchapel,  presented  his  letters  of  cre- 
dence to  the  President  on  June  5.  For  the  texts 
of  the  Ambassador's  remarks  and  the  President's 
reply,  see  Department  of  State  press  release  385. 


Signing  of  Military  Mission 
Agreement  With  Venezuela 

[Released  to  the  press  June  3] 

In  conformity  with  the  request  of  the  Govern- 
ment of  Venezuela,  there  was  signed  on  Monday, 
June  3,  1946,  by  James  F.  Byrnes,  Secretary  of 
State,  and  A.  Machado-Hernatidez,  Ambassador 
of  Venezuela  in  Washington,  an  agreement  pro- 
viding for  tlie  detail  of  a  military  mission  by  the 
United  States  to  serve  in  Venezuela. 

The  agi'eement  will  continue  in  force  for  two 
years  from  the  date  of  signature,  but  may  be  ex- 
tended beyond  that  period  at  the  request  of  the 
Government  of  Venezuela. 

The  agreement  contains  provisions  similar  in 
general  to  provisions  contained  in  agreements  be- 
tween the  United  States  and  certain  other  Ameri- 
can republics  providing  for  the  detail  of  officers 
of  the  United  States  Army  or  Navy  to  advise  the 
armed  forces  of  those  countries. 

GERMAN  DOCUMENTS— (7on<mHe(f  from  page  IO4I. 

threat  arising  from  that  vast  expanse,  either  as  a 
consequence  of  its  political  philosophy  or  of  a  mili- 
tary nature.  That  our  countries  together,  in  pur- 
suance of  the  Anti-Comintern  policy  hitherto  car- 
ried on  by  them  in  common,  can  give  the  decisive 
blow  for  the  elimination  of  Bolshevism,  that  great- 
est enemy  of  mankind,  will  be  for  both  our  peoples 
and  their  leaders  the  classic  justification  of  their 
common  political  ideas,  and  their  greatest  claim  to 
eternal  fame. 

In  addition,  I  believe  that  the  defeat  of  Russia 
will  materially  hasten  the  conquest  of  England  by 
the  Axis  powers.  Thereby  there  will  be  provided 
tlie  prerequisites  for  the  New  Order  in  Europe  and 
East  Asia  so  desired  by  both  our  peoples,  and  no 
one  in  the  world  will  be  able  to  dispute  any  longer 
the  right  of  the  states  united  in  the  Three  Power 
Pact  and  now  more  closely  joined  than  ever  in 
their  struggle  in  Bolshevism,  to  set  up  a  new  and 
just  world  order. 

RlBBENTROP." 

End  of  telegram. 

RlBBENTROP 


JUNE  16.  1946 


1051 


Philippine  Independence  Day 
Ceremonies 

[Released  to  the  press  June  7] 

On  July  4,  lO-tC)  the  ceremonies  attending  the 
prochimation  of  the  independence  of  the  Republic 
of  the  Philippines  and  the  inauguration  of  the 
President  and  Vice  President  will  take  place  in 
Manila.  The  ceremonies  are  under  the  joint  aus- 
pices of  the  Government  of  the  United  States  and 
the  Govei'nment  of  tlie  Commonwealth  of  the 
Philippines.  Invitations  to  be  represented  at  the 
Independence  Day  ceremonies  have  been  extended 
jointl_v  to  all  governments  with  which  the  United 
States  maintains  diplomatic  relations. 


Transit  Use  of  Azores  Airports 

[Released  to  the  press  June  4] 

Under  a  wartime  agreement  made  with  the 
Portuguese  Government  on  November  28, 1944  the 
United  States  and  Portugal  constructed  on  Santa 
Maria  Island  in  the  Azores  a  modern  and  com- 
plete airport  which  played  an  important  role  dur- 
ing World  War  II.  With  the  expiration  of  this 
wartime  agreement  the  airport  has  been  i-eturned 
to  the  Portuguese  Government  for  conversion  to 
peacetime  uses.  Meanwhile,  however,  the  United 
States  will  be  permitted  the  continued  transit  use 
of  airports  in  the  Azores  for  18  months  to  maiiitain 
lines  of  communication  with  its  occupation  forces 
in  Germany  and  Japan. 


SELECTIVE  SEKy ICE— Continued  from  page  1037. 

ceeded  at  Government  expense  to  report  for  induc- 
tion at  the  particular  installation  named  in  the  in- 
duction order.  In  the  latter  cases,  transportation 
arrangements  were  made  by  Department  of  State 
representatives  at  the  expense  of  the  Selective 
Service  System. 

Those  who  returned  to  the  United  States  for  in- 
duction or  who  enlisted  in  the  service  branch  of 
their  own  choice  apparently  did  so  for  a  number  of 
reasons,  such  as  preference  relative  to  place  where 
basic  training  was  expected  to  be  received,  oppor- 
tunity to  visit  home  before  entering  service,  and 
opportunity  to  transport  the  family  to  the  United 
States  at  the  employer's  expense. 

A  registrant  appearing  at  the  designated  armed- 
forces  installation  outside  the  United  States  for  in- 
duction is  either  (a)  accepted  and  retained  by  the 
armed  foi-ces,  or  (b)  rejected  and  retui-ned  to  his 
home  at  the  expense  of  the  branch  of  the  armed 
forces  concerned.  If  he  fails  to  appear  according 
to  the  DSS  Form  150-F,  the  armed-forces  com- 
manding otKcer  returns  the  papers  to  the  War  or 
Navy  Department,  as  the  case  may  be,  with  a  nota- 
tion showing  I'egistrant's  failure  to  appear  in  order 
that  his  case  may  be  processed  under  the  regula- 
tions relating  to  delinquency. 

If  the  registrant  chooses  to  return  to  his  home 
in  the  United  States,  it  is  his  duty  to  report  im- 
mediately to  the  local  board  of  jurisdiction,  which 
is  instructed  by  general  directive  to  proceed  im- 
mediately with  his  induction. 


Although  the  record  is,  of  course,  still  far  from 
complete,  it  is  apparent  from  the  figures  given 
above  that  the  final  total  of  men  entering  the  armed 
forces  as  a  result  of  the  extension  of  Selective 
Service  to  Americans  in  foreign  countries  will  be 
small  in  relation  to  Selective  Service  operations  in 
the  United  States,  which  have  resulted  in  the  in- 
duction of  about  12,000,000  men.  The  fact  that 
the  manpower  yield  of  the  operation  in  foreign 
countries  would  be  relatively  small  was  realized 
from  the  beginning.  The  significance  of  the  oper- 
ation and  the  justification  for  the  effort  have  lain 
not  in  numbers  but  in  the  underlying  principles  of 
fairness  which  have  characterized  Selective  Serv- 
ice. The  mere  fact  of  foreign  residence  was  recog- 
nized as  constituting  no  adequate  basis  for  exempt- 
ing American  men  living  in  foreign  countries  from 
military  service,  and  the  practical  problems  of 
reaching  these  men  with  a  workable  system  for 
their  registration,  classification,  and  physical  ex- 
amination and  induction  where  required  were  met 
and  solved  through  the  cooperative  efforts  of  the 
Selective  Service  System,  the  Department  of  State, 
and  the  War  and  Navy  Departments. 

In  December  1945  Maj.  Gen.  Lewis  B.  Hershey, 
Director  of  Selective  Service,  wrote  the  Secretary 
of  State  expressing  his  sincere  appreciation  of  the 
splendid  assistance  and  cooperation  of  the  Depart- 
ment of  State  in  the  registration,  physical  exami- 
nation, and  induction  of  American  citizens  in  for- 
eign countries. 


7052 


DEPARTMENT  OF  STATE  BULLETIN 


Signing  of  Protocol  Modifying 
the  Income-Tax  Convention 
With  the  United  Kingdom 

[Released  to  the  press  June  6) 

On  June  C,  lO-tC  there  was  signed  by  James  F. 
Byrnes,  Secretary  of  State,  and  J.  Balfour,  C.M.G., 
British  Minister  in  Washington,  a  supplementary 
protocol  modifying  in  certain  respects  the  income- 
tax  convention  (that  is,  the  convention  for  the 
avoidance  of  double  taxation  and  the  prevention 
of  fiscal  evasion  with  respect  to  taxes  on  income) 
between  the  United  States  and  the  United  King- 
dom, signed  at  Washington  on  April  10,  1945. 

The  protocol  provides  that  paragraph  (3)  of 
article  XI  of  the  income-tax  convention  "shall  be 
deemed  to  be  deleted  and  of  no  effect",  and  that 
the  protocol  shall  be  regarded  as  an  integral  part 
of  the  convention. 

The  Senate,  on  June  1,  1946,  gave  its  advice  and 
consent  to  ratification  of  the  income-tax  conven- 
tion with  the  United  Kingdom,  in  accordance  with 
the  recommendation  of  the  Conmiittee  on  Foreign 
Relations  (S.  Exec.  Kept.  4,  79th  Cong..  2d  sess., 
May  10, 1946) .  However,  in  the  report  of  the  com- 
mittee reference  was  made  to  hearings  which  were 
lield  before  a  subcommittee,  in  the  course  of  which 
liearings  interested  persons  were  heard  with  re- 
spect to  certain  objections  which  had  been  raised 
in  regard  to  paragraph  (3)  of  article  XI  of  the 
convention.  Article  XI  contains  three  paragraphs, 
under, the  first  two  of  which  a  reciprocal  exemption 
is  accorded  by  each  country,  upon  certain  condi- 
tions, with  respect  to  compensation  for  personal 
services  performed  within  that  country  by  a  resi- 
dent of  the  other  country.  Paragraph  (3)  specifi- 
cally excludes  public  entertainers  from  the  bene- 
fits of  such  exemption. 

The  subconnnittee  recommended  approval  of  the 
convention  without  amendment,  at  the  same  time 
recommending  that  appropriate  steps  be  taken 
■v\itli  a  view  to  eliminating  paragraph  (3)  of  arti- 
cle XI  from  the  convention.  The  supplementary 
protocol  has  been  concluded  for  the  latter  purpose. 


The  Proclaimed  List 

[Ueleased  to  tlie  press  June  7] 

The  Secretary  of  State,  acting  in  ctmjunction 
with  the  Acting  Secretary  of  the  Treasury,  the  At- 
torney General,  and  the  Secretary  of  Commerce, 
issued  on  June  7  Cumulative  Supplement  No.  3  to 
Revision  X  of  the  Proclaimed  List  of  Certain 
Blocked  Nationals. 

Part  I  of  Ciunulative  Supplement  No.  3  con- 
tains three  additional  listings  in  the  otlier  Ameri- 
can republics  and  60  deletions;  Part  II  contains 
1)5  additional  listings  outside  the  American  repub- 
lics and  51  deletions. 


An  avenue  named  in  honor  of  Franklin  Delano 
Roosevelt  is  now  being  cut  through  an  important 
downtown  section  of  Lima,  Peiii. 


Representative  on  Commission 
on  Narcotic  Drugs 

The  Senate  confirmed  on  June  6  the  nomination 
of  Harry  J.  Anslinger  as  United  States  representa- 
tive on  the  Connnission  on  Narcotic  Drugs  of  the 
Economic  and  Social  Council  of  the  United  Na- 
tions. 

WIESMAN — Continued  from  page  1034. 

for  the  most  part  become  historic  milestones  al- 
ready passed  by  the  vast  majority  of  ILO 
members. 

In  seeking  language  to  set  forth  the  principles 
and  purposes  of  the  ILO,  the  Working  Party 
concluded  that  the  Declaration  of  Philadelphia 
unanimously  adoi^ted  there  on  May  10,  1944  is  an 
itleal  statement  of  these  objectives.  It  was  decided 
that  reference  to  the  Declaration  of  Philadelphia 
shovdd  be  incorporated  in  the  preamble  and  that 
tlie  declaration  itself  should  be  annexed  to  the 
constitution,  while  original  objectives  of  the 
j)reamble  and  of  article  41  would  be  deleted. 

At  the  same  time  the  Working  Party  report 
seeks  to  make  it  clear  that  the  functions  at- 
tributed to  the  International  Labor  Organization 
by  the  terms  of  the  Declaration  of  Philadelphia 
differ  in  character  from  the  coordinating  re- 
sponsibilities which  have  been  entrusted  to  the 
Economic  and  Social  Council  by  the  Charter  of 
the  United  Nations  and  have  been  designed  from 
the  outset  to  be  exercised  within  a  wider  frame- 
work of  coordinated  effort  to  attain  "better 
standards  of  life  in  larger  freedom." 


JUISE  16,  1946 


1053 


Visit  of  Haitian  Economist 

Fiiiiicis  Saliiado,  a  distinfriiislied  lawyer  and 
political  economist  and  chairman  of  the  Inter- 
American  Commercial  Arbitration  Commission 
in  Haiti,  is  visiting  the  United  States  at  the  in- 
vitation of  the  Department  of  State.  He  pnr- 
poses  to  confer  with  colleagues  in  the  field  of  eco- 
nomics and  to  study  the  past  economic  relations 
between  Haiti  and  the  United  States  and  the 
possible  development  and  improvement  of  future 
relations. 

As  a  specialist  in  political  economy  and  finance 
he  is  prepared  to  lecture  in  American  iniiversities 
on  either  political  economy,  finance,  or  sociology, 
and  thus  to  promote  a  better  understanding  be- 
tween Haiti  and  the  United  States. 

Mv.  Salgado  will  remain  approximately  six 
weeks  in  AVashington,  D.  C,  and  then  will  visit 
iniiversities  in  the  northeast  section  of  the  United 
States. 


HOWARD— Coiiiiiiiicd  from  paye  1021. 

of  monetary  gold.  This  method  of  distribution 
was  chosen  because  the  losses  of  gold,  amounting 
to  over  a  half  billion  dollars,  were  far  in  ex- 
cess of  the  gold  recovered,  and  because  the  gold 
recovered  was  for  the  most  part  not  identifiable. 
As  a  part  of  the  agreement  with  Switzerland  I'e- 
ferred  to,  Switzerland  has  agreed  to  make  avail- 
able to  the  "gold  pot"  $58.1  million  of  gold,  in 
recognition  of  the  large  amounts  of  gold  she  re- 
ceived from  Germany  during  the  war. 

8.  The  Paris  Conference  adopted  a  unanimous 
resolution  that,  in  the  administration  of  benefits 
for  war  damage  to  property,  each  government 
shall  in  principle  accord  to  the  nationals  of  all 
the  other  participating  governments  treatment  not 
less  favorable  than  that  accorded  to  its  own  na- 
tionals. The  important  undertaking  contained  in 
this  resolution  will  help  to  assure  non-discrimina- 
tory treatment  of  United  States  and  other  foreign 
nationals  in  the  administration  of  compensation 
benefits  liy  all  the  nations  which  participated  in 
the  conference. 

HI 

The  agreements  reached  by  the  Paris  Confer- 
ence were  achieved  in  a  remarkable  spirit  of  coop- 
ei-ation  and  good-will.  On  a  number  of  occa- 
sions during  the  42  meetings  and  6  weeks  of  con- 


tinuous discussion,  conflicts  of  interests  threat- 
ened the  Confei'ence  with  disunity  and  even  com- 
plete dissolution.  Nevertheless,  out  of  the  desire 
of  every  delegate  to  reach  agreement,  conflicts 
were  overcome  through  compromise,  and  an  ex- 
ceptional atmosphere  of  mutual  understanding  and 
connnon  sense  developed  which  prevailed  during 
even  the  most  serious  crises  and  finally  led  the 
Confei'ence  to  success. 

Informal  discussions  were  held  by  the  Ameri- 
can, British,  and  French  delegates  to  the  Confer- 
ence, both  in  advance  of  and  during  the  confer- 
ence, in  order  to  obtain  preliminary  agreement  on 
as  many  points  as  possible.  Through  these  dis- 
cussions it  was  possible  to  provide  general  guid- 
ance to  the  work  of  the  conference  itself.  At  the 
same  time  there  was  full  participation  by  all  18 
delegates  in  the  initiation  of  proposals,  in  the 
drafting  of  final  resolutions,  and  in  the  discussions 
of  the  conference.  Unanimous  agreement  was 
sought  on  every  point  within  the  competence  of  the 
confei-ence.  With  respect  to  matters  within  the 
competence  of  the  Control  Council  for  Germany,  a 
number  of  non-unanimous  resolutions  were 
adopted  by  delegates  who  desired  to  adhere,  and 
the  delegates  of  the  occupying  powers  inidertook 
to  bring  these  to  the  notice  of  their  respective 
governments. 


The  Congress 


Study  of  luteniatioiial  C<imimiiiicatioiis :  Hearings 
Before  a  Subcoiiiiiiittee  of  the  Comiiiittee  on  Interstate 
Commerce,  Unitwl  States  Senate,  Seventy-nintli  Congress, 
first  session,  ijursuant  to  S.  Hes.  187  iTSth  Congress) 
(Extended  by  S.  Res.  24 — TDth  Congress),  a  resolution 
directing  a  study  of  internatfonal  communications  by 
wire  and  radio.  Part  2.  Exhibits  submitted  by  Federal 
Communications  Commission,  March  19-April  3,  1945. 
iii,  3.30  pp. 

Atomic  Energy  Act  of  1940 :  Hearings  Before  the  Spe- 
cial Committee  on  Atomic  Energy,  United  States  Senate, 
Sevent.v-niuth  Congress,  second  session,  on  S.  1717,  a  bill 
for  the  development  and  control  of  atomic  energy.  Part  4. 
February  18,  19,  and  27,  1946.    iii,  70  pp. 

Administrative  Expenses  in  Government  Departments. 
H.  Kept.  2186,  79th  Cong.,  to  accompany  H.R.  6.533.  24  pp. 
[Favorable  report.] 

Providing  Supi)ort  for  Wool,  Amending  the  Agricultural 
JIarketing  Agreement  Act  of  19.37,  and  Providing  for  Wool 
Standards,  and  for  Other  Purposes.  S.  Kept.  139S.  70th 
Cong.,  to  accompany  S.  2033.     IS  pp.     [Favorable  reijort.] 


1054 


DEPARTMENT  OF  STATE  BULLETIN 


The  Foreign  Service 


Confirmations 

On  June  5  the  Senate  confirmed  the  nomination  of 
Charles  Ulricls  Bay  to  be  American  AmbassaJor  Extraor- 
dinary and  Plenipotentiary  to  Norway. 

Consular  Offices 

The  American  Consulate  General  at  Gdansk,  Poland, 
was  established  on  May  7,  1846. 

The  status  of  the  American  Consulate  at  Saigon,  French 
Indochina,  was  changed  to  that  of  Consulate  General  on 
May  23,  1946. 

The  American  Vice  Consulate  at  ManSos,  Brazil,  was 
closed  to  the  public  on  May  31,  1946. 

The  Consulate  at  Turin,  Italy,  was  opened  to  the  public 
on  June  1,  1946. 


Resignation  of  George  P.  Baker 

George  P.  Baker  resigned  as  Director  of  the  OflSce  of 
Tranisport  and  Communications  Policy,  effective  June  30. 
For  the  texts  of  Mr.  Baker's  letter  of  June  4  and  Assistant 
Secretary  Clayton's  letter  of  June  7  accepting  the  resig- 
nation, see  Department  of  State  press  release  394  of 
June  8,  1946. 

Appointment  of  Officers 

William  T.  Stone,  Director  of  the  State  Department's 
Office  of  International  Information  and  Cultural  Affairs, 
on  June  6  announced  the  appointment  of  Kenneth  D.  Fry 
as  Acting  Chief  of  QIC's  International  Broadcasting 
Division.  Mr.  Fry  had  been  Acting  Associate  Chief  in 
charge  of  the  San  Francisco  office. 


Training  Announcements 

Orientation  Conferences 

Departmental  Series 

General  John  H.  Ililldring,  Assistant  Secretary  of  State  for  occupied  areas,  will  speak  on  "American 
Policies  in  Occupied  Areas"  Wednesday,  June  26,  at  10  a.m. 

Foreign  Service  I'raining  Series 

Mr.  John  B.  Appletun   will  present  an  "Introduction  to  India  and  the  Far  East"  on  Wednesday,  June  . 
26,  at  9  a.  m.     Mr.  Appleton  is  the  Geographic  Adviser  to  the  Division  of  Far  East  Intelligence  (FEI). 
These  lectures  will  be  held  in  Room  474,  main  State  Department  building. 

A grieidtura I  M iss ions 

The  Division  of  Training  Services  has  been  arranging  orientation  conferences  in  the  Department  for 
personnel  of  two  American  agricultural  missions  which  are  going  to  China  and  the  Philippines,  respectively, 
under  the  joint  auspices  of  the  Department  of  State  and  the  Department  of  Agriculture.  The  missions  were 
requested  by  the  Chinese  and  Philippine  Governments. 

The  nine-man  mission  to  China,  headed  by  Dr.  Claude  B.  Hutchison,  dean  of  the  College  of  Agriculture 
and  vice-president  of  the  University  of  California,  will  leave  Washington  on  June  27.  The  tive-man  mission 
to  the  Philippines,  headed  by  Dean  Leland  E.  Call,  director,  Agricultural  Experiment  Station,  Kansas  State 
College,  was  to  leave  June  20. 

During  their  stay  in  Washington  the  members  of  the  two  missions  have  been  making  an  intensive  study 
of  American  policies  in  the  Far  East  and  of  American   trade  relations  with  China  and  the  Philippines. 

Upon  arrival  at  their  respective  destinations,  the  American  personnel  of  the  two  missions  will  he 
joined  by  Chinese  and  Philippine  agricultural  experts.  After  studying  the  possibilities  of  improving  the  agri- 
cultural economies  of  the  two  countries,  the  joint  missions  will  make  recommendations  to  the  Governments 
at  Nanking  and  Manila. 

The  missions  were  organized  through  the  efforts  of  the  Interdepartmental  Committee  on  Cultural  and 
Scientilic  Cooperation,  working  with  the  Office  of  Foreign  Agricultural  Relations  of  the  Department  of 
Agriculture. 


PUBLISHED    WITH    APPROVAL    OF    DIRECTOR    OF    BUREAU    OF    THE    BUDGET 
U.  S.  GOVERNMENT  PRINTING   OFFICE;  I9<6 


^3S3 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  m  364 


JUNE  23,  1946 


International  Atomic  Development  Authority  .  page  1057 


The  Japanese  General  Elections     ....     page 


1067 


The  Inter-Allied  Reparation  Agency 

Article  by  JOHN  B.  HOWARD        .... 


page  1063 


for  complete  contents 
see  inside  cover 


^Vl«^NT    Oj;, 


THE   DEPARTMENT  OF  STATE 

BULLETIN 


Vol.  XIV  .No.  364  • 


Publication  2557 


June  23,  1946 


For  Bale  by  tbe  Superinlendenl  of  DocumentB 

U.  S.  Government  Priming  Oflfice 

Waflhington  25,  D.  C. 

Sdbscbiption: 

52  ifiBues,  $3.50;  eingle  copy.  10  cents 

Special  oCfer:  13  weeks  for  $1.00 
(renewable  only  on  yearly  baeis) 


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 
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  materialin  the  field  of  inter- 
national relations,  are  listed  currently. 


S.  WPtRlNTENOENT  OF  P0CU«£NTS 

JUL  16  1946 

Contents 


Economic  Affairs 

The  I  liter- Allied  Reparation  Agency.     Article  by  John  B.  ^"se     ■ 

Howard 1063 

The  Combined  Food  Board 1075 

Resignation  of  Randolph  Paul 1077 

Procedures  for  Filing   War   Damage   Claims:   Poland  and 

the  Netherlands 1083 

Denmark  Releases  Assets  of  American  Nationals     ....  1083 

Accommodation  of  American  Businessmen  in  Paris  ....  1086 

Lend-Lease  Operations:  Twenty-Second  Report 1091 

General  Policy 

Council  of  Foreign  Ministers 1074 

Letters  of  Credence:  Ambassador  of  Czechoslovakia    .    .    .  1082 

American  Aid  to  India  in  World  Food  Crisis 1084 

Cabinet  Committee  on  Palestine  and  Related  Problems 

Statement  by  the  President 1 089 

Statement  by  the  Secretary  of  State 1089 

Executive  Order  9735 1089 

Hungarian  Prime  Minister  Visits  U.  S 1091 

Occupation  Matters 

The  Japanese  General  Elections 1067 

Far  Eastern  Commission:  Interim  Reparations  Removals  .      1074 

The  United  Nations 

Proposals  for  an  International  Atomic  Development  Au- 
thority. By  the  United  States  Representatives  to  the 
Atomic  Energy  Commission 1057 

Final  List  of  Delegates  and  Advisers  to  the  United  Nations 
Commission  to  Deal  With  the  Problems  Raised  by 
the  Discovery  of  Atomic  Energy 1076 

International  Health  Conference 1076 

Negotiations  on  Legal   Arrangements  for  LTnited  Nations 

Headquarters        1078 

Treaty  Information 

The  Inter-Allied  Reparation  Agency 1063 

International   Convention   on    Civil   Aviation:   President's 

Message  to  the  Senate 1079 

Agreement  on  Transit  Use  of  Azores  Airfields 1080 

1945  Sugar  Protocol  Proclaimed 1084 

Transmittal   to   the   Senate   of   Protocol   Prolonging    1944 

Sanitary  Convention 1085 

Supplementary  Protocol  to  Income  Tax  Convention  With 

Great  Britain 1087 

Air-Transport  Agreement  With  Egypt 1088 

International  Organizations  and  Conferences 

Calendar  of  Meetings 1074 

Activities  and  Developments 1074     " 

Cultural  Cooperation 

Guatemalan  Political  Economist  Visits  U.  S 1091 

Application  Date  for  Chinese  Student  Applications.    .    .    .  1091 

Visit  of  Chinese  Geographer 1092 

Visit  of  Chinese  Scientist 1092 

Political  Scientist  To  Visit  China 1092 

Continuation  of  Scientific  and  Cultural  Cooperation  with 

American  Republics 1092 

{Contents  continued  on  page  1097) 


Proposals  for  an  International  Atomic 
Development  Authority 

By  THE  UNITED  STATES  REPRESENTATIVE  TO  THE  ATOMIC  ENERGY  COMMISSION^ 


My  Fellow  Members  of  the  United  Nations 
Atomic  Energy  Commission,  and  My  Fellow 
Citizens  of  the  World  : 

We  are  here  to  make  a  choice  between  the  quick 
and  the  dead. 

Tliat  is  our  business. 

Behind  the  black  portent  of  the  new  atomic  age 
lies  a  hope  which,  seized  upon  with  faith,  can 
work  our  salvation.  If  we  fail,  then  we  have 
damned  every  man  to  be  the  slave  of  Fear.  Let 
us  not  deceive  ourselves:  We  must  elect  World 
Peace  or  World  Destruction. 

Science  has  torn  from  nature  a  secret  so  vast 
in  its  potentialities  that  our  minds  cower  from  the 
terror  it  creates.  Yet  terror  is  not  enough  to  in- 
hibit the  use  of  the  atomic  bomb.  The  terror  cre- 
ated by  weapons  has  never  stojaped  man  from 
employing  them.  For  each  new  weapon  a  de- 
fense has  been  produced,  in  time.  But  now  we 
face  a  condition  in  which  adequate  defense  does 
not  exist. 

Science,  which  gave  use  this  dread  power, 
shows  that  it  can  be  made  a  giant  help  to  human- 
ity, but  science  does  not  show  us  how  to  prevent 
its  baleful  use.  So  we  have  been  appointed  to 
obviate  that  peril  by  finding  a  meeting  of  the 
minds  and  the  hearts  of  our  peoples.  Only  in  the 
will  of  mankind  lies  the  answer. 

It  is  to  express  this  will  and  make  it  effective 
that  we  have  been  assembled.  We  must  provide 
the  mechanism  to  assure  that  atomic  energy  is 
used  for  peaceful  purposes  and  preclude  its  use  in 
war.  To  that  end,  we  must  provide  immediate, 
swift,  and  sure  punishment  of  those  who  violate 


the  agreements  that  are  reached  by  the  nations. 
Penalization  is  essential  if  peace  is  to  be  more 
than  a  feverish  interlude  between  wars.  And, 
too,  the  United  Nations  can  prescribe  individual 
responsibility  and  punishment  on  the  principles 
applied  at  Niirnberg  by  the  Union  of  Soviet  So- 
cialist Republics,  the  United  Kingdom,  France, 
and  the  United  States — a  formula  certain  to 
benefit  the  world's  future. 

In  this  crisis,  we  represent  not  only  our  govern- 
ments but,  in  a  larger  way,  we  represent  the 
peoples  of  the  world.  We  must  remember  that 
the  peoples  do  not  belong  to  the  governments  but 
that  the  governments  belong  to  the  peoples.  We 
must  answer  their  demands;  we  must  answer  the 
world's  longing  for  peace  and  security. 

In  that  desire  the  United  States  shares  ardently 
and  hopefully.  The  search  of  science  for  the  ab- 
solute weapon  has  reached  fruition  in  this  coun- 
tiy.  But  she  stands  ready  to  proscribe  and  de- 
stroy this  instrument — to  lift  its  use  from  death 
to  life — if  the  world  will  join  in  a  pact  to  that 
end. 

In  our  success  lies  the  joromise  of  a  new  life, 
freed  from  the  heart-stopping  fears  that  now  be- 
set the  world.  The  beginning  of  victory  for  the 
great  ideals  for  which  millions  have  bled  and 
died  lies  in  building  a  workable  plan.  Now  we 
approach  fulfilment  of  the  aspirations  of  man- 

'  Bernard  M.  Baruch,  who  delivered  this  address  at  the 
opening  session  of  the  United  Nations  Atomic  Energy 
Commission  in  New  York,  N.  Y.,  on  June  14.  The  address 
was  released  to  the  press  by  the  U.S.  Delegation  to  the 
United  Nations  on  the  same  date. 


1057 


1058 

kind.     At  the  end  of  the  road  lies  the  fairer,  bet- 
ter, surer  life  we  crave  and  mean  to  have. 

Only  by  a  lasting  peace  are  liberties  and  de- 
mocracies strengthened  and  deepened.  War  is 
their  enemy.  And  it  will  not  do  to  believe  that 
any  of  us  can  escape  war's  devastation.  Victor, 
vanquished,  and  neutrals  alike  are  affected  physi- 
cally, economically,  and  morally. 

Against  the  degradation  of  war  we  can  erect  a 
safeguard.  That  is  the  guerdon  for  which  we 
reach.  Within  the  scope  of  the  formula  we  out- 
line here  there  will  be  fovuul,  to  those  who  seek  it, 
the  essential  elements  of  our  purpose.  Others 
will  see  only  emptiness.  Each  of  us  carries  his 
own  mirror  in  which  is  reflected  hope — or  deter- 
mined desperation — courage  or  cowardice. 

There  is  a  famine  throughout  the  world  today. 
It  starves  men's  bodies.  But  there  is  a  greater 
famine — the  hunger  of  men's  spirit.  That  star- 
vation can  be  cured  by  the  conquest  of  fear,  and 
the  substitution  of  hope,  from  which  springs 
faith— faith  in  each  other,  faith  that  we  want  to 
work  together  toward  salvation,  and  determina- 
tion that  those  who  threaten  the  peace  and  safety 
shall  be  punished. 

The  peoples  of  these  democracies  gathered  here 
have  a  particular  concern  with  our  answer,  for 
their  peoples  hate  war.  They  will  have  a  heavy 
exaction  to  make  of  those  who  fail  to  provide  an 
escape.  They  are  not  afraid  of  an  internation- 
alism that  protects;  they  are  unwilling  to  be 
fobbed  off  by  mouthings  about  narrow  sover- 
eignty, which  is  today's  phrase  for  yesterday's 
isolation. 

The  basis  of  a  sound  foreign  policy,  in  this  new 
age,  for  all  the  nations  here  gathered,  is  that  any- 
thing that  happens,  no  matter  where  or  how, 
which  menaces  the  peace  of  the  world,  or  the  eco- 
nomic stability,  concerns  each  and  all  of  us. 

That,  roughly,  may  be  sidd  to  be  the  central 
theme  of  the  United  Nations.  It  is  with  that 
thought  we  begin  consideration  of  the  most  im- 
portant subject  that  can  engage  mankind — life 
itself. 

Let  there  be  no  quibbling  about  the  duty  and  the 
responsibility  of  this  group  and  of  the  govern- 
ments we  represent.  I  was  moved,  in  the  after- 
noon of  my  life,  to  add  my  effort  to  gain  the 
world's  quest,  by  the  broad  mandate  under  which 

=  BuiXETiN  of  Feb.  10,  1946,  p.  198. 
'  BuixETiN  of  Dec.  30,  1945,  p.  1031. 


DEPARTMENT  OF  STATE  BULLETIN 

we  were  created.  The  resolution  of  the  General 
Assembly,  passed  January  24,  1940  in  London, 
reads : 

^'■Section  V.  Terms  of  Reference  of  the  Co-nmiis- 
sion 
"The  Commission  shall  proceed  with  the  utmost 
despatch  and  enquire  into  all  phases  of  the  prob- 
lems, and  make  such  recommendations  from  time 
to  time  with  respect  to  them  as  it  finds  possible. 
In  particular  the  Commission  shall  make  specific 
proposals : 

"(a)  For  extending  between  all  nations  the  ex- 
change of  basic  scientific  information  for  peaceful 
ends ; 

"(5)  For  control  of  atomic  energy  to  the  extent 
necessary  to  ensure  its  use  only  for  peaceful  pur- 
poses ; 

"(c)  For  the  elimination  from  national  arma- 
ments of  atomic  weapons  and  of  all  other  major 
weapons  adaptable  to  mass  destruction; 

"(f/)  For  effective  safeguards  by  way  of  in- 
spection and  other  means  to  protect  complying 
States  against  the  hazards  of  violations  and  eva- 
sions. 

"The  work  of  the  Commission  should  proceed 
by  separate  stages,  the  successful  completion  of 
each  of  which  will  develop  the  necessary  confi- 
dence of  the  world  before  the  next  stage  is  under- 
taken. .  .  ."^ 

Our  mandate  rests,  in  text  and  in  spirit,  upon 
the  outcome  of  the  Conference  in  Moscow  of 
Messrs.  Molotov  of  the  Union  of  Soviet  Socialist 
Eepublics,  Bevin  of  the  United  Kingdom,  and 
Byrnes  of  the  United  States  of  America.  The 
three  Foreign  Ministers  on  December  27, 1945  pro- 
posed the  establishment  of  this  body.^ 

Their  action  was  animated  by  a  preceding  con- 
ference in  Washington  on  November  15,  1945, 
when  the  President  of  the  United  States,  associ- 
ated with  Mr.  Attlee,  Prime  Minister  of  the 
United  Kingdom,  and  Mr.  Mackenzie  King, 
Prime  Minister  of  Canada,  stated  that  interna- 
tional control  of  the  whole  field  of  atomic  energy 
was  immediately  essential.  They  propo.sed  the 
formation  of  this  body.  In  examining  that  source, 
the  Agreed  Declaration,  it  will  be  found  that  the 
fathers  of  the  concept  recognized  the  final  means 
of  world  salvation — the  abolition  of  war.  Sol- 
emnly they  wrote : 

"AVe  are  aware  that  the  only  complete  protection 
for  the  civilized  world  from  the  destructive  use  of 


JUNE  23,  1946 


1059 


scientific  knowledge  lies  in  the  prevention  of  war. 
No  system  of  safeguards  that  can  be  devised  will 
of  itself  provide  an  effective  guarantee  against 
production  of  atomic  weajions  by  a  nation  bent  on 
aggression.  Nor  can  we  ignore  the  possibility  of 
the  development  of  other  weapons,  or  of  new 
methods  of  warfare,  which  may  constitute  as  great 
a  threat  to  civilization  as  the  military  use  of  atomic 
energy."  * 

Through  the  historical  approach  I  have  outlined, 
M-e  find  ourselves  here  to  test  if  man  can  produce, 
through  his  will  and  faith,  the  miracle  of  peace, 
just  as  he  has,  through  science  and  skill,  the  miracle 
of  the  atom. 

The  United  States  proposes  the  creation  of  an 
International  Atomic  Develoi^ment  Authority,  to 
which  should  be  entrusted  all  phases  of  the  develop- 
ment and  use  of  atomic  energy,  starting  with  the 
raw  material  and  including — 

1.  Managerial  control  or  ownership  of  all 
atomic-energy  activities  potentiallj^  dangerous  to 
world  security. 

2.  Power  to  control,  inspect,  and  license  all  other 
atomic  activities. 

3.  The  duty  of  fostering  the  beneficial  uses  of 
atomic  energy. 

4.  Research  and  development  responsibilities  of 
an  affirmative  character  intended  to  put  the  Au- 
thority in  the  forefront  of  atomic  knowledge  and 
thus  to  enable  it  to  comprehend,  and  therefor  to 
detect,  misuse  of  atomic  energy.  To  be  effective, 
the  Authority  must  itself  be  the  world's  leader  in 
the  field  of  atomic  knowledge  and  development  and 
thus  supplement  its  legal  authority  with  the  great 
power  inherent  in  possession  of  leadership  in 
knowledge. 

I  offer  this  as  a  basis  for  beginning  our  dis- 
cussion. 

But  I  think  the  peoples  we  serve  would  not  be- 
lieve— and  without  faith  nothing  counts — -that  a 
treaty,  merely  outlawing  possession  or  use  of  the 
atomic  bomb,  constitutes  effective  fulfilment  of  the 
instructions  to  this  Commission.  Previous  failures 
have  been  recorded  in  trying  the  method  of  simple 
renunciation,  unsupported  by  effective  guaranties 
of  security  and  armament  limitation.  No  one 
would  have  faith  in  that  approach  alone. 

Now,  if  ever,  is  the  time  to  act  for  the  common 
good.    Public  oi^inion  supports  a  world  movement 


toward  security.  If  I  read  the  signs  aright,  the 
peoples  want  a  jDrogram  not  composed  merely  of 
pious  thoughts  but  of  enforceable  sanctions — an  in- 
ternational law  with  teeth  in  it. 

We  of  this  nation,  desirous  of  helping  to  bring 
peace  to  the  world  and  realizing  the  heavy  obliga- 
tions upon  us  arising  from  our  possession  of  the 
means  of  producing  the  bomb  and  from  the  fact 
that  ]t  is  part  of  our  armament,  are  prepared  to 
make  our  full  contribution  toward  effective  control 
of  atomic  energy. 

When  an  adequate  system  for  control  of  atomic 
energy,  including  the  renunciation  of  the  bomb  as 
a  weapon,  has  been  agreed  upon  and  put  into  ef- 
fective operation  and  condign  punishments  set  up 
for  violations  of  the  rules  of  control  which  are  to 
be  stigmatized  as  international  crimes,  we  propose 
that— 

1.  Manufacture  of  atomic  bombs  shall  stop ; 

2.  Existing  bombs  shall  be  disposed  of  pursuant 
to  the  terms  of  the  treaty ;  and 

3.  The  Authority  shall  be  in  possession  of  full 
information  as  to  the  know-how  for  the  produc- 
tion of  atomic  energy. 

Let  me  repeat,  so  as  to  avoid  misunderstanding : 
My  country  is  ready  to  make  its  full  contribution 
toward  the  end  we  seek,  subject  of  course  to  our 
constitutional  processes  and  to  an  adequate  system 
of  control  becoming  fully  effective,  as  we  finally 
work  it  out. 

Now  as  to  violations :  In  the  agi-eement,  penal- 
ties of  as  serious  a  nature  as  the  nations  may  wish 
and  as  immediate  and  certain  in  their  execution 
as  possible  should  be  fixed  for — 

1.  Illegal  possession  or  use  of  an  atomic  bomb; 

2.  Illegal  possession,  or  separation,  of  atomic 
material  suitable  for  use  in  an  atomic  bomb; 

3.  Seizure  of  any  plant  or  other  property  be- 
longing to  or  licensed  by  the  Authority; 

4.  Wilful  interference  with  the  activities  of  the 
Authority ; 

5.  Creation  or  operation  of  dangerous  projects 
in  a  manner  contrary  to,  or  in  the  absence  of,  a 
license  granted  by  the  international  control  body. 

It  would  be  a  deception,  to  which  I  am  unwill- 
ing to  lend  myself,  were  I  not  to  say  to  you  and 
to  our  peoples  that  the  matter  of  punishment  lies 
at  the  very  heart  of  our  present  security  system. 


'Bulletin  of  Nov.  18,  1945,  p.  781. 


1060 


DEPARTMENT  OF  STATE  BULLETIN 


It  might  as  well  be  admitted,  here  and  now,  that 
the  subject  goes  straight  to  the  veto  j^ower  con- 
tained in  the  Charter  of  the  United  Nations  so 
far  as  it  relates  to  the  field  of  atomic  energy. 
The  Charter  permits  penalization  only  by  con- 
currence of  each  of  the  five  great  powers — the 
Union  of  Soviet  Socialist  Kepublics,  the  United 
Kingdom,  China,  France,  and  the  United  States. 

I  want  to  make  very  plain  that  I  am  concerned 
here  with  the  veto  power  only  as  it  affects  this 
particular  problem.  There  must  be  no  veto  to 
protect  those  who  violate  their  solemn  agreements 
not  to  develop  or  use  atomic  energy  for  destructive 
purposes. 

The  bomb  does  not  wait  upon  debate.  To  delay 
may  be  to  die.  The  time  between  violation  and 
preventive  action  or  punishment  would  be  all  too 
short  for  extended  discussion  as  to  the  course  to 
be  followed. 

As  matters  now  stand  several  years  may  be 
necessary  for  another  country  to  produce  a  bomb, 
de  novo.  However,  once  the  basic  information  is 
generally  known,  and  the  Authority  has  estab- 
lished producing  plants  for  peaceful  purposes  in 
the  several  countries,  an  illegal  seizure  of  such  a 
plant  might  permit  a  malevolent  nation  to  pro- 
duce a  bomb  in  12  months,  and  if  preceded  by 
secret  preparation  and  necessary  facilities  per- 
haps even  in  a  much  shorter  time.  The  time  re- 
quired— the  advance  warning  given  of  the  possible 
use  of  a  bomb — can  only  be  generally  estimated 
but  obviously  will  depend  upon  many  factors,  in- 
cluding the  success  with  which  the  Authority  has 
been  able  to  introduce  elements  of  safety  in  the 
design  of  its  plants  and  the  degree  to  which  illegal 
and  secret  preparation  for  the  military  use  of 
atomic  energy  will  have  been  eliminated.  Pre- 
sumably no  nation  would  think  of  starting  a  war 
with  only  one  bomb. 

This  shows  how  imiDerative  speed  is  in  detecting 
and  penalizing  violations. 

Tlie  process  of  prevention  and  penalization — a 
problem  of  profound  statecraft — is,  as  I  read  it, 
implicit  in  the  Moscow  statement,  signed  by  the 
Union  of  Soviet  Socialist  Republics,  the  United 
States,  and  the  United  Kingdom  a  few  months 
ago. 

But  before  a  country  is  ready  to  relinquish  any 
winning  weapons  it  must  have  more  than  words  to 
reassure  it.  It  must  have  a  guarantee  of  safety, 
not  only  against  the  offenders  in  the  atomic  area 
but  against  the  illegal  users  of  other  weapons — 


bacteriological,  biological,  gas — perhaps — why 
not  ? — against  war  itself. 

In  the  elimination  of  war  lies  our  solution,  for 
only  then  will  nations  cease  to  compete  with  one 
another  in  the  production  and  use  of  dread 
"secret"  weapons  which  are  evaluated  solely  by 
their  capacity  to  kill.  This  devilish  program 
takes  us  back  not  merely  to  the  Dark  Ages  but 
from  cosmos  to  chaos.  If  we  succeed  in  finding  a 
suitable  way  to  control  atomic  weapons,  it  is  rea- 
sonable to  hope  that  we  may  also  preclude  the  use 
of  other  weapons  adaptable  to  mass  destruction. 
When  a  man  learns  to  say  "A"  he  can,  if  he 
chooses,  learn  the  rest  of  the  alphabet  too. 

Let  this  be  anchored  in  our  minds : 

Peace  is  never  long  preserved  by  weight  of 
metal  or  by  an  armament  race.  Peace  can  be 
made  tranquil  and  secure  only  by  understanding 
and  agreement  fortified  by  sanctions.  We  must 
embrace  international  cooperation  or  international 
disintegration. 

Science  has  taught  us  how  to  put  the  atom  to 
work.  But  to  make  it  work  for  good  instead  of 
for  evil  lies  in  the  domain  dealing  with  the  prin- 
ciples of  human  duty.  AVe  are  now  facing  a 
problem  more  of  ethics  tlian  of  physics. 

The  solution  will  require  apparent  sacrifice  in 
pride  and  in  jjosition,  but  better  pain  as  the  price 
of  peace  than  death  as  the  price  of  war. 

I  now  submit  the  following  measures  as  repre- 
senting the  fundamental  features  of  a  plan  which 
would  give  effect  to  certain  of  the  conclusions 
which  I  have  epitomized. 

1.  General.  The  Authority  should  set  up  a 
thorough  plan  for  control  of  the  field  of  atomic 
energy,  through  various  forms  of  ownership, 
dominion,  licenses,  operation,  inspection,  research, 
and  management  by  competent  personnel.  After 
this  is  provided  for,  there  should  be  as  little  inter- 
ference as  may  be  with  the  economic  plans  and  the 
present  private,  corporate,  and  state  relationshii^s 
in  the  several  countries  involved. 

2.  Raw  Materials.  The  Authority  should  have 
as  one  of  its  earliest  purposes  to  obtain  and  main- 
tain complete  and  accurate  information  on  world 
supplies  of  uranium  and  thorium  and  to  bring 
them  under  its  dominion.  The  precise  pattern  of 
control  for  various  types  of  deposits  of  such  ma- 
terials will  have  to  depend  upon  the  geological, 
mining,  refining,  and  economic  facts  involved  in 
different  situations. 


JUNE  23,  1946 


1061 


The  Authority  should  conduct  continuous  sur- 
veys so  that  it  will  have  the  most  complete  knowl- 
edge of  the  world  geology  of  uranium  and  tho- 
rium. Only  after  all  current  information  on  world 
sources  of  uranium  and  thorium  is  known  to  us 
all  can  equitable  plans  be  made  for  their  produc- 
tion, refining,  and  distribution. 

3.  Primary  Production  Plants.  The  Author- 
ity should  exercise  complete  managerial  control 
of  the  production  of  fissionable  materials.  This 
means  tliat  it  should  control  and  operate  all 
plants  producing  fissionable  materials  in  danger- 
ous quantities  and  must  own  and  control  the 
product  of  these  plants. 

4.  Atomic  Explosives.  The  Authority  should 
be  given  sole  and  exclusive  right  to  conduct  re- 
search in  the  field  of  atomic  explosives.  Research 
activities  in  the  field  of  atomic  explosives  are  es- 
sential in  order  that  the  xluthoi'ity  may  keep  in 
the  forefront  of  knowledge  in  the  field  of  atomic 
energy  and  fulfil  the  objective  of  preventing  il- 
licit manufacture  of  bombs.  Only  by  maintain- 
ing its  position  as  the  best-informed  agency  will 
the  Authority  be  able  to  determine  the  line  be- 
tween intrinsically  dangerous  and  non-dangerous 
activities. 

5.  Strategic  Distribution  of  Activities  and 
Materials.  The  activities  entrusted  exclusivelj^ 
to  the  Authority  because  they  are  intrinsically 
dangerous  to  security  should  be  distributed 
throughout  the  world.  Similarly,  stockpiles  of 
raw  materials  and  fissionable  materials  should  not 
be  centralized. 

6.  Non-Dangerous  Activities.  A  function  of 
the  Authority  should  be  promotion  of  the  peace- 
time benefits  of  atomic  energy. 

Atomic  research  (except  in  explosives),  the  use 
of  research  reactoi's,  the  production  of  radio- 
active tracers  by  means  of  non-dangerous  re- 
actors, the  use  of  such  tracers,  and  to  some  ex- 
tent the  production  of  power  should  be  open  to 
nations  and  their  citizens  under  reasonable  li- 
censing arrangements  fi'om  the  Authority.  De- 
natured materials,  whose  use  we  know  also  re- 
quires suitable  safeguards,  should  be  furnished 
for  such  purposes  by  the  Authority  under  lease 
or  other  arrangement.  Denaturing  seems  to  have 
been  overestimated  by  the  public  as  a  safety 
measure. 

7.  Definition  of  Dangerous  and  Non-Danger- 
ous Activities.  Although  a  reasonable  dividing 
line  can  be  drawn  between  dangerous  and  non- 


dangerous  activities,  it  is  not  hard  and  fast. 
Provision  should,  therefore,  be  made  to  assure 
constant  reexamination  of  the  questions  and  to 
permit  revision  of  the  dividing  line  as  changing 
conditions  and  new  discoveries  may  require. 

8.  Operations  of  Dangerous  Activities.  Any 
plant  dealing  with  uranium  or  thorium  after  it 
once  reaches  the  potential  of  dangerous  use  must 
be  not  only  subject  to  the  most  rigorous  and  com- 
petent inspection  by  the  Authority,  but  its  actual 
operation  shall  be  under  the  management,  super- 
vision, and  control  of  the  Authority. 

9.  Inspection.  By  assigning  intrinsically  dan- 
gerous activities  exclusively  to  the  Authority,  the 
difficulties  of  inspection  are  reduced;  If  the  Au- 
thority is  the  only  agency  which  may  lawfully 
conduct  dangerous  activities,  then  visible  opera- 
tion by  others  than  the  Authority  will  constitute 
an  unambiguous  danger  signal.  Insf)ection  will 
also  occur  in  connection  with  the  licensing  func- 
tions of  the  Authority. 

10.  Freedom  of  Access.  Adequate  ingress  and 
egress  for  all  qualified  representatives  of  the  Au- 
thority must  be  assured.  Many  of  the  inspection 
activities  of  the  Authority  should  grow  out  of,  and 
be  incidental  to,  its  other  functions.  Important 
measures  of  inspection  will  be  associated  with  the 
tight  control  of  raw  materials,  for  this  is  a  key- 
stone of  the  plan.  The  continuing  activities  of 
l^rospecting,  survey,  and  research  in  relation  to 
raw  materials  will  be  designed  not  only  to  serve 
the  affirmative  development  functions  of  the  Au- 
thority but  also  to  assure  that  no  surreptitious 
operations  are  conducted  in  the  raw-materials 
field  by  nations  or  their  citizens. 

11.  Personnel.  The  personnel  of  the  Author- 
ity should  be  recruited  on  a  basis  of  proven  com- 
petence but  also  so  far  as  possible  on  an  interna- 
tional basis. 

12.  Progress  by  Stages.  A  primary  step  in 
the  creation  of  the  system  of  control  is  the  setting 
forth,  in  comprehensive  terms,  of  the  functions, 
responsibilities,  jjowers,  and  limitations  of  the  Au- 
thority. Once  a  charter  for  the  Authority  has 
been  adopted,  the  Authority  and  the  system  of 
control  for  which  it  will  be  responsible  will  re- 
quire time  to  become  fully  organized  and  effective. 
The  plan  of  control  will,  therefore,  have  to  come 
into  eifect  in  successive  stages.  These  should  be 
specifically  fixed  in  the  charter  or  means  should 
be  otherwise  set  forth  in  the  charter  for  transitions 
from  one  stage  to  another,  as  contemplated  in  the 


1062 


DEPARTMENT  OF  STATE  BULLETIN 


resolution  of  the  United  Nations  Assembly  which 
created  this  Commission. 

13.  Disclosures.  In  the  deliberations  of  the 
United  Nations  Commission  on  Atomic  Energy, 
the  United  States  is  prepared  to  make  available 
the  information  essential  to  a  reasonable  under- 
standing of  the  proposals  which  it  advocates. 
Further  disclosures  must  be  dependent,  in  the 
interests  of  all,  upon  the  effective  ratification  of 
the  treaty.  When  the  Authority  is  actually  cre- 
ated, the  United  States  will  join  the  other  nations 
in  making  available  the  further  information  es- 
sential to  that  organization  for  the  performance 
of  its  functions.  As  the  successive  stages  of  inter- 
national control  are  reached,  the  United  States 
will  be  prepared  to  yield,  to  the  extent  required  by 
each  stage,  national  control  of  activities  in  this 
field  to  the  Authority. 

14.  International  Control.  There  will  be  ques- 
tions about  the  extent  of  control  to  be  allowed  to 
national  bodies,  when  the  Authority  is  established. 
Purely  national  authorities  for  control  and  devel- 
opment of  atomic  energy'  should  to  the  extent  nec- 
essary for  the  effective  operation  of  the  Authority 
be  subordinate  to  it.  This  is  neither  an  endorse- 
ment nor  a  disapiDroval  of  the  creation  of  national 
authorities.  The  Commission  should  evolve  a 
clear  demarcation  of  the  scope  of  duties  and  re- 
sponsibilities of  such  national  authorities. 

And  now  I  end.  I  have  submitted  an  outline 
for  present  discussion.  Our  consideration  will  be 
broadened  by  the  criticism  of  the  United  States 
proposals  and  by  the  plans  of  the  other  nations, 
wliich,  it  is  to  be  hoped,  will  be  submitted  at  their 
early  convenience.  I  and  my  associates  of  the 
United  States  Delegation  will  make  available  to 
each  member  of  this  body  books  and  pamphlets, 

°  Department  of  State  publication  2408 ;  for  excerpts 
from  the  Acheson-Lilientlial  report  see  Bulletin  of  Apr. 
7,  1946,  p.  553.  The  text  of  tlie  McMahou  bill  is  S.  Kept. 
1211,  79th  Cong. 


including  the  Acheson-Lilienthal  report,  recently 
made  by  the  United  States  Department  of  State, 
and  the  McMahon  Committee  Monograph  No.  1 
entitled  "Essential  Information  on  Atomic 
Energy"  relating  to  the  McMahon  bill  recently 
passed  by  the  United  States  Senate,  which  may 
prove  of  value  in  assessing  the  situation.^ 

All  of  us  are  consecrated  to  making  an  end  of 
gloom  and  hopelessness.  It  will  not  be  an  easy 
job.  The  way  is  long  and  thorny,  but  supremely 
worth  traveling.  All  of  us  want  to  stand  erect, 
with  our  faces  to  the  sun,  instead  of  being  forced 
to  burrow  into  the  earth,  like  rats. 

The  pattern  of  salvation  must  be  worked  out  by 
all  for  all. 

The  light  at  the  end  of  the  tunnel  is  dim,  but 
our  path  seems  to  grow  brighter  as  we  actually 
begin  our  journey.  We  cannot  yet  light  the  way 
to  the  end.  However,  we  hope  the  suggestions  of 
my  Government  will  be  illuminating. 

Let  us  keep  in  mind  the  exhortation  of  Abraham 
Lincoln,  whose  words,  uttered  at  a  moment  of 
shattering  national  peril,  form  a  complete  text  for 
our  deliberation.     I  quote,  paraphrasing  slightly : 

"We  cannot  escape  history.  We  of  this  meet- 
ing will  be  remembered  in  spite  of  ourselves.  No 
personal  significance  or  insignificance  can  spare 
one  or  another  of  us.  The  fiery  trial  through 
which  we  are  passing  will  light  us  down  in  honor 
or  dishonor  to  the  latest  generation. 

"We  say  we  are  for  Peace.  The  world  will  not 
forget  that  we  say  this.  We  know  how  to  save 
Peace.  The  world  knows  that  we  do.  We,  even 
we  here,  hold  the  power  and  have  the  responsi- 
bility. 

"We  shall  nobly  save,  or  meanly  lose,  the  last, 
best  hope  of  earth.  The  way  is  plain,  peaceful, 
generous,  just — a  way  which,  if  followed,  the 
world  will  forever  applaud." 

My  thanks  for  your  attention. 


JUNE  23,  1946 


1063 


The  Inter-Allied  Reparation  Agency 


Article  by  JOHN  B.  HOWARD^ 


The  Paris  Agreement  on  Reparation,  of  Janu- 
ary 14,  1946,  as  noted  in  an  earlier  article  on  that 
Agreement,^  provided  for  the  establishment  of 
an  Inter-Allied  Reparation  Agency  (lARA)  at 
Brussels  as  the  mechanism  for  the  division  of  Ger- 
man reparation  assets  among  the  18  governments 
which  are  now  signatory  to  the  Agreement:  the 
United  States,  the  United  Kingdom,  France,  Al- 
bania, Australia,  Belgium,  Canada,  Denmark, 
Egypt,  Greece,  India,  Luxembourg,  Norway,  New 
Zealand,  Netherlands,  Czechoslovakia,  Union  of 
South  Africa,  and  Yugoslavia.  lARA  came  into 
existence  on  January  14,  1946,  the  date  of  the 
entry  into  force  of  the  Paris  Agreement. 

Each  of  the  member  governments  of  lARA  is 
represented  on  the  Agency  by  a  delegate  and  his 
staff.  Under  the  terms  of  the  Paris  Agreement, 
the  Delegate  of  France  is  the  president  of  the 
Agency.  Jacques  Rueff  holds  this  office.  D. 
Maynard  Phelps  served  as  the  first  United  States 
Delegate  to  lARA  until  late  February  1946. 
James  W.  Angell,  United  States  Representative  on 
the  Allied  Commission  on  Reparation-Germany, 
served  as  Acting  United  States  Delegate  during 
the  first  session  of  the  lARA  Assembly  in  Febru- 
ary and  March.  Russell  H.  Dorr  is  now  the 
United  States  Delegate,  serving  with  the  rank  of 
Minister. 

The  work  of  lARA  is  carried  on  by  both  the 
national  delegations  and  a  Secretariat.  The  dele- 
gates collectively  constitute  the  Assembly.  Since 
the  inception  of  the  Agency,  a  committee  struc- 

698870—46 2 


ture  of  the  Assembly  has  been  established  which 
enables  the  Assembly  to  carry  out  its  work  more 
exjDeditiously  and  which,  since  the  full  Assembly 
itself  is  not  in  continuous  session,  provides 
greater  continuity  to  the  work  of  the  Agency. 
Standing  committees  of  the  Assembly,  some  of 
which  are  discussed  below,  have  been  appointed 
on  the  following  subjects  included  within  the 
scope  of  the  present  work  and  contemplated  fu- 
ture work  of  the  Agency :  External  Assets,  Mer- 
chant Shipjjing,  Inland  Water  Transport,^  Cur- 
rent Production,  Industrial  Property  Rights,  Fi- 
nance and  Accounts,  and  Credentials.  Provision 
was  also  made  for  the  future  appointment  of  ad 
hoc  committees  to  deal  with  such  questions  of  res- 
titution as  may  be  referred  to  the  Agency  by  the 
Zone  Commanders,  with  which  lARA  has  au- 
thority to  deal  under  the  Paris  Agreement. 
Every  Delegate  is  a  member  of  one  or  more  of  the 
standing  committees. 

The  Secretariat  of  lARA  consists  of  a  Secretary 
General,  two  Deputy  Secretaries  General,  and  a 

"  Mr.  Howard  was  Special  Adviser  to  James  W.  Angell, 
U.  S.  Representative  on  the  Allied  Commission  on  Repara 
lion-Germany,  with  the  rank  of  Minister  and  U.  S.  Dele- 
gate to  the  Paris  Conference  on  Reparation.  Mr.  Howard 
also  acted  subsequentl.v  as  alternate  to  the  U.  S.  Delegate 
to  the  Inter-Allied  Reparation  Agency. 

=  Bulletin  of  June  16,  1940,  p.  1023.  Part  II  of  the 
Paris  Agreement  contains  the  charter  of  lARA.  The 
membership  of  the  Agency  consists  of  the  signatories  of 
the  Paris  Agreement. 

'  No  German  inland  water  transport  or  current  produc- 
tion has  as  yet  been  declared  available  for  reparation. 


1064 


DEPARTMENT  OF  STATE  BULLETIN 


staff.*  The  Secretariat,  is  international  in  char- 
acter and  acts  for  the  Agency  and  not  for  the  indi- 
vidual member  governments. 

The  exjienses  of  the  national  delegations  are  paid 
by  their  respective  governments.  The  common  ex- 
penses of  the  Agency,  such  as  the  salaries  of  the 
Secretariat  personnel  and  the  administrative  serv- 
ices required  by  the  Agency,  are  borne  by  all  mem- 
ber governments  in  proportion  to  their  reparation 
shares.' 

II 

lARA's  primary  function  is  the  complex  task 
of  allocating,  among  the  18  member  governments, 
German  reparation  assets  varying  from  steel  and 
chemical  plants  to  individual  machine  tools,  from 
ocean  liners  to  whalers,  from  Russian  reciprocal 
deliveries  of  basic  commodities  to  the  monetary 
proceeds  resulting  from  the  disposition  of  German 
external  assets  in  neutral  counti'ies.  Such  alloca- 
tions, with  their  attendant  problems  of  valuation 
and  accounting,  are  to  be  made  by  the  Agency  in 
conformity  with  the  reparation  shares  of  the  sev- 
eral governments  and  the  general  principles  of 
allocation  and  accounting  established  by  the  Paris 
Agreement.  The  procetlures  which  have  been 
established  for  allocations  are  described  below. 

In  making  allocations  of  reparation  assets, 
lARA  has  responsibilities  which  are  broader 
than  the  mere  technical  implementation  of  the 
Paris  Agreement.  German  industrial  equipment, 
mercliant  ships,  and  other  reparation  assets  must 

*  The  Secretary  General  is  British.  The  two  Deputy 
Secretai-ies  General,  who  are  American  and  French,  are, 
respectively,  in  charge  of  the  operational  and  administra- 
tive activities  of  the  Agency.  Appointments  to  these  three 
offices  are  made  jointly  by  the  American,  British,  and 
French  Governments.  Tlie  personnel  of  the  Secretariat 
staff  is  selected  from  among  the  nationals  of  all  the  mem- 
ber governments.  The  budget  of  the  Agency  for  the  cal- 
endar year  1046,  based  on  the  presently  estimated  work- 
load, provides  for  a  maxinuun  total  of  abont  200  persons 
on  the  Secretariat  staff. 

"  For  the  first  two  years  of  the  Agency,  contributions  of 
the  member  governments  are  in  proportion  to  their  per- 
centage shares  in  Category  B,  as  established  in  the  Paris 
Agreement,  and  thereafter  in  proportion  to  their  per- 
centage shares  in  Category  A.  This  arrangement  envisages 
that  the  primary  work  of  the  Agency  during  the  first  two 
years  will  be  the  allocation  of  merchant  ships  and  of 
industrial  capital  equipment  under  the  removals  program 
and  that  the  greater  portion  of  the  work  of  the  Agency 
thereafter  will  involve  the  allocation  of  assets  in 
Category  A. 


be  allocated  by  lARA  among  its  member  coun- 
tries in  such  a  manner  as  to  aid  in  the  reconstruc- 
tion and  replacement  of  their  war-damaged 
industries ;  in  the  reconversion  of  their  economies 
from  war  to  peacetime  production;  and  in  the 
economic  reorientation  required,  in  view  of  the 
shifts  in  the  structure  of  world  economy  arising 
out  of  the  war  and  the  industrial  disarmament  of 
Germany,  to  achieve  full  peacetime  production 
and  employment  in  the  member  countries  and  in 
the  world  as  a  whole.  The  greater  the  success 
with  which  lARA  exercises  these  responsibilities 
in  making  its  allocations,  the  greater  will  be  the 
fulfilment  of  one  of  the  basic  objectives  of  the 
reparation  program. 

For  the  purpose  of  allocation,  the  Paris  Agree- 
ment provides  that  lARA  shall  be  the  medium 
through  which  the  member  governments  receive 
information  concerning,  and  express  their  wishes 
in  regard  to,  items  available  as  reparation.  lARA 
is  therefore  the  point  of  contact  between  the 
member  governments  of  the  Agency  and  the  Con- 
trol Council  for  Germany  in  the  over-all  allocation 
process  of  which  lARA  is  only  a  part.  In  order  to 
give  a  better  understanding  of  the  procedures 
adopted  within  lARA  and  the  importance  of  close 
liaison  with  the  Control  Council  for  Germany,  it  is 
helpful  to  outline  the  over-all  allocation  process. 

Under  the  Potsdam  Agreement,  the  Control 
Council  is  the  agency  which,  from  time  to  time,  de- 
clares plants  and  other  industrial  capital  equip- 
ment situated  in  tlie  three  western  zones  of  Ger- 
many available  for  reparation.  On  the  basis 
of  the  descriptive  information  furnished  by  the 
Control  Council  concerning  the  plants  and  equijs- 
ment  thus  declared  available,  the  Soviet  Govern- 
ment and  the  memlier  governments  of  lARA  ad- 
vise the  Ccmtrol  Council  within  spe^^ified  periods 
of  time  which  items  they  are  interested  in  obtain- 
ing as  reparation.  The  Control  Council  then 
makes  an  allocation  of  the  plants  and  equipment, 
allotting  25  percent  by  value,  on  the  average,  to  the 
Soviet  Government  and  the  balance  to  the  Govern- 
ments of  the  United  States,  United  Kingdom,  and 
France,  that  is,  in  effect,  to  the  countries  repre- 
sented on  lARA.  lARA's  internal  allocation 
process  then  takes  place  with  respect  to  the  items 
allocated  to  its  member  countries.  The  Control 
Council  is  notified  of  the  final  allocations  which 
lARA  had  made  and,  as  the  last  step  in  the 
process,  the  allocated  plants,  having  been  dis- 


JUNE  23,  1946 


1065 


mantled,  crated,  and  transported,  are  delivered  by 
the  occupying  authorities  to  the  receiving  govern- 
ments, customarily  at  designated  points  on  the 
German  border. 

The  pi'ocess  of  allocation  internal  to  lARA  be- 
gins when  informa,tion  concerning  a  group  of 
reparation  assets  available  for  allocation  among 
the  member  governments  is  received  by  the  Agency 
and  passed  on  to  the  delegates."  When  the  re- 
quests of  the  several  governments  for  items  which 
they  are  interested  in  obtaining  have  been  received, 
the  Secretariat  prepares  an  initial  program  of 
allocation.  In  this  important  task  the  Seci'etariat 
consults  with  the  delegates  and  attempts  to  recon- 
cile competing  requests  by  interested  governments 
for  the  same  items.  In  the  special  case  of  mer- 
chant ships,  the  initial  programs  of  allocation  are 
prepared  by  the  Committee  on  Merchant  Shipping, 
which  is  charged  under  the  Paris  Agreement  with 
the  task  of  making  recommendations  concerning 
the  determination  of  war  losses  of  merchant  ship- 
ping by  the  several  governments  and  concern- 
ing the  allocation  of  German  merchant  ships  avail- 
able for  distribution  as  reparation. 

The  initial  programs  of  allocation  are  submitted 
to  the  Assembly  for  approval  or  modification.  The 
decisions  of  the  Assembly  are  taken  by  majority 
vote,  each  delegate  being  entitled  to  one  vote  re- 
gartUess  of  the  size  of  his  government's  reparation 
share.  The  Assembly's  decisions  are  final,  except 
for  the  right  of  any  delegate  whose  request  for 
an  item  has  not  been  granted  to  have  the  alloca- 
tion of  that  item  referred  to  arbitration.  A  simple 
procedure  has  been  established  for  the  selection 
of  an  arbitrator,  who  will  be  either  (1)  a  delegate 
chosen  by  the  delegates  requesting  the  item  under 
arbitration,  (2)  the  United  States  Delegate,  if 
these  delegates  cannot  agree  upon  an  arbitrator, 
or  (3)  a  delegate  chosen  by  the  president  of  the 
Agency  from  among  the  delegates  not  requesting 
the  item  in  question,  if  the  United  States  is  a  claim- 
ant for  the  item.  The  arbitrator  has  authority  to 
make  final  allocation  of  the  item  among  the  claim- 
ant governments  or,  at  his  discretion,  either  to 
refer  the  item  to  the  Secretariat  for  further  study 
or  to  require  the  Secretariat  to  resubmit  the  item 
to  the  Assembly. 

The  allocation  procedure  thus  established  pro- 
vides opportunity  for  mediation,  negotiation,  and 
the  settlement  of  conflicting  claims  at  several 
stages — in  the  Secretariat,  in  the  Assembly,  and 


in  the  arbitration  procedure.  At  all  stages  the 
general  principles  of  allocation  contained  in  the 
Paris  Agreement  serve  as  guides. 

The  successful  carrying  out  of  the  reparation 
program  requires  close  working  relations  between 
lARA  and  the  Control  Council,  for  which  purpose 
an  lARA  liaison  office  in  Berlin  has  been  estab- 
lished. It  requires  also  comprehensive  descrip- 
tions, and  facilities  for  inspection  in  Gei'many, 
of  plants  available  for  allocation,  in  order  that 
lARA  and  its  member  governments  may  have  the 
necessary  information  with  which  to  make  intelli- 
gent decisions  concerning  the  plants  best  suited 
to  the  economies  of  particular  countries. 

Ill 

In  addition  to  its  allocation  functions,  lARA 
also  has  the  task  of  charging  to  the  reparation 
share  of  every  member  government  the  value  of 
all  German  assets  received  by  that  government  as 
reparation.  In  the  case  of  industrial  capital  equip- 
ment and  merchant  ships,  the  value  of  individual 
items,  for  the  purpose  of  reparation  accounting, 
is  fixed  by  authorities  other  than  lARA  in  accord- 
ance with  established  formulae.''  In  the  case  of 
German  enemy  assets  within  the  jurisdiction  of  the 
member  governments,  the  Paris  Agreement  defines 
the  charge  to  be  made  against  their  reparation 
accounts.** 

In  the  latter  situation,  lARA  exercises  an  im- 
jjortant  influence  in  furthering  the  Allied  effort 
to  preclude  the  return  of  German  external  assets  to 
German  ownership  or  control.  Each  of  the  mem- 
ber governments  is  obligated  to  give  the  Agency  all 
information  for  which  it  asks  as  to  the  value  of 
such  assets  within  the  jurisdiction  of  that  govern- 

°  In  tbe  case  of  industrial  equipment  tlie  Agency  re- 
ceives information  from  tlie  Control  Council  for  Germany  ; 
in  the  case  of  merchant  shii^s,  from  the  American  and 
British  Governments ;  in  the  case  of  German  assets  in 
neutral  countries,  from  the  American,  British,  and  French 
Governments. 

'  Industrial  capital  equipment  is  valued  by  the  Control 
Council  in  terms  of  pre-war  prices  in  Germany,  with  allow- 
ance for  depreciation  and  damage.  Merchant  ships  have 
been  valued,  in  terms  of  pre-war  prices  in  England,  with 
similar  allowances,  by  the  Tripartite  Merchant  Shiijping 
Commission,  appointed  pursuant  to  the  Potsdam  Agree- 
ment. 

*  Such  assets  are  to  be  charged  "net  of  accrued  taxes, 
liens,  exijenses  of  administration,  other  interim  charges 
against  specific  items  and  legitimate  contract  claims 
against  the  German  former  owners  of  such  assets'". 


1066 


DEPARTMENT  OF  STATE  BULLETIN 


ment  and  as  to  the  amounts  realized  by  their 
liquidation.  lARA  has  also  established  a  com- 
mittee of  experts  in  matters  of  enemy-property 
custodianship,  in  order  to  overcome  practical  dif- 
ficulties of  law  and  interpretation.  This  commit- 
tee, which  is  appointed  by  and  responsible  to  the 
Connnittee  on  External  Assets,  is  charged  under 
the  Paris  Agreement  with  the  function  in  par- 
ticular of  guarding  against  schemes  which  might 
result  in  effecting  fictitious  or  otlier  transactions 
designed  to  favor  enemy  interests  or  to  reduce  im- 
properljf  the  amount  of  assets  which  are  made 
available  as  reparation.  One  of  the  major  tasks 
immediately  confronting  the  committee  of  experts 
lies  in  the  comiDlicated  field  of  conflicting  custodial 
claims  of  two  or  more  Allied  governments  to  the 
same  enemy  asset.  The  committee  is  currently 
meeting  in  Brussels  to  discuss  the  ijrinciples  which 
should  govei'n  the  settlement  of  these  claims. 

Whereas  lARA,  during  its  brief  existence,  has 
not  yet  made  final  allocations  of  a  large  quantity 
of  rejjaration  assets,  it  has  made  substantial  prog- 
ress in  the  development  of  programs  for  the  allo- 
cation of  German  merchant  ships  and  a  list  of 
German  industrial  j^lants  allotted  to  the  IAEA 
countries  by  the  Control  Council.  lARA  has,  at 
the  same  time,  served  several  other  useful  purposes. 
It  has  provided  a  convenient  forum  in  which  the 
governments  which  are  not  occupying  powers  in 
Germany  receive  information  and  express  their 
opinions  concerning  occupation  problems  related 
to  reparation.  Thus  the  three  powers  occupying 
the  westein  zones  of  Germany  have  at  the  request 
of  the  other  member  governments  of  lARA  pro- 
vided these  governments  through  lARA  with  in- 
formation concerning  their  activities  in  the  collec- 
tion of  technical  industrial  information  in  Ger- 
many and  their  policies  governing  the  disposition 
of  this  information.  It  is,  for  example,  the  policy 
of  the  United  States  to  throw  open  for  public  use 
all  information  of  this  nature  which  it  collects,  so 
that  the  information  can  be  fully  utilized  in  jieace- 
time  production  on  an  equal  footing  by  both  the 
nationals  of  foreign  countries  and  Americans. 
The  delegates  of  the  non-occupying  powers  have 
also  been  infonned  concerning  the  present  and 
foreseeable  future  economic  conditions  in  Ger- 
many which  make  it  improbable  that  current 
production  in  Germany  will  be  sufficiently  great  in 
the  immediate  future,  over  and  above   what  is 


needed  for  domestic  consumption  and  for  exports 
to  pay  for  imports,  so  as  to  constitute  an  available 
source  of  reparation  to  the  lARA  countries.  Ques- 
tions of  this  nature,  although  not  within  the  juris- 
diction of  lARA  for  the  purpose  of  taking  action, 
have  been  usefully  discussed  in  lARA,  and  the 
opinions  expressed  by  the  non-occujjying  powers 
have  been  brought  to  thei  attention  of  the  Control 
Council  by  lARA  or  to  the  attention  of  the  govern- 
ments of  the  occupjdng  powers  by  their  respective 
delegates. 

An  important  purpose  has  also  been  served  by 
the  discussion,  in  the  Committee  on  Industrial 
Property  Rights  and  in  the  Assembly,  of  the  effect 
of  the  disposition  of  German-owned  patents  on 
the  usefulness  of  plants  available  for  allocation 
as  reparation.  The  usefulness  of  such  a  plant 
obviously  depends  in  large  measure  uj)on  the 
disposition  to  be  made  of  the  German-owned 
patents — both  in  Germany  and  abroad — relating 
to  the  industrial  processes  used  by  the  plant  or 
to  the  products  of  the  plant.  It  would  greatly 
assist  a  country  to  determine  whether  it  should  bid 
for  a  particular  plant  if  it  knew  in  advance  the 
disposition  to  be  made  of  German-owned  patents 
relating  to  that  plant  or  its  products.  It  is  the 
policy  of  the  United  States,  provided  a  suitable 
multilateral  agreement  can  be  reached  in  the  mat- 
ter, to  throw  open  German  patents  within  its  juris- 
diction, with  projDer  safeguards,  to  nationals  of 
reciprocating  countries  on  the  same  terms  on  which 
they  are  made  available  to  United  States  nationals. 
Discussion  of  this  policy  and  exploration  of  the 
general  subject  in  lARA  has  been  exceedingly 
helpful  in  promoting  a  mutual  understanding  of 
the  technical  problems  involved.  These  prelimi- 
nary discussions  will  serve  to  facilitate  the  work  of 
the  conference  which  will  meet  in  the  near  future 
in  London,  apart  from  lARA,  for  tlie  purjDose  of 
framing  agreed  principles  to  govern  the  disposi- 
tion of  German  patents  within  the  several  Allied 
countries. 

Finally,  it  is  at  present  contemplated  that  the 
delegates  of  the  United  States,  United  ICingdom, 
and  France  to  lARA  might  usefully  constitute  a 
committee,  apart  from  their  official  positions  in 
IAEA,  for  the  purpose  of  handling  claims  for  the 
restoration  of  looted  gold  in  accordance  with  the 
"gold  pot"  principle  of  restitution  adopted  in  the 
Paris  Agreement. 


JUNE  23,  1946 


1067 


The  Japanese  General  Elections 


GENERAL 

1.  Japan's  first  post-war  election  was  the  most 
important  event  in  the  field  of  government  and 
politics  and  marked  an  important  step  in  the  de- 
velojjment  of  Japanese  democracy.  Nearly  three 
fourtlis  of  the  qualified  voters  went  to  the  polls,  a 
iiigh  percentage  considering  the  time  and  circum- 
stances. Contrary  to  previous  expectations  women 
turned  out  in  large  numbers.  The  conduct  of  the 
election  was  in  the  hands  of  the  Japanese  Govern- 
ment. Occupation  Forces  carefully  observed  cam- 
paign and  election  procedure  throughout  the  coun- 
try but  refrained  scrupulously  from  any  kind  of 
interference.  No  disorder  was  reported  on  election 
day  and  the  number  of  irregularities  was 
negligible. 

2.  No  partj  secured  a  majority  in  the  new  Diet. 
The  Liberals  emerged  as  the  strongest  single  party, 
followed  by  the  Progressives  and  the  Social  Demo- 
crats. Small  blocs  from  the  Cooperative  and  Com- 
munist Parties  with  many  representatives  from 
minor  groups  and  independent  members,  including 
38  women,  completed  the  make-up  of  the  Diet.  The 
bulk  of  its  members  had  not  served  in  any  previous 
Diet. 

;l.  Mounting  public  jiressure  after  the  election 
forced  the  resignation  of  the  Shidehara  Cabinet. 
This  was  followed  by  an  extended  period  of  nego- 
tiation among  party  leaders  in  an  effort  to  agree 
on  a  new  premier  and  to  form  some  kind  of  coali- 
tion government.  These  negotiations  had  not  been 
completed  as  the  month  ended. 

4.  The  constitution  continued  to  be  a  live  politi- 
cal issue.  It  was  subjected  to  extensive  critical 
discussions  by  the  press  and  the  major  parties  in 
preparation  for  the  meeting  of  the  new  Diet,  which 
will  deliberate  and  act  on  the  proposed  govern- 
ment draft.  A  new  Japanese-language  version  of 
this  draft,  written  in  popular  style,  was  published 
by  the  Government  and  attracted  wide  and 
favorable  comment. 

THE  GENERAL  ELECTION 

5.  The  national  election  was  held  on  10  April. 
Twenty-six  million  voter's  went  to  the  polls  to 


choose  a  new  House  of  Representatives,  the  lower 
house  of  the  Diet.  Great  significance  was  at- 
tached to  the  election  both  in  Japan  and  abroad. 

Statement  by  the  Supreme  Commander 

6.  On  23  April  the  Supreme  Commander  is- 
sued the  following  statement  on  the  election : 

"Pure  democracy  is  inherently  a  spiritual  qual- 
ity which  voluntarily  must  spring  from  the  de- 
termined will  of  the  people.  It  thus,  if  it  is  to 
become  firmly  rooted,  may  not  be  imposed  upon  a 
people  by  force,  trickery  or  coercion — nor  is  it  a 
quality  for  barter  or  trade.  All  men,  since  the 
beginning  of  time,  have  had  the  smoldering  desire 
to  achieve  democracy — too  few  have  had  the  un- 
restricted right  to  express  that  desire  for  it — ■ 
fewer  still  to  achieve. 

"It  was  Lincoln  who  said  'the  people  are  wiser 
than  their  rulers'.  The  soundness  of  this  state- 
ment is  historically  evident — and  the  Japanese 
people  provide  no  exception.  Given  the  oppor- 
tunity for  free  expression  of  their  popular  will, 
they  responded  wholeheartedly;  and,  rejecting 
leadership  dedicated  to  the  political  philosophies 
of  the  two  extremes,  both  of  the  right  and  of  the 
left,  which  experience  has  shown  in  practice  in- 
evitably lead  to  the  same  result — regimentation  of 
the  masses  and  the  su23pression  of  human  lib- 
erty— they  took  a  wide  central  course  which  will 
jjermit  the  evolvement  of  a  balanced  program  of 
government  designed  best  to  serve  their  interests 
as  a  people. 

"Democracy  has  thus  demonstrated  a  healthy 
forward  advance.  It  is  for  the  newly  elected 
representatives  of  the  people  in  the  National  Diet, 

'  Excerpts  from  General  Headquarters,  Supreme  Com- 
mander for  the  Allied  Powers,  Summation  No.  7,  Non- 
Military  Activities  in  Japan,  for  the  Month  of  April  1946, 
which  was  released  to  the  press  by  the  War  Deijartment 
i>n  June  8.  These  excerpts  were  taken  from  "Section  1, 
Government  and  Civil  Administration"  of  "Part  II,  Politi- 
cal," pp.  23-36.  General  Headquarters,  Commander-in- 
Chief,  United  States  Army  Forces,  Pacific,  Summation 
No.  7,  United  States  Army  Militaiy  Government  Activities 
in  Korea,  for  the  Month  of  April  1946,  was  also  released 
to  the  press  by  the  War  Department  on  June  S. 


1068 

ill  vindication  of  the  faith  of  the  electorate,  now  to 
consolidate  and  further  that  advance  by  develop- 
ing a  program  of  sound  and  constructive  legis- 
lation." 

Number  of  Parties  and  Candidates 

7.  Competition  for  seats  in  the  Diet  was  keen, 
with  nearly  six  times  as  many  candidates  regis- 
tered as  there  were  seats  to  be  filled.  On  3  April, 
when  the  registration  closed,  2,781  candidates  had 
entered  the  race,  of  whom  5  had  died  and  79  had 
withdrawn,  leaving  2,697.  Distribution  by  par- 
ties was : 

Liberal       482 

Progressive       373 

Social  Democratic 330 

Communist       142 

Cooperative 93 

Small   parties       566 

Independent         795 

Total  2, 781 

Eighty-two  of  the  candidates  were  women. 
Ages  of  candidates  ranged  from  25  to  87.  Can- 
didates who  had  previously  served  in  the  Diet 
numbered  only  147;  the  predominance  of  "new 
faces"  reflected  the  results  of  the  purge.  Small 
parties,  local  and  national,  numbered  251. 

Campaign  Activities 

8.  Campaign  activities  increased  as  the  election 
ajjproached.  Parties  and  candidates  appealed  to 
the  voters  by  means  of  public  meetings,  radio 
broadcasts,  campaign  literature,  personal  solici- 
tation and  other  methods.  During  the  last  three 
weeks  of  March  in  the  Tokyo  area  2,215  political 
meetings  were  reported  with  a  total  attendance 
of  169,281.  In  allocating  radio  time  on  both 
national  and  local  stations  care  was  exercised  to 
make  a  fair  distribution  among  parties  and  candi- 
dates. Little  disorder  was  reported  at  campaign 
meetings. 

Campaign  Issues 

10.  All  parties  in  appealing  to  the  voters 
stressed  the  promise  of  providing  for  their  im- 
mediate needs,  such  as  food,  clothing,  housing, 
farm  necessities  and  jobs.  As  in  other  countries 
they  tended  to  be  vague  as  to  the  exact  methods  by 
which  these  promises  were  to  be  fulfilled. 

All  major  parties,  except  the  Communist,  en- 


DEPARTMENT  OF  STATE  BULLETIN 

doi-sed  the  general  principles  of  the  proposed 
draft  constitution  and  all  save  the  Communists 
advocated  retention  of  the  Emperor  as  a  national 
symbol.  The  Social  Democrats  emphasized  more 
than  other  parties  the  necessity  of  eliminating  the 
Empei'or's  powers  and  strengthening  those  of  the 
elected  legislature.  The  Communists  called  for 
abolition  of  the  Emperor  system  and  establish- 
ment by  peaceful  means  of  a  people's  republic  with 
a  iniicameral  legislatui'e.  The  election  of  pre- 
fectural  governors  by  the  people  was  a  poj^ular 
issue.  It  was  specifically  promised  by  the  Liberal 
and  Cooperative  Parties  and  supported  by  many 
small  ])arties. 

11.  In  every  election  district  major  emphasis  in 
the  campaign  was  placed  on  the  problem  of  food. 
Virtually  every  candidate  promised  to  raise  the 
rice  ration  to  three  go  (a  go  is  equivalent  to  .38 
pints)  per  person.  Few  parties  explained  how 
they  expected  to  accomplish  this,  except  by  the 
importation  of  food. 

The  system  of  compulsory  rice  deliveries  was 
criticized  by  all  parties.  The  Communists  flatly 
opposed  compidsory  collections.  Both  they  and 
the  Social  Democrats  advocated  control  of  rice 
colleciions  by  popular  committees,  though  dif- 
fering as  to  method.  Other  parties  echoed  this 
more  faintly  by  calling  for  "rationalization"  or 
"democratization"  of  the  delivery  system. 

12.  All  parties  called  for  a  curb  on  inflation  and 
violently  criticized  the  Government's  ineffectual 
efforts  to  solve  this  problem.  None  offered  any 
comprehensive  program,  with  the  possible  excep- 
tion of  the  Cooperative  Party  which  would  handle 
all  distribution  through  cooperative  organs. 

13.  Taxation  of  war  profits  was  endorsed  by 
the  Progressives,  Liberals  and  Cooperatives;  the 
Communists  would  confiscate  them  entirely.  Some 
kind  of  general  property  tax  was  favored  by  the 
Progressives,  Liberals,  Social  Democrats  and 
Communists.  Payment  of  compensation  to  war 
industries  was  in  general  opposed  by  all  parties. 
Most  major  parties  proposed  reduction  or  post- 
ponement of  the  payment  of  interest  and  principal 
on  the  war  debt.  The  Social  Democrats  would 
cancel  payments  to  large  holders  of  war  bonds. 
All  parties  called  for  increased  production,  speedy 
reconversion  and  reconstruction  but  gave  few 
precise  indications  of  the  methods  they  proposed 
to  follow. 

14.  On  broader  issues  of  economic  policy  for 


JUNE  23,  1946 


1069 


post-war  Japan,  campaign  statements  gave  only 
general  indications  of  party  attitudes.  The  Pro- 
gressives and  Liberals  clearly  desired  restoration 
of  free  enterprise  so  far  as  practicable  under  ex- 
isting conditions  and  advocated  certain  measures 
to  aid  business  men.  The  Social  Democrats  put 
forward  a  moderate  socialist  program  including 
nationalization  of  banks  and  key  industries  and  a 
planned  economy.  They  also  advocated  shorter 
hours,  a  mininuun  wage  and  other  benefits  to 
wage  workers,  as  well  as  assistance  to  small-scale 
business. 

The  CouHuunist  program  was  essentially  similar 
to  that  of  the  Social  Democrats,  though  it  placed 
more  stress  on  "soaking  the  rich."  The  Coopera- 
tives based  their  hopes  on  a  thoroughgoing  appli- 
cation of  the  principle  of  cooperative  enterprise. 
Both  Social  Democrats  and  Communists  favored 
jjarticipation  of  the  workers  in  management,  an- 
other practical  question  currently  in  the  limelight. 
Nearly  all  parties  were  on  recoi'd  as  favoring  some 
form  of  social  insurance. 

15.  All  party  platforms  mentioned  agrarian  re- 
form. The  Progressives  and  Liberals  favored  an 
increase  in  the  number  of  small  landowners  and 
payment  of  rents  in  cash  or  in  kind.  The  Social 
Democrats  proposed  government  purchase  of  the 
lands  of  absentee  owners  for  resale  to  their  present 
cultivators.  The  Communists  advocated  confisca- 
tion of  idle  and  absentee-owned  land  and  its  dis- 
tribution to  working  farmers. 

Observation  of  Election 

20.  To  ensure  a  free  and  fair  election,  the  cam- 
paign and  the  election  itself  were  brought  under 
systematic  observation  by  field  forces  under  the 
staff  supervision  of  SCAP.  All  available  person- 
nel were  mobilized  for  this  purpose.  The  conduct 
of  the  election  was  left  in  the  hands  of  the  Japa- 
nese Government  and  Occupation  Forces  were  or- 
dered to  refrain  scrupulously  from  political  inter- 
ference. Their  duty  was  merely  to  report  on  irreg- 
ularities observed.  An  account  of  the  prepara- 
tions for  carrying  out  this  task,  including  orienta- 
tion meetings  and  the  detailed  instructions  issued 
to  the  field  forces,  was  carried  in  the  Summation 
for  March. - 

Election  Maps 

22.  The  accompanying  maps  ^  .  .  .  illustrate 
the  extent  of  geographic  coverage.    One  indicates 


the  cities,  towns  and  villages  in  Hokkaido  which 
were  visted  to  observe  the  election.  The  towns 
circled  in  red  *  are  those  where  one  or  more  ob- 
servations were  made  on  10  April.  This  is  typical 
of  coverage  in  all  prefectures.  The  second  map 
shows  the  town  of  Sapporo,  with  polling  places 
designated  in  red.  In  this  instance  each  polling 
place  was  visited  at  least  twice  on  election  day. 
This  is  typical  of  coverage  in  cities  and  towns. 

Observation  During  the  Election 

23.  During  the  campaign  each  Military  Govern- 
ment comj)an}'  and  tactical  unit  was  chai'ged  with 
definite  responsibilities.  In  every  prefecture  an 
initial  contact  was  made  with  the  prefectural  gov- 
ernor, who  was  advised  that  the  Occupation  Forces 
would  observe  and  report  on  the  election,  maintain 
an  attitude  of  impartiality  and  expect  the  Japa- 
nese Government  and  officials  to  bear  the  I'esponsi- 
bility  of  conducting  a  free  and  untrammeled  elec- 
tion. Throughout  the  country  newspapers  report- 
ed that  Military  Government  officers,  aided  by  tac- 
tical troops,  would  observe  the  elections  to  help 
safeguard  the  right  of  free  expression  by  the  Japa- 
nese people. 

Care  was  taken  to  publicize  tiie  fact  that  candi- 
dates cleared  by  the  Japanese  Government  as  free 
from  any  taint  of  militant  nationalism  under  the 
Purge  Directive  of  4  January  did  not  have  SCAP 
sanction  and  support,  as  some  had  claimed.  On 
the  contrary,  it  was  noted  that  the  records  of  all 
candidates  would  be  subject  to  SCAP  review. 

In  practically  all  prefectures  the  same  informa- 
tion was  passed  on  to  the  prefectural  chief  of  po- 
lice. In  most  prefectures  this  information  was 
disseminated  through  Japanese  channels  direct 
from  the  governor  or  the  police  chief  to  all  mayors, 
village  headmen  and  subchiefs  of  police. 

Military  Government  companies  made  periodic 
checks  to  see  that  campaign  expenditures  were  re- 
ported weekly  as  provided  by  law  and  that  re- 

■  Not  printed  in  the  BxnxETiN. 

'  See  pp.  1070  and  1071. 

*  Tlie  following  cities  were  encircled  in  red  in  the  original 
map :  Wakkanai,  Teshio,  Haboro,  Nayoro,  Shibetsu, 
Engarii,  Rubeshibe,  Bihoro,  Abashiri,  Neniuro,  Rumoi, 
Mashike,  Asahigawa,  Niimata,  Biei,  Takikawa,  Sunagawa, 
Furano,  Ponibetsu,  Akkeshi,  Kushiro,  Tobetsu,  Shimizu, 
Ikeda,  Yubari,  Memnro,  Obihiro,  Ebetsu,  Otaru,  Yoichi, 
Furubira,  Abira,  Iwanai,  Kutchian,  Tomakomai,  Urakawa, 
Abuta,  Oshamambe,  Date,  Muroran,  Yalaimo,  Setana,  Mori, 
Kaniiiso,  Esa.shi,  Hakodate. 


1070 


DEPARTMENT  OF  STATE  BULLETIN 


ported  expenditures  did  not  exceed  the  legal 
maximvnn,  which  varied  according  to  the  popula- 
tion of  the  district  but  approximated  on  the  aver- 
age ¥20,000  per  candidate. 

The  Occupation  Forces  were  also  charged  with 
the  responsibility  of  receiving  and  passing  on  to 
the  prefectural  governors  all  complaints  of  viola- 
tions of  the  election  law.  Any  complaints  re- 
ceived were  investigated  generally  by  the  police 
at  the  direction  of  the  governor.  The  number  of 
violations  reported  prior  to  election  day  was  negli- 


gible. 


Activities  on  Election  Day 


24.  On  election  day  the  activity  of  the  Occupa- 
tion Forces  reached  its  peak.     About  12,000  of 


the  21,089  polling  places  in  Japan  were  visited. 
Coverage  of  polling  places  averaged  about  90  per- 
cent in  cities  and  40  percent  in  rural  areas.  The 
rural  figure  is  lower  because  of  the  poor  condition 
of  roads  and  limitations  of  personnel.  In  some 
prefectures  close  to  100  percent  coverage  was 
achieved.  Many  polling  places  were  covered  "two 
or  three  times. 

These  visits  were  in  most  cases  not  perfunctory 
but  included  careful  observation  of  the  arrange- 
ments and  procedures  followed  as  well  as  contact 
with  the  election  officials.  Observers  checked  to 
make  sure  that  the  names  of  all  candidates  were 
posted  in  front  of  the  polling  place  as  required  by 
law  and  that  election  posters  were  not  displayed 
too  near  the  polls.     They  also  noted  the  procedure 


Election  Observations  by  Occupation  Forces  Representatives,  Apr,  10,  1946  (GHQ-SCAP 

no.  1,  part  1) 


HOKKAIDO 


N 


NEMURO 


•    TOWN.CITV    OR    VILLAGE    IN   WHICH    ONE 
OR  MORE    OBSERVATIONS    WERE     MADE    ON 
10    APRIL       THIS    IS    TYPICAL    OF    COVER- 
AGE   IN    ALL    PREFECTURES 


JUNE  23,  1946 


1071 


ElectionObservationsby  Occupation  Forces  Representatives,  Apr.  10,  1946  (GHQ-SCAP 

no.  1,  part  2) 


followed  from  the  time  the  voter  entered  the  poll- 
ing place  until  he  deposited  his  ballot  in  the  ballot 
box  and  left  the  polls. 

Methods  of  election  officials  in  identifying  voters 
were  noted.  The  actions  of  voters  and  officials 
within  the  polling  place  were  scrutinized  to  see 
that  secrecy  of  the  ballot  was  not  violated.  Note 
was  taken  of  whether  there  appeared  to  be  any  con- 
gregating place  for  large  numbers  of  voters  after 
leaving  the  polls. 

After  the  balloting  Occupation  Forces  checked 
to  ascertain  whether  adequate  provision  had  been 
made  by  the  Japanese  authorities  to  safeguard  the 
ballots  between  the  closing  of  the  polls  and  the 
counting  of  votes.  There  were  no  reported  in- 
stances of  attempts  to  tamper  with  the  ballot 
boxes.  During  the  counting  Occupation  Forces 
made  periodic  but  unscheduled  inspections. 

698870—46 3 


Conduct  of  the  Election 

25.  The  consensus  of  the  Occupation  Forces  who 
observed  the  election  was  as  follows : 

Tlie  arrangements  by  the  Japanese  officials  for 
handling  voters  in  the  polling  places  were  worked 
out  in  great  detail  and  remarkably  efficient.  The 
Japanese  jjeople  were  orderly  at  the  polls;  there 
were  no  recorded  instances  of  misconduct  or  dis- 
order. Women,  voting  for  the  first  time,  appeared 
to  have  no  difficulty  with  the  voting  procedure. 

The  police  were  conspicuous  by  their  absence. 
There  were  no  reports  of  interference  by  police  in 
any  prefecture,  nor  of  intimidation  of  voters  at  or 
near  the  polls.  This  was  in  sharp  contrast  to  the 
police  control  formerly  exercised  in  Japanese  elec- 
tions. No  charges  of  indirect  pressure  on  voters  by 
employers,  social  leaders,  cultural  or  economic 
agencies  have  been  brought  to  SCAP's  attention 
by  any  parties  or  defeated  candidates. 


1072 

Observei's  reported  that  the  Japanese  system  of 
registration  was  iinsatisfactorv.  Much  time  was 
involved  in  checking  on  voters  who  had  niishaid 
their  identification  cards,  owing  to  the  hick  of  sys- 
tem in  keeping  records.  Some  complaints  were 
heard  of  the  lack  of  a  printed  ballot,  making  it 
necessary  for  voters  to  write  in  the  names  of  the 
candidates  for  whom  they  were  voting.  This  prac- 
tice is  traditional  in  Japan  and  is  defended  on  the 
ground  that  it  tends  to  prevent  corrupt  practices 
and  serves  as  a  literacy  test. 

Omissions  from  Electoral  Lists 

26.  Charges  appeared  in  the  press  that  large 
numbers  of  voters  had  been  deprived  of  their  votes 
through  failure  of  authorities  to  place  their  names 
on  the  official  registration  lists.  These  charges 
were  immediately  investigated  by  the  Home  Min- 
istry. Preliminary  reports  indicated  that  less  than 
one  percent  of  the  electorate  was  disfranchised  in 
this  manner.  In  most  cases  omissions  were  due  to 
voters'  having  changed  their  residences  since  last 
November ;  some  were  chie  to  clerical  errors.  The 
greatest  number  of  complaints  came  from  cities 
such  as  Aomori  and  Sendai  where  there  was  heavy 
displacement  of  population  owing  to  destruction 
by  bombing.  The  omissions  were  too  trivial  to 
affect  the  election  results. 

Participation  of  Voters  in  the  Election 

27.  Contrary  to  the  expectations  of  most  polit- 
ical observers,  the  turnout  was  heavy  on  election 
day.  According  to  final  official  figures  72.1  percent 
of  the  registered  voters  cast  their  ballots.  Moi-e 
than  three  fourths  of  the  men  and  two  thirds  of  the 
women  voted,  as  shown  below  : 


No.  Registered 

Meu 16,278,926 

Women 20,  5.57,  564 


Percent 
No.  Voting       Toting 

12,  778,  242         78.  .5 

13,  780,  369        67. 1 


Total 36,836,490 


26,  558,  611 


72.1 


When  the  pressing  problems  of  daily  livelihood, 
the  great  difficulties  of  transportation  and  the  ad- 
dition of  13,000,000  new  women  voters  to  the  elec- 
torate are  considered,  the  above  figures  compare 
favorably  with  those  of  previous  Japanese  elec- 
tions, given  below : 


1928 

Percent 
Voting 

SO.  4 

83.3 

81.  7 

1036 

Percent 

Voting 

78.  7 

1930 

1937 

73  3 

1932 

1942 

83.2 

DEPARTMENT  OF  STATE  BULLETIN 

The  turnout  on  election  day  forms  a  striking 
contrast  with  pre-election  impressions  of  the  apa- 
thy of  the  electorate,  especially  as  regards  women. 
Many  competent  observers  had  predicted  that  few 
women  would  go  to  the  jjolls. 

The  number  who  voted  would  indicate  a  high 
degree  of  interest  on  the  part  of  the  electorate. 
This  was  stimulated  by  the  press  campaign  and 
by  the  Premier's  plea  to  citizens  to  vote,  but  was. 
not  due  to  coercion.  The  large  number  of  men  and 
women  who  registered  their  will  at  the  polls  stands 
as  clear  evidence  of  a  high  degree  of  participation 
by  the  Japanese  people  in  the  democratic  pi'ocess. 

Composition  of  the  New  Diet 

28.  The  strength  of  the  various  jDarties  in  the 
new  Diet  the  day  after  the  election  was,  according 
to  official  figures,  as  follows.  Slight  inaccuracies 
are  possible,  owing  to  last-minute  pre-election 
changes  in  party  affiliation. 

I.iberal 140 

Progressive 93 

Social  Demoeiatic 92 

Cooperative 14 

Coininunist 5 

Minor   jjartie.s 38 

Independent 82 

Total 464 

The  total  number  of  Diet  members  is  466.  In 
two  districts  no  candidate  received  enough  votes 
for  election  under  the  plural  voting  system  and  new 
elections  were  necessary. 

In  addition  to  the  five  major  parties,  28  minor 
parties  elected  candidates  to  the  Diet. 

The  composition  of  the  new  Diet  is  in  sharp  con- 
trast to  that  of  its  predecessor,  which  contained 
274  Progressives,  4G  Liberals,  17  Socialists  and  72 
independents,  with  no  representation  of  the  Co- 
operative and  Communist  Parties. 

No  less  than  375  members  of  the  new  Diet  have 
had  no  previous  parliamentary  experience. 
Thirty-eight  served  in  the  last  Diet  and  51  in 
earlier  Diets. 

A  number  of  independent  members  joined  major 
parties  after  the  election.  As  changes  in  party 
affiliation  may  occur  frequently,  the  above  figures 
do  not  necessarily  indicate  the  strength  of  the 
parties  in  the  Diet  at  any  given  time. 

The  new  Diet  contains  38  women,  nearly  half  of 
those  who  ran  for  election.  They  represent  var- 
ious parties,  as  follows:  Social  Democrats,  8;  Pro- 
gressives, 6 ;  Liberals,  5 ;   Communists,   1 ;   New 


JUNE  23,  1946 

Japan  "Women's  Party,  1;  other  minor  parties,  7; 
and  independents,  10. 

29.  According  to  an  analysis  by  Kyodo  news 
service  the  occupational  distribution  of  the  new 
Diet  is  as  follows : 

Coinpaiiy    directoi-s 82 

Law.vers .52 

Fanners 49 

No  regular  occupation 42 

Organization    leaders 36 

Educators 32 

Company  employees 31 

Authors 22 

Government  and  public  offlcials 21 

Traders 19 

Industrialists 15 

Physicians 13 

Religionists 11 

Dealers  in  marine  products 10 

•Others 9 

Politicians 6 

Transportation    agents 6 

Jourualists 2 

Building   contractors 2 

Mine  operators 2 

Factory   employees 1 

Technicians 1 

Total 464 

Fifty  percent  of  the  legislators  are  university 
graduates.  Former  Japanese  Diet  members  were 
largely  lawyers,  big  business  representatives  and 
profes-^ional  politicians.  The  presence  of  only  six 
professional  '"Politicians"  in  the  new  Diet  is  espe- 
cially noteworthy. 

Significance  of  Election 

30.  Japan  has  had  parliamentary  government 
in  form  for  many  years  and  her  citizens  are  already 
familiar  with  the  mechanics  of  balloting  and  of 
party  organization.  During  the  1920's  an  ap- 
proach was  being  made  toward  a  true  parliamen- 
tary system  with  the  executive  responsible  to  the 
legislature,  a  trend  reversed  when  the  militarists 
gained  control  during  the  1930's.  Throughout 
Japan's  modern  history  the  popular  urge  toward 
development  of  genuine  democracy  has  been  con- 
sistently blocked  by  the  unjaelding  opposition  of 
the  dominant  military-economic  clique  which  re- 
pressed popular  aspirations  through  the  police 
state. 

These  checks  on  Japan's  natural  political  evo- 
lution have  now  been  largely  removed.  The  mili- 
tary has  disappeared  as  a  political  force.     As  a 


1073 

result  of  the  Purge  Directive  of  4  Januaiy  persons 
with  militaristic  or  ultra -nationalistic  records  have 
been  largely  eliminated  from  public  office  and  po- 
litical life  and  are  ineligible  for  Diet  membership. 
Restrictions  on  freedom  of  speech,  press,  organiza- 
tion and  assembly  were  canceled  in  consequence  of 
SCAP  directives.  The  secret  police  was  abolished 
and  political  prisoners  freed.  Woman  suflFrage 
was  granted,  the  voting  age  was  lowered  and  a  new 
election  law  was  adopted  designed  to  ensure  the 
freest  possible  expression  of  the  people's  will. 

31.  The  results  of  these  earlier  occupation  meas- 
ures were  reflected  in  the  election  of  10  April. 
The  most  significant  feature  of  the  election  was  ex- 
pressed by  Mamichi  on  4  April :  ''The  outstanding 
thing  about  the  coming  elections  is  that  there  has 
been  no  government  interference  so  far,  which  was 
the  usual  thing  in  the  past."  Shortly  after  the 
election  Asahi  observed :  "In  the  latest  elections  no 
interference  was  offered  by  the  government  officials 
by  the  abuse  of  their  power.  This  is  the  first  time 
interference  of  this  sort  was  not  made  in  this 
country." 

For  the  first  time  in  decades  Japan  had  a  free, 
fair  and  honest  election.  Careful  observation 
and  investigation  failed  to  reveal  any  substantial 
police  pressure,  corruption,  intimidation  or  ir- 
regularities. No  external  barriers  prevented  a 
free  expression  of  the  people's  choice.  Public  in- 
terest in  the  election  was  remarkably  high  in  view 
of  prevailing  conditions.  The  results  reflected 
the  popular  will  in  so  far  as  its  political  expres- 
sion has  been  consciously  formulated. 

32.  Interpretation  of  the  election  results  re- 
quires considerable  caution.  Some  observers  saw 
a  tendency  to  vote  for  individuals  rather  than  for 
parties  or  programs.  It  seems  clear  that  the  pres- 
ent temper  of  the  electorate  does  not  favor  ex- 
tremes either  of  the  right  or  of  the  left.  Japan 
wants  neither  revolution  nor  reaction,  but  orderly 
progress. 

Within  this  "wide  central  course"  there  is  still 
broad  scope  for  the  exercise  of  democratic  choices 
among  possibl"-  ends  and  means.  In  general  terms 
a  basic  issue  may  be  discerned  between  the  older 
political  forces,  chiefly  represented  by  the  Pro- 
gressive and  Liberal  Parties,  and  the  newer  ele- 
ments, represented  by  the  Socialists  and  Com- 
munists. All  parties  recognized  the  need  for 
change.  The  Progressives  and  Liberals  would 
(ContiiiKfd  on  page  1090) 


International  Organizations  and  Conferences 


Calendar  of  Meetings 


Council  of  Foreign  Ministers : 
Meeting  of  Foreign  Ministers 
Meeting  of  Deputies 

Far  Eastern  Commission 

PICAO : 
European    and    Mediterranean    Air    Route     Services 

Conference 
Meeting  of  the  First  Annual  Assembly 

Allied-Swedish  Negotiations  for  German  External  Assets 

Inter- American  Conference  of  Experts  on  Copyright 

ILO:  28th  (Maritime)  Session  of  the  International  Labor 
Conference 

Proposed  International  Emergency  Food  Council 

The  United  Nations : 
Security  Council 
Military  Staff  Committee 

Special  Committee  on  Refugees  and  Displaced  Persons 
Economic  and  Social  Council 
Commission  on  Atomic  Energy 
International  Health  Conference 
General  Assembly  :  Second  Part  of  First  Session 


Paris 

June  15 

Paris 

May  27— temporarily  adjourned 

Washington 

February  26 

Paris 

April  24-June  15 

Montreal 

aiay  21-June  15 

Washington 

May  31 

Washington 

June  1 

Seattle 

June  6-29 

Washington 

June  20 

New  York 

March  25 

New  York 

March  25 

London 

April  8 

New  York 

May  25 

New  York 

June  14 

New  York 

June  19 

New  York 

September  3 

The  dates  in  the  calendar  are  as  of  June  16. 


Activities  and  Developments 


Council  of  Foreign  Ministers.  On  June  13  the 
Secretary  of  State  accompanied  by  Senator  Con- 
nally,  Senator  Vandenberg,  and  the  Counselor  of 
the  Department  of  State,  Ben  Cohen,  left  Wash- 
ington by  plane  to  attend  the  meeting  of  the 
Council  of  Foreign  Ministers  in  Paris. 

Far  Eastern  Commission 

/.  Interim  Reparations  Removals:  Iron  and 
Steel  Industry;  Thermal  Electric  Power;  Soda 
Ash,  Chlorine,  and  Caustic  Soda  Industry  ^ 

1.  Iron  and  Steel  Imlusti'y 

(Definition :  Plants  and  establishments  pri- 
marily engaged  in  the  production  of  pig  iron  or 
steel  ingot.) 

a.  That  portion  of  Japan's  capacity  for  tlie  \)vq- 

'  Approved  by  Far  Eastern  Commission  on  June  12,  1946. 


duction  of  steel  ingot  that  is  in  excess  of  3.5  million 
metric  tons  annually  should  be  made  available  im- 
mediatelj'  for  claim.  In  selecting  plants  for  re- 
moval first  consideration  should  be  given  to  elec- 
tric furnace  capacity,  which  should  be  reduced  to 
an  aggregate  of  100,000  metric  tons  annual  capac- 
itj^  made  up  as  far  as  possible  of  furnaces  of  indi- 
vidual charge  capacity  of  liA  tons  or  less.  No 
Bessemer  steel  capacity  should  be  removed. 

i.  That  portion  of  Japan's  capacity  for  the  pro- 
duction of  pig  iron  that  is  in  excess  of  2.0  million 
metric  tons  annually  should  be  made  available 
immediately  for  claim. 

Plants  and  establishments  engaged  in  the  proc- 
ess of  rolling  will  be  treated  in  a  supplementai-y 
paper. 


1074 


JUNE  23,  1946 


1075 


2.  Thermal  Electric  Power 

(Definition:  Plants  and  establishments  pri- 
marily engaged  in  the  production  of  electric 
energy  through  the  use  of  fuel  (coal)  as  the  basic 
energy  source.) 

a.  That  i^ortion  of  Japan's  thermal  electric  gen- 
erating capacity  that  is  in  excess  of  her  require- 
ments after  the  reduction  of  her  industrial  capac- 
ity in  accordance  with  the  remainder  of  this  pro- 
gram (tentatively  estimated  at  capacity  in  excess 
of  2.1  million  kw.)  should  be  made  available  for 
claim  subject  to  tlie  following  limitations : 

(1)  In  undertaking  removals  giving  effect  to 
this  program,  the  Supi'eme  Commander  for  the 
Allied  Powers  should  give  special  attention  to  the 
interrelation  of  hydro-  and  thermal-electric  capac- 
ities, and  should  retain  facilities,  including  stand- 
by equipment,  necessary  to  ensure  at  all  seasons  the 
distribution  of  sufficient  electric  power  to  satisfy 
demands  as  they  may  be  manifested  in  each  supply 
area  after  completion  of  the  other  phases  of  the 
interim  program. 

(2)  If,  in  the  course  of  effecting  these  removals, 
the  Supreme  Commander  for  the  Allied  Powers 
should  find  that  thermal  electric  capacity  i-educed 
to  2.1  million  kw.  would  not  be  adequate  to  meet 
Japan's  requirements  as  modified  by  the  reduced 
industrial  demand  consequent  upon  completion  of 
the  other  phases  of  the  interim  program,  he  should 
so  advise  the  Far  Eastern  Commission  and  should 
state  to  what  total  capacity  Japan's  thermal  elec- 
tric generating  plants  can  be  reduced  without  vio- 
lating the  considerations  set  out  in  (1)  above. 

3.  Soda  Ash,  Chlorine,  and  Caustic  Soda 
Industry 

(Definition:  Plants  and  establishments  pri- 
marily engaged  in  the  production  of  soda  ash  (so- 
dium carbonate),  chlorine,  and  caustic  soda 
(sodium  hydroxide).) 

a.  That  portion  of  Japan's  capacity  for  the  pro- 
duction of  chlorine  and  caustic  soda  in  electrolytic 
plants  which  is  in  excess  of  about  75,000  metric 
tons  of  chlorine  and  about  82,500  metric  tons  of 
caustic  soda,  should  be  made  available  for  claim. 

h.  That  portion  of  Japan's  capacity  for  the  pro- 
duction of  soda  ash  that  is  in  excess  of  630,000 
metric  tons,  should  be  made  available  for  claim. 
Removal  of  this  excess  soda  ash  capacity  should  be 
accomi^lished  by  seizure  of  one  large  modern  soda 
ash  plant,  together  with  its  integrated  facilities 
for  conversion  of  soda  ash  to  caustic  soda. 


The  Combined  Food  Board,  On  June  3  the 
member  governments  of  the  Combined  Food 
Board — the  United  States,  the  United  Kingdom, 
and  Canada — acted  on  recommendations  for  the 
establishment  of  an  International  Emergency 
Food  Council  by  addressing  invitations  to  prospec- 
tive members  of  the  new  organization — namely, 
Argentina,  Australia,  Belgium,  Brazil,  Chile, 
China,  Cuba,  Denmark,  France,  Greece,  India,  the 
Netherlands,  New  Zealand,  Norway,  Siam,  Tur- 
key, the  Union  of  South  Africa,  and  the  Union  of 
Soviet  Socialist  Republics. 

Recommendations  for  the  establishment  of  an 
Intel-national  Emergency  Food  Council  to  replace 
the  existing  Combined  Food  Board  were  approved 
at  the  Special  Meeting  on  Urgent  Food  Problems 
convened  by  the  Director  General  of  the  Food  and 
Agriculture  Organization  and  held  in  Washington 
from  May  20  to  May  27. 

The  text  of  the  letter  of  invitation,  addressed  to 
each  Government'' s  respective  ambassador,  minis- 
ter, or  representative  to  the  United  States,  follows: 

Proposals  for  the  establishment  of  an  Interna- 
tional Emergency  Food  Council  to  replace  the  ex- 
isting Combined  Food  Board  were  considered  at  a 
Special  Meeting  on  Urgent  Food  Problems  con- 
vened by  the  Director  General  of  the  Food  and 
Agriculture  Organization  and  held  in  Washington, 
D.  C,  from  May  20  to  May  27.  As  a  result  of  dis- 
cussions at  that  meeting,  the  attached  recommen- 
dations were  approved  and  submitted  to  all  the 
go^■ernments  concerned.  It  is  part  of  these  rec- 
ommendations that  the  Governments  of  the  United 
States,  the  United  Kingdom  and  Canada  arrange 
without  delay  for  a  meeting  of  the  Combined  Food 
Board.  Accordingly,  I  am  now  writing  on  behalf 
of  the  Combined  Food  Board  to  invite  you  to  ap- 
point a  representative  to  attend  a  meeting  to  be 
held  on  Thursday,  June  20,  1946,  at  2  p.m.  in 
Washington,  D.C.  You  will  be  notified  shortly  of 
the  building  and  room  in  which  the  meeting  will 
be  held. 

The  purpose  of  the  meeting  is  to  enable  the  gov- 
ernments concerned,  through  their  representatives, 
to  state  whether  they  are  ready  to  accept  the  at- 
tached recommendations  and  thus  to  become  mem- 
bers of  the  new  International  Emergency  Food 
Council.  I  should  therefore  be  glad  if  your  repre- 
sentative could  be  authorized  to  state  your  Govern- 
ment's official  position  in  regard  to  the  proposal. 
If  the  recommendations  are  generally  accepted,  the 


1076 


DEPARTMENT  OF  STATE  BULLETIN 


meeting  will  proceed  forthwith  to  establish  the 
International  Emergency  Food  Covmcil. 

It  is  proposed  that  if  the  International  Emer- 
gency Food  Council  is  established  at  the  meeting 
on  June  20  the  Council  should  immediately  there- 
after hold  its  first  session  and  consider  a  number  of 
items  of  initial  business.  A  draft  agenda  for  the 
first  session  is  attached  for  your  information  and 
comment.^ 

I  should  be  grateful  if  you  would  advise  me  as 
soon  as  possible  whether  your  Government  will  be 
able  to  be  represented  at  the  proposed  meeting  and 
the  name  of  your  authorized  representative. 

Identical  letters  are  being  addressed  to  the  diplo- 
matic representatives  in  Washington  of  the  Gov- 
ernments of  Argentina,  Australia,  Belgium,  Bra- 
zil, Chile,  China,  Cuba,  Denmark,  France,  Greece, 
India,  Netherlands,  New  Zealand,  Norway,  Siam, 
Turkey,  Union  of  South  Africa,  and  the  U.  S.  S.  K. 

Final  List  of  Delegates  and  Advisers  to  the 
United  Nations  Commission  To  Deal  With  the 
Problems  Raised  by  the  Discovery  of  Atomic 
Energy 

Australia: 
Representative :  Dr.  H.  V.  Evatt 

Scientific  Advisers:  Dr.  M.  L.  E.  Oliphant,  Dr.  G.  H. 
Briggs 

Brazil: 
Representative:  Capt.  Alv;ui>  .VlhtMtn  da  Motta   Silva 

(Brazilian  Navy) 
Deputy  Representative  :  Ma.i.  Orlando  Rangel  (Brazilian 
Array) 

Canada: 
Representative :  Gen.  A.  G.  L.  JkNaugliton 

China: 

Representative:  Dr.  Quo  Tai-chi 
Technical  Adviser  :  Dr.  Hsioli-Reu  Wei 

Ef/yi>t: 

Representative  :  Dr.  Hafez  Aflfi  Pasha 

Adviser:  Ool.  Mohamed  Bey  Abdel  Halim  Khalifa  (Air 
Attache  to  the  Royal  Egyjjtian  Legation,  Washing- 
ton) 

Alternate  Adviser:  Col.  Hassan  Bey  Ragab  (Military 
Attach^  to  the  Egyptian  Legation,  Washington) 

France: 

Representative:  Jlr.  Alexandre  Parodi 
Assistants:   Mr.   Frederic  Joliot  Curie,  High  Comuiis- 
sioner  for  Atomic  Energy ;  Prof.  Pierre  Auger 

'  Not  printed. 

■  Released  to  the  press  June  13. 


Medfico: 

Delegate :  Mr.  Manuel  Sandoval  Vallarta 
Advisers :  Gen.  Cristobal  Guzman  Cardenas ;  Mr.  Xabor 
Carrillo;  Dr.  Carlos  Graef  Hernandez 

Netlierlands: 

Permanent  Representative :  Dr.  E.  N.  van  Kleffeus 
Alternate  Delegate  and  Adviser  on  Questions  Related 
to  Atomic  Energy :  Prof.  H.  A.  Kramers 

Poland: 

Delegate :  Prof.  Stefan  Pienkowski 
Alternate :  Prof.  A.  Soltan 

Union  of  8oi-iet  Socialist  Republics: 
Reijresentative ;  Mr.  A.  Gromyko 
Advisers :  Prof.  D.  V.  Skobeltsin  ;  Prof.  S.  P.  Alexaiidrov 

United  Kingdom: 
Permanent  Representative :  Sir  Alexander  Cadogau 
Scientific  Adviser  and  Alternate  Rejiresentative:  Prof. 
Sir  James  Chadwick,  P.R.S. 

United  States: 

Representative :  Mr.  Bernard  M.  Baruch 
Associates :  Mr.  John  M.  Hancock ;  Mr.  Ferdinand  Eber- 
stadt ;  Mr.  Fred  Searls,  Jr. ;  Mr.  Herbert  S.  Swope ; 
Dr.  Richard  C.  Tolman ;  Mr.  Thomas  F.  Farrell 

Mr.  John  Parks  Davi.s.  Executive  Oflifer 

International  Health  Conference.-  The  Depart- 
ment of  State  announced  on  June  13  the  composi- 
tion of  tlie  United  States  Delegation  which  will 
participate  in  the  International  Health  Confer- 
ence to  be  convened  in  New  York,  N.  Y.,  on  June 
19,  1946.  The  purpose  of  this  Conference,  which 
will  be  held  under  the  auspices  of  the  Economic 
and  Social  Council  of  the  United  Nations,  will  be 
to  establish  an  international  health  organization. 
Dr.  Thomas  Parran,  Surgeon  General  of  the 
United  States  Public  Health  Service,  has  been 
designated  Chairman  of  the  United  States  Dele- 
gation. The  complete  composition  of  the  Dele- 
gation is  as  follows : 

Chairman: 
Thomas  Parran,  M.D.,  Surgeon  General,  United  States 
Public  Health  Service 

Vice  Chairman: 

Martha  M.  Eliot,  M.D..  Associate  Director,  Children's 
Bureau,  Department  of  Labor 

Delegates: 

Prank  G.  Boudreau,  M.D..  Director,  Milbank  Memorial 
Fund 


JU1\E  23,  1946 


1077 


Edwin  B.  Fred,  President,  University  of  Wisconsin ; 
Member,  National  Advisory  Healtti  Council 

•Tames  E.  Paullin,  ai.D.,  Past  President,  American  Medi- 
cal Association 

Durward  V.  Sandifer,  Chief,  Division  of  International 
Organization  Affairs,  Department  of  State 

Secretarti  General: 

Otis  E.  MuUilven,  Chief,  Division  of  International  Labor, 
Social,  and  Health  Affairs,  Department  of  State 

Chief  Technical  Adviser: 
Louis  L.  Williams,  Jr.,  M.D.,  Medical  Director,  United 
States  Public  Health  Service  ;  Chief,  Health  Branch, 
Division  of  International  Labor,  Social,  and  Health 
Affairs,  Department  of  State 

Ad  risers: 

Ward  P.  Allen,  Regional  Problems  Branch,  Division  of 
International  Organization  Affairs,  Department  of 
State 

Howard  B.  Caldervrood,  Office  of  International  Healtli 
Relations,  United  States  Public  Health  Service 

James  A.  Doull,  M.D.,  Medical  Director,  United  States 
Public  Health  Service;  Director,  Office  of  Interna- 
tional Health  Relations,  United  States  Public  Health 
Service 

Robert  P.  Fisehelis,  Pharm.D.,  Executive  Secretary, 
American  Pharmaceutical  Association 

H.  Van  Zile  Hyde.  M.D.,  Senior  Surgeon,  United  States 
Public  Health  Service;  Assistant  Chief,  Healtli 
Branch,  Division  of  International  Labor,  Social,  and 
Health  Affairs,  Department  of  State 

George  Lull,  M.D.,  Maj.  Gen.  U.S.A.  (Ret),  General 
Manager,  American  Medical  Association 

John  Maktos,  Division  of  International  Organization 
Affairs,  Department  of  State 

Marcia  Maylott,  Division  of  luternational  Organization 
Affairs,  Department  of  State 

Alvin  Roseman,  Acting  Chief,  International  Activities 
Branch,  Biu-eau  of  the  Budget 

Michael  B.  Shimkin,  M.D.,  Surgeon,  United  States  Pub- 
lic Healtli  Service ;  Assistant  Director,  Office  of 
International  Health  Relations,  United  States  Pub- 
lic Health  Service 

Mary  E.  Switzer,  Assistant  to  the  Administrator,  Federal 
Security  Agency 

Elraira  B.  Wickenden,  Executive  Seci'etary,  National 
Nursing  Council 

Abel  Wolman,  Professor,  Sanitary  Engineering,  Joluis 
Hopkins  School  of  Hygiene  and  Public  Health ; 
Consultant,  United  States  Public  Healtli  Service ; 
Chairman,  Board,  American  Public  Health  Asso- 
ciation 

Executive  Secretarij: 

Richard  S.  Wheeler,  Divisional  Assistant,  Division  of 
International    Conferences,    Department    of    State 

Special  Assistant  to  the  Chairman: 

Jean  Henderson,  Chief,  Office  of  Health  Information, 
United  States  Public  Health  Service 


Special  Assistatit  to  the  Secretary  General: 
Prances   M.   Wilson,  Division  of   International   Labor, 
Social,  and  Health  Affairs,  Deiaartnieiit  of  State 

ddminislrati-ve  Assistant: 
Dorothy  H.  King,  Division  of  International  Conferences, 
Department  of  State 

Dr.  Parran,  Chairman  of  the  Delegation,  served 
as  a  member  of  the  Technical  Preparatory  Com- 
mittee which  met  at  Paris  in  March  of  this  year 
and  prepared  a  draft  constitution  for  the  organiza- 
tion which  will  be  considered  by  the  Conference. 
All  members  of  the  United  Nations  have  been  in- 
vited to  participate  in  this  meeting.  In  addition, 
the  governments  of  the  following  countries  have 
been  invited  to  send  observers  to  the  Conference: 
Afglianistan,  AlbaJiia,  Austria,  Bulgaria,  Eire, 
Finland,  Hungary,  Iceland,  Italy,  Portugal, 
Rumania,  Siam,  Sweden,  Switzerland,  Trans- 
Jordan,  and  Yemen.  The  Allied  Control  Commis- 
sions in  Germany,  Japan,  and  Korea  have  been 
invited  to  send  observers.  Official  international 
agencies  interested  in  health  and  related  fields 
have  also  been  invited  to  designate  representatives 
to  attend  as  observers.  These  agencies  are :  Inter- 
national Labor  Organization,  United  Nations 
Food  and  Agriculture  Organization,  United  Na- 
tions Relief  and  Rehabilitation  Administration, 
United  Nations  Educational,  Scientific  and  Cul- 
tural Organization.  Provisional  International 
Civil  Aviation  Organization,  Office -International 
d'Hygiene  Publique,  Pan  American  Sanitary 
Bureau,  League  of  Red  Cross  Societies,  Rockefeller 
Foundation,  World  Federation  of  Trade  Unions. 

The  sessions  of  the  Conference  will  be  held  in 
Hunter  College,  the  headquarters  of  the  United 
Nations.  Meetings  of  the  United  States  Delega- 
tion will  be  held  in  the  Hotel  Astor,  New  York 
City. 


Resignation  of  Randolph  Paul 

In  a  letter- dated  Jime  12,  19-16  the  President 
accepted  the  resignation  of  Randolph  Paul  as  Spe- 
cial Assistant  to  conduct  negotiations  with  the 
Swiss  Government  on  the  subject  of  German  exter- 
nal assets  in  Switzerland.  For  texts  of  the  letters 
exchanged  between  the  President  and  Mr.  Paul 
see  White  House  press  release  of  June  12. 


1078 


DEPARTMENT  OF  STATE  BULLETIN 


Negotiations  on  Legal  Arrangements 
for  United  Nations  Headquarters 


[Released  to  the  press  June  11] 

Negotiations  between  the  Department  of  State 
and  the  United  Nations  with  respect  to  the  legal 
arrangements  for  the  establislnnent  of  the  perma- 
nent headquarters  of  the  United  Nations  in  this 
country  have  now  been  started  in  Washington, 
the  Def)artment  announced  on  June  11.  The  nego- 
tiations are  confined  to  legal  matters  and  do  not 
concern  the  question  of  where  the  permanent  head- 
quarters are  to  be  located.  This  will  not  be  decided 
until  the  September  meeting  of  the  General  Assem- 
bh'  of  the  United  Nations,  which  will  be  held  in 
the  New  York  State  Building  at  the  former 
World's  Fair  grounds  in  New  York  City.  For 
other  i^urposes,  including  Security  Council  meet- 
ings and  offices  for  the  Secretariat,  the  United 
Nations  has  been  using  the  Hunter  College  campus 
in  the  Bronx,  New  York,  but  will  move  this  sum- 
mer to  the  Sperrj'  Gyroscope  Plant  at  Lake  Suc- 
cess, Long  Island,  New  York. 

The  Charter  of  the  United  Nations  provides 
that  the  organization  and  its  officials  and  the  rep- 
resentatives of  the  member  nations  shall  enjoy  in 
the  territory  of  each  of  its  members  such  privileges 
and  immunities  as  may  be  necessary  for  the  fulfil- 
ment of  its  purposes  and  the  exercise  of  tlieir 
functions.  The  Charter  states  that  the  General 
Assembly  may  make  specific  recommendations  in 
this  respect.  A  "general  convention"  which  was 
approved  by  the  General  Assembly  last  January 
defines  the  general  privileges  and  immunities 
which  are  to  be  afforded  by  each  of  the  member 
nations.  At  the  same  time,  the  General  Assembly 
submitted  to  the  Secretary-General  in  draft  form 
as  a  basis  for  discussions  a  proposed  special  con- 
vention between  the  United  Nations  and  the 
United  States  dealing  with  the  particular  legal 
questions  which  would  be  involved  in  the  location 


of  the  headquarters  in  this  country.  It  is  this  draft 
which  is  the  basis  for  the  current  negotiations. 

To  assist  the  Secretary-General  in  the  negotia- 
tions, the  General  Assembly  appointed  a  commit- 
tee consisting  of  the  representatives  of  ten  member 
nations.  This  committee  is  now  taking  part  in  the 
negotiations  with  the  United  States  Government. 
The  Secretary-General  of  the  United  Nations  is 
being  represented  in  the  negotiations  by  Ivan 
Kerno,  Assistant  Secretary-General  for  Legal  Af- 
fairs. He  is  assisted  by  Abraham  H.  Feller,  Gen- 
eral Counsel  and  Director  of  the  Legal  Department 
of  the  United  Nations.  The  Negotiating  Com- 
mittee includes  the  representatives  of  ten  member 
nations  as  follows:  Hugh  McKinnon-Wood, 
United  Kingdom,  Chairman  of  the  Committee; 
A.  H.  Body,  Australia;  Joseph  Nisot,  Belgium; 
Carlos  Salamanca,  Bolivia;  Shuhsi  Hsu,  China; 
Guillermo  Belt,  Cuba;  Mahmoud  Bey  Fawzi, 
Egypt ;  Jean  Cahen-Salvador,  France ;  Alexander 
W.  Kudzinski,  Poland ;  Valentin  Tepliakov,  Union 
of  Soviet  Socialist  Republics.  Marc  Schreiber, 
Legal  xYdviser  in  the  United  Nations  Legal  De- 
partment, is  acting  as  secretary  of  the  United 
Nations  delegation. 

Charles  Fahy,  who  has  been  designated  to  be- 
come Legal  Adviser  of  the  State  Department,  is  in 
charge  of  the  negotiations  for  the  United  States 
in  collaboration  M-ith  the  Office  of  Special  Political 
Affairs  of  the  Department,  under  the  directorship 
of  Alger  Hiss.  Officials  of  the  Department  of 
Justice,  including  John  W.  Andrews,  Chief  of  the 
Federal-State  Relations  Section,  are  also  partici- 
pating in  the  discussions.  Assistant  Attorney 
General  Arthur  F.  Brown  of  Connecticut  and 
Orrin  Judd,  special  counsel  to  the  Governor  of 
New  York,  are  likewise  attending  the  meetings. 


Addresses  and  Statements  of  the  Week 


Under  Secretary  Aclieson 


Bernard  M.  Baruch 
XJ.     S.     Representative     to     the 
Atomic  Energy  Commission 
The  President  1 

The  Secretary  of  State/ 


On  tlie  subject  of  tlie  democratic  system       Delivered  before  the  graduating  class  of 


and  foreign  affairs.     Text  issued  as 

press  release  397  of  June  10 ;  not 

printed 
Pix)posals  for  an  International  Atomic 

Development  Authority.    Printed  In 

this  issue 
Statements  on  the  Cabinet  Committee  on 

Palestine    and    Related    Problems. 

Printed  in  this  issue 


Bryn  Mawr  College  at  Bryn  Mawr, 
Pa.,  on  June  11 

Made  before  the  opening  session  of  the 
United  Nations  Atomic  Energy  Com- 
mission in  New  York  on  June  14 

Alade  on  June  11 


International  Convention  on  Civil  Aviation 


THE  PRESIDENT'S  MESSAGE  TO  THE  SENATE 


[Released  to  tlie  press  by  the  White  House  June  11] 

To  the  Senate  of  the  United  States: 

In  the  autumn  of  1944,  at  the  invitation  of  the 
United  States,  an  International  Civil  Aviation 
Conference  was  held  in  Chicago.  The  main  pur- 
pose and  chief  result  of  this  Conference  was  the 
preparation  of  an  important  treaty,  the  Interna- 
tional Convention  on  Civil  Aviation.  On  March 
12,  1945,  President  Roosevelt  referred  this  Con- 
vention to  the  Senate,  with  a  request  for  considera- 
tion and  ratification.  It  has  now  become  a  matter 
of  urgency  to  this  nation,  and  to  many  other  na- 
tions, tliat  the  Senate  act  upon  the  Convention. 

The  Convention  has  two  major  elements :  (1)  It 
restates  and  codifies  the  accepted  principles  of 
international  law  pertaining  to  air  navigation ;  (2) 
it  provides  for  the  establishment  of  an  Interna- 
tional Civil  Aviation  Organization. 

The  parts  of  the  Convention  dealing  with  the 
principles  of  international  air  law  are  self-ex- 
planatory, and  I  feel  sure  that  the  Senate  will 
recognize  the  value  of  the  codification. 

Similarly,  I  believe  the  proposed  International 
Civil  Aviation  Organization  will  recommend  it- 
self to  the  Senate.  The  most  important  task  of 
this  Organization,  under  the  terms  of  tlie  Conven- 
tion, will  be  the  promotion  of  safety  of  life  in 
the  air.  In  this  connection,  it  will  develop  inter- 
national standards  for  airworthiness  of  aircraft, 
for  competence  of  aviation  personnel,  and  for 
operating  practices  and  facilities  on  the  interna- 
tional air  routes.  The  Organization  will  also  study 
the  economic  problems  of  intei'national  air  trans- 
port; and  in  certain  instances  it  may  be  used  as  an 
instrument  through  which  such  international 
aviation  facilities  and  services  as  aii'ports,  radio 
aids,  and  weather  information  could  be  interna- 
tionally financed. 

Tlie  Organization  will  come  into  existence  on  a 
permanent  basis  when  the  Convention  has  been 


ratified  by  26  Governments.  It  will  have  its  liead- 
qiiarters  in  Montreal,  Canada.  Meanwhile,  as  is 
accejjted  practice  in  such  undertakings,  and  in  ac- 
cordance witli  an  Interim  Agi'eement,  the  Organi- 
zation has  been  temporarily  established  on  a 
provisional  basis. 

The  Provisional  Organization  is  concerned  with 
the  same  activities  which  will  engage  the  perma- 
nent Organization,  but  it  laclcs  full  powers  and  its 
life  is  limited.  It  is  increasingly  apparent  that  the 
establishment  of  the  permanent  Organization  can- 
not be  indefinitely  delayed  without  damage  to 
interests  vital  to  this  and  other  countries.  As  mat- 
ters stand,  the  safety  regulations  cannot  be  finished 
or  made  fully  effective,  and  the  economic  activities 
remain  merely  exploratory.  Meanwhile,  as  inter- 
national air  traffic  rapidly  expands,  individual  na- 
tions and  airlines  are  developing  their  own  regula- 
tions and  operating  practices.  The  guidance  and 
authority  of  an  actively  functioning  international 
Organization  is  urgently  needed  to  assure  the  uni- 
form standards  required  for  safety,  efficiency,  and 
economy. 

The  Convention  makes  no  attempt  to  cover  con- 
ti'oversial  questions  of  commercial  aviation  rights. 
It  leaves  these  questions  to  be  settled  by  other  in- 
ternational agreements,  which  are  entirely  inde- 
pendent of  tlie  Convention,  and  which  provide  for 
the  reciprocal  exchange  of  commercial  air  trans- 
port rights.  Under  authority  vested  in  me,  I  have 
actively  undertaken  to  consummate  such  agree- 
ments, in  order  to  assure  the  most  favorable  devel- 
opment of  international  civil  aviation.  Naturally, 
agreements  of  this  nature  to  which  the  United 
States  is  a  party  are  consistent  with  the  require- 
ments of  the  Civil  Aeronautics  Act,  are  valid  under 
its  terms,  and  fully  protect  the  public  interest. 
Under  these  agreements,  before  foreign  air  carrier 
permits  are  issued  by  the  United  States  to  foreign 
airlines,  they  must  qualify  under  the  provisions 
of  the  Civil  Aeronautics  Act. 


698870—46 


1079 


1080 


DEPARTMENT  OF  STATE  BULLETIN 


It  is  very  important  to  the  future  of  American 
aviation  that  the  Convention  be  promptly  ratified. 
At  the  recent  meeting  of  the  Provisional  Organi- 
zation in  Montreal,  it  was  agreed  that  all  the  na- 
tions concerned  would  aim  at  March  1, 1947,  as  the 
ratification  deadline.  In  order  to  make  it  possible 
for  the  nations  as  a  grouj)  to  meet  this  deadline, 
it  is  vital  tliat  the  United  States  ratify  the  Con- 
A'ention  during  the  present  session  of  Congress. 
At  tlie  present  time,  nine  Governments  have  al- 
ready ratified  the  Convention,  but  it  is  plain  that 
manj-  others  are  withliolding  action  pending  rati- 
fication by  this  country.  Hope  of  bringing  the 
Convention  into  effective  operation  in  the  near 
future  depends  on  promiit  action  by  this  country, 
M-hicli  would  stimulate  similar  early  action  bj' 
other  Governments. 

We  need  also  to  consider  tlie  possibility  that,  if 


we  hold  back,  the  permanent  Organization  may 
eventually  be  established  without  our  participa- 
tion. In  that  event,  our  airlines  miglit  be  forced 
to  operate  in  foreign  comitries  under  regulations 
which  we  had  had  no  part  in  framing,  and  which 
might  adversely  affect  our  aircraft  and  air  trans- 
port industries.  If  the  interests  of  this  country 
are  to  be  fully  represented  in  the  work  of  the  per- 
manent Organization,  the  United  States,  which 
sponsored  the  original  International  Civil  Avia- 
tion Conference  in  Chicago,  needs  to  give  evidence, 
by  prompt  ratification  of  the  Convention,  of  con- 
tinued leadership.  I  feel  confident  that  the  Senate 
will  recognize  tliis  serious  responsibility  and 
notable  opportvniity. 

Hakry  S.  Truman 
The  White  House, 
June  n,  191,6. 


Agreement  on  Transit  Use  of  Azores  Airfields 


[Released  to  the  press  Juue  10] 

The  Secretary  of  State  made  public  on  June  10 
the  text  of  the  agreement  of  November  28,  1944 
between  the  Government  of  the  United  States  and 
the  Government  of  Portugal  which  provided  for 
the  establishment  of  an  airfield  on  the  Island  of 
Santa  Maria  in  the  Azores  to  be  used  by  the  mili- 
tary aircraft  of  the  United  States.  This  agree- 
ment expired  on  June  2,  1946.  The  text  of  the 
agreement  is  attached  hereto. 

The  Secretary  of  State  also  made  public  on  June 
10  the  text  of  a  note  dated  May  30,  1946  from  the 
Amba,ssador  of  the  United  States.  Herman  B. 
Baruch,  to  the  Minister  of  Foreign  Affairs  of  Por- 
tugal, Antonio  de  Oliveira  Salazar,  setting  forth 
an  agreement  between  the  Government  of  the 
United  States  and  tlie  Government  of  Portugal, 
providing  for  the  return  of  the  airfield  to  the  Por- 
tuguese Government,  which  will  be  converted  to 
peacetime  uses,  and  permitting  the  United  States 
the  continued  transit  use  of  airfields  in  the  Azores 
for  eighteen  months  to  maintain  lines  of  communi- 
cation witli  its  occupation  forces  in  Germany  and 
Japan.     Tlie  text  of  this  note  is  also  apjDended. 

APPENDIX  1 
Santa  Maria  Agreement  of  November  28,  1944 

Lisbon,  November  28,  191,1, 
Excellency  : 

The  Government  of  the  United  States,  conscious 


of  the  legitimate  desire  of  the  Portuguese  Govern- 
ment to  put  an  end  to  the  Japanese  occupation  of 
Timor  and  recognizing  that  this  Portuguese  ter- 
ritory lies  within  the  large  area  of  operations 
undertaken  in  the  Pacific  by  the  Government  of 
the  United  States  and  other  allied  governments, 
accepts  and  agrees  to  the  participation  of  Portu- 
gal in  such  operations  as  may  be  conducted  even- 
tually to  expel  the  Japanese  from  Portuguese 
Timor  in  order  that  that  territoi-y  may  be  restored 
to  full  Portuguese  sovereignty.  It  recognizes 
that  such  participation  can  be  effected  in  direct 
and  indirect  form:  direct  participation,  by  the 
use  of  Portuguese  forces,  concerning  which  de- 
tailed plans  will  be  worked  out  as  a  result  of  the 
studies  conducted  in  staff  conversations  in  Lisbon; 
indirect  participation  by  the  concession  to  the 
Government  of  the  United  States  of  facilities  for 
the  construction,  use,  and  control  of  an  air  base  on 
the  Island  of  Santa  Maria,  for  the  purpose  of  fa- 
cilitating the  movement  of  American  forces  to  the 
theater  of  war  in  the  Pacific  or  thence  to  the 
United  States  under  conditions  to  be  set  forth  in 
a  S25ecial  agreement  between  the  Portuguese  Gov- 
ernment and  the  Government  of  the  United 
States. 

Please  accejjt  [etc.]  R.  Henry  Norweb 

His  Excellency 

Dr.  Antonio  pe  Oliveira  Salazar, 
Minister  of  Foreign  Affairs, 
Lisbon. 


JUNE  23,  1946 


1081 


Agreement  Between  the  Government  of  the 
United  States  of  America  and  the  Portuguese 
Government  Establishing  the  Form  of  In- 
direct Participation  of  Portugal  in  Operations 
in  the  Pacific 

Article  1st.  The  Portuguese  Government  and 
the  Government  of  the  United  States  shall  cause 
to  be  constructed  on  Santa  Maria  Island  an  air- 
drome to  serve  as  an  air  base. 

a.  The  principal  constructions  of  the  said  base 
appear  on  the  layout  which  is  an  annex  to  this 
agreement  and  which  is  an  integral  j^art  thereof. 

h.  The  Portuguese  Government  shall  place  at 
the  disposal  of  the  construction  entities  the  lands, 
water  and  other  local  natural  resources  necessary 
for  the  construction  and  utilization  of  the  air- 
di'ome. 

c.  The  maximiUB  ex[)enditure  for  the  account 
of  the  Portuguese  Government  is  fixed  at  U.S. 
$2,985,000.  The  Government  of  Portugal  will 
cause  to  be  executed  thi'ough  the  intermediary  of 
a  private  company  that  part  of  the  work  which 
is  for  its  account. 

d.  All  constructions,  once  in  serviceable  condi- 
tion, shall  be  considered  ])roperty  of  the  Portu- 
guese State. 

Article  M.  The  Portuguese  Government  con- 
cedes to  the  Government  of  the  United  States  the 
utilization  without  restrictions  of  the  air  base  at 
Santa  Maria  which  shall  be,  in  respect  of  opera- 
tions, administration,  and  control  under  the  com- 
mand of  the  American  Air  Forces. 

a.  The  aircraft  of  the  British  Commonwealth  as 
an  allied  power  of  the  United  States  and  of  Portu- 
gal may  also  utilize  the  field  under  conditions  to 
be  determined. 

1).  The  commercial  utilization  of  Santa  Maria 
field  or  its  use  by  commercial  aircraft  shall  not 
be  permitted. 

Article  Srd.  The  utilization  of  the  field  by  them 
shall  terminate  within  six  months  after  the  termi- 
nation of  hostilities  or  signature  of  an  armistice 
with  powers  with  which  the  United  States  is  at 
present  at  war  in  the  Far  East.  In  case  the  said 
period  of  six  months  is  not  sufficient  to  permit  the 
return  of  personnel  and  material,  the  Portuguese 
Government  will  allow  an  extension  up  to  three 
months  for  that  jiurpose,  within  which  period  all 
military  and  civilian  personnel  will  leave  the  field. 
In  case  after  signature  of  the  armistice,  hostilities 


should  recommence  within  the  period  fixed  or  ex- 
tension thereof,  the  two  governments  shall  decide 
together  upon  the  form  of  the  measures  to  meet 
the  resulting  situation. 

Article  J^th.  In  a  complementary  accord  or  ac- 
cords to  be  negotiated  immediately  between  the  two 
interested  governments,  the  following  shall  be 
regulated : 

a.  Everything  with  regard  to  the  defense  of  the 
field  and  of  personnel  and  with  regard  to  the 
security  of  the  o23erations ; 

b.  The  exemptions  from  customs  duties  to  be 
conceded  by  the  Portuguese  Government  relative 
to  imports  which  may  be  made  for  the  construction 
and  utilization  of  the  field ; 

c.  The  conditions  for  the  delivery  of  the  field 
and  the  disj^osal  of  the  installations  upon  the  ter- 
mination of  the  facilities ; 

d.  The  possible  use  of  the  field  by  commercial 
or  combat  aircraft  of  the  Portuguese  Government ; 

c.  Any  other  matters  relative  to  Santa  Maria 
field  which  may  exceed  the  competence  of  the  local 
authorities  and  require  solution  by  agreement  be- 
tween the  two  governments. 

Article  5th.  This  agreement  shall  be  treated  as 
secret  so  long  as  one  of  the  governments  considers 
it  inconvenient  to  divulge  its  contents. 

Article  6th.  This  agreement  has  been  made  in 
duplicate  in  English  and  Portuguese  texts  which 
shall  be  considered  of  equal  value,  and  enters  im- 
mediately into  eii'ect. 

Signed  at  Lisbon  this  28th  day  of  November, 
A.D.  19i4. 

For  the  Government  of  the 

United  States  of  AmeHca 

R.  H.  N. 

For  the  Portue/ue.se  Republic 
A.  d'O.  S. 
Lisbon 

Lisbon,  November  38, 1944 
Excellency  : 

I  have  the  honor,  for  purposes  of  clarity  and  per- 
fect interpretation  of  the  Note  and  Agreement  es- 
tablishing the  forms  of  Portuguese  direct  and 
indirect  participation  in  Pacific  ojierations,  signed 
today,  to  inform  Your  Excellency,  under  instruc- 
tions, that  the  emjaloyment  of  the  word  "control" 
in  the  texts  in  no  waj'  suggests  any  thought  on  the 
part  of  the  United  States  Government  to  seek 


1082 


DEPARTMENT  OF  STATE  BULLETIN 


jurisdiction  in  matters  witliin  the  sovereign  pre- 
rogatives of  Portugal. 
I  liave  [etc.]  K.  Henry  Norweb 

His  Excellency 
Doctor  Antonio  de  Oliveira  Salazar, 
Minister  of  Foreign  Affairs, 
Lisbon. 

Octoler  23, 19^3 
Excellency  : 

In  pursuance  to  instructions  from  my  Govern- 
ment I  have  the  honor  to  inform  Your  Excellency 
that  in  connection  with  the  agreement  recently 
concluded  between  Portugal  and  Great  Britain 
the  Govermnent  of  the  United  States  of  America 
undertakes  to  respect  Portuguese  sovereignty  in 
all  Portuguese  Colonies. 
Please  accept  [etc.] 

George  F.  Kennan, 
Counselor  of  Eiyibassy 

His  Excellency 

Dr.  Antonio  de  Oliveira  Salazar, 
Minister  of  Foreign  Affairs, 
Lisbon. 

APPENDIX  2 

The  American  Ambassador  to  the  Portuguese 
Minister  of  Foreign  Affairs : 

Lisbon,  May  30, 19^6 
Excellency  : 

I  have  the  honor  to  acknowledge  the  receipt  of 
your  Excellency's  note  of  today's  date  in  the  fol- 
lowing terms : 

"Following  the  recent  conversations  concerning 
the  termination  of  the  Azores  Agreements  and  the 
request  put  forward  by  the  Governments  of  the 
United  States  and  United  Kingdom  with  respect 
to  certain  needs  of  the  forces  of  occupation  in 
Germany  and  Japan,  I  have  the  honor  to  com- 
municate to  your  Excellency  the  formula  which 
has  been  worked  out  to  satisfy  the  various  in- 
terests concerned : 

{a)  The  Governments  of  the  United  States  and 
United  Kingdom  will  formally  transfer  on  June 
2nd  to  the  Portuguese  authorities  designated  for 
this  purpose  the  airfields  of  Santa  Maria  and 
Lagens  with  their  installations. 

(6)  The  Portuguese  Government  authorizes  for 
the  period  of  eighteen  months  from  that  date  the 
passage  in  transit  through  Lagens  airfield  of 
American  and  British  aircraft  serving  the  forces 


of  occupation  in  Germany  and  Japan,  the  special 
character  of  such  aircraft  being  respected  as  far 
as  customs  and  otlier  facilities  are  concerned. 

{o)  Temporarily,  however,  and  until  the  estab- 
lishment at  Lagens  of  a  Portuguese  military  avia- 
tion unit,  the  Portuguese  Government  will  allow 
the  aircraft  referred  to  in  the  previous  clause  to 
pass  in  transit  eitlier  through  the  Santa  Maria  air- 
field or  through  the  Lagens  airfield. 

{d)  Until  such  time  as  the  Portuguese  author- 
ities shall  have  organized  the  necessary  services  for 
tlie  operation  of  tlie  airfields  of  Santa  Maria  and 
Lagens,  the  American  and  British  authorities 
undertake  to  maintain,  in  collaboration  with  and 
under  tlie  superintendence  of  the  Portuguese  au- 
thorities, the  existing  services  which  are  necessary 
for  the  operation  of  the  airfields. 

(e)  During  a  transitional  period  of  120  days 
the  American  and  British  authorities  will  with- 
draw from  the  airfields  in  question  all  the  material 
and  personnel  at  present  there  whicli  tlie  Portu- 
guese authorities  do  not  consider  to  be  indispen- 
sable for  the  maintenance  and  operation  of  the 
airfields  and  do  not  wish  to  acquire  or  engage. 

Slioald  the  Governments  of  the  United  States 
and  United  Kingdom  accept  the  agreement  set  out 
above,  the  affirmative  reply  of  your  Excellency 
and  of  the  British  Ambassador,  to  whom  an 
identical  note  has  today  been  sent,  shall  constitute, 
together  with  this  communication,  the  agreement 
of  tlie  three  Governments  in  tliis  matter." 

I  hare  the  honor  to  inform  your  Excellency  that 
the  United  States  Government  accepts  the  agree- 
ment set  out  in  your  Excellency's  note  quoted 
above. 

I  avail  myself  [etc.] 

Herman  B.  Baruch 

His  Excellency 

Dr.  Antonio  de  OLi\nEiRA  Salazar, 
Minister  for  Foreign  Affairs, 
Lisbon. 

Letters  of  Credence 

Ambassador  of  Czechoslovakia 

The  newly  appointed  Ambassador  of  Czecho- 
slovakia, Juraj  Slavik,  presented  his  letters  of 
credence  to  the  President  on  June  12.  For  the 
texts  of  his  remarks  on  the  occasion  of  the  presen- 
tation of  his  credentials  and  the  President's  reply, 
see  Department  of  State  press  release  411. 


JUIME  23,  1946 


1083 


Procedure  for  Filing 
War  Damage  Claims 

Poland 

[Released  to  the  press  June  10] 

The  DeiJartment  of  State  has  received  informa- 
tion from  the  American  Embassy  in  Poland  that 
Americans  who  sutfered  war  damages  in  Poland 
may  file  claims  for  compensation  with  the  Polish 
Government.  Appropriate  forms  for  the  filing 
of  such  claims  should  be  secured  from  the  War 
Losses  Department,  Central  Office  of  War  Repa- 
rations Office,  ulica  Marszalkowska  8,  Warsaw. 

Claims  should  be  presented  by  a  resident  of 
Poland  holding  a  power  of  attorney  or  they  may 
be  forwarded  to  the  American  Embassy,  Warsaw, 
for  further  transmission  to  the  Central  Office  of 
the  War  Reparations  Office.  Although  the  period 
for  presenting  claims  for  citizens  of  Poland  has 
elapsed,  the  War  Reparations  Office  has  agreed  to 
accept  war  damage  claims  by  foi'eigners  without 
time  limit. 

According  to  the  latest  information  the  Polish 
Government  has  not  as  yet  begun  tlie  payment  of 
compensation  to  Polish  citizens;  however,  the 
Polish  Foreign  Office  has  advised  that  when  Polish 
citizens  are  given  compensation  for  war  damages, 
American  and  other  Allied  nationals  may  expect 
to  receive  like  treatment. 

The  Netherlands 

[Released  to  the  press  June  10] 

The  Department  of  State  has  been  advised  that 
the  Netherlands  Government  is  accepting  claims 
from  United  States  citizens  for  damage  caused  to 
their  property,  real  or  personal,  in  the  Nether- 
lands arising  from  the  war.  The  Netherlands 
Commission  for  War  Damages,  which  is  the  agency 
of  the  Netherlands  Government  having  jurisdic- 
tion of  the  matter,  is  reported  to  have  received 
claims  from  United  States  citizens  totaling  2,855,- 
282  guilders.  It  has  been  estimated  that  the  final 
figure  will  be  25  percent  higher. 

At  present,  no  provision  exists  for  the  payment 
of  claims  of  United  States  citizens,  but  it  is  recom- 
mended that  United  States  citizens  file  their  claims 
so  that  tliey  may  be  of  record.  Persons  interested 
in  making  claims  should  contact  the  Netherlands 
Commission  for  War  Damages,  Staadhouderslaan 
130,  The  Hague,  or  the  Office  of  the  Netherlands 


Financial  Counselor,  25  Broadway,  New   York 
City. 

Denmark  Releases  Assets  of 
American  Nationals 

[Released  to  the  press  June  14] 

All  assets  in  Denmark  belonging  to  United 
States  nationals  will  be  released  from  controls 
imposed  during  the  German  occupation  of  Den- 
mark according  to  information  received  by  the 
Department  of  State. 

An  order  of  December  27,  1940  issued  by  the 
Danish  Ministry  of  Commerce  provided  for  the 
registration  of  all  assets  located  in  Denmark  which 
were  foreigir-owned  on  or  after  April  9,  1940. 
Furtliermore,  disposition  of  such  assets  outside  the 
scojje  of  normal  administration  or  beyond  the  re- 
quirements for  the  upkeep  of  a  household  were 
forbidden  save  by  special  authorization  of  the 
Ministry  of  Commerce. 

Another  order  of  March  20,  1941  provided  for 
the  appointment  of  trustees  for  foreign  assets  reg- 
istered under  the  order  of  December  27,  1940,  re- 
ferred to  above.  These  trustees  were  acting  under 
the  supervision  of  the  Probate  Division  of  the 
Copenhagen  Maritime  and  Commercial  Tribunal. 

The  above  orders  will  now  be  repealed  so  far  as 
they  cover  assets  belonging  to  physical  or  juridical 
persons  or  companies  domiciled  in  or  carrying  on 
business  in  the  United  States  of  America  at  any 
time  after  April  9,  1940,  as  well  as  assets  belong- 
ing to  United  States  citizens  domiciled  in  Den- 
mark. Trustees  appointed  for  American  assets 
will  contact  the  owner  of  assets  under  such  trustee- 
ship with  a  view  to  the  liquidation  of  the  trustee- 
shii5. 

Through  these  measures  American  assets  will 
be  exempted  from  the  regulations  resulting  from 
the  German  occupation  of  Denmark.  Henceforth, 
only  certain  general  exchange  controls  will  apply. 
These  do  not  have  particular  regard  to  American 
assets,  but  apply  universally  to  both  Danish  and 
foreign  nationals.  Since  the  liberation  of  Den- 
mark, these  controls  have  been  relaxed  on  several 
jioints,  and  it  is  the  intention  of  tlie  Danish  Gov- 
ernment to  pursue  the  policy  of  liberalizing  the 
administration  of  the  exchange  control  restrictions 
to  tlie  fullest  extent  that  the  Danish  foreign  ex- 
change position  will  permit. 


1084 

American  Aid  to  India  in 
World  Food  Crisis 

[Released  to  the  press  June  15] 

Text  of  letter  sent  to  Pearl  S.  Buck,  Chairman, 
Indm.  Famine  Emergency  Committee,  hy  Harold 
B.  Minor,  Chief,  Division  of  Middle  Ea^stern 
Affairs,  Department  of  State 

June  13,  19^6 
My  Dear  Mrs.  Buck  : 

I  refer  to  the  full-page  advertisement  that  has 
recently  appeared  in  a  Washington  newspaper 
under  the  name  of  the  India  Famine  Emergency 
Committee. 

You  may  be  sure  that  the  Department  fully 
shares  the  concern  of  your  connnittee  over  the 
critical  food  situation  in  India.  As  the  President 
stated  in  a  recent  comnumication  .to  the  Viceroy 
of  India,  "the  gravity  of  the  food  shortage  in  India 
is  thoroughly  recognized  by  tlie  United  States  Gov- 
ernment and  is  receiving  the  fullest  and  most  sym- 
pathetic consideration  on  the  highest  levels  of  the 
Government." 

There  appears  to  be  a  popular  misconception, 
both  here  and  in  India,  regarding  American  aid  to 
India  in  the  matter  of  food  grains.  The  fact  is 
that  since  the  first  intimation  of  serious  food  short- 
ages in  India  reached  this  country,  in  the  early  part 
of  1946,  the  United  States  has  been  shipping  in- 
creasingly larger  quantities  of  grain  to  India.  It 
will  be  recalled  that  the  full  extent  of  India's  needs 
was  not  known  until  a  relatively  late  date  after 
comprehensive  food  programs,  involving  the  ship- 
ment of  American  gi-ain  to  other  countries  in 
desperate  need,  had  been  more  fully  formulated. 

Despite  these  difficulties,  this  country  has  been 
able  to  make  a  substantial  contribution  toward  the 
prevention  of  famine  in  India.  I  am  enclosing  for 
the  infoi-mation  of  the  India  Famine  Emergency 
Committee  a  recent  Department  of  State  press  re- 
lease ^  clarifying  the  American  position  on  the  In- 
dian food  problem.  Althou,gh  strikes  and  floods 
prevented  full  implementation  of  the  May  pro- 
gram, it  is  expected  that  in  addition  to  the  quan- 
tities cited  in  the  press  release,  a  further  85,000 
tons  of  American  grain  can  Be  shipped  to  India 
in  June.  In  the  absence  of  unpredictable  transpor- 
tation and  other  difficulties  it  is  also  confidently 

'  Department  of  State  press  release  354,  not  printed. 
■  S.  Exec.  B,  79th  Cong. 
'  Treaty  Series  990. 


DEPARTMENT  OF  STATE  BULLETIN 

hoped  that  even  larger  shipments  can  be  made  to 
India  from  this  country  in  July. 

Your  attention  is  particularly  invited  to  tlie  sec- 
ond paragraph  of  the  press  release  from  which 
it  is  made  clear  that  the  Combined  Food  Board 
did  not  recunnuend  the  allocation  to  India  of 
1,400,000  tons  of  wheat  referred  to  in  your  adver- 
tisement. 

For  .several  months  representatives  of  India 
have  taken  an  active  part  in  the  deliberation  of 
the  Rice  and  Cereals  Committees  of  the  Combined 
Food  Board.  As  you  are  doubtless  aware,  it  is 
expected  that  the  Board  will  shortly  be  replaced 
by  an  International  Food  Council  of  which  India 
will  be  a  full-fledged  member. 

But  American  aid  to  India  cannot  be  measured 
solely  in  terms  of  grain  shipments  from  this  coun- 
try. In  working  out  over-all  shipping  programs 
on  a  global  basis  in  cooperation  with  other  govern- 
ments, the  United  States  has  enabled  those  coun- 
tries to  give  more  assistance  to  India  than  would 
otherwise  have  been  possible.  Furthermore,  sub- 
stantial quantities  of  American  canned  and  pow- 
dered milk  have  also  been  allocated  for  shipment 
to  India  in  recent  months,  and  plans  are  under 
way  to  send  India  lai'ge  amounts  of  dehydrated 
vegetables  from  American  stocks.  Kecognition 
was  also  given  to  India's  food  problem  by  Mr. 
Hoover's  recent  visit  to  India,  and  many  of  his 
recommendations  are  being  implemented  by  the 
Government  of  India. 

I  believe  tlie  foregoing  facts  indicate  clearly  that 
India's  need  has  been  recognized  by  this  Govern- 
ment and  that  it  is  taking  steps  on  many  fronts 
to  help  meet  this  need. 

Sincerely  yours, 

Harold  B.  Minor 

1945  Sugar  Protocol 
Proclaimed 

On  June  10  the  President  proclaimed  the  proto- 
col of  August  31,  1945  -  prolonging  for  a  further 
period  of  one  year  after  August  31, 1945  the  inter- 
national agreement  regarding  the  regulation  of 
production  and  marketing  of  sugar  which  was 
signed  originally  at  London  May  6,  1937,^  as  re- 
newed. The  1945  protocol  was  ratified  by  the 
President  on  May  1,  1946  and  the  instrument  of 
ratification  deposited  in  the  archives  of  the  British 
Government  on  May  27, 1946. 


JUNE  23,  1946 


1085 


Transmittal  to  the  Senate  of  Protocol 
Prolonging  1944  Sanitary  Convention' 


The  White  House,  May  29, 1946. 

To  the  Senate  of  the  United  States: 

With  a  view  to  receiving  the  advice  and  consent 
of  tlie  Senate  to  ratification,  I  transmit  herewith  a 
certified  copj'  of  each  of  the  following  two  proto- 
cols: 

(1)  Protocol  to  prolong  the  International  Sani- 
tary Convention,  1944,  modifying  the  Interna- 
tional Sanitary  Convention  of  June  21,  1926; 

(2)  Protocol  to  prolong  the  International  Sani- 
tary Convention  for  Aerial  Navigation,  1944, 
modifying  the  International  Sanitary  Convention 
for  Aerial  Navigation  of  April  12,  1933. 

These  protocols  were  open  for  signature  at 
Washington  from  April  23,  1946,  to  May  1,  1946, 
and  were  signed  on  behalf  of  the  United  States  of 
America  on  April  30,  1946,  witli  the  reservation, 
"Subject  to  ratification." 

I  transmit  also  for  the  information  of  the  Senate 
a  report  regarding  the  two  protocols  made  to  me 
by  the  Secretary  of  State,  and  an  accompanying 
memorandum. 

Harry  S.  Truman. 

The  White  House,  May  29, 19^6. 

(Enclosures:  1.  Report  of  the  Secretary  of 
State.  2.  Certified  copy  of  the  protocol  to  pro- 
long the  International  Sanitary  Convention,  1944. 
3.  Certified  copy  of  the  protocol  to  prolong  the 
International  Sanitary  Convention  for  Aerial  Nav- 
igation, 1944.  4.  Memorandum  setting  forth  the 
reservations  with  which  Australia  acceded  to  the 
1944  Sanitary  Conventions.) 

Department  of  State, 
Washington,  May  28, 1946. 

The  President  :  The  undersigned,  the  Secretary 
of  State,  has  the  honor  to  lay  before  the  President, 
with  a  view  to  their  transmission  to  the  Senate  to 
receive  the  advice  and  consent  of  that  body  to 
ratification,  if  his  judgment  approve  thereof,  a 
certified  copy  of  each  of  the  following  two  proto- 
cols: 

(1)  Protocol  to  prolong  the  International  Sani- 


tary Convention,  1944  modifying  the  International 
Sanitary  Convention  of  June  21,  1926 ; 

(2)  Protocol  to  prolong  the  International  Sani- 
tary Convention  for  Aerial  Navigation,  1944, 
modifying  the  International  Sanitary  Convention 
for  Aerial  Navigation  of  April  12,  1933. 

These  protocols  were  open  for  signature  in  the 
Englisli  and  French  langaiages  at  Washington  from 
April  23,  1946,  to  May  1,  1946.  Both  protocols 
were  signed  on  behalf  of  New  Zealand  on  April  23, 
194G ;  on  behalf  of  Belgium  on  April  24,  1946 ;  on 
behalf  of  Canada  on  April  25,  1946 ;  on  behalf  of 
Nicaragua  on  April  26,  1946;  on  behalf  of  the 
United  Kingdom  of  Great  Britain  and  Northern 
Ireland  on  April  29,  1946;  and  on  behalf  of  the 
United  States  of  America,  Australia,  China, 
Ecuador,  France,  Greece,  Haiti,  and  Luxembourg 
on  April  30,  1946. 

Reservations  requiring  ratification  of  each  of  the 
two  protocols  were  made  on  behalf  of  the  United 
States  of  America,  Belgium,  and  Ecuador.  Both 
protocols  were  signed  on  behalf  of  Australia, 
"Subject  to  the  reservations  with  which  Australia 
acceded  to  the  1944  convention  to  which  this  Proto- 
col relates."  Those  reservations  are  set  forth  in  a 
memorandum  which  accomi^anies  this  report. 

Each  of  the  protocols  remains  open  for  accession 
by  any  government  which  is  a  party  to  the  1944 
Convention  to  which  it  relates  and  is  not  a  signa- 
tory to  that  protocol. 

The  purpose  of  the  protocols  is  to  continue  in 
force    the    International    Sanitary    Convention, 

1944,  Modifying  the  International  Sanitary  Con- 
vention of  June  21,  1926,  and  the  International 
Sanitary  Convention  for  Aerial  Navigation,  1944, 
Modifying  the  International  Sanitary  Conven- 
tion for  Aerial  Navigation  of  April  12,  1933. 
These  conventions  came  into  force  on  January  15, 

1945,  and,  by  their  terms,  will  expire  on  July  15, 

1946,  Information  on  their  background  and  pur- 
poses is  set  forth  in  detail  in  the  report  of  March 
10,  1945,  by  the  Acting  Secretary  of  State  to  the 

'  S.  Exec.  D  and  E,  79th  Cong. 


1086 


DEPARTMENT  OF  STATE  BULLETIN 


President  (Senate  Executive  B  and  C,  Seventy- 
ninth  Congress,  First  Session.). 

Advice  and  consent  to  ratification  of  the  1944 
Conventions  was  given  by  the  Senate  on  May  21, 
1945.  The  Conventions  were  ratified  by  the 
President  of  the  United  States  on  May  29,  1945, 
and  the  instruments  of  ratification  by  the  United 
States  deposited  on  May  29,  1945. 

The  protocols  will  continue  the  1944  Conven- 
tions without  modification  except  for  the  limita- 
tion provided  for  in  Article  II  of  both  protocols. 
Particular  attention  is  invited  to  the  fact  that  the 
United  Nations  Relief  and  Rehabilitation  Admin- 
istration (UNRRA)  will  continue  to  perform  the 
duties  and  functions  assigned  to  it  by  the  1944 
Conventions,  but  only  until  such  time  as  a  new 
international  health  organization  is  established. 
In  the  event  a  new  international  health  organiza- 
tion has  not  been  formed,  or,  having  been  formed, 
is  unable  to  perform  the  above  duties  and  func- 
tions by  the  date  UNRRA  terminates  its  activities, 
the  duties  and  functions  are  to  be  entrusted  to  the 
Office  International  dTIygiene  Publique. 

Unless  the  1944  Conventions  are  prolonged,  con- 
certed action  on  an  international  scale  against 
epidemic  diseases  after  July  15,  1946,  will  again 
be  based  upon  the  three  older  conventions  relating 
to  quarantine  and  the  exchange  of  epidemiological 
information;  namely,  the  International  Sanitary 
Convention  of  June  21,  1926,  the  International 
Sanitary  Convention  for  Aerial  Navigation  of 
A])ril  12,  1933,  and  the  Pan  American  Sanitary 
Convention  of  November  14,  1924. 

The  technical  provisions  of  the  first  two  of  these 
three  conventions  are  obsolete  in  many  respects, 
and  the  third  convention  is  restricted  in  its  appli- 
cation to  the  American  Republics.  It  is  consid- 
ei'ed  essential,  therefore,  to  continue  in  force  the 
technical  provisions  of  the  1944  Conventions 
which  supplement  those  of  the  1926  and  1933  con- 
ventions. It  is  desirable  to  continue  in  force,  also, 
the  provisions  of  the  1944  Conventions  which  re- 
quire notification  of  epidemic  diseases  which  are 
not  covered  by  the  earlier  conventions. 

Respectfully  submitted. 

James  F.  Byrnes. 
The  President, 

The  White  House 


(Enclosures:  1.  Certified  copy  of  the  protocol 
to  prolong  the  International  Sanitary  Conven- 
tion, 1944.=  2.  Certified  co])y  of  the  protocol  to 
prolong  the  International  Sanitary  Convention 
for  Aerial  Navigation,  1944.^  3.  Memorandum 
setting  forth  the  reservations  with  which  Australia 
acceded  to  the  1944  Sanitary  Conventions.^) 


"The   English    text   of   the   protocol    appeared    in    the 
Bulletin  of  M;i,v  19,  lO-tO,  p.  869. 
^  Not  printed. 


Acconiniodatioii  of  American 
Businessmen  in  Paris 

IReleased  to  tbe  press  June  13) 

The  Hotel  California  in  Paris  will  continue  for 
the  present  to  accommodate  American  business- 
men recommended  by  the  American  Embassy  in 
Paris.  Earlier  reports  from  Paris  stated  that 
the  restaurant  would  close  on  May  15  owing  to 
the  termination  of  Army  commissary  facilities, 
and  that  the  hotel  would  no  longer  be  available 
exclusively  for  Americans.  Arrangements  have 
since  been  made  by  the  Embassy  with  the  French 
Tourist  Bureau,  however,  to  obtain  enough  food 
to  keep  the  hotel's  restaurant  operating,  and  the 
management  of  the  hotel  is  continuing  to  reserve 
its  rooms  for  American  businessmen. 

The  American  Embassy  in  Paris  is  receiving  the 
full  cooperation  of  the  hotel  management  and  the 
French  Tourist  Bureau.  Current  arrangements, 
however,  are  only  provisional,  as  French  authori- 
ties are  working  on  a  plan  designed  to  provide 
adequate,  reasonably  priced  meals  to  all  foreign 
travelers. 

It  will  be  recalled  that  the  Department  of  State 
some  time  ago  arranged  for  the  Hotel  California 
to  be  operated  under  the  sponsorship  of  the  Em- 
bassy as  a  part  of  the  assistance  it  is  rendering  to 
American  businessmen  who  are  reestablishing 
international  private  trade.  Owing  to  the  de- 
mand for  accommodations,  it  was  necessary  to 
put  a  limit  of  three  weeks  on  the  visit  of  any 
businessman.  The  present  crowded  state  of  the 
hotel  may  make  it  necessary  to  limit  each  stay  to 
two  weeks  if  the  demand  for  rooms  increases.  No 
i-eservations  are  made  on  this  side  of  the  ocean, 
but  American  businessmen  arriving  in  Paris  may 
obtain  accommodations,  if  available,  by  apply- 
ing to  the  Visitor's  Bureau  of  the  American  Em- 
bassy. 


JUNE  23,  1946 


1087 


Supplementaiy  Protocol  to  Income-Tax  Convention 
With  Great  Britain 


[Released  to  the  press  by  the  White  House  June  11] 

I'o  the  Senate  of  tJie  United  States  : 

With  a  view  to  receiving  the  advice  and  consent 
of  the  Senate  to  ratification,  I  transmit  herewith 
a  supplementary  i^rotocol,  signed  at  Washington 
on  June  (J,  1946,  modifying  in  certain  respects  the 
convention  between  the  United  States  of  America 
and  the  United  Kingdom  of  Great  Britain  and 
Nortliern  Ireland  for  the  avoidance  of  double 
taxation  and  the  prevention  of  fiscal  evasion  with 
respect  to  taxes  on  income  which  was  signed  at 
Washington  on  April  16, 1945. 

I  also  transmit  herewith,  for  the  information  of 
the  Senate,  the  report  of  the  Secretary  of  State 
with  respect  to  the  protocol. 

Harry  S.  Truman 

The  White  House, 
June  11,  19Jf6. 

Report    of    the    Secretary    of    State    to    the 
President  ^ 

June  10,  1946. 
The  President, 

T/ie  White  House: 

The  undersigned,  the  Secretary  of  State,  has  the 
honor  to  la,y  before  the  President,  with  a  view  to 
its  transmission  to  the  Senate  to  receive  the  advice 
and  consent  of  that  body  to  ratification,  if  his 
judgment  approve  thereof,  a  supplementary  proto- 
col, signed  at  Washington  on  June  6, 1946,  modify- 
ing in  certain  respects  the  convention  between  the 
United  States  of  America  and  the  United  King- 
dom of  Great  Britain  and  Northern  Ireland  for 
the  avoidance  of  double  taxation  and  the  preven- 
tion of  fiscal  evasion  with  respect  to  taxes  on  in- 
comes whicli  was  signed  at  Washington  April  16, 
1945. 

The  convention  was  submitted  by  the  President 
to  the  Senate  with  a  message  of  April  24,  1945, 
and  was  referred  to  the  Committee  on  Foreign 
Relations  (Executive  D,  79th  Cong.,  1st  sess.). 

By  its  report  of  May  10, 1946  (Senate  Executive 
Report  No.  4,  79th  Cong.,  2d  sess.),  the  Committee 
on  Foreign  Relations  reported  the  convention  fa- 
vorably to  the  Senate  without  amendment  and 
recommended  that  advice  and  consent  be  given  to 


its  ratification.  However,  in  that  report  reference 
was  made  to  hearings  which  were  held  before  a 
subcommittee  of  the  Committee  on  Foreign  Rela- 
tions, in  the  course  of  which  hearings  interested 
persons  were  heard  with  respect  to  certain  objec- 
tions which  had  been  raised  in  regard  to  paragraph 
(?))  of  article  XI  of  the  convention.  The  full  com- 
mittee concurred  in  the  recommendations  of  the 
subcommittee  "(«)  that  the  convention  be  ratified 
without  amendment ;  (b)  that  the  objections  taken 
to  the  presence  in  the  convention  of  paragraph  (3) 
of  article  XI  are  sound;  and  (c)  that  appropriate 
steps  be  taken,  after  ratification,  looking  to  strik- 
ing such  paragraph  from  the  convention." 

Article  XI  of  the  convention  contains  three  par- 
agraphs, under  the  first  two  of  which  a  recipi'ocal 
exemption  is  accorded  by  each  of  the  contracting 
countries,  upon  certain  conditions,  with  respect  to 
compensation  for  personal  services  performed 
within  such  country  by  a  resident  of  the  other 
country.  Paragraph  (3)  of  article  XI  specifically 
excludes  public  entertainers  from  tlie  benefits  of 
such  exemption,  the  paragraph  reading  as  follows : 

(3)  The  lorovisions  of  thi.s  article  shall  not  apply  to  the 
conippiisatlon,  profits,  emoluments  or  other  remuneration 
of  public  entertainers  such  as  stage,  motion  picture,  or 
radio  artists,  musicians,  and  athletes. 

The  subcommittee  of  the  Committee  on  Foreign 
Relations  reached  the  conclusion  that  a  substantial 
basis  existed  for  the  view  that  paragraph  (3)  of 
article  XI  is  open  to  the  objection  that  it  is  dis- 
criminatory. However,  upon  receiving  assurances 
that  appropriate  steps  would  be  taken  with  a  view 
to  eliminating  the  provision  of  that  paragraph 
from  the  convention,  the  subcommittee  proceeded 
to  recommend  approval  of  the  convention  without 
amendment,  at  the  same  time  recommending  that 
"appropriate  steps  be  taken,  after  ratification, 
looking  to  striking  such  paragraph  from  the 
convention." 

On  June  1,  1946,  the  Senate  gave  its  advice  and 
consent  to  the  ratification  of  the  convention,  with- 
out amendment. 

'  S.  Exec.  F,  79th  Cong.  Approved  by  the  Senate  on  June 
19,  1946. 


1088 

Without  awaiting  ratification  of  the  convention, 
the  plenipotentiaries  of  the  two  Governments  have 
concluded  and  sigiaed  the  supplementary  protocol, 
enclosed  herewith.  The  protocol  provides  in  arti- 
cle I  that  paragrapli  {'A)  of  ai'ticle  XI  of  the  con- 
vention "shall  be  deemed  to  be  deleted  and  of  no 
effect."  Article  II  of  the  protocol  provides  that 
the  protocol  shall  be  regarded  as  an  integral  part 
of  the  convention  and  shall  be  ratified,  the  in- 
struments of  ratification  to  be  exchanged  at 
Washington. 

It  is  believed  that,  by  submitting  the  protocol 
to  the  Senate  at  this  time,  action  may  be  facilitated 
with  a  view  to  bringing  the  convention  into  force 
without  the  provisions  to  which  objection  has  been 
raised.  It  is  hoped  that  the  convention,  together 
with  the  protocol,  may  be  brought  into  force  as 
soon  as  possible  in  order  tliat  the  impediment  to 
international  trade  which  results  from  the  double 
taxation  of  incomes  may  be  removed  as  between 
the  United  States  of  America  and  the  United 
Kiue-dom  of  Great  Britain  and  Northern  Ireland. 
Kespectfully  submitted. 

James  F.  Byrnes. 

(Enclosure:  Protocol  of  June  6,  1946,  modifying  the  con- 
vention of  April  16,  1945,  relating  to  taxes  on  income,  be- 
tween the  United  States  and  the  United  Kingdom.) 

PROTOCOL 

The  Government  of  the  United  States  of  Amer- 
ica and  the  Government  of  the  United  Kingdom 
of  Great  Britain  and  Northern  Ireland, 

Desiring  to  conclude  a  supplementary  Protocol 
modifying  in  certain  respects  the  Convention  for 
the  avoidance  of  double  taxation  and  the  preven- 
tion of  fiscal  evasion  with  respect  to  taxes  on  in- 
come which  was  signed  at  Washington  on  April 
16,  1945, 

Have  agreed  as  follows : 

Article  I 

Paragraph  (3)  of  Article  XI  of  the  Convention 
of  April  16, 1945,  for  the  avoidance  of  double  taxa- 
tion and  the  prevention  of  fiscal  evasion  with 
respect  to  taxes  on  income  shall  be  deemed  to  be 
deleted  and  of  no  effect. 

Article  II 

This  Protocol,  which  shall  be  regarded  as  an 
integral  part  of  the  said  Convention,  shall  be  rati- 
fied and  the  instruments  of  ratification  thereof 
shall  be  exchanged  at  Washington. 


DEPARTMENT  OF  STATE  BULLETIN 

In  witness  whereof  the  undersigned  Plenipoten- 
tiaries, being  authorized  thereto  by  their  respective 
Governments,  have  signed  this  Protocol  and  have 
affixed  thereto  their  seals. 

Done  at  Washington,  in  duplicate,  this  sixth  day 
of  June  1946. 

For  the  Government  of  the  United  States  of 
America  : 

James  F.  Byrnes, 
Secretat'y  of  State 
of  the  United  States  of  America. 
For  the  Government  or  the  United  Kingdom  of 
Great  Britain  and  Northern  Ireland  : 
John  Balfour. 
His  Majesty^s  Envoy  Extraordinary 
and  Minister  Plenipotentiary  in  Washington. 

Air-Transport  Agreement 
With  Egypt 

The  Department  of  State  on  June  15  released 
to  the  press  the  text  of  the  air-transport  agreement 
concluded  between  the  Governments  of  the  United 
States  and  Egypt.  The  text  of  the  agreement 
follows  substantially  that  of  the  air-transport 
agreement  between  the  United  States  and  the 
United  Kingdom,  as  printed  in  the  Bulletin  of 
April  7,  1946,  with  the  exception  of  that  section 
of  the  annex  which  provides  for  the  air  routes 
as  follows : 

A.  Airlines  of  the  United  States  authorized  un- 
der the  present  agreement  are  accorded  rights  of 
transit  and  non-traffic  stop  in  Egyptian  territoiy, 
as  well  as  the  right  to  pick  up  and  discharge  inter- 
national traffic  in  passengers,  cargo,  and  mail,  at 
Cairo,  on  the  following  routes,  in  both  direc- 
tions : — 

United  States  to  Egypt  and  thence  to  Pales- 
tine (Lydda),  Iraq  (Basra),  and  Saudi 
Arabia  (Dhahran),  India,  and  beyond,  via: 
(a)  Ireland,  France,  Switzerland,  Italy  and 
Greece;  {h)  Portugal,  Spain,  Italy  and 
Greece;  (c)  Portugal,  Spain,  and  North 
African  points. 

B.  Airlines  of  Egypt  authorized  under  present 
agreement  are  accorded  rights  of  transit  and  non- 
traffic  stop  in  United  States  territory  as  well  as 
right  to  pick  up  and  discharge  international  traffic 
in  passengers,  cargo,  and  mail  in  the  United  States 
on  a  route  or  routes  to  be  determined  at  a  later 
date  from  Egypt  via  intermediate  points  to  the 
United  States,  in  both  directions. 


JUNE  23,  1946 


1089 


Cabinet  Committee  on  Palestine  and  Related  Problems 


STATEMENT  BY  THE  PRESmENT 

[Released  to  the  press  by  the  White  House  June  11] 

In  view  of  the  urgency  of  various  problems 
relating  to  the  displaced  Jews  in  Europe  and  Pales- 
tine, I  am  appointing  under  the  chairmanship  of 
the  Secretary  of  State  a  Cabinet  Committee  on 
Palestine  and  Related  Problems,  composed  of  the 
Secretaries  of  State,  War  and  Treasury.  The 
Committee  will  be  charged  with  assisting  me  in 
formulating  and  implementing  such  policy  with 
regard  to  Palestine  and  related  problems  as  may 
be  adopted  by  this  Government.  An  Executive 
order  will  be  issued  outliiiing  the  functions  and 
authority  of  the  Committee  in  further  detail. 

The  Committee  will  be  authorized  to  negotiate 
with  the  British  Government  and  with  other  for- 
eign governments  and  to  maintain  contact  with 
private  organizations  relative  to  the  various  mat- 
ters arising  out  of  the  recommendations  of  the 
Anglo-American  Committee  of  Inquiry. 

It  is  my  earnest  hope  that  the  Cabinet  Commit- 
tee will  be  able  to  undertake  its  urgent  tasks  at  the 
earliest  possible  moment. 

STATEMENT  BY  THE  SECRETARY  OF 
STATE 

[Released  to  the  press  June  11] 

With  reference  to  the  establishment  by  the 
President  of  a  special  Cabinet  Committee  on  Pal- 
estine and  Related  Problems,  I  have  appointed 
Mr.  Henry  F.  Grady  as  my  alternate  on  the  Com- 
mittee with  the  personal  rank  of  Ambassador. 
Mr.  Grady  was  recently  head  of  the  American 
Section  of  the  Allied  Mission  to  Observe  the  Elec- 
tions in  Greece  and  had  previously  served  as 
Assistant  Secretaiy  of  State  and  on  economic 
missions  to  the  Far  East  and  to  India. 

EXECUTIVE  ORDER  9735  > 

Establishing  a  Cabinet  Committee  on 
Palestine  and  Related  Problems 

[Released  to  the  press  by  the  White  House  June  11] 

By  virtue  of  the  authority  vested  in  me  by  the 
Constitution  and  the  statutes,  and  as  President  of 
the  United  States  and  Commander  in  Chief  of 
the  Army  and  Navy,  it  is  hereby  ordered  as 
follows : 


1.  In  view  of  the  urgency  of  the  solution  of 
various  problems  relating  to  the  displaced  Jews 
in  Europe  and  to  Palestine,  there  is  hereby  estab- 
lished under  the  Chairmanship  of  the  Secretary 
of  State,  a  Cabinet  Committee  on  Palestine  and 
Related  Problems  (hereinafter  referred  to  as  the 
Committee)  composed  of  the  Secretaries  of  State, 
War,  and  the  Treasury.  The  functions  and  duties 
of  the  Committee  shall  be : 

(a)  To  assist  the  President  in  the  early  con- 
sideration of  the  recommendations  of  the  Anglo- 
American  Committee  of  Inquiry  (hereinafter  re- 
ferred to  as  the  Anglo-American  Committee)  and 
of  the  views  which  may  be  submitted  as  a  result 
of  the  consultations  thereon,  and  in  the  determina- 
tion of  the  steps  to  be  taken  by  this  Government 
in  regard  to  Palestine  and  related  problems. 

(h)  To  2^ropose  the  specific  measures  considered 
necessary  or  appropriate  effectively  to  implement 
the  decisions  made  by  the  President  with  regard 
to  Palestine  and  related  problems. 

(c)  So  far  as  may  be  permitted  by  law,  to  imple- 
ment and  coordinate,  either  directly  or  through 
the  appropriate  departments  and  agencies  of  the 
United  States  Government,  such  policies  or  pro- 
grams in  respect  of  Palestine  and  related  prob- 
lems as  may  be  approved  and  authorized  by  the 
President. 

(d)  To  perform  such  other  tasks  in  connection 
with  the  functions  and  duties  described  in  sub- 
paragraphs (a),  (h),  and  (c)  above  as  the  Presi- 
dent may  from  time  to  time  direct. 

2.  Each  member  of  the  Committee  shall  desig- 
nate a  fully  deputized  alternate  to  act  for  and  in 
his  behalf.  The  alternates  thus  selected  shall  func- 
tion as  the  executive  agency  of  the  Committee  and 
shall  be  known  as  the  Board  of  Alternates,  whose 
Chairman  shall  be  the  alternate  for  the  Secretary 
of  State.    The  Committee  is  hereby  empowered: 

(a)  To  fix  its  rules  of  conduct  and  procedures 
and  the  pattern  of  its  internal  organization. 

(h)  To  employ  a  Secretariat  to  be  headed  by 
a  Secretary-General  with  such  deputies  and  as- 
sistants and  such  clerical  and  administrative  per- 
sonnel as  may  be  necessary. 

» 11  Federal  Register  6481. 


1090 


DEPARTMENT  OF  STATE  BVLLETIN 


(e)  To  utilize  to  the  maximum  extent  possible 
by  way  of  loan  or  otherwise  such  personnel,  facil- 
ities, and  services  of  the  State,  War,  and  Treasury 
Dei^artments  as  may  be  necessary  or  useful  to  the 
Committee  in  the  accomplishment  of  its  functions 
and  duties. 

{d)  Subject  to  subparagraph  (c)  hereof  and 
within  the  limits  of  funds  which  may  be  made 
available  to  it,  to  employ  necessary  technical  per- 
sonnel, consultants,  or  advisers  without  regard  to 
the  civil  service  laws  and  regulations,  and  to  make 
provision  for  such  supplies,  facilities,  and  services 
as  may  be  necessary  fully  to  discharge  the  Com- 
mittee's responsibilities. 

(e)  Whenever  necessary,  to  call  upon  the  heads 
of  other  departments  and  agencies  of  the  Govern- 
ment to  sujjply  experts  or  technical  advisers  to  the 
extent  available  to  assist  the  Committee  or  its 
staif  in  connection  with  its  objectives. 

3.  In  the  formulation  of  its  policy  recommenda- 
tions as  provided  in  paragraph  1  hereof  and  in  the 
implementation  of  any  policies  and  programs 
approved  by  the  President,  the  Committee  shall 
be  empowered : 


{a)  To  negotiate  and  consult,  directly  or 
through  its  representatives,  with  accredited  repre- 
sentatives and  agencies  of  other  governments,  with 
public  or  private  international  bodies,  with  States 
and  municipalities  and  private  and  quasi-j)ublic 
organizations  in  the  United  States  or  abroad. 

( h )  Upon  the  written  request  of  the  Chairman, 
or  his  alternate,  to  procure  from  all  departments 
and  agencies  of  the  Government  such  records  and 
documents  in  their  possession  as  may  be  necessary, 
relevant,  or  useful  to  the  Committee  in  the  ac- 
complishment of  its  objectives  hereunder. 

4.  In  carrying  out  its  functions  and  duties,  and 
within  the  limits  of  available  funds,  the  members 
of  the  Committee  and  its  personnel  are  authorized 
to  engage  in  the  necessary  domestic  and  foreign 
travel.  When  permitted  by  law  and  otherwise 
practicable,  the  Secretary  of  War  and  the  Secre- 
tary of  the  Navy  shall  provide  appropriate  travel 
assistance,  including  the  furnishing  of  avail- 
able Government-owned  transportation  and  other 
^^"lities.  Harry  S.  Truman 

The  White  House, 
June  11, 191fi. 


JAPANESE  ELECTIONS— Co»i/j««crf  p-om  page  1073. 

limit  its  scope  and  tempo,  while  the  Socialists  and 
Communists  would  move  more  rapidly  toward 
fundamental  reforms.  Seen  in  this  light  the  elec- 
tion represents  a  victory,  possibly  temporary,  for 
the  more  conservative  forces  in  Japanese  civilian 
life. 

Commenting  on  this  phenomenon  the  moderate 
Nippon  Times  observed  on  16  April :  "Of  course 
there  was  no  overwhelming  victory  for  the  revo- 
lutionary forces  of  democracy ;  of  course  the  rem- 
nants of  the  old  conservative  forces  managed  to 
retain  their  advantage.  But  considering  the  tre- 
mendous power  which  the  old  entrenched  interests 
used  to  exercise  until  so  recently  and  the  short  pe- 
riod of  time  in  which  the  new  forces  of  reform 
have  had  to  spread  their  influence,  the  outcome  of 
the  election  must  be  considered  little  short  of  as- 
tounding. .  .  .  The  really  significant  fact  is 
the  vigorous  growth  in  the  power  of  the  liberal 
elements  like  the  Social  Democratic  Party.  .  .  . 
There  is  no  question  that  the  old  order  is  doomed, 
and  that  the  new  liberal  movement,  though  not 
yet  in  full  tide,  is  sweeping  on  toward  unprece- 
dented levels."     The  Japanese  press  in  general 


tends  to  I'egard  the  election  of  10  April  as  the  first 
stage  in  a  continuing  process. 

33.  Japanese  politics  is  still  in  a  state  of  flux. 
The  multiplicity  of  parties  and  candidates  reflects 
the  confusion  of  a  transitional  period.  Dui'ing 
the  war  all  political  activity  was  strictly  regi- 
mented by  the  Government.  Now  the  lid  is  off 
and  the  political  pot  is  boiling  furiously.  The 
issues  which  will  dominate  Japanese  political  life 
in  the  coming  years  have  not  yet  been  clearly  de- 
fined, nor  have  party  lines  been  finally  drawn. 
Because  of  the  fluidity  of  the  political  situation 
the  possibility  of  another  election  at  a  relatively 
early  date  has  been  suggested  by  several  news- 
papers. 

34.  Japan's  first  post-war  election  was  a  valu- 
able lesson  in  the  mechanics  and  the  meaning  of 
democratic  government — a  lesson  which  cannot  be 
learned  from  textbooks  but  only  by  the  accumula- 
tion of  experience.  The  response  of  the  electorate 
gave  encouraging  promise  for  the  future.  Japan 
has  taken  the  first  stejo  on  the  road  toward  the 
eventual  creation  of  responsible  popular  govern- 
ment. 


JUNE  23,  1946 


1091 


Lend-Lease  Operations: 
Twenty-Second  Report 

THE  PRESIDENT'S  LETTER  OF 
TRANSMITTAL 

To  the  Oo/igresf!  of  the  U/uteJ  States  of  America: 

I  am  transmitting  herewith  the  twenty-second 
report  of  operations  under  the  Lend-Lease  Act. 

This  report  contains  an  exphmation  of  the  lend- 
lease  settlement  reached  with  the  United  Kingdom 
on  December  6,  1945,  and  includes  the  specific 
agreements  of  March  27,  liUfi,  between  the  United 
States  and  the  United  Kingdom.  I  am  convinced 
that  this  settlement,  which  is  in  accordance  with 
the  aims  of  Article  VII  of  the  Master  Lend-Lease 
Agreement  between  the  two  Governments,  serves 
the  best  interests  of  the  United  States  and,  at  the 
same  time,  will  "promote  mutually  advantageous 
economic  relations"  between  the  two  countries. 

This  repoi't  also  discusses  the  continuation  of 
lend-lease  aid  to  China,  which  has  been  necessary 
to  enable  that  country  to  take  over  the  areas  under 
Japanese  occupation,  and  information  on  the  total 
amount  of  lend-lease  aid  rendered. 

Operations  under  the  Lend-Lease  Act  which  re- 
main to  be  completed,  in  addition  to  accounting  and 
reporting  activities,  include  the  delivery  of  the 
small  quantity  of  supplies  still  in  the  lend-lease 
"pipe-lines'',  for  which  the  foreign  governments 
have  agreed  to  paj-  on  varying  terms,  and  negotia- 
tion of  final  settlements.  Deliveries  of  "pipe-line" 
supplies  are  being  made  as  rapidly  as  circumstances 
permit.  As  of  this  date  final  lend-lease  settlements 
have  been  negotiated  with  the  United  Kingdom, 
Turkey,  India,  France  and  Australia.  Negotia- 
tions with  other  countries  are  being  carried  on  and 
will  be  completed  as  early  as  possible.  Terms  of 
these  settlements  will  be  discussed  in  future  reports. 

Harry  S.  Truman. 

The  White  House, 
June  14,  1946. 


Hnngarian  Prime  Minister 
Visits  U.S. 

[Released  to  the  press  June  11] 

Ferenc    Nagy,    Prime    Minister    of    Hungary, 
Mathias  Kakosi,  Deputy  Prime  Minister,  John 


Gyongyosi,  Minister  of  Foreign  Atfairs,  and 
Stephen  Riesz,  Minister  of  Justice,  will  arrive  in 
Washington  June  11  as  guests  of  the  Go\  ernment 
and  will  remain  in  Washington  four  or  five  days. 

During  their  stay,  they  will  be  at  the  Blair 
House  and  a  reception  will  be  given  in  their  honor 
by  the  Minister  of  Hungary  on  Wednesday,  June 
12,~at  the  Hungarian  Legation.  A  dinner  will  be 
given  in  their  honor  by  the  Acting  Secretary  of 
State  tlie  evening  of  Thursday,  June  13,  at  the 
Blair-Lee  House. 

It  is  also  expected  that  Their  Excellencies  will 
make  visits  to  Mount  Vernon,  Arlington,  and 
the  Capitol. 


Guatemalan  Political 
Economist  Visits  U.S. 

Dr.  Gustavo  Miron,  Dean  of  the  Faculty  of  Eco- 
nomics of  the  University  of  San  Carlos,  Guate- 
mala, is  visiting  the  United  States  at  the  invitation 
of  the  Department  of  State.  He  will  visit  depart- 
ments of  economics  and  schools  of  business  admin- 
istration in  American  universities  and  acquaint 
himself  with  their  methods  and  organization. 

The  Guatemalan  Government  in  its  budget  for 
1946^7  has  set  aside  an  appropriation  to  send  five 
students  to  the  United  States  to  study  business 
organization  and  fiscal  and  budget  policies.  Three 
of  these  students  will  be  from  the  School  of  Eco- 
nomics and  two  will  be  government  employees. 

Dr.  Miron  will  remain  in  the  United  States  for 
two  months. 


Application  Date  for  Chinese 
Student  Applications 

[Released  to  the  press  June  14] 

The  Department  of  State  announces  that  the 
deadline  for  the  receipt  of  applications  for  travel 
grants  to  Chinese  students  appointed  to  research 
and  teaching  posts  in  higher  educational  institu- 
tions in  China,  announced  on  May  31,  1916,  has 
been  extended  from  June  12  until  July  15,  1946. 


1092 


DEPARTMENT  OF  STATE  BULLETIN 


Continuation  of  Scientific 
and  Cultural  Cooperation 
With  American  Republics 

[Released  to  the  press  June  10] 

A  survey  mission  consisting  of  three  United 
States  Government  officials  has  recently  returned 
from  six  of  the  American  republics  and  has  re- 
ported that  those  coimtries  are  anxious  to  continue 
the  program  of  cooperation  in  scientific  and  cul- 
tural matters.  This  program,  conducted  by  the 
Interdepartmental  Committee  on  Scientific  and 
Cultural  Cooperation,  began  as  an  outgrowth  of 
the  good-neighbor  policy  and  was  increased  during 
the  war  years.  Members  of  the  mission  were  Ray- 
mond L.  Zwemer,  Executive  Director  of  the  Com- 
mittee ;  Olcott  H.  Deming,  Planning  Officer  for  the 
Oommittee;  and  Edgar  B.  Brossard,  Member, 
United  States  Tariff  Commission.  The  group 
surveyed  various  projects  in  Mexico,  Guatemala, 
Colombia,  Peru,  Brazil,  and  Cuba,  which  have 
received  a  proportion  of  their  funds  and  personnel 
from  this  Govei'nment. 

The  mission  reports  an  increasing  interest  in 
the  program  on  the  part  of  officials  and  people  of 
the  counti-ies  visited.  The  officially  conducted 
cooi^erative  interchange,  which  has  developed  over 
the  past  eight  years,  was  warmly  commended  in 
all  quarters  as  one  of  the  most  effective  means  of 
cementing  hemispheric  solidarity.  It  was  found 
that  nationals  of  the  various  countries  are  partici- 
pating more  and  more  in  the  actual  operations. 
The  projects  embrace  a  wide  variety  of  undertak- 
ings ranging  from  the  development  of  comple- 
mentary agricultural  products  and  the  making  of 
tidal  observations,  through  various  categories  of 
personnel  exchanges  and  the  interchange  of  books 
and  publications.  Cultural  centers  maintained 
and  operated  jointly  by  the  nationals  of  the  United 
States  and  the  American  republics  are  included  in 
this  program. 


Visit  of  Chinese  Scientist 

Dr.  Hou  Pao-chang,  distinguished  Chinese  sci- 
entist and  Acting  Dean,  Cheeloo  University  Med- 
ical School,  invited  to  the  United  States  for  a 
year's  stay  under  the  Department's  cultural-coop- 
eration progi-am,  arrived  in  San  Francisco  on  May 
7.  Before  coming  to  Washington  he  visited  the 
medical  departments  of  the  Universities  of  Cali- 
fornia, Southern  California,  and  Utah. 

While  in  the  United  States  Dr.  Hou  plans  to  ob- 
serve the  most  recent  work  in  his  field  at  the  medi- 
cal departments  of  American  educational  institu- 
tions, hospitals,  and  research  organizations. 

Political  Scientist 
To  Visit  China 

Nathaniel  Peffer,  professor  of  international  re- 
lations, Columbia  Universitj^,  will  go  to  China  as 
a  visiting  professor  under  the  State  Department's 
cultural-cooperation  program,  at  the  request  of  the 
Chinese  Ministry  of  Education,  to  lecture  on  in- 
ternational relations  in  Chinese  colleges  and 
universities. 

Professor  Peffer  will  leave  for  China  about  the 
middle  of  June  and  will  remain  six  months. 


Visit  of  Chinese  Geographer 

Dr.  Liu  En-lan,  professor  of  geography  and 
head  of  tlie  geograjahy  department  of  Ginling 
College,  Nanking,  China,  will  arrive  in  this  coun- 
try in  June  for  a  year's  stay  under  the  State  De- 
partment's cultural-cooperation  program. 

Dr.  Liu  attended  Clark  University,  where  she 
I'eceived  her  M.A.  degree,  and  later  obtained  a 
Ph.D.  from  Oxford.  She  is  a  specialist  in  the 
geography  of  Western  Szechwan  and  in  the 
ethnology  of  the  border  tribes. 


The  Department 


Office  of  Under  Secretary  of 
State  for  Economic  Affairs' 

The  Coniiiiittee.  on  Foreign  Affairs  to  whom  was 
referred  the  bill  (H.  K.  6G46)  to  establish  the 
Office  of  Under  Secretary  of  State  for  Economic 
Affairs,  having  considered  the  same,  report  favor- 
ably and  unanimously  thereon  with  an  amendment 
and  recommend  that  the  bill,  as  amended,  do  pass. 

The  amendment  is  as  follows : 

In  line  4,  strike  out  the  words  "beginning  imme- 
diately"' and  insert  in  lieu  thereof  "following  the 
enactment  and  approval  of  this  legislation  by  the 
President". 

This  amendment  was  made  solely  for  the  pur- 
pose of  making  more  i^recise  the  date  upon  which 
the  authority  for  the  Office  of  Under  Secretary  of 
State  for  Economic  Affairs  will  expire. 

Purpose 

The  Secretary  of  State  appeared  before  the  com- 
mittee and  discussed  the  greatly  increased  number 
of  responsibilities  which  had  been  given  to  the 
Department  of  State  since  the  end  of  the  war.  To 
a  large  extent  these  responsibilities  have  related  to 
foreign  economic  affairs  and  have  been  added  to 
the  already  numerous  functions  with  which  the 
present  Assistant  Secretary  of  State  for  Economic 
Affairs  has  been  charged.  These  new  responsibili- 
ties include  the  settlement  of  the  lend-lease  ac- 
counts with  foreign  governments,  the  disposal  of 
surplus  property  abroad,  the  settlement  of  numer- 
ous claims  between  the  United  States  and  other 
countries,  credits  to  foreign  governments  and  our 
economic  policy  with  respect  to  Germany  and 
Jajjan.  In  addition,  the  United  Nations  has  been 
created,  and  the  Economic  and  Social  Council  is 
in  operation ;  the  United  Nations  Food  and  Agri- 
culture Organization,  the  International  Monetary 
Fund,  the  International  Bank  for  Reconstruction 
and  Development  and  the  United  Nations  Relief 
and  Rehabilitation  Administration  have  been  es- 
tablished, and  in  the  fields  of  aviation,  shipping 


and  telecommunications  additional  discussions  are 
in  prospect.  This  Government  has  also  published 
proposals  for  an  international  conference  on  trade 
and  employment. 

All  of  these  activities  acquired  new  importance 
when  the  fighting  stopped  and  we  were  free  to 
turn  to  the  building  of  a  lasting  peace.  With  all 
of  them  the  present  Assistant  Secretary  of  State 
for  Economic  Affairs  has  a  close  association  and 
attendant  heavy  responsibilities. 

Increased  Administrati\'e  Efficiency 

During  the  next  2  years,  the  duties  now  per- 
formed by  the  Assistant  Secretary  of  State  for 
Economic  Affairs  will  be  of  the  greatest  signifi- 
cance in  the  conduct  of  our  foreign  relations,  and 
those  duties  will  require  the  most  thoughtful  atten- 
tion to  the  problems  which  confront  us  and  the 
most  careful  search  for  appi'opriate  solutions. 
The  scope  of  the  work  requires  the  complete  atten- 
tion of  more  than  one  principal  officer  of  the  De- 
partment. And  quite  apart  from  the  fact  that  the 
task  is  beyond  the  capacity  or  endurance  of  any 
single  individual,  it  will  be  most  helpful  in  the 
conduct  of  international  discussions  and  negoti- 
ations if  the  principal  officer  of  the  Department 
of  State  concerned  with  economic  affairs  has  a  rank 
commensurate  with  his  duties. 

With  the  creation  of  this  office,  the  functions  and 
duties  now  assigned  to  the  Assistant  Secretary  of 
State  for  Economic  Affairs  can  be  shared  with  the 
Under  Secretary  of  State  for  Economic  Affairs. 
In  this  way  it  will  be  possible  during  the  next  2 
years  to  secure  adequate  and  full  consideration  of 
the  serious  problems  with  which  the  Department 
of  State  will  be  faced.  The  term  of  the  Office  of 
the  Under  Secretary  of  State  for  Economic  Affairs 
has  been  limited  to  2  years  because  it  is  apparent 
that  during  that  period  the  Secretary  of  State  will 
require  the  assistance  of  ah  officer  of  this  rank. 
It  is  not  now  contemplated  that  the  office  would 
be  established  on  a  permanent  basis  and  its  creation 
should  not  be  considered  a  precedent  for  the  estab- 

'  H.  Kept.  2249,  79th  Cong. 


1093 


1094 


DEPARTMENT  OF  STATE  BULLETIN 


lishment  of  a  similar  office  in  any  other  depart- 
ment. A  number  of  the  temporary  war  agencies 
have  been  transferred  to  the  Department  of  State 
which  makes  the  need  for  the  proj^osed  legishition 
unique. 

The  recommendation  for  the  establishment  in 
the  Department  of  State  of  the  office  proposed  in 
the  resolution  was  first  made  in  the  Eighth  Report 
of  the  Special  Committee  on  Postwar  Economic 
Policy  and  Planning  of  the  House  of  Representa- 
tives. A  subcommittee  of  this  special  committee 
had  traveled  extensively  abroatl  and  had  devoted 
special  consideration  to  our  foreign  economic  pro- 
gram. It  was  the  conclusion  of  that  committee 
that  an  Under  Secretary  of  State  for  Economic 
Affairs  was  necessary  if  the  numerous  and  difficult 
problems  involved  were  to  be  jjroperly  handled. 

Conclusion 
With  our  allies,  we  have  successfully  waged  a 
great  war,  and  we  must  devote  our  best  efforts  to 
the  creation  of  a  secure  and  lasting  peace.  If  we 
are  to  succeed  in  this  task,  the  conduct  of  our  for- 
eign relations  nuist  be  efficient  and  capable.  Unless 
the  Secretary  of  State  is  authorized  to  have  the 
assistants  he  believes  are  reasonalily  necessary  it 
will  be  impossible  for  him  to  adequately  represent 
this  Government  in  its  dealings  with  other  coun- 
tries. The  establishment  of  the  Office  of  Under 
Secretary  of  State  for  Economic  Att'airs  will  serve 
to  focus  the  attention  on  our  foreign  economic  pro- 
gram which  it  deserves  and  will  provide  the  as- 
sistance wliich  is  necessary  if  the  problems  involved 
are  to  receive  the  care  and  vigorous  analysis  which 
they  require. 

Organization  of  the  Office 
of  Transport  and 
Commnnications  Policy 

[Released  to  the  press  June  11] 

Effective  June  1,  1946,  the  State  Department's 
Office  of  Transport  and  Communications  Policy, 
which  comprises  the  xVviation.  Shipping,  and  Tele- 
conununications  Divisions,  has  realigned  its  organ- 
izational structure  to  carry  out  more  effectively  the 
responsibility  for  the  initiation  and  coordination 
of  iDolicy  and  action  concerning  the  international 

'  Not  printed. 


aspects  of  transport  and  communications  within 
the  jurisdiction  of  the  Department  of  State. 

The  Aviation  Division  will  consist  of  the  Air 
Transport  Section,  Facilities  Section,  and  Tech- 
nical Assistance  Section. 

The  Shipping  Division  will  consist  of  the  Traffic 
Section,  Shipping  Law  and  Ti'eaties  Section,  In- 
land Transportation  Section,  and  Seamen's  Affairs 
Section. 

The  Telecommunications  Divisicjn  will  be  com- 
prised of  the  Telecommunications  Law  and  Agree- 
ments Section,  the  Communications  Section,  and 
the  Technical  Plans  Section. 

In  addition,  each  of  these  Divisions  will  be  su- 
pervised by  the  Chief  of  the  Division  with  the 
necessary  athdsers  and  a  Planning  and  Coordina- 
tion Section. 

An  organizational  chart  of  tlie  Office  is  attached.' 

Departmental  Regulations 

118.11  Division  of  International  Organization  Affairs 
(OA):   (Effective  2-21-4(5) 

I  Functions.  OA  is  given  responsibility  for  tlie  per- 
formance, in  behalf  of  the  .Secretary,  and  in  collaboration 
with  the  Division  of  Protocol  (PR),  of  the  Department's 
responsibilities  under  the  International  Organizations 
Immnnities  Act.  (See  DR  240.1  for  a  statement  of  the 
general  provisions  of  the  Act  and  OA's  responsibilities 
thereunder. ) 

121.4  Division  of  Central  Services  (CS):  (Effective 
4-1-46) 

I  Functions  of  the  Division.  CS  of  the  Office  of 
Departmental  Administration  (ODA)  shall  be  responsible 
for  advising  and  assisting  the  Assistant  Secretary  for 
Administration  with  respect  to  all  phases  of  central  serv- 
ices for  the  Department;  and  for  the  operation  of  pro- 
grams with  respect  to  procurement,  transportation,  space 
management  and  planning,  and  general  services  including 
a  verbatim  and  summary-reporting  service,  telephone 
operations,  vehicle  control,  and  mechanical  services. 

II  Functions  of  the  Staff  and  Sections. 

A  Office  of  the  Chief.  Responsible  to  the  Director 
of  OD.\  for  directing  the  performance  of  the  functions  of 
the  Division. 

B  Assistiint  Chief  of  the  Division.  Responsible  to 
the  Chief  of  the  Division  for  assistance  in  the  administra- 
tion of  the  Division  and  acts  for  the  Chief  of  the  Division 
in  his  absence. 

C  Procurement  Section.  Responsible  for  the  admin- 
istration of  a  complete  procurement  program  for  tlie  De- 
partment and  the  Foreign  Service,  including: 

1         Procurement  of  all  items  necessary  for  the  opera- 
tion of  the  Department ;   formulation  of  prociu'ement 


JUNE  23,  1946 


1095 


policies  governing  expenditures  for  the  Department ; 
and,  in  collaboration  with  the  Divisions  of  Foreign 
Service  Adniinistratiou  (FA)  and  Foreign  Buildings 
Operations  (FBO),  formulation  of  procurement  policies 
governing  exjjenditures  from  Foreign  Service  funds, 
consistent  with  existing  regulations. 

2  Establishment  and  maintenance  of  standard 
specifications  for  office  supplies,  equipment,  and  ma- 
terials for  tlie  Department,  and  collaboration  with  the 
Otlice  of  Foreign  Service  (OFS)  in  the  establishment 
of  similar  standards  for  the  Foreign  Service. 

3  Maintenance  of  property  accountability  and 
inventory  control  of  all  jaroperty  u.sed  in  the  Depart- 
ment in  accordance  with  existing  regulations. 

4  Procurement  of  all  printing  and  binding  used 
for  administrative  purposes. 

5  Establishment,  operation,  and  maintenance  of  a 
complete  reproduction  service  for  the  Department,  in- 
cluding off-set,  mimeograpliic,  hectograpliic.  photostatic, 
photographic,  and  microfilm  processes ;  and  the  design 
and  composition  of  all  forms,  form  letters,  and  so  forth, 
used  in  the  Deijartment. 

6  Establishment  and  maintenance  of  a  system  of 
document  distribution  except  publications  and  processed 
material,  circular  instructions,  circular  airgrams,  and 
circular  telegrams  to  the  establishments  in  the  field. 

D  International  Transportation  and  Commercial 
Priorities  Section.  Responsible  for  the  administration 
of  a  complete  program  governing  the  transportation  of  all 
civilian  passengers  or  cargoes  on  planes  operated  by  the 
Air  Transport  Command  of  the  Army,  and  the  Navy  Air 
Transport  Services,  including  the  allocation  of  priorities, 
and  tlie  determination  that  the  travel  is  of  sucli  importance 
aa  to  justify  air  travel,  in  accordance  with  existing 
regulations. 

1  Authorization  of  all  international  and  domestic 
travel  of  personnel  for  the  Department  and  the  Foreign 
Service,  arrange 'for  such  travel,  determine  allowable 
items  which  may  be  shipped  at  Government  expense, 
and  arrange  such  travel  and  shipments,  including  esti- 
mates of  cost. 

E  Space  Management  and  Planning  Section.  Ke- 
sponsible  for  the  administration  of  a  complete  sjiace- 
management  planning  program,  including: 

1  Procurement,  or  arrangement  for  the  procure- 
ment, of  all  space  needed  for  the  Department  within 
the  continental  limits  of  the  United  States. 

2  Final  authority  to  allocate  space. 

3  Maintenance  of  a  scientific  space  lay-out  serv- 
ice to  assure  maximum  efficient  utilization  of  all  space 
allocated  between  all  components  of  the  Department. 

4  Determination  of  policy  for  the  Department  re- 
garding the  maintenance,  repair,  and  alteration  of 
buildings  and  fixtures,  as  well  as  all  other  matters 
under  the  jurisdiction  of  the  Public  Buildings  Admin- 
istration ;  coordination  of  that  policy  with  the  policy 
of  the  Public  Buildings  Administration:  and  mainte- 
nance of  all  liaison  with  that  agency. 

F        General  Services  Section.    Responsible  for  the : 

1         Ojieration  of  a  secretarial  and  reporting  service 


including  verbatim  and  summary-reporting  of  confer- 
ences and  secretarial  services  to  United  States  Am- 
bassadors on  temporary  assignment  in  Washington,  and 
such  other  services  as  may  be  requested. 

2  Procurement  of  all  telephone  and  other  wire 
communications  services  for  the  Department,  and  oper- 
ation of  all  necessary  telephone  services  and  those  serv- 
ices incidental  thereto,  including  related  policy  decisions. 

3  Operation,  maintenance,  and  control  of  all  pas- 
senger cars  and  trucks  for  the  Department,  including 
the  determination  of  policy  with  respect  to  the  use  of 
this  equipment. 

4  Furnishing  the  necessary  maintenance  and  re- 
pair services  for  all  office  equipment  including  the  De- 
partment of  State  code  machines. 

5  Establishment  and  maintenance  of  a  system  em- 
bracing all  necessary  reception  services  in  all  buildings 
of  the  Department  within  the  continental  United  States. 

6  Determination  of  the  need  for,  issuance  of,  and 
maintenance  of  adequate  security  equipment  based  on 
advice  and  counsel  of  the  Chief  Security  Officer;  and 
maintenance  of  a  system  for  issuing  and  controlling 
identification  passes  to  all  personnel  of  the  Department 
within  the  continental  limits  of  the  United  States. 

7  Furnishing,  on  reqne.st,  such  services  as  may 
be  in  the  interest  of  the  United  States  Government  to 
delegations  of  foreign  countries,  while  in  this  country, 
when  such  services  are  authorized  by  the  Secretary  of 
State. 

Ill  Additional  Functions.  In  addition  to  the  func- 
tions outlined  above,  the  Division  shall  be  re.sponsible  for 
providing  the  following  services: 

A  Operation  of  such  additional  administrative  serv- 
ices as  may  be  determined  by  the  Secretary  of  State. 

B  Maintenance  of  a  sufficiently  large  staff  to  permit 
the  Division  to  furnish  any  of  its  services  to  any  domestic 
or  international  conference  at  home  or  abroad,  when  called 
upon  for  such  service  by  the  Division  of  International  Con- 
ferences (IC)  or  the  United  Nations  Organization,  without 
interruption  of  such  service  to  the  regular  components  of 
the  Department. 

122.1     Office  of   the   Foreign   Service   (OFS):   (Effective 
5-2-46) 

I        Corps  of  Foehgn  Service  Inspectoks. 

A  Functions.  The  functions  of  the  Corps  of  Foreign 
Service  Inspectors  are  as  follows : 

1  To  give  field  personnel  a  better  understanding 
of  the  organization,  functions,  plans,  and  policies  of  the 
Department  and  of  the  means  by  which  the  Foreign 
Service  can  most  effectively  meet  its  responsibilities. 

2  To  make  objective  appraisals  of  the  efficiency 
and  qualifications  of  Foreign  Service  personnel. 

3  To  improve  office  organization  and  administra- 
tion and  to  raise  the  standard  of  performance  through- 
out the  Service. 

4  To  promote  Service  morale. 

5  To  correct  faulty  practices. 

6  To  i>rovide  a  personal  medium   through   which 


1096 


DEPARTMENT  OF  STATE  BULLETIN 


field  personnel  may  isuliiiiit  to  the  Department  tlieir 
problems  as  well  as  their  ideas  for  the  improvement  of 
the  Service. 

7  To  make  specific  recommendations  with  respect 
to  any  Foreign  Service  matters  in  which  action  by  the 
Department  is  considered  to  be  necessary  or  desirable. 

B  Chief,  Corps  of  Foreign  Service  Inspectors.  The 
Chief  shall  report  to  and  be  directly  responsible  to  the 
Director  of  OFS.     His  functions  are  to  provide: 

1  Effective  direction  of  the  work  of  Foreign  Serv- 
ice Inspectors. 

2  A  means  for  evaluating  and  having  appropriate 
action  taken  on  their  reports  and  recommendations. 

3  Liaison  between  Foreign  Service  Inspectors  and 
the  Department. 

131.24  Motion  Picture  Section,  Division  of  Commercial 
Policy  (CP):   (Effective  4-24-46) 

I  Functions.  The  Motion  Picture  Section '  is  respon- 
sible for  the  formulation  and  coordination  of  policy  and 
action  in  matters  pertaining  to  the  international  aspects 
of  commercial  motion  pictures-  and,  in  this  connection, 
shall: 

A  Initiate  policy  and  action  on  matters  relating  to 
official  mea.sures  restricting  the  importation,  distribution, 
and  exhibition  of  American  films  abroad. 

B  Serve  as  a  point  of  contact  with  federal  agencies 
and  others  concerned  with  International  aspects  of  com- 
mercial motion  pictures. 

183.8    Policy    Committee    on    Arms    and    Armaments: 

(Effective  5-20-46) 

I  Functions.  The  Policy  Committee  on  Arms  and 
Armaments  (hereinafter  referred  to  as  the  Armaments 
Committee)  is  responsible  for  the  coordination  of  State 
Department  policy  with  respect  to  all  asiiects  of  arms  and 
armaments. 

II  Composition.  The  Armaments  Committee  consists 
of  a  Chairman  who  represents  the  Secretary  of  State  and 
who  is  the  State  Department  member  of  the  State-War- 
Navy  Coordinating  Committee  (SWNCC)  on  all  matters 
of  policy  dealing  with  arms  and  armaments ;  a  representa- 
tive of  the  Assistant  Secretary  for  Economic  Affairs;  a 
repre.sentative  of  the  OfHce  of  European  Affairs  (EUR), 
Office  of  Near  Eastern  and  African  Affairs  (NEA),  Office 
of  Far  Eastern  Affairs  (FE),  Office  of  American  Republic 
Affairs  (ARA),  Office  of  Special  Political  Affairs  (SPA), 
and  Office  of  Controls  (CON)  ;  a  Deputy  Chairman  and  an 
Executive  Secretary,  designated  by  the  Chairman. 

A  The  Assistant  Secretary  for  Occupied  Areas  is 
Chairman  of  the  Armaments  Committee. 

B  The  Chairman  may  invite  to  the  meetings  of  the 
Armament  Committee  repre.sentatives  of  Offices  who  do 
not  hold  permanent  membership  thereon  when  matters  of 
special  interest  to  such  Offices  are  being  considered  by  the 
Committee. 

'  Transferred  from  the  Telecommunications  Division. 


III  RESPONsmrEiTiEs  OP  Chairman  and  Membees. 

A  The  Chairman  shall  take  the  Initiative  in  submit- 
ting to  SWNCC,  or  to  any  appropriate  subcommittee 
thereof,  such  policy  matters  with  respect  to  arms  and 
armaments  as  may  require  concerted  study,  consideration, 
or  action  liy  the  State,  War,  and  Navy  Departments.  No 
policy  matters  or  decisions  with  respect  to  arms  or  arma- 
ments shall  be  presented  in  behalf  of  the  State  Depart- 
ment to  SWNCC  except  through  the  Chairman  or  with  his 
concurrence. 

B  Each  member  of  the  Armaments  Committee  is 
authorized  to  bind  his  Office  on  any  matter  coming  before 
the  Armaments  Committee  for  consideration  or  action. 

IV  Peoceduees. 

A  The  Armaments  Committee  shall  hold  stated  meet- 
ings and  a  record  of  its  proceedings  shall  be  maintained. 
The  Chairman,  with  the  advice  and  counsel  of  the  mem- 
bership of  the  Committee  shall  compile  a  list  of  projects 
and  studies  with  respect  to  arms  and  armament  matters. 
These  projects  shall  be  assigned  for  research,  develop- 
ment, and  analysis  to  the  membersliip  of  the  Committee 
as  their  respective  interests  may  appear.  Consideration 
by  the  Committee  and  submission  to  SWNCC  of  any  such 
projects  or  studies  shall  be  on  the  basis  of  relative  urgency, 
as  determined  by  the  Chairman. 

B  The  Chairman  of  the  Armaments  Committee  shall 
prescribe  the  rules  of  conduct  of  the  Committee  and  the 
time  and  place  of  its  meetings.  All  Interdepartmental 
liaison  by  members  of  the  Committee  or  of  its  Secretariat 
with  respect  to  arms  and  armaments  matters  shall  be 
accomplished  as  the  Chairman  may  determine  or  with  his 
concurrence. 

C  The  Chairman  of  the  Armaments  Committee  shall 
place  matters  on  the  SWNCC  agenda  for.  consideration. 
He  shall  recommend  to  the  Chairman  of  SWNCC  duly 
qualified  candidates  to  represent  the  State  Department  on 
any  SWNCC  subcommittee  appointed  to  consider  any 
matter  in  respect  of  arms  or  armaments,  and  no  one  shall 
represent  the  State  Department  on  any  such  subcom- 
mittee without  the  approval  of  the  Chairman. 

D  It  is  expected  that  the  Armaments  Committee 
will  formulate  Departmental  policy  in  matters  of  arms 
and  armaments  b.v  unanimous  action;  however,  in  the 
event  that  unanimity  cannot  be  attained,  determination 
shall  be  made  by  the  Chairman.  Any  such  determination 
by  the  Chairman  shall  be  final  unless  certified  to  the 
Secretary's  Staff  Committee  for  review,  upon  the  motion 
of  an  Assistant  Secretary.  Such  motion  shall  be  made 
in  writing  on  not  less  than  five  days'  notice  and  shall 
state  the  grounds  upon  which  review  is  sought. 

E  Technical  and  secretarial  facilities  shall  be  pro- 
vided the  Committee  in  the  first  instance  by  the  Central 
Secretariat  of  the  Executive  Staff  Committees  and  shall 
be  augmented  to  such  extent  as  may  be  necessary  by 
contribution  of  personnel  and  facilities  by  the  offices  par- 
ticipating in  the  membership  of  the  Committee.  Upon 
the  .request  of  the  Chairman,  the  Assistant  Secretary  for 
Administration  shall,  to  the  extent  necessary,  in  his  opin- 
ion, levy  on  any  Office  or  Division  of  the  Department  for 
such  personnel  and  facilities  as  the  Secretariat  may 
require. 


JUNE  23,  1946 


1097 


Training  Announcements 

Special  Motion-Picture  Programs 

In  the  belief  that  personnel  of  the  Department 
of  State  and  the  Foreign  Service  should  be  pre- 
eminently well  informed,  not  only  about  peoples 
and  conditions  of  lite  in  other  nations  but  also 
about  the  United  States  of  America  in  all  its 
parts  and  all  its  activities,  the  Division  of  Train- 
ing Services  has  inaugurated  two  series  of  film 
showings  directed  toward  these  ends. 

The  first  series  of  films,  generally  entitled 
Other  Lands  and  Peoples,  will  be  shown  on  Tues- 
day of  each  week.  The  second  series,  to  be 
shown  on  Thursday  of  each  week,  is  generally 
entitled  Know  Your  America. 

Showing  of  these  films  has  been  scheduled  for 
the  noon  hours  in  order  that  personnel  may 
attend  without  loss  of  time  from  their  work.  All 
films  will  be  run  twice,  at  12  o'clock  and  at  1 
o'clock,  in  Room  474,  main  State  Department 
building.  Length  of  showing  is  approximately 
30  minutes. 

The  first  film  to  be  shown  in  the  Other  Lands 
and  Peoples  series  was  "Know  Tour  Ally — 
Britain",  which  was  produced  by  the  United 
States  Army  to  help  American  soldiers  under- 
stand their  British  allies. 

The  film  scheduled  for  the  opening  of  the  sec- 
ond series,  Knoiv  Tour  America,  is  "The  United 
States",  produced  by  the  British  Army  to  intro- 
duce Americans  to  the  British.  It  is  a  companion 
piece  to  the  United  States  Army  film  "Know  Your 
Ally — Britain",  presented  in  the  first  series. 


Appointment  of  Officers 

George  F.  Luthringer  as  Director  of  the  Ofiice  of  Finan- 
cial and  Development  Policy,  effective  May  7,  1946. 

Edward  R.  Gray  as  Assistant  Adviser  on  European 
Reconstruction  and  Development,  Division  of  Investment 
and  Economic  Development,  effective  May  15,  1946. 

Clifford  C.  Matlock  as  Special  Assistant,  Division  of 
Lend-Lease  and  Surplus  War  Property  Affairs,  effective 
May  15,  1946. 

Joseph  C.  Satterthwaite  as  Special  Assistant  to  the 
Director,  OflJce  of  Near  Eastern  and  African  Affairs, 
effective  May  21,  1946. 

Thomas  C.  Mann  as  Chief,  Division  of  River  Plate 
Affairs,  effective  May  28,  1946. 


Confirmation  of  Charles  Fahy 

On  June  13  the  Senate  confirmed  the  nomination  of 
Charles  Fahy  to  be  legal  adviser  of  the  Department  of 
State. 

Corrigenda 

In  Bulletin  of  May  12,  1946,  page  816,  second 
column,  line  22-23,  substitute  "Commission  of 
Control,  for  the  numbers"  for  "Commission  of 
Control.    For  the  numbers". 

In  Bulletin  of  June  16,  1946,  page  1026,  first 
column,  second  paragraph,  for  fifth  line  substitute 
the  following:  "governmental  war  expenditures 
and  other  losses  of". 


Contents Continued 


The  Department  '  ^<^se 

Addresses  and  Statements  of  the  Week 1078 

Office  of  Under  Secretary  of  State  for  Economic  Affairs.    .    .  1093 

Departmental  Regulations 1094 

Organization  of  Office  of  Transport  and  Communications 

Policy 1094 

Confirmation  of  Charles  Fahy 1097 

Training  Announcements 1097 

Publications  of  the  Department  of  State 1098 


1098 

Publications 

of  the  DEPARTMENT  OF  STATE 

For  sale  Ml  the  Si(i>criiitiii(Unt  fif  Documents,  Oovern- 
mtnt  Printinr/  Offlre.  Wasliiiii/lou  2.5,  1>.  C.  Address  re- 
quests direct  to  the  Siipcrhitciidciit  of  Documents,  except 
in  the  case  of  free  publications,  uhich  mail  lie  obtained 
from  the  Department  of  State. 

The  International  Court  of  Justice.  Confer- 
ence Series  84.    Pub.  2491.    1G7  pp.    $1. 

A  selection  of  documents  fi-om  the  meeting  of  the 
United  Nations  Committee  of  Jurists  and  also  the 
texts  of  the  Statute  of  the  Permanent  Court  of  Inter- 
national Justice  and  Chapter  VII  of  the  Dumbarton 
Uaks  Proposals. 

Cultural  Centers  in  the  Other  American  Re- 
publics. Article  by  Dorothy  Greene  and  Sherly 
G.  Esman,  Department  of  State.  Pub.  2503.  20 
pp.    Free. 

An  explanation  of  the  activities  and  studies  in  the 
cultural  centers  established  by  local  groups  and  U.  S. 
nationals  abroad.     (Map  included.) 

Report  to  Congress  on  Foreign  Surplus  Dis- 
posal.    April  1946.     Pub.  2518.     54  pp. 

Report  of  the  Department  of  State,  Office  of  the  For- 
eign Liquidation  Commissioner,  on  the  disposal  of 
U.S.  surplus  property  in  foreign  areas.  The  appen- 
dixes include  texts  of  Executive  orders  and  legislation 
on  surplus  property. 

Report  of  the  Allied  Mission  to  Observe  the 
Greek  Elections.  Pub.  2522.  3G  pp.  Free. 
Reiwrt  signed  on  behalf  of  the  three  sections  of  the 
Mission  (the  United  States,  British,  and  French  Gov- 
ernments). The  appendixes  explain  the  scientific 
sampling  method  used  during  the  observation  period. 

Suggestions  as  to  the  Method  and  Character  of 
Representations  to  the  Committee  for  Reciproc- 
ity Information,  Conference  Series  86.  Pub. 
2534.     5  pp. 

Suggestions  offered  by  the  Committee  for  Reciprocity 
Information  on  data  to  be  submitted  with  respect  to 
import  and  export  items  of  trade  agreements. 

Diplomatic  List,  May  1946.    Pub.  2527.     145  pp. 

Subscription,  $2  a  year ;  single  copy  20^4. 

Monthly  list  of  foreign  diplomatic  representatives  in 
Washington,  with  their  addresses,  prepared  by  the 
Division  of  Protocol  of  the  Department  of  State. 


DEPARTMENT  OF  STATE  BULLETIN 

Anglo-American  Committee  of  Inquiry.  Near 
Eastern  Series  2.     Pub.  2536.     92  pp. 

Report  to  the  Governments  of  the  United  States  and 
the  United  Kingdom  on  (1)  conditions  in  Palestine 
relating  to  the  ijroblem  of  Jewish  immigration  and 
the  well-being  of  peoples  now  living  there  and  (2)  the 
position  of  Jews  in  Europe.  The  committee  made 
recommendations  on  the  future  immigration  policy 
and  future  government  of  Palestine.  Background 
information  is  furnished  in  the  seven  appendixes. 

Paris  Meeting  of  Foreign  Ministers.  Report  of 
Secretary  Byrnes,  May  20,  1946.  Conference  Se- 
ries 86.     Pub.  2537.     16  pp. 

Report  of  the  meeting  of  the  Council  of  Foreign 
Ministers  which  took  place  between  April  25  and  May 
10,  1046. 

International  Monetary  Fund.  Articles  of 
Agreement  Between  the  United  States  of  America 
and  Other  Powers — Formulated  at  the  United  Na- 
tions Monetary  and  Financial  Conference  at 
Bretton  Woods.  New  Hampshire,  July  1  to  22, 
1944;  signed  at  Washington  December  27,  1945; 
effective  December  27,  1945.  Treaties  and  Other 
International     Acts     Series     1501.     Pub.     2512. 

43  pp.  m. 

International  Bank  for  Reconstruction  and  De- 
velopment. Articles  of  Agreement  Between  the 
United  States  of  America  and  Other  Powers — 
Formulated  at  the  United  Nations  Monetary  and 
Financial  Conference  at  Bretton  Woods,  New 
Ham])shire,  July  1  to  22, 1944 ;  signed  at  Washing- 
ton December  27,  1945;  effective  December  27, 
1945.'  Treaties  and  Other  International  Acts 
Series  1502.     Pub.  2511.     33  pp.     10^. 

Exchange  of  Information  on  Penicillin.  Agree- 
ment Between  the  United  States  of  America  and 
the  United  Kingdom  of  Great  Britain  and  Norih- 
ern  Irehand — Effected  by  exchange  of  notes  sig- 
at  Washington  January  25,  1946;  effective  .'.e- 
cember  1, 1943.  Treaties  and  Other  International 
Acts  Series  1506.     Pub.  2521.     14  pp.     5^. 

Text  of  agreement  on  the  principles  applying  to  the 
exchange  of  information  looking  to  the  synthesis  of 
penicillin  together  with  a  memorandum  of  agreement. 

A  cumulative  list  of  the  publications  of  the  Department  of 
State,  from  Oct.  1.  JS29  to  Jan.  1, 191,6  (pub.  21,GJi),  may  be 
obtained  from  the  Department  of  State. 


U.  S.  GOVERNMENT  PRINTING   OFFICE;  1946 


THE  DEPARTMENT  OF  STATE 


VOL.  XIV,  m.  365 


JUNE  30,  1946 


Draft  Treaty  on  the  Disarmament  and 

Demilitarization  of  Japan  ....     page  1113 

Danubian  Transportation  Problems 

Article  by  DORIS  WHITNACK  and  DAVID  HANDLER     .        .        .        page  1108 

German  Documents:  Conferences  With  Axis 

Leaders page  1103 

German  Assets  in  Switzerhmd       ....     page  1101 


For  complete  contents 
see  inside  cover 


^CNT    o^ 


'-4TES    O^ 


THE  DEPARTMENT  OF  STATE 

BULLETIN 


Vol.  XIV -No.  365- 


F'UBLICATION    2561 


June  30,  1946 


For  Bale  by  the  Superintendent  of  Documents 

U.  S.  Government  Printing  Oflfice 

Waehington  25,  D.  C. 

Subscription: 

52  issues,  $3.50;  single  copy,  10  cents 
Special  offer:  13  weeks  for  Sl.OO 
(renewable  only  on  yearly  basis) 


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  ivith 
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  Tf  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  well  as 
special  articles  on  various  phases  of 
international  affairs  and  thefunctions 
of  the  Department.  Information  con- 
cerning treaties  and  international 
agreements  towhich  the  United  Stales 
is  or  may  become  a  party  and  treaties 
of  general  international  interest  is 
included. 

Publications  of  the  Department,  cu- 
ntulalive  lists  of  which  are  published 
at  the  end  of  each  quarter,  as  well  as 
legislative  materialin  the  field  of  inter- 
ruttional  relations,  are  listed  currently. 


,,s«pe.KTe.oe.TO.ooco«^ 

Contents 


Economic  Affairs  Page. 

Disposition  of  German  Assets  in  Switzerland 1101 

Danubian  Transportation  Problems  in  Relation  to  Develop- 
ment of  the  Basin 
Article  by  Doris  S.  Whitnack  and  David  Handler   .    .    .  1108 
U.S. -Mexican  Discussions  on  Air-Services  Agreement   .    .  1112 
United  States  Delegation  to  the  Conference  on  German- 
Owned  Patents  Outside  Germany 1112 

Agreement  for  Purchase  of  Rubber  From  Far  East     ....  1119 

Remittances  to  Albania  Limited 1120 

UNRRA     Operations:     Seventh     Quarterly     Report:     The 

President's  Letter  of  Transmittal  to  the  Congress   .    .  1126 

General  Policy 

Military  Assistance  to  China 

Remarks  by  Acting  Secretary  Acheson 1115 

LT.S.-Hungarian  Relations 

Hungarian  OfKcials  Conclude  Visit  to  U.S 1120 

Restitution  of  Property  and  Gold  to  Hungarian  Govern- 
ment        1120 

Further  Protests  to  Rumania  on  Election  Matters:  Exchange 
of  Notes  Between  the  U.S.  and  Rumanian  Govern- 
ments            1125 

Allied  Mission  to  Observe  Revision  of  Greek  Electoral  Lists: 

Lelaud  Morris  to  Head  U.S.  Section 1128 

Visit  of  General  von  der  Becke  of  Argentina 1 129 

German  Documents 

German  Documents:   Conferences  with  Axis  Leaders   .    .    .      1103 

Occupation  Matters 

FEC:   Interim    Reparations     Removals:   Privately     Owned 

Munitions  Plants 1111 

Draft  Treaty  on  the  Disarmament  and  Demilitarization  of 

Japan 1113 

The  United  Nations 

Trygve  Lie  Invited  to  Atomic  Bomb  Tests 1130 

Treaty  Information 

Disposition  of  German  Assets  in  Switzerland 1101 

Drafting  of  Copyright  Document  by  Inter-American  Copy- 
right Conference       1112 

U.S. -Mexican  Discussions  on  Air-Services  Agreement     .    .      1112 
United  States  Delegation   to  the  Conference  on   German- 
Owned  Patents  Outside  Germany 1112 

Draft  Treaty  on  the  Disarmament  and  Demilitarization  of 

Japan 1113 

Lend-Lease  and  Surplu.s- Property  Settlement  with  AustraUa.      1118 

Lend- Lease  Settlement  W  ith  China 1118 

Agreement  for  Purchase  of  Rubber  From  Far  East   .    .    .    .      1119 
Negotiations  on  German  Holdings  in  Switzerland:   Under- 
standing Reached  Between  Allied  and  Swiss  Govern- 
ments       1121 

Agreements  on  pjconomic  and  Financial  Prol)lems  Reached 

by  U.S.  and  Provisional  French  Governments   ....      1127 
International  Organizations  and  Conferences 

Calendar  of  Meetings 1111 

Activities  and  Developments 1111 

(Contents  continued  on  page  1136) 


Disposition  of  German  Assets  in  Switzerland' 


THE  TEXT  of  the  "Accord  and  Annex,"  consti- 
tuting letters  of  understanding  reached  be- 
tween the  Governments  of  France,  the  United 
Kingdom,  the  United  States,  and  Switzerland  in 
negotiations  held  in  Washington  from  March  IS 
to  May  26,  1946  regarding  German  external  as- 
sets, looted  gold,  and  other  related  topics,  was  re- 
leased on  June  17,  1916.^ 

Chief  negotiators  for  the  Allies  were  Randolph 
Paul,  Special  Assistant  to  the  President,  repre- 
senting the  United  States ;  F.  W.  McCombe,  Chief 
of  Charitable  Institutions  and  presently  Counselor 
at  the  British  Embassy,  Washington,  representing 
the  United  Kingdom;  and  Paul  Chargueraud. 
Director  of  the  Blocus  Division  of  the  Foreign 
Office,  representing  France.  Switzerland  was  rep- 
resented by  Walter  Stucki,  Chief  of  Foreign  Af- 
fairs, Federal  Political  Department,  who  also 
acted  on  behalf  of  the  Principality  of  Liechten- 
stein. 

In  all  but  one  respect  the  letters  exchanged  be- 
tween the  Allies  and  the  Swiss  are  identical.  The 
sole  difference  is  in  paragi-aph  V  of  the  Accord,  in 
which  the  Swiss  representative  stated  he  also  acted 
on  behalf  of  the  Principality  of  Liechtenstein 
whereas  the  Allies  stated  they  acted  on  behalf  of 
the  governments  signatory  to  the  Paris  Reparation 
Agreement. 

The  agreement  as  achieved  attained  the  Allied 
objective  of  immobilizing  and  liquidating  German 
property  in  Switzerland  owned  by  Germans  in 
Germany  or  Germans  dangerous  enough  to  be 
repatriated  to  Germany.  Thus,  German  assets 
which  at  some  future  date  could  have  been  em- 
ployed as  a  threat  to  world  peace  will  be  re- 
moved from  a  potential  safe-haven.  At  the  same 
time  the  Swiss  prerogative  to  exercise  sovereign 
authority  within  Switzerland  is  fully  recognized. 
The  Swiss  themselves  will  investigate  property 
within  their  borders  and  will  liquidate  the  German 
property  as  desired  by  the  Allies. 


The  Allied  objective  of  using  all  proceeds  made 
available  by  this  liquidation  for  the  rehabilitation 
and  reconstruction  of  countries  devastated  or  de- 
pleted by  Germany  during  the  war  was  only  par- 
tially achieved.  The  Swiss  argued  against  recog- 
nition of  the  Allied  legal  claim  to  such  property. 
They  indicated  also  that  their  financial  claims 
against  Germany  were  greater  than  German 
claims  against  Switzerland.  Their  interest,  how- 
ever, in  making  available  a  contribution  to  re- 
habilitation and  reconstruction  as  well  as  in  settle- 
ment of  these  issues  led  them  to  an  offer  that  .50 
percent  of  the  proceeds  of  liquidation  be  put  at 
the  disposal  of  tiie  Allies. 

The  third  objective  sought  by  the  Allies  in  the 
negotiations,  namely  the  return  of  gold  from 
Switzerland  alleged  to  have  been  wrongfully  taken 
by  Germany  from  the  occupied  countries  during 
the  war  and  transferred  to  Switzerland,  was  also 
the  subject  of  agreement.  Although  the  Swiss 
argued  that  gold  acquired  by  the  Swiss  National 
Bank  from  Gennany  during  the  war  was  acquired 
in  good  faith,  the  issue  was  resolved  by  Switzer- 
land's undertaking  to  place  250,000,000  Swiss 
francs  (approximately  $58.14  million)  at  the  dis- 
posal of  the  three  Allied  Governments  payable 
on  demand  in  gold  in  New  York.  The  gold  re- 
ceived by  the  Allied  Governments  will  go  into  the 
gold  pool  established  by  the  Paris  Reparation 
Agreement  and  will  be  divided  in  accordance  with 
that  agreement  among  the  countries  from  whom 
gold  was  looted.  Therefore,  neither  the  United 
States  nor  the  United  Kingdom  will  share  in  the 
pool. 

In  reaching  this  agreement,  it  was  determined 
that  provision  would  be  made  for  indemnification 
in  Reichsmarks  of  German  owners  of  property 

'  Prepared  by  the  Division  of  Economic  Security  Con- 
trols, OflSce  of  Economic  Security  Policy,  Department  of 
State. 

'  See  this  issue,  p.  1121. 

1101 


1102 


DEPARTMENT  OF  STATE  BULLETIN 


liquidated  in  Switzerland.  Sucli  German  prop- 
erty would  not  include  looted  property,  since  the 
Government  of  Switzerland  had  long  prior  to  this 
understanding  offered  to  aid  in  restoring  such 
property  to  rightful  owners.  As  to  the  method 
of  compensation,  it  is  intended  to  establish  a  reg- 
ister in  Germany  which  will  record  the  names  of 
all  owners  of  liquidated  property.  They  will  re- 
ceive the  right  to  the  counter  value  of  their  prop- 
erty in  German  money.  The  rate  of  excliange  to 
be  calculated  will  be  uniform  for  these  cases.  The 
Swiss  portion  will  be  debited  from  the  Swiss  Gov- 
ernment's Clearing  Credit  in  Berlin;  but  it  is 
stipulated  that  no  precedent  for  recognition  of 
any  Swiss  claims  on  Germany  is  thereby  estab- 
lished. The  implementation  and  execution  of  this 
indemnification  arrangement  will  be  left  to  tlie 
Allied  Control  Authority  in  Germany. 

To  collaborate  with  tlie  Swiss  Compensation 
Office  in  the  exercise  of  its  investigating  and 
liquidating  functions,  a  Joint  Commission  com- 
posed of  repi'esentatives  of  the  four  governments 
party  to  the  understanding  is  to  be  established. 
The  Joint  Commission  will  suggest  inquiries  re- 
lating to  the  uncovering,  the  census,  and  the  liqui- 
dation of  German  property,  and  will  make  known 
to  the  Swiss  Compensation  Office  all  background 
information  or  documentary  evidence  available 
to  it.  Thus  material  gathered  by  Allied  investi- 
gators in  Germany  revealing,  for  example,  the 
cloaking  of  German  property  under  simulated 
ownership  can  be  forwarded  to  the  Joint  Com- 
mission in  Switzerland  and  brought  to  the  at- 
tention of  the  Swiss  Compensation  Office. 

Once  the  property  has  been  determmed  to  be 
subject  to  liquidation,  the  terms  and  conditions  of 
sale  will  be  settled  by  the  Swiss  Compensation 
Office  in  consultation  with  the  Joint  Commission. 
In  so  doing  it  will  be  necessary  to  take  into  account 
such  factors  as  the  national  interests  of  each  gov- 
ernment including  those  of  the  Swiss  economy,  as 
well  as  tlie  best  possible  price  and  the  intent  to 
favor  freedom  of  trade.  Purchases  will  be  per- 
mitted only  to  people  of  non-German  nationalit;y. 

Provision  is  made  in  the  Accord  for  the  deter- 
mination of  disagreements  arising  in  the  imple- 
mentation of  this  understanding.  A  preliminary 
administrative  review  of  such  disagreements  as 

'  Text  of  an  agreement  pertaining  to  reparation  funds 
for  noii-rppatriable  victims  of  German  action  will  lie 
printed  in  an  early  issue  of  the  Bulletin. 


may  arise  between  the  Swiss  Compensation  Office 
and  the  Joint  Commission  is  established  in  a  three- 
man  Swiss  Authority  of  Review  presided  over  by 
a  Swiss  judge.  If  this  Authority's  decision  is  dis- 
puted by  the  Joint  Commission,  the  three  Allied 
Governments  may,  M'ithin  one  month,  submit  the 
difference  to  arbitration. 

Arbitration  will  be  conducted  by  an  Arbitral 
Tribunal  composed  of  one  member  designated  by 
the  three  Allied  Governments,  one  member  desig- 
nated by  the  Swiss  Government,  and  a  third  mem- 
ber to  be  determined  by  all  the  four  Governments. 
It  is  intended  that  in  disputes  of  secondary  impor- 
tance the  question  can  be  submitted  to  the  third 
member  alone  who  will  then  sit  as  the  Arbitral 
Tribunal.  It  is  agreed  that  the  Arbitral  Tribunal's 
decision  shall  be  final. 

The  Swiss  Compensation  Office  and  the  Joint 
Commission  will  enter  upon  their  functions  as  soon 
as  possible  after  the  coming  into  force  of  the 
Accord.  But  before  the  "Accord  and  Annex"  can 
be  put  into  effect,  it  is  required  that  the  Swiss  Par- 
liament ratify  this  understanding.  It  is  now 
under  their  consideration. 

Because  of  the  immediate  and  special  circum- 
stances presently  prevailing  in  Europe,  the  Swiss 
Government  agreed  to  permit  the  Allies  to  with- 
draw immediately  up  to  50,000,000  Swiss  francs 
against  their  share  of  the  proceeds  of  liquidation. 
These  advances  will  be  devoted  to  the  non-repatri- 
able victims  of  German  action  and  will  be  used  for 
their  rehabilitation  and  resettlement.  The  Inter- 
governmental Committee  on  Refugees  will  be  in 
charge  of  the  money  so  obtained.^ 

Not  all  questions  on  the  original  agenda  of  the 
Washington  conference  were  finally  determined  in 
the  "Accord  and  Annex".  The  question  of  the 
disposition  of  German  official  assets,  including 
projDerty  of  the  Reichsbank  and  the  German  rail- 
roads in  Switzerland,  was  left  for  further  discus- 
sion. So  far  as  the  repatriation  of  Germans  from 
Switzerland  to  Germany  is  a  charge  on  these  assets, 
it  is  understood  that  the  official  assets  are  being 
debited  for  that  purpose.  It  is  not  expected,  how- 
ever, that  these  official  assets,  which  have  been 
estimated  in  the  neighborhood  of  $13,000,000,  will 
be  exhausted  by  i-ejaatriation  costs. 

Patents,  trademarks,  and  copyrights  of  German 
origin  in  Switzerland,  too,  were  not  subject  to  final 
(Continiird  on  page  1128) 


German  Documents:  Conferences  With  Axis  Leaders' 


Memorandum  of  the  Interview  Between  the  Reich  Foreign  Minister  and  the  Duce,  with 
Count  Ciano  Present,  at  the  Palazzo  Venezia  on  May  13, 1941 


Foreign  Minister's  Memorandum  31/41 

The  Keich  Foreign  Minister  first  conveyed  the 
greetings  of  tlie  Fiihrer  to  the  Duce.  He  wanted 
first  to  propose  to  the  Duce  a  time  for  the  meeting 
which  was  being  planned  and  whicli  he  would  like 
to  have  take  place  as  soon  as  possible.  The 
Brenner  Pass  seemed  to  him  probably  the  most 
appropriate  place  for  the  interview.  At  the  mo- 
ment, as  the  Duce  could  well  understand,  the 
Fiihrer  was  still  occupied  by  the  Hess  affair  and 
by  several  military  problems,  but  thereafter  he 
would  be  available  for  a  conference. 

The  Duce  replied  that  he  was  in  agreement  with 
all  of  the  proposals  of  the  Fiilirer  regarding  the 
place  and  date  of  this  conference.  He  was  pre- 
pared to  come  to  Germany,  to  travel  to  the  Bren- 
■  ner,  or  to  have  the  meeting  take  place  anywhere 
in  Italy. 

The  Eeich  Foreign  Minister  then  stated  that 
the  F'lihrer  had  sent  him  to  the  Duce  in  order  to 
inform  the  latter  about  the  Hess  incident  and  the 
conferences  with  Admiral  Darlan. 

With  regard  to  the  Hess  affair  he  declared  that 
the  Fiihrer  and  his  associates  had  been  astounded 
by  Hess'  undertaking.    It  was  the  act  of  a  lunatic. 

Hess  had  suffered  for  a  long  time  from  a  bilious 
trouble  and  had  fallen  into  the  hands  of  magnetic 
and  nature  healers,  who  permitted  his  condition 
to  continue  to  grow  worse.  All  these  matters  were 
being  investigated  at  the  moment,  also  the  re- 
sponsibility of  the  adjutant  who  had  known  of 
Hess'  forbidden  plane.  Hess  for  weeks  had  been 
taking  secret  practice  flights  in  a  ME-110.  He 
had  of  course  acted  from  idealistic  motives. 
Treachery  to  the  Fiihrer  was  out  of  the  question. 
His  proceedings  [which  clearly  bore  the  stamp  of 
infantilism]  -  were  to  be  explained  as  arising  from 


a  certain  unworldliness,  as  well  as  from  the  state 
of  mind  produced  by  his  illness. 

The  Keich  Foreign  Minister  continued  that  he 
may  well  have  been  convinced  that  England  faced 
disaster.  Only  the  English  could  not  bring  them- 
selves to  draw  the  necessary  conclusions  there- 
from. With  his  sympathies  for  England  he  had 
gotten  the  foolish  idea  of  pursuading  the  English 
to  give  in,  by  negotiations  with  Fascist  circles  in 
Great  Britain.  He  had  set  forth  all  this  in  a  long 
and  rambling  letter  to  the  Fiihrer.  When  this 
letter  reached  the  Fiihrer,  Hess  was  already  in 
England.  In  Germany  people  had  hoped  that 
perhaps  on  the  way  some  accident  would  happen 
to  him.  He  was,  however,  actually  in  England  and 
he  had  attempted  to  get  into  communication  with 
the  previous  Marquess  of  Clydesdale,  the  present 
Duke  of  Hamilton.  Entirely  incorrectly  he  con- 
sidered the  latter  as  a  great  friend  of  Germany  and 
he  had  flown  to  the  neighborhood  of  the  Duke's 
castle  in  Scotland.  Thus  at  the  risk  of  his  life  he 
had  carried  through  his  insane  plan.  [He  had 
already  for  some  time  impressed  the  Keich  Foreign 
Minister  as  being  out  of  balance  mentally.  Espe- 
cially at  the  recent  session  of  the  Reichstag,  during 
which  the  Keich  Foreign  Minister  had  sat  next 
to  him,  his  eyes  had  had  a  completely  abnormal 

'  These  are  translations  of  documents  on  Axis  con- 
ferences, secured  from  German  Government  files,  and 
are  among  the  German  official  papers  which  the  Bulletin 
is  currently  publishing. 

These  documents  have  been  selected  and  translated  by 
J.  S.  Beddie,  an  officer  in  the  Division  of  Research  and 
Publication,  Office  of  Public  Affairs,  Department  of  State. 

-  This  phrase  stricken  out  in  the  original. 

1103 


7704 


DEPARTMENT  OF  STATE  BULLETIIS 


look.]'  The  Fiilirer,  who  was  understandably 
deeply  affected  personally  by  the  incident,  took  a 
very  firm  stand  in  the  matter.  He  had  innnediately 
removed  Hess  from  his  offices  and  he  would  have 
liad  him  shot  if  he  had  returned  to  Germany.  The 
investigation  of  the  incident  was  proceeding  fur- 
ther, but  it  was  entirely  clear  that  Hess  had  not 
acted  out  of  treachery  to  the  Fiilirer. 

The  Duce  replied  that  he  also  had  the  impres- 
sion that  Hess  was  no  traitor.  From  the  political 
point  of  view  he  did  not  consider  the  consequences 
of  the  incident  as  serious.  He  could  not  imagine 
what  Hess  would  have  to  say  in  England.  Appar- 
ently his  first  words  when  he  was  discovered  were 
to  the  effect  that  he  had  always  had  great  sym- 
pathy for  England. 

Witliout  failing  to  recognize  that  psychologi- 
cally the  results  of  the  Hess  flight  were  not  unim- 
portant, yet  one  could  say  that  the  conduct  of 
the  war  and  the  morale  in  the  Axis  countries  would 
not  be  disturbed  thereby.  In  three  or  four  days 
the  whole  episode  would  have  been  generally 
passed  over.  The  question  arose  as  to  whether 
anyone  in  Germany  had  known  of  Hess'  attitude 
toward  E)igland  and  whether  Hess  liad  possibly 
the  idea  of  rescuing  England. 

The  Reich  Foreign  Minister  declared  in  that 
connection  that  Hess  in  Germany  had  had  a  fol- 
lowing principally  among  the  less  important  mem- 
bers of  the  Party,  but  that  every  German  was  now 
asking  himself  how  Hess  could  have  done  such  a 
thing.  [In  addition,  he  had  apparently  had  con- 
nections with  pacifist  circles.  Even  people  like 
Professor  Haushofer  by  their  intrigues  had  at- 
tracted him  more  and  more  into  their  following,  y 

The  Filhrer  would  first  wait  and  see  in  what 
way  the  episode  was  exploited  in  enemy  pi-opa- 
ganda.  Witli  sentiment  in  England  and  the  con- 
dition of  tlae  country  as  it  was,  Churchill  could,  of 
course,  make  no  propaganda  use  of  Hess'  peace 
ideas;  that  would  get  him  immediately  into  diffi- 
cidties  with  his  own  people.  Apparently  the 
English  would  rather  base  their  propaganda 
tactics  on  the  idea  that  the  whole  incident  was 
an  evidence  of  disunity  and  inner  dis.sension  and 
a  result  of  an  ostensibly  serious  situation  in  the 
Reicli  and  would  accordingly  allege  that  Germany 
would  now  soon  have  to  make  peace.  In  case  it 
became  necessary  the  Fiihrer  would  deliver  an 
energetic  counter-stroke  against  this  propaganda 

'  This  passage  stricken  out  in  tlie  original. 


and  possibly  even  summon  the  Reichstag  to  clear 
up  the  entire  incident  there. 

The  Duce  lepeated  his  calm  estimate  of  the 
incident  and  declared  that  it  seemed  best  to  him 
also  if  tlie  complete  truth  were  to  be  told  about 
the  whole  episode. 

Passing  to  the  conversations  with  Admiral 
Darlan,  the  Reich  Foreign  Minister  told  the  Duce 
that  two  subjects  were  gone  into  particularly — 

(1)  The  help  which  France  could  supply  in 
Syria  for  the  support  of  Iraq,  and 

(2)  The  assistance  which  she  could  give  in 
supplying  German-Italian  forces  in  North 
Africa. 

Darlan  had  agreed  to  deliver  to  Iraq  certain 
(juantities  of  weapons  and  war  materials  from  the 
supplies  in  storage  under  Italian  control  in  Syria. 
These  weapons  were  in  part  already  en  route  to 
Iraq.  Minister  Rahn  and  a  French  official  had 
flown  to  Syria  and  had  presented  to  General 
Dentz,  the  French  Commissioner  there,  an  au- 
thorization of  the  Vichy  Government  according  to 
wliich  he  was  to  fulfil  all  of  the  requests  made  by 
the  two  envoys  for  deliveries  or  other  assistance. 

Additionally  Darlan  had  made  landing  fields 
and  fuel  suj^plies  available  for  German  planes. 

At  the  same  time  Ambassador  von  Papen  had 
been  summoned  to  Germany  and  had  received  (as 
tlic  Reich  Foreign  Minister  could  inform  the  Duce 
confidentially)  the  commission  to  attempt  to  ob- 
tain from  the  Turks  jDermission  for  surreptitious 
transit  traffic  in  arms  for  Iraq  across  Turkish 
territory. 

Darlan,  to  judge  from  the  impression  he  gave, 
would  certainly  do  everything  he  could  to  assist 
the  Axis.  Though  one  could,  of  course,  not  be 
certain  about  his  inmost  feelings,  he  definitely 
ai)peared  to  be  an  enemy  of  the  English.  If 
transportation  of  arms  to  Iraq  in  large  quantities 
could  be  successfully  carried  out,  airborne  troops 
could  be  employed  in  tliose  areas,  who,  equipped 
with  the  supplies  brought  up  in  advance,  could 
operate  against  the  English  and  under  certain  cir- 
cumstances might  be  able  to  attack  Egypt  from 
the  east. 

The  Duce  amplified  his  standpoint  on  the  Iraq 
question : 

(1)  Iraq  nuits  be  helped  at  all  events,  since 
thus  a  new  front  would  be  pstal)lished  against 
the  English  and  the  sympathy  would  be  aroused 
not  only  of  the  Arabs,  but  also  of  the  majority 


JUr^E  30,  1946 


1105 


of  Mohammedans.  The  Grand  Mufti  had  ah-eady 
summoned  the  Arabs  of  the  world  to  a  holy  war 
against  the  English.  To  an  interpellation  of  the 
Reich  Foreign  Minister,  the  Duce  declared  that 
he  considered  this  action  of  considerable  im- 
portance. 

(2)  It  was  necessary  to  get  control  of  Crete  and 
Cyprus  (the  gateway  to  Syria).  If,  then,  per- 
mission liad  been  obtained  from  the  French  for 
landing  of  troops  and  planes  in  Syria,  the  as- 
sistance of  the  Axis  powers  to  Iraq  could  be  of 
very  considerable  proportions.  The  Italians  had 
already  prepared  five  airplanes  with  arms,  which 
would  travel  by  way  of  Rhodes  to  Baghdad  to 
transport  thence  400  machine-guns  and  20  anti- 
tank guns.  Also  12  fighter  planes  were  ready  to 
take  part. 

If  transport  of  arms  through  Turkey  was  im- 
possible, the  attack  on  England  would  have  to  be 
made  from  Syria.  The  great  advantage  therein 
lay  in  there  being  only  a  100-kilometer  stretch  of 
desert  to  be  covered  in  an  attack  on  Egypt  from 
Syria,  against  500  kilometers  of  desert  in  an  at- 
tack on  Egypt  from  the  west. 

To  an  interpellation  from  the  Reich  Foi'eign 
Minister  as  to  how  long  Iraq  could  hold  out 
against  the  English,  the  Duce  replied  that  the 
head  of  the  Iraq  Government  had  declared  that 
he  could  withstand  the  English  if  only  he  re- 
ceived some  war  material.  If  he  received  no  sup- 
port, resistance  in  the  Duce's  opinion  would  be 
broken  in  a  period  of  three  to  four  weeks.  Be- 
sides, it  was  a  question  with  him  whether  the 
GauUist  movement  in  Syria  would  not  place  diffi- 
culties in  the  way  of  France's  providing  aid.  The 
Reich  Foreign  Minister  replied  that  Darlan  was 
apparently  of  the  opinion  that  he  could  arrange 
things  in  Syria  as  was  planned. 

On  the  subject  of  Tunis  the  Reich  Foreign  Min- 
ister reported  on  the  liiirchase  of  motor  transports 
and  the  recent  arrangement  that  these  vehicles 
could  be  dispatched  with  loads  to  Tripolitania. 
Darlan  had  agreed  that  he  would  provide  an  Al- 
gerian port,  Bone  (since  these  things  could  be  car- 
ried out  more  easily  in  Algeria  than  in  Tunis) ,  for 
the  unloading  of  material  brought  up  by  sea.  The 
Reich  Foreign  IVIiiiister  mentioned  also  in  this 
connection  that  Darlan  had  told  him  that  it  seemed 
desirable  to  him  for  reasons  of  internal  policy 
that  the  motor  transports  should  be  sold  only  to 
Germany.  If  Italy  wanted  to  secure  that  type 
of  vehicle  from  the  French,  he  proposed  that  the 


sale  be  made  to  Germany  first  and  that  then  the 
trucks  be  given  by  Germany  to  Italy.  To  this  pro- 
cedure the  Duce  and  Count  Ciano  agreed. 

To  the  Duce's  question  of  what  Germany  had 
promised  France  in  compensation  for  these  con- 
cessions the  Reich  Foreign  Minister  mentioned  a 
reduction  of  15,000,000  to  20,000,000  in  occupa- 
tion costs,  which,  it  was  true,  had  not  yet  been 
finally  determined,  as  well  as  certain  relaxations 
in  respect  to  the  demarcation  line  and  the  rearma- 
ment of  torpedo  boats. 

The  Fiilirer  had  established  the  basic  principle 
that  France  could  be  granted  concessions  to  the 
degree  that  she  furnished  assistance  to  the  Axis 
in  the  war  against  England. 

To  the  Duce's  question  of  whether  concessions 
would  be  made  regarding  the  French  prisoners  of 
war  the  Reich  Foreign  Minister  replied  in  the 
negative  and  stated  that  the  Fiihrer  had  reminded 
Darlan  at  the  outset  how  the  German  war  prison- 
ers had  only  been  released  in  the  year  1920,  when 
the  World  War  had  been  over  for  a  long  time. 

The  Reich  Foreign  Minister  then  stated  that 
he  had  told  Darlan  that  if  France  now  provided 
assistance  for  the  conduct  of  the  war  against  Eng- 
land such  an  attitude  would  be  taken  into  consid- 
eration when  peace  was  concluded.  In  addition 
he  had  emphasized  to  Darlan  the  necessity  that 
France  should  now  make  a  choice  and  place  her- 
self whole-heartedly  on  the  side  of  the  Axis  system. 

Germany  had  certain  requirements  regarding 
naval  bases  in  Morocco  for  supplying  submarines 
and  surface  craft.  If  France  agreed,  the  arming 
of  several  destroyers,  which  she  had  requested  for 
a  long  time,  could  be  conceded.  Beyond  that,  on 
the  part  of  Germany,  large-scale  assistance  from 
France  was  not  expected,  or  even  possible  naval 
assistance  from  the  French  fleet. 

It  had  been  made  clear  to  Darlan  that  for  the 
future  the  Axis  powers  would  be  the  decisive 
power  center  of  Europe  and  that  France  would 
have  to  adjust  herself  accordingly.  Also  it  had 
been  mentioned  that  France  would  naturally  have 
to  count  on  having  to  make  concessions  in  the 
Mediterranean  area  in  the  peace  treaty.  The  Ital- 
ian claims  were  already  known  to  her.  She  might, 
however,  receive  compensations  for  these  cessions 
elsewhere,  at  the  expense  of  England,  e.  g.,  in 
Africa. 

In  a  confidential  interview,  after  the  Reich  For- 
eign Minister  had  explained  to  him  the  three  pos- 
sibilities confronting  France,  Darlan  had  stated 


1106 


DEPARTMENT  OF  STATE  BULLETIN 


to  the  Reich  Foreign  Minister  that  under  any  cir- 
cumstances he  wished  to  aid  the  Axis  powers 
against  England.  There  was  the  possibility  that 
France  might  work  against  Germany.  In  that 
case  she  would  be  destroyed.  Or  she  might  adopt 
an  attitude  of  reserve,  which  would  also  result  to 
her  disadvantage.  Lastly,  she  miglit  give  clear 
proof  of  her  will  to  collaborate  with  the  Axis, 
whereupon  she  would  take  an  honorable  place 
among  the  peoples  of  Europe. 

The  Duce  replied  that  there  were  two  camps  in 
J'rance,  those  who  wanted  to  wait  and  those  who 
came  out  for  collaboration.  When  the  war  in 
Yugoslavia  began  people  in  France  had  hoped 
that  it  would  turn  out  unfavorably  for  the  Axis. 
The  attitude  of  the  French  politicians  had  been 
hesitant.  Regarding  the  state  of  public  opinion, 
it  was  significant  that  in  those  days  the  memorial 
to  King  Alexander  of  Yugoslavia  in  France  had 
been  bedecked  with  ilowers  by  the  public.  How- 
ever, as  tlie  French  saw  how  speedily  the  Germans 
were  victorious  in  the  Balkans,  they  had  im- 
mediatel}'  switched  back  to  collaboration.  Even 
in  Vichy  most  people  belonged  to  the  camp  of 
those  who  wished  to  await  developments.  Count 
Ciano  added  here  that  the  only  difference  between 
Vichy  and  Paris  was  that  in  Paris  people  said, 
"Let  us  hope  the  English  win",  while  in  Vichy 
they  said,  "Let  us  hope  the  English  swine  win". 
The  Reich  Foreign  Minister  remarked  that  nat- 
urally there  were  still  Chauvinists  in  France  who 
must  be  eliminated  as  a  continuing  source  of 
danger.  Petain,  in  his  opinion,  was  an  old  fox, 
who  suffered  loss  of  memory  at  just  such  moments 
as  suited  him  best.  A  few  days  ago  in  connection 
with  the  invitation  of  Admiral  Darlan  to  the 
Berghof,  he  had  written  a  letter  to  the  Fiihrer, 
which  contained  nothing  of  consequence,  but 
whicli  indicated  that  it  was  now  becoming  gener- 
ally cleai-er  in  France  that  the  war  had  been  finally 
lost.  The  Fiihrer  held  the  view  that  at  all  events 
the  final  victory  against  England  must  be  at- 
tained. To  this  end  he  desired  that  a  maximum  of 
concessions  be  granted  to  F'rance,  without  pledg- 
ing himself  definitively  in  any  way.  The  French 
question  was  being  handled  on  that  principle  and 
it  would  now  be  seen  how  far  Darlan  was  willing 
to  go  on  that  path.  As  had  been  noted  already, 
however,  concessions  would  be  only  granted  item 
for  item  in  return  for  assistance  in  the  fight 
against  England.     Whether  France  would  take 


part  to  a  large  extent  in  the  struggle  against 
England  remained  inidetei-mined. 

In  that  connection  the  Duce  remarked  that 
France  could  perform  many  small  but  very  im- 
portant services  for  the  Axis.  He  emphasized  in 
this  relation  that  France  always  aiDproached  the 
Axis  more  closel^y  when  the  Axis  was  victorious. 
When  things  were  not  going  right,  however,  she 
exchanged  loving  glances  with  England  and  the 
LTnited  States.  Special  attention  shoiild  be  given 
to  the  latter  in  this  connection.  The  Reich  For- 
eign Minister  agreed  and  remarked  that  if 
France  could  somehow  be  aligned  in  the  Axis  or- 
ganization, it  would  make  a  deep  impression  on 
the  United  States. 

The  Duce  agreed  with  this  idea,  alluding  to  the 
policy  exjDressed  by  the  Fiihrer  of  uniting  all 
EuroiDe  against  England.  Onlj'  Russia  and  Spain 
were  missing  from  this  united  front.  Serrano 
Suner  had,  it  was  true,  declared  that  Spain  would 
enter  the  war  after  this  year's  harvest.  This 
seemed  to  him,  however,  highly  doubtful.  The 
Reich  Foreign  Minister  remarked  that  unfor- 
tunately, at  the  beginning  of  this  year.  Franco  had 
left  the  Axis  in  the  lurch.  He  would  have  to  say 
that  to  his  great  regret.  If  Franco  had  come 
along  at  that  time,  Gibraltar  would  by  now  have 
been  seized  from  the  English  and  the  Spanish 
people  would  likely  have  had  much  more  to  eat 
tlian  now,  when  nothing  could  be  gotten  by  way 
of  alms  from  England  and  America. 

The  Duce  resumed  his  remarks  on  the  subject 
of  the  united  front  of  Europe  against  England 
and  the  two  nations  missing  therefrom,  Spain  and 
Russia,  by  again  declaring  that  it  seemed  to  him 
to  be  advantageous  if  a  policy  of  collaboration 
with  Russia  could  be  carried  out.  He  asked  the 
Reich  Foreign  Minister  whether  Germany  con- 
sidered such  a  policy,  i.  e.,  collaboration  with 
Russia,  as  impossible.  The  Reich  Foreign  Min- 
ister replied  that  Germany  had  treaties  with 
Russia  and  that  aside  from  that  the  relations  be- 
tween the  two  countries  were  correct.  He  per- 
sonally did  not  believe  tliat  Stalin  would  under- 
tfdie  anything  against  Germany.  If  he  did,  or  if 
he  pursued  a  policy  which  Germany  could  not 
tolerate,  he  would  be  destroyed  within  three 
months.  The  Duce  agreed  to  this.  The  Reich 
Foreign  Minister  continued  that  the  Fiihrer 
would  certainly  not  seek  a  quarrel ;  he  had,  how- 
ever, made  preparations  for  all  eventualities.  He 
had  come  to  no  final  decisions,  but  he  had  become 


JUNE  30,  19-16 


1107 


distrustful  on  account  of  certain  happenings  and 
obscurities  on  tlie  Russian  side.  Thus,  for  exam- 
ple, the  Russians  had  strengthened  their  troops  on 
their  western  boundary,  which  naturally  had  im- 
pelled Germany  on  her  part  to  increase  the 
numbers  of  her  troops,  only,  however^  after  Russia 
had  made  a  beginning. 

Russia  would  certainly  never  be  a  problem 
which  could  influence  the  final  victory  over  Eng- 
land. Russia  could  never  prevent  Germany  from 
achieving  this,  for  Germany  had  so  many  troops 
available  that  she  was  prepared  to  cope  immedi- 
ately with  all  eventualities. 

The  Duce  inquired  whether  Germany  did  not 
receive  raw  materials  from  Russia,  whereupon 
the  Reich  Foreign  Minister  quoted  figures  of 
1,000,000  tons  of  oil  and  1,500,000  tons  of  grain 
and  added  that  these  deliveries  were  coming  in 
comparatively  well. 

In  the  further  course  of  the  conversation  the 
subject  of  Japan  was  touched  on  and  especially 
the  Japanese-American  exchange  of  views.  The 
Reich  Foreign  Minister  stated  that  the  principle 
that  Japan  shai-ed  a  common  destiny  with  Ger- 
many and  Italy  had  been  so  clearly  understood  by 
the  Japanese  that  he  did  not  think  that  Japan 
would  pursue  a  policy  that  would  not  in  the  end 
align  itself  once  more  with  the  policy  x^ursued 
by  Germany  and  Italy.  The  Reich  Foreign  Min- 
ister referred  in  this  connection  to  the  remark  of 
Matsuoka  that  he  was  frequently  forced  as  a  re- 
sult of  internal  politics  into  maneuvering  and 
perhaps  into  doing  some  things  which  miglit  not 
be  readily  understood  in  Germany.  He  trusted 
Matsuoka,  though  he  could  not,  of  cour.se,  see 
what  was  in  his  heart.  He  was  not  pleased  that 
the  conversations  with  President  Roosevelt  were 
carried  on  by  Admiral  Nomura,  for  Nomura  was 
inclined  at  heart  toward  the  Anglo-Saxons. 
Matsuoka  had  first  put  the  following  further  in- 
quiries: (1)  whether  the  United  States  were  will- 
ing to  enter  into  an  undertaking  not  to  enter  the 
European  conflict;  (2)  what  was  the  attitude  of 
the  United  States  on  the  problem  of  the  Philip- 
pines. If,  contrary  to  expectations,  Japanese  pol- 
icy followed  a  course  contrary  to  the  spirit  of 
the  Three  Power  Pact,  general  opposition  on  a 
large  scale  would  certainly  arise  in  Japan  and 
Ambassador  Oshima  would  probably  become  the 
soul  of  a  real  revolution.  These  matters  must  b? 
handled  carefully  so  as  to  avoid  causing  Matsuoka 
unnecessary  difficulties. 


The  whole  affair  showed  that  Roosevelt  was  be- 
ginning to  become  alarmed,  probably  because  he 
was  gradually  realizing  that  in  case  of  warlike  com- 
plications he  could  accomplish  nothing  because  of 
America's  bad  armament  position  and  therefore 
wished  to  keep  his  back  free. 

The  Duce  remarked  that  it  would  certainly  be 
advantageous  for  Germany  and  Italy  if  Matsuoka 
in  this  way  kept  the  United  States  from  entry  into 
the  war.  On  the  other  hand  the  basis  for  his  course 
could  also  be  the  desire  of  Japan  herself  to  remain 
out  of  the  war. 

The  Reich  Foreign  Minister  remai-ked  that  if  a 
strong  attitude  were  adopted  and  the  declaration 
made  that  American  protective  convoys  meant  war, 
the  Americans  would  probably  hesitate,  for  Amer- 
ican rearmament  was  the  biggest  bluff  in  the 
world's  history. 

The  Duce  referred  in  this  connection  to  the 
division  which  had  arisen  in  the  United  States 
and  cited  the  speeches  of  Hoover  and  Lindbergh 
as  those  of  the  most  prominent  opponents  of  the 
Roosevelt  policy.  On  the  other  hand,  however, 
were  the  Jews,  and  their  propaganda  was  so  strong 
that  they  had  gotten  the  whole  of  America  under 
their  influence.  However,  if  a  struggle  arose  in  a 
country  between  a  war  party  and  a  peace  party, 
the  war  party  generally  won,  since  war  was  closer 
to  the  souls  of  men  than  peace. 

The  Reich  Foreign  Minister  replied  that  the 
same  naturally  held  good  for  Japan  and  he  ex- 
pressed the  conviction  that  Japan  sooner  or  later 
would  enter  the  war  on  the  side  of  the  Axis  powers, 
in  order  to  seize  the  best  opportunities  open  to  her. 
He  was  absolutely  sure  that  Japan  would  honor 
her  treaty  obligations. 

In  conclusion  the  Duce  came  to  the  subject  of 
Turkey,  which  he  described  as  Germany's  and 
Italy's  best  card.  He  asked  the  Reich  Foreign 
Minister  whether  he  believed  that  Turkey  would 
go  along  with  Germany  and  Italy. 

The  Reich  Foreign  Minister  replied  that  on 
Germany's  part  attempts  had  already  been  made  to 
influence  Turkey  in  that  direction.  The  predis- 
posing factors  were  favorable,  in  that  Turkey  had 
no  interest  in  allowing  larger  massing  of  English 
troops  in  Iraq,  so  that  Germany  had  hopes  of  being 
able  to  bring  the  Turks  over  to  her  side.  A  certain 
improvement  in  the  attitude  of  the  Turkish  press 
could  ahead}'  bs  observed. 

{Contiiinnl  on  pane  112Ji) 


1108 


DEPARTMENT  OF  STATE  BULLETIN 


Danubian  Transportation  Problems  in  Relation  to 

Development  of  the  Basin 

Article  bv  DORIS  S.  WHITNACK  and  DAVID  HANDLER ' 


ALTHOUGH  the  Danube  is  one  of  the  world's 
longest  navigable  rivers,  draining  f)art  of 
seven  populous  countries,"  it  has  never  carried  a 
large  vohane  of  traffic,  either  in  relation  to  other 
rivers  and  canals  in  Europe  or  in  relation  to  its 
capacity.  Failui-e  of  riparians  to  develop  and 
utilize  the  actual  and  potential  economic  advant- 
ages of  the  river  as  a  cheap  artery  of  commerce  has 
had  serious  repercussions  on  a  large  region  of 
southeastern  Europe,  whose  low  income  can  be 
traced  in  a  significant  part  to  its  lack  of  adequate 
and  efficient  low-cost  transportation.  With  the 
exception  of  Rumanian  petroleum,  the  bulk  of  the 
area's  trade  consists  of  agricultural,  mineral,  and 
forest  products  which  must  be  transported 
cheaply  if  they  are  to  move  at  all  over  any  distance. 
The  selling  price  of  such  raw  materials  in  relation 
to  their  weight  and  bulk  is  not  sufficient  to  sup- 
port high  transport  charges,  hence  the  extent  of 
the  market  is  limited  by  the  rate  level.  Since  river 
transport  is  cheaper  than  other  forms  of  inland 
transport,  the  improvement  of  navigation  facili- 

'  Mrs.  Whitnack  is  head  and  Mr.  Handler  is  a  member 
of  the  Transiiortatioii  and  ronuuunication  Section  in  the 
Division  of  International  and  Functional  Intelligence, 
OfHce  of  Intelligence  Coordination  and  Liaison.  Depart- 
ment of  State. 

'  On  the  basis  of  jjre-war  bonndaries. 

'  In  addition  to  these  bodies  there  was  a  special  sub- 
coniinissidu  for  the  Iron  (Jates  and  The  Middle  Danube 
Technical  Hydraulic  ('ommission.  The  functions  of  the 
latter  were  not  directly  cdiicerned  with  navigation. 


ties  and  the  development  of  Danube  shipping 
would  constitute  a  major  facilitating  factor  in  the 
economic  rehabilitation  of  southeastern  Europe. 
By  making  possible  an  expansion  of  trade  and  the 
development  of  a  shipping  industry,  riparian 
states  could  realize  increases  in  national  produc- 
tion, employment,  and  income  which  might  then 
be  available  for  increasing  the  purchasing  power 
and  standard  of  living  of  the  people  and  woidd 
also  provide  domestic  sources  of  investment  capital 
for  industrial  development.  Should  the  power 
resources  of  the  area  be  exploited  and  industriali- 
zation i^romoted,  the  availability  of  inexpensive 
water  transportation  and  its  coordination  with 
other  forms  of  inland  carriers  would  be  an  invalu- 
able asset  for  economic  improvement  of  the  whole 
basin  particularly  in  the  develoijmental  stages  of 
industrialization. 

Prior  to  the  war,  regulation  and  improvement  of 
Danube  transportation  was  primarily  the  respon- 
sibility of  two  commissions,  the  International 
Danube  Connnission  and  the  European  Commis- 
sion of  the  Danube.^  These  commissions  had  at- 
tained a  considerable  measure  of  success  in  secur- 
ing freedom  of  transit,  prohibition  of  excessive 
and  discriminatory  charges  for  river  and  port 
facilities,  simplification  of  customs  formalities, 
improvement  of  navigability  in  the  Iron  Gates 
sector  and  the  Sulina  channel,  unification  of  traffic 
rules  and  regulations,  etc.  The  river  is  at  present 
controlled   bv   militarv   authorities   in   both   the 


JUNE  30,  1946 


1109 


American  zone  in  Germany  and  Austria  and  the 
Soviet  zone  downstream,  but  when  occupation  and 
military  control  is  ended,  it  will  be  desirable  that 
any  future  civilian  commission  maintain  accom- 
plishments which  were  achieved  only  with  con- 
siderable difficulty  over  a  great  number  of  years. 

Although  much  was  accomplished  prior  to  the 
war,  the  nationalism  of  the  Danubian  states  and 
lack  of  necessary  funds  made  it  difficult  for  the 
commissions  to  overcome  a  number  of  the  most 
serious  obstacles  to  maximum  utilization  of  the 
river.  Technical  and  theoretical  freedom  of  navi- 
gation and  transit  benefited  the  river  basin  very 
little  as  long  as  riparians  wei'e  either  unwilling  or 
unable  to  provide  the  works  necessary  to  make 
possible  safe,  efficient,  and  low-cost  vessel  opera- 
tion and  as  long  as  they  continued  to  impose  eco- 
nomic measures  designed  to  divert  traffic  from  the 
river  and  to  protect  high-cost  domestic  water 
carriers. 

Without  numerous  technical  worlis,  the  cost  of 
transportation  on  the  Danube  cannot  be  reduced 
to  the  low  levels  which  would  provide  a  great 
stimulus  to  trade  witliin  the  region  and  even  with 
other  parts  of  the  world.  Constant  or  overhead 
costs  ai-e  ordinarily  a  substantial  part  of  total  cost 
of  conducting  water  operations.  Since  hazards 
forced  layover  of  vessels  for  one-half  to  one-third 
of  the  year,  it  follows  that  unit  operating  costs 
were  necessarily  high.  In  the  upper  course  of  the 
river  fi'om  Gonyii  to  Ratisbon,  night  navigation 
was  possible  only  in  the  upstream  direction,  and 
in  the  Iron  Gates  sector  there  was  no  night  naviga- 
tion at  all.  These  conditions  also  added  to  cost 
and  lengthened  transit  time,  which  under  the  best 
conditions  is  relatively  greater  on  waterways  than 
on  railways  and  often  makes  water  service  less 
desirable  to  shippers.  The  need  for  engineering 
works  has  of  course  been  increased  by  neglect  and 
damage  during  the  war. 

Tlie  volume  of  the  Danube  changed  in  diti'erent 
seasons,  but  there  was  enough  water  at  all  times 
to  provide  adequate  levels  for  ordinary  river  ves- 
sels if  the  proper  engineering  woi'ks  had  been  un- 
dertaken. Reefs  and  silt  reduced  depth  and 
delayed  large  barges  or  prevented  full  loading 
in  seasons  of  low  water,  and  in  some  sectors  the 
lack  of  a  fixed  channel  without  a  relatively  con- 
stant depth  necessitated  pilotage  or  a  good  system 
of  shore  and  channel  markers  and  lights.  In  the 
future  the  elimination  of  navigation  hazards  bv 


the  institution  of  engineering  works,  such  as  dams 
and  locks  and  regular  dredging  programs,  would 
reduce  costs  by  decreasing  transit  time,  eliminat- 
ing pilotage,  permitting  greater  pay  loads,  and 
lessening  the  risk  of  damaging  or  losing  vessels — 
which  in  turn  would  lower  insurance  rates  and 
might  enable  operators  to  use  smaller  crews. 

Port  and  bunkering  facilities  and  winter  shel- 
ters were  inadequate  even  before  the  war.  Load- 
ing and  unloading  devices  were  few  in  number 
and  general]}'  antiquated.  Lack  of  wharfage  and 
warehousing  facilities  prevented  maximum  smooth 
flow  of  trade  and  impaired  the  coordination  of 
rail  and  river  transport.  When  both  vessels  and 
cars  were  relatively  scarce,  it  should  not  have  been 
necessary  to  use  any  of  them  for  storage  pur- 
poses. It  is  evident  that  unless  piers,  wharves, 
or  docks  are  adequate  in  number  and  conveniently 
located,  shippers  sometimes  find  water  transport 
inappropriate  for  their  needs.  Insufficient  bunk- 
ering facilities  necessitated  the  reduction  of  pay- 
load  to  accommodate  large  quantities  of  fuel,  lead- 
ing to  an  obvious  reduction  of  revenue  and  in- 
crease in  unit  costs.  Winter  havens  were  also 
scarce,  and  a  great  portion  of  those  in  existence 
were  not  open  to  public  use.  Therefore,  naviga- 
tion was  very  hazardous  and  generally  restricted 
during  the  months  when  floating  ice  and  swift 
currents  were  prevalent.*  This  risk  also  resulted 
in  service  curtailment  which  would  not  have  been 
necessary  had  there  been  sufficient  winter  havens 
located  at  frequent  intervals  along  the  way  and 
had  these  been  made  available  to  all  vessels.  Be- 
cause facilities  of  the  types  mentioned  above  were 
scarce  and  generally  provided  by  operators  for 
their  own  use,  only  large  or  nationally  subsidized 
companies  with  substantial  capital  were  able  to 
enter  the  field.  This  condition  restricted  entry  of 
small  operators  ^  and  contributed  to  the  formation 
of  large  combines  whose  monopolistic  power  was  a 
threat  to  consumer  interests  because  there  were 
inadequate  regulatory  safeguards. 

The  hazards  imposed  by  the  dangerous  reefs 
and  swift  current  of  the  Iron  Gates  were  never 

'  The  icing  period  varied  for  different  sections  of  the 
river  and  was  of  course  longer  in  some  years  than  in 
others.  In  general,  however,  icing  has  disturbed  the  main 
flow  of  traffic  from  December  to  March. 

''There  were  a  number  of  small-scale  Greek  companies 
on  the  Danube,  but  their  operations  were  confined  pri- 
marily to  the  lower  section  of  the  river. 


1110 


DEPARTMENT  OF  STATE  BULLETIN 


adquately  overcome.  Long  delays  were  common, 
and  there  was  no  night  navigation  in  some  sec- 
tors. Locomotive  haulage  was  necessary  for  up- 
stream traffic,  but  even  with  this  assistance,  barge 
trains  had  to  be  broken  up  and  then  reassembled 
above  the  rapids.  These  conditions  also  operated 
to  increase  costs  substantially,  and  in  the  event  of 
increased  traffic  during  peak  seasons,  the  Gates 
sometimes  proved  a  serious  bottleneck. 

If  the  aforementioned  pre-war  difficulties  and 
the  further  problems  arising  as  a  result  of  the  war 
are  to  be  overcome  and  lower-cost  river  transport 
made  possible,  a  number  of  serious  stumbling- 
blocks  must  be  removed.  Probably  the  most  se- 
rious problems  were  connected  with  the  traditional 
reluctance  or  financial  inability  of  riparians  to 
cooperate  in  the  execution  of  an  international  plan 
for  i^ort  and  river  works.  Aside  from  differences 
of  opinion  on  the  desirability  of  particular  proj- 
ects, many  states  lacked  the  funds  required  for 
improvements  and  considered  that  their  sover- 
eignty would  be  jeopardized  if  another  state  con- 
structed the  works.  Private  capital,  which  might 
have  been  attracted  to  port  development,  was 
either  excluded  or  discouraged  by  the  refusal 
of  riparian  states  to  grant  adequate  guaranties 
of  undisputed  possession.  Another  major  prob- 
lem affecting  transportation-works  programs  arose 
from  the  necessity  for  coordinating  such  programs 
with  the  needs  of  other  river  interests  such  as 
power,  irrigation,  and  flood  control. 

In  addition  to  technical  physical  factors  which 
imjDeded  navigation  and  raised  operating  costs, 
numerous  economic  factors  militated  against  full 
utilization  of  the  river.  Development  and  regula- 
tion of  the  Danube  has  been  in  the  past,  and  will 
probably  continue  to  be,  a  regional  rather  than  a 
national  problem  and  should  be  treated  as  such 
if  any  measui'e  of  success  is  to  be  obtained.  Ri- 
parians have,  however,  imposed  economic  and 
political  measures  in  order  to  maximize  their  indi- 
vidual benefit  from  their  portion  of  the  river. 
These  measures  have  hampered  the  development 
of  the  Basin  as  a  whole  and  in  the  long  run  have 
reacted  to  the  detriment  of  the  individual  states. 

A  number  of  the  Danubian  states  took  steps  to 
foster  and  protect  their  national  shipping  indus- 
tries through  subsidies  and  restriction  of  foreign 
entry  into  the  cabotage  trade.  The  resulting  or- 
ganization of  shipping  companies  on  the  river 
produced  high-cost  operations  because  there  were 


neither  the  economies  of  regulated  integrated 
large-scale  operation  nor  the  advantages  of  free 
competition  which  could  result  in  the  elimination 
of  inefficient  and  high-price  transportation.  These 
operating  conditions  coupled  with  physical  diffi- 
culties mentioned  above  almost  precluded  profit- 
able small-scale  operation,  with  the  result  that  in 
the  decade  before  the  war,  Danube  shipping  was 
dominated,  by  several  large  cartels.  Although 
rational  application  of  geography  and  economics 
suggests  numerous  advantages  for  monopoly  on  a 
regional  basis,  some  form  of  regulation  in  the 
economic  sphere  might  be  desirable  for  the  pro- 
tection of  the  interests  of  shippers  and  individual 
states. 

To  carry  a  large  volume  of  traffic  a  river  must 
have  a  coordinated  feeder  system  of  roads  and  rail- 
roads. Railroads,  however,  were  more  often  dis- 
posed to  transfer  traffic  to  other  railroads  and  to 
compete  with  the  waterway  than  to  cooperate  in 
the  coordination  and  rationalization  of  the  trans- 
port system.  Rail-Danube  rates  and  through  bills 
of  lading  wei'e  not  provided  on  enough  routes  to 
facilitate,  expedite,  and  promote  the  interchange 
of  traffic  between  rail  and  water  carriers.  Many 
rail  tariffs  quoted  rates  designed  to  draw  traffic 
from  tiie  river  in  order  to  lengthen  the  haul  on 
nationally  owned  railroads,  thereby  increasing 
government  revenues.  Rebates  or  low  rates  were 
offered  in  Hungary  to  shippers  who  used  rail 
transport  exclusively.  Political  considerations  in 
several  cases  dictated  the  establishment  of  special 
low  rates  favoring  routes  competitive  with  the 
Danube,  for  example,  the  special  rail  rates  designed 
to  induce  the  movement  of  Czechoslovakian  foreign 
traffic  by  rail  to  the  port  of  Trieste,  and  German 
rates  designed  to  move  traffic  out  of  Hamburg  or 
Bremen  rather  than  down  the  Danube. 

Past  experience  indicates  that  the  practice  of 
using  rates  as  an  instrument  of  national  policy 
should  be  carefully  examined  in  each  instance  to 
determine  whether  the  use  of  uneconomical  trans- 
portation is  compensated  by  other  considerations 
such  as  national  welfare  and  at  the  same  time  is 
not  inimical  to  the  intei'ests  of  the  region  as  a 
whole.  Before  the  transportation  system  of  the 
Danube  Basin  can  perform  efficiently  and  make 
its  maximum  contribution  to  the  region,  rail,  road, 
and  river  services  must  be  coordinated  in  such  a 
way  that  the  distinctive  inherent  advantages  of 
each  are  preserved. 


International  Organizations  and  Conferences 


Calendar  of  Meetings 

Wasliington 


Far  Eastern  Commission  _ 

Council  of  Foreign  Ministers: 

Meeting  of  Foreign  Ministers  Paris 

Meeting  of  Deputies  Paris 

Allied-Swedish  Negotiations  for  German  Exter- 
nal Assets  Washington 

Inter-American  Conference  of  Experts  on  Copy- 
right Washington 

ILO:  28th   (Maritime)    Session  of  the  Interna- 
tional Labor  Conference  Seattle 

Proposed  International  Emergency  Food  Council    Washington 

U.  S.-Mexican  Discussions  on  Air  Services  Agree- 
ment Mexico  City 

Conference  on  German-Owned  Patents  Outside 

Germany  London 

The  United  Nations : 

Secui-ity  Council         '  New  York 

Military  Staff  Committee  New  York 

Sjjecial  Committee  on  Refugees  and  Displaced 

Persons  .  London 

Economic  and  Social  Council  New  York 

Commission  on  Atomic  Energy  New  York 

International  Health  Conference  New  York 

General  Assembly :  Second  Part  of  First  Session    New  York 


February  26 

June  15 

May  27 — temporarilj'  adjourned 

May  31 

June  1 

June  6-29 
June  20 

June  24 

July  10 

March.  25 
March  25 

April  8-June  1 
May  25 
June  14 
June  19 
September  3 


The  dates  in  the  calendar  are  as  of  June  23. 


Activities  and  Developments 


Far  Eastern  Commission 

Interim     Reparations     Removals  :     Privately 
Owned  Munitions  Plants  ^ 

1.  Pricately  orvned  Munitions  Plants 
(Definition:  Privately  owned  plants  and  estab- 
lishments primarily  engaged  in  manufacture  of 
weapons,  missiles,  ammunition,  and  military  ex- 
plosives.) 

All  facilities  within  this  category  that  were 
originally  organized  for  munitions  production,  or 
were  converted  to  munitions  production  through 


such  major  change  in  the  volume  and  character  of 
their  equipment  as  to  render  them  unsuitable  for 
reconversion  to  peacetime  purposes,  should  be 
made  available  for  claim,  subject  to  the  following 
limitation : 

a.  Special  Purpose  Maehinei'y  and  Equipment. 
All  machinery,  equipment,  and  accessories,  which 
by  virtue  of  initial  design,  construction,  or  major 
structural  change,  are,  as  individual  items,  of  spe- 
cial purj^ose  in  nature  and  functionally  limited  to 

'  Approved  by  FEC  on  June  20, 1946. 


nil 


1112 

use  in  connection  with  the  manufacture  of  equip- 
ment or  supplies  for  war  or  warlike  purposes, 
should  be  held  pending  further  instructions  con- 
cerning their  disposition. 

Drafting  of  Copyright  Document  by  Inter- 
American  Copyright  Conference.  The  Commit- 
tee of  the  Whole  of  the  Inter- American  Copyright 
Conference^  now  meeting  at  the  Pan  American 
Union  had  before  it  for  consideration  and  ap- 
proval the  draft  of  a  proposed  instrument.  This 
document  is  the  result  of  the  work  of  the  sub- 
committeees  which  have  been  in  session  daily  since 
the  Conference  opened. 

The  Coordinating  Committee  lias  been  working 
actively  in  trying  to  reconcile  the  different  ap- 
proaches to  the  subject  which  have  become  ap- 
parent. The  principal  points  of  difference  that 
have  developed  revolve  around  copyright  regis- 
tration and  the  inalienability  of  authors'  riglits. 
The  Latin  American  Delegations  generally  take 
the  position  that  the  moral  right  cannot  be  alien- 
ated, while  the  position  of  the  United  States  is 
that  this  may  be  done  under  certain  circumstances. 
A  few  delegations  also  advocated  the  abolishment 
of  all  foi-malities,  while  others  maintained  that 
registration  if  required  by  the  country  of  origin 
should  be  maintained  as  a  prerequisite  to  copy- 
right protection  in  the  other  contracting  states. 
The  Conference  has  also  approved  that  notice  of 
copyright  protection  no  longer  need  appear  in  a 
book  or  other  work  in  order  that  the  author  may  be 
protected. 

The  delegations  from  the  other  American  re- 
publics also  are  unanimous  in  their  disapproval 
of  the  use  of  their  works  in  juke  boxes.  Under 
current  practice  the  author  receives  no  royalty  for 
music  played  through  the  medium  of  slot  machines. 
It  is  their  feeling  that  if  any  profits  are  derived 
therefrom,  the  author  has  a  right  to  share  in 
same. 

All  the  delegations  are  in  complete  agreement  as 
to  the  right  of  an  author  to  safeguard  the  transla- 
tion of  his  work.  Heretofore  some  countries  have 
openly  disregarded  such  rights. 

Despite  the  intricacy  of  the  subject  and  diffi- 
culties which  obviously  must  be  overcome,  there  is 

'  Released  to  the  press  by  the  Pan  Ameritiin  Union  on 
June  13. 

'  Released  to  the  press  .Tune  17. 
'  Released  to  the  press  June  21. 


DEPARTMENT  OF  STATE  BULLETIN 

evident  in  all  the  representatives  of  the  21  re- 
publics a  desire  to  harmonize  their  differences. 
They  are  eager  to  draft  a  document  which,  when 
submitted  to  their  governments,  may  have  a  good 
possibility  of  being  ratified,  thus  bringing  increas- 
ing order  and  cooperation  to  the  field  of  copyright 
in  the  Americas. 

U.S.-Mexican  Discussions  on  Air-Services 
Agreement.-  The  Department  of  State  announced 
that  discussions  between  the  United  States  and 
Mexican  Governments,  looking  toward  the  conclu- 
sion of  a  bilateral  agreement  for  reciprocal  air 
services  between  the  two  countries  will  take  place 
in  Mexico  City  beginning  June  24.  These  con- 
versations are  a  sequel  to  discussions  on  the  same 
subject  which  were  held  in  "Washington  in  October 
of  last  year. 

A  delegation  from  the  United  States  will  assist 
the  American  Embassy  at  Mexico  City  in  these 
negotiations.  The  Civil  Aeronautics  Board  will 
be  represented  by  Oswald  Ryan,  Vice  Chainnan 
(who  will  head  the  delegation)  ;  George  Neal, 
pre.sently  General  Counsel;  Emory  T.  Nunneley, 
Jr.,  General  Counsel-designate;  and  John  Sher- 
man, International  Counsel.  The  Department  of 
State  will  be  represented  by  Joe  D.  Walstrom, 
Acting  Chief,  Aviation  Division,  and  William  G. 
MacLean  of  the  Division  of  Mexican  Affairs. 

Members  of  the  Embassy  staff  at  Mexico  City 
who  will  also  participate  in  the  talks  will  be 
Merwin  L.  Bohan,  Counselor  for  Economic 
Affairs,  and  Robert  W.  Bradbury,  specializing 
in  civil-aviation  matters  for  the  Embassy. 

Representatives  of  the  five  United  States  air- 
lines who  already  operate  or  plan  to  operate  serv- 
ices to  Mexico  will  serve  as  unofficial  advisers  to 
the  United  States  Delegation. 

United  States  Delegation  to  the  Conference  on 
German-Owned     Patents     Outside     Germany, 

which  was  approved  by  the  President,  was  an- 
nounced by  Acting  Secretary  Acheson  on  June 
21,^  as  follows : 

Delegate  : 

Casper  W.  Ooms,  United  States  Commissioner 
of  Patents. 

Advisers: 

Bennett  Boskey,  Adviser,  Division  of  Economic 
Security  Controls,  Department  of  State. 
(Continued  on  page  1129) 


The  Record  of  the  Week 


Draft  Treaty  on  the  Disarmament  and  Demilitarization  of  Japan 


[Released  by  the  press  June  21) 

On  April  li'J,  19i6  in  Paris  the  Secretary  of 
State  released  to  the  press  the  text  of  the  United 
States  Draft  Treaty  for  the  Disarmament  and 
Demilitarization  of  Germany.  He  also  announced 
at  that  time  that  a  similar  draft  prepared  by  the 
United  States  with  respect  to  Japan  had  been  cir- 
culated to  interested  Governments.  The  Draft 
Treaty  for  Japan,  which  has  been  circulated  to 
the  Governments  of  China,  the  Soviet  Union,  and 
the  United  Kingdom,  is  released  for  publication 
herewith : 

Draft  Treaty  on  the  Disarmament  and  De- 
militarization OF  Japan 

Preamble 

The  Governments  of  the  United  Kingdom, 
China,  the  Union  of  Soviet  Socialist  Republics 
and  the  United  States  have  declared  their  inten- 
tion to  effect  the  total  disarmament  and  demili- 
tarization of  JajDan.  This  intention  was  expressed 
in  the  Potsdam  Declaration  of  July  26,  1945.  In 
substantial  measure,  it  has  already  been  fulfilled. 
Nothing  shall  prevent  or  delay  the  completion  of 
the  process.  It  remains  to  ensure  that  the  total 
disarmament  and  demilitarization  of  Japan  will 
be  enforced  as  long  as  the  peace  and  security  of 
the  world  may  require.  Only  this  assurance  will 
permit  the  nations  of  Asia  and  the  world  to  return 
singlemindedly  to  the  habits  of  peace.  To  achieve 
this  objective,  the  governments  of  the  United 
Kingdom,  the  Republic  of  China,  the  Union  of 
Soviet  Socialist  Republics,  and  the  United  States 
agree  to  engage  in  the  common  undertaking  defined 
in  this  treaty. 

Article  I 
The  High  Contracting  Parties  agree  that  they 
shall  take  steps  jointly  to  ensure  that: 

(a)  All  Japanese  armed  forces,  including  land, 
air  anti-aircraft  and  naval  forces,  all  para-military 
forces,  such  as  the  Gendarmerie  (Kempei  Tai), 
the  Garde  Mobile  (Keipei  Tei)  and  the  Special 


Police  (Tokka  Ka) ,  and  all  organizations  auxiliary 
to  the  foregoing  shall  be  and  shall  remain  com- 
pletely disarmed,  demobilized  and  disbanded. 

(b)  The  Japanese  Imperial  General  Head- 
quarters, the  staffs  of  the  Army  and  the  Navy,  and 
the  staffs  of  any  para-military  organizations  shall 
be  and  shall  remain  disbanded. 

(c)  No  Japanese  military  or  para-military  or- 
ganizations in  any  form  or  guise  shall  be  permitted 
in  Japan. 

((/)  The  manufacture,  production,  or  importa- 
tion of  military  equipment  in  Japan  shall  be  pre- 
vented. In  particular,  the  High  Contracting 
Parties  shall  prevent  the  manufacture,  produc- 
tion, or  importation  of: 

(1)  All  arms,  ammunition,  explosives,  military 
equipment,  military  stores  and  supplies  and  other 
implements  of  war  of  all  kinds ; 

(2)  All  fissionable  materials  for  any  purpose, 
except  under  conditions  approved  by  the  high  con- 
tracting parties; 

(3)  All  naval  vessels  of  all  classes,  both  surface 
and  submarine,  and  auxiliary  naval-craft ; 

(4)  All  aircraft  of  all  kinds,  aviation  equip- 
ment and  devices,  and  equipment  for  anti-aircraft 
defense. 

(e)  The  establishment,  utilization  or  operation 
for  military  purposes  of  any  of  the  following 
shall  be  prevented : 

(1)  All  military  structures,  installations  and 
establishments,  including  but  not  limited  to  mili- 
tary air  fields,  seaplane  bases,  and  naval  bases, 
military  and  naval  storage  depots,  permanent  and 
temporary  land  and  coast  fortifications,  fortresses 
and  other  fortified  areas; 

(2)  All  factories,  plants,  shops,  research  insti- 
tutions, laboratories,  testing  stations,  technical 
data,  patents,  plans,  drawings  and  inventions,  de- 
signed or  intended  to  produce  or  to  facilitate  the 
production  of  items  listed  in  the  paragraph  (d) 
above. 

(/)  Under  conditions  which  may  be  established 


1113 


1114 


DEPARTMENT  OF  STATE  BULLETIN 


by  the  High  Contracting  Parties,  the  demilitari- 
zation and  disarmament  required  by  this  Article 
shall  be  subject  to  the  following  exceptions  and 
to  no  others : 

(1)  The  formation  and  employment  of  such 
detachments  of  Japanese  civil  police,  and  their 
equipment  with  such  types  and  quantities  of  im- 
l^orted  small  arms  as  may  be  essential  to  the  main- 
tenance of  ijublic  security;  and 

(2)  The  importation  of  minimum  quantities  of 
those  items  listed  in  paragraph  {d)  (1)  above, 
such  as  explosives  or  ingredients  of  explosives, 
■which  may  be  essential  for  purposes  of  construc- 
tion, mining,  agriculture,  or  for  other  peaceful 
purposes. 

Article  II 

To  implement  the  disarmament  and  demilitari- 
zation provisions  set  forth  in  Article  I,  the  High 
Contracting  Parties  agree  that  they  shall  make 
provision  for  a  system  of  quadripartite  inspection, 
which  shall  become  operative  upon  the  termina- 
tion of  the  Allied  occupation  of  Japan.  This  sys- 
tem of  inspection  shall  be  conducted  through  a 
Commission  of  Control  to  be  established  by  the 
High  Contracting  Parties  on  a  quadripartite  basis. 
The  Commission  of  Control,  through  its  officers 
and  agents,  shall  conduct,  in  any  and  all  parts  of 
Japanese  territory,  such  inspections,  inquiries  and 
investigations  as  it  may  deem  necessary  to  deter- 
mine whether  the  disarmament  and  demilitariza- 
tion provisions  set  forth  in  Article  I  are  being 
observed. 

Article  III 

The  High  Contracting  Parties  agree  that  for 
the  duration  of  the  period  of  Allied  occupation  of 
Japan,  they  shall  support  the  strict  enforcement 
of  the  disarmament  and  demilitarization  provi- 
sions set  forth  in  Article  I.  They  agree  further 
that  the  express  acceptance  by  Japan  of  the  pro- 
visions of  Articles  I  and  II  shall  be  an  essential 
condition  to  the  termination  of  Allied  occupation 
of  Japanese  territory. 

Article  IV 
The  Commission  of  Control  provided  for  in  Ar- 
ticle II  shall  keep  the  high  contracting  parties  and 
the  Security  Council  of  the  United  Nations  in- 
formed of  the  results  of  the  inspections,  inquiries 
and  investigations  authorized  by  that  article.  The 
Commission  of  Control  shall  submit  a  report  to 
tlie  high  contracting  parties  whenever  in  the  opin- 
ion of  a  majority  of  the  members  of  the  Commis- 


sion, it  has  reason  to  believe  that  a  violation  of  the 
disarmament  and  demilitarization  provisions  of 
Article  I  has  occurred  or  is  about  to  occur.  In 
conjunction  with  such  report  the  Commission  shall 
submit  a  recommendation  for  action  on  the  part 
of  tlie  high  contracting  parties  which  appears  ap- 
propriate to  a  majority  of  the  members  of  the 
Commission.  Upon  receipt  of  such  report  and  rec- 
ommendation, the  high  contracting  parties  will,  by 
common  agreement,  take  such  prompt  action — 
including  action  by  air,  sea  or  land  forces — as  may 
be  necessary  to  assure  the  unmediate  cessation  or 
prevention  of  such  violation  or  attempted  viola- 
tion. The  high  contracting  parties  shall  immedi- 
ately report  to  tlie  Security  Council  of  the  United 
Nations  the  action  taken  or  to  be  taken. 

The  high  contracting  parties  agree  that,  within 
six  months  of  the  effective  date  of  this  treaty,  they 
shall  consult  for  the  purpose  of  negotiating  special 
quadripartite  agreements  which  shall  provide  in 
the  greatest  practicable  detail  for  inspection,  in- 
quiry and  investigation  by  tlie  Commission  of  Con- 
trol, for  the  numbers  and  types  of  forces  which 
each  party  shall  make  available  for  purposes  of 
this  treaty,  for  their  degree  of  readiness  and  gen- 
eral location,  and  for  the  nature  of  the  facilities 
and  assistance  which  each  shall  provide.  Such  spe- 
cial quadripartite  agreements  shall  be  subject  to 
ratification  by  the  high  contracting  parties  in 
accordance  with  their  respective  constitutional 
processes. 

Article  V 

This  treaty  shall  be  ratified  by  the  High  Con- 
tracting Parties  in  accordance  with  their  respec- 
tive  constitutional   processes.     The  ratifications 

shall  be  deposited  with  the  Government  of 

,  which  shall  notify  all  the  High  Contract- 
ing Parties  of  each  deposit.  This  treat  j'  shall  come 
into  force  upon  the  deposit  of  ratifications  by  each 
of  the  High  Contracting  Parties.  This  treaty 
shall  remain  in  force  for  a  period  of  twenty-five 
years  from  its  effective  date.  The  High  Contract- 
ing Parties  agree  to  consult  six  months  before  the 
date  of  expiration  of  this  treaty  for  the  purpose  of 
determining  whether  the  interests  of  international 
peace  and  security  require  its  renewal,  with  or 
without  modification,  or  whether  the  Japanese 
people  have  so  far  progressed  in  the  reconstruc- 
tion of  their  life  on  a  democratic  and  peaceful  basis 
that  the  continued  imposition  of  the  controls 
defined  herein  is  no  longer  necessary. 


IVi\E  3(1.  lUh 

Military  Assistance  to  China 

Remarks  by  ACTING  SECRETARY  ACHESON " 


1115 


Mr.  Chairman  and  Members  op  the  Committee  : 

I  am  hei-e  today  to  speak  briefly  about  H.  R. 
67D5,  which  will  provide  for  military  advice  and 
assistance  to  the  Republic  of  Cliina.  The  Chinese 
Republic  has  been  at  war  with  our  enemies  for  a 
longer  period  than  any  of  the  other  Allies  and 
fought  valiantly  to  halt  mounting  Japanese  ag- 
gression before  we  entered  the  war.  Now  that 
Japan  has  been  defeated,  China  must  turn  again, 
after  eight  years  of  fighting,  to  the  rebuilding  and 
reconstruction  of  her  land.  But  the  end  of  the 
war  has  not  solved  all  of  the  war's  problems  in 
that  vast  country. 

Weakened  from  years  of  occupation  and  war- 
fare, one  of  the  principal  problems  which  faces 
the  Chinese  Government  is  the  restoration  of  order 
at  home  and  the  repatriation  of  enormous  numbers 
of  Japanese  soldiers  who  were  on  Chinese  soil  at 
the  time  of  the  surrender.  China  had  to  work 
toward  a  solution  of  this  problem  and  also  seek 
fjuickly  to  i)iovide  herself  with  the  means  of  meet- 
ing her  obligations  under  the  United  Nations 
Charter  foi-  the  preservation  of  peace. 

From  the  time  of  the  passage  of  the  Lend-Lease 
Act,  the  Chinese  military  forces  have  received 
American  sup]:)lies  and  equipment  and  have  been 
provided  training  by  American  military  missions, 
By  these  means,  China  was  able  to  contimie  to 
fight,  and  the  war  effort  was  measurably  advanced 
because  tlie  Chinese  military  forces  became  ad- 
justed to  the  use  of  our  techniques  and  our  sup- 
lilies.  In  the  Twenty-second  Report  to  Congress 
on  Lend-Lease  Operations,  it  is  stated  that  from 
Y-J  Day  through  February  1946,  $600,000,000 
worth  of  supplies  had  been  furnished  to  China. 

I  think  it  is  helpful  in  considering  a  bill  which 
will  permit  the  extension  of  further  aid  to  the 
Cliinese  to  review  briefly  the  efl'orts  this  country 
lias  made  to  assist  the  Chinese  in  combating  Jap- 
;Miese  aggression.  It  is  a  story  of  which  we  can 
be  proud  and  one  which  serves  to  illustrate  most 
vividly  the  tremendous  advantages  to  world  peace 
which  can  accrue  if  this  collaboration  in  the  in- 
terest of  both  countries  can  continue.  General 
Marshall  has  now  been  in  China  since  last  Decem- 
ber, seeking  to  effect  an  agreement  between  the 
various  Chinese  groups  in  the  interest  of  peace. 

700202—46 3 


He  has  made  a  great  deal  of  progress,  and  it  is 
certainly  urgently  necessary  that  we  be  in  a  posi- 
tion to  provide  the  additional  aid  which  General 
Marshall  may  feel  is  required  if  the  agi-eement  he 
is  seeking  is  to  be  concluded  and  the  Chinese  are 
to  proceed  with  us  under  the  United  Nations  Char- 
ter to  an  orderly  world. 

Shortly  before  Pearl  Harbor,  the  first  lend-lease 
materials  were  shipped  to  China,  and  the  Army 
sent  Brigadier  General  John  Magruder  to  advise 
and  assist  the  Chinese  in  the  utilization  of  these 
materials.  A  few  months  later,  General  Stilwell 
replaced  General  Magruder,  and  at  Generalissimo 
Chiang  Kai-shek's  request  General  Stilwell  was 
api)ointed  Chief  of  Staff  to  the  Generalissimo 
shortly  after  his  arrival. 

The  early  war  years  were  a  period  of  dark 
despair  for  the  Allied  cause  in  the  Far  East.  The 
Japanese  landed  successfully  on  both  coasts  of  the 
^lalay  Peninsula  and  drove  steadily  southward. 
This  campaign  ended  in  the  capture  of  Singapore. 
Still  other  Japanese  troops  advanced  up  through 
the  Burma  jungles  and  captured  the  Burma  teimi- 
nal  of  the  life-line  of  China — the  famous  Burma 
Road.  With  this  event,  the  already  meager  supply 
line  to  China  was  cut  off,  and  outside  aid  was  re- 
duced to  a  trickle.  In  this  desiderate  situation,  the 
Generalissimo  turned  to  the  American  forces  for 
assistance.  The  Generalissimo  agreed  to  furnish 
Chinese  troops  if  we  could  supply  ecjuipment  and 
training. 

By  this  time  the  flights  over  "the  Hump"  had 
begun,  and  approximately  five  Chinese  divisions  of 
ten  to  twelve  thousand  men  each  were  transported 
by  air  to  India  where  a  training  center  was  set  up 
at  Ramgaih.  This  incredible  feat  brought  to  the 
Allies  fresh  manpower  which  could  be  speeded  to 
the  furthermost  point  of  Japanese  penetration 
after  training  in  small-unit  tactics  as  well  as  the 
basic  fundamentals  of  soldiering  according  to  our 
American  standards.  This  training  included  In- 
fantry, Artillery,  Armor,  Signal  Corps  and 
Transportation  Corps  type  units.  With  these 
forces  trained  at  Ramgarh,  which  were  commonly 
i-eferred  to  as  the  "X  forces"',  we  had  the  support  of 

'  Made  before  the  House  Foreign  Affair.?  Committee  on 
June  10,  1946  and  released  to  the  press  ou  the  same  date. 


1116 


DEPARTMENT  OF  STATE  BULLETIN 


a  powerful  body  of  troops  which,  combined  with 
our  own  limited  forces,  were  able  eventually  to 
expel  tlie  Japanese  f I'om  northern  Burma  and  open 
the  Burma  end  of  the  Burma  Road.  By  this  means 
we  accomplished  one  of  our  principal  objectives  far 
earlier  than  if  we  had  been  forced  to  wait  for  fresh 
troops  from  this  country  or  elsewhere. 

The  training  of  Chinese  troops  in  Burma  having 
proved  so  tremendously  successful.  General  Stil- 
well  initiated  the  so-called  "39-Division  Progi-am" 
in  China,  and  General  Wedemeyer,  who  succeeded 
him,  abl}'  carried  it  forward.  This  was  a  critical 
period  for  the  Chinese.  StejD  by  step  they  had 
been  driven  back  from  the  sea  coast  and  the  prin- 
cipal industrial  cities  of  central  China.  In  order 
to  combat  this  withdrawal  as  effectively  as  possible, 
U.  S.  officers  were  sent  to  China,  and  a  training 
center  was  established  at  Kimming  where  training 
similar  to  that  given  at  Ramgarh  was  started. 
The  forces  trained  in  this  Kunming  area  were  given 
the  titles  of  the  "Y  forces". 

Major  General  Claire  L.  Cliennault,  who  had  led 
the  famous  Flying  Tigers  in  the  early  period  of  the 
war,  had  been  called  back  into  the  U.  S.  Army  and 
was  given  the  mission  of  assisting  in  tlie  training 
of  the  Chinese  Air  Force  in  China  simultaneously 
with  the  training  of  the  "Y  forces"  at  Kunming. 
Concurrently  with  his  duties  in  training  an  effec- 
tive Chinese  Air  Force,  Cliennault  continued  to 
provide  magnificent  support  for  the  Chinese  armies 
fighting  througliout  the  heart  of  China. 

All  of  the  supplies  needed  for  the  training  pro- 
gram in  China,  as  well  as  the  supplies  which  we 
could  furnish  to  the  Chinese  armies  in  the  field, 
had  to  be  flown  over  the  Hump  by  transport 
planes  which  had  to  load  and  make  the  dangerous 
trip  over  the  Himalayan  Mountains  with  a  fre- 
quency and  efficiency  which  was  astonishing.  But 
the  arms  and  the  other  equipment  did  reach  China, 
and  to  a  large  degree  it  was  these  supplies  and  the 
morale  which  they  induced  in  the  Chinese  armies 
which  sustained  China  in  the  war  through  the 
j'ears  of  difficult  and  depressing  defeats. 

All  equipment  furnished  the  Chinese  has  been 
on  a  lend-lease  basis.  Upon  cessation  of  hostilities, 
additional  equipment  and  supplies  were  needed  by 
the  Chinese  if  they  were  effectively  to  carry  out 
reoccui^ation.  In  view  of  this,  the  President  ex- 
tended the  period  during  which  lend-lease  could 
be  furnished  to  the  Chinese  to  March  31,  1046. 
Early  this  year  it  became  evident  that  the  reoccupa- 


tion  of  the  invaded  parts  of  China  would  not  be 
completed  nor  would  the  needed  equipment  be  fur- 
nished by  March  31.  Therefore,  the  President 
again  extended  the  time  during  which  supplies 
could  be  furnished  to  China  under  lend-lease  until 
June  30,  1946. 

As  this  Committee  knows,  the  authority  under 
the  Lend-Lease  Act  expires  on  that  date,  and  we 
shall  not  be  able  to  continue  to  make  agreements 
for  the  furnishing  of  the  equipment  which  China 
will  need  if  her  reasonable  peacetime  Army  pro- 
gram is  to  be  carried  out.  I  think  you  will  recog- 
nize how  serious  it  would  be  to  our  efforts  to  build 
upon  the  foundations  of  the  United  Nations  Char- 
ter if  the  Chinese  Army  were  to  find  itself  lacking 
in  the  essential  supplies  which  are  still  required  to 
maintain  itself  in  the  areas  from  which  the  Japa- 
nese are  still  lieing  removed.  China  must  be  able 
to  establish  and  maintain  order  in  these  areas,  and 
the  Government  must  be  able  to  rely  upon  ade- 
quately equipped  troops  to  can-y  out  its  obligations 
to  its  own  people  and  under  the  Charter  of  the 
United  Nations.  That  is  the  reason  for  this  addi- 
tional legislation. 

With  the  support  of  the  War  and  Navy  Depart- 
ments, the  State  Department  has  requested  legis- 
lation to  provide  advice  and  assistance  to  China. 
Authority  for  furnishing  naval  vessels  and  other 
naval  equij^ment  is  provided  in  a  bill  which  has 
already  passed  the  House  of  Representatives  and  is 
now  in  the  Senate.  I  might  add  that  legislation 
has  also  passed  the  House  which  makes  provision 
for  the  furnishing  of  military  missions  themselves, 
as  distinguished  from  supplies  to  other  countries, 
but  it  would  appear  desirable  to  repeat  that  au- 
thority in  the  bill  for  military  assistance  to  China 
in  view  of  the  special  urgency  of  that  situation  and 
the  possibility,  although  I  do  not  anticipate  that 
it  will  occur,  that  the  bill  you  have  already  passed 
on  this  subject  might  fail  of  final  passage  in  this 
session. 

General  Marshall  has  recognized  the  compelling 
necessity  of  combining  into  one  Army  the  military 
forces  operating  in  that  country.  This  has  been 
one  of  his  principal  objectiA'es.  He  is  working 
toward  that  solution  of  a  complex  problem,  and 
we  have  every  hope  that  he  will  succeed  in  its 
accomplishment.  The  Communist  forces  were 
lacking  in  the  type  of  organization,  training,  and 
equipment  which  would  have  made  practicable 
their  incorporation  into  the  new  non-political  Na- 
tional Army.    Therefore,  the  Communist  leaders 


lUNE  30,  1946 


1117 


have  asked,  and  General  Marshall  has  agreed,  that 
their  integration  with  the  other  forces  be  preceded 
by  a  brief  period  of  United  States  training  and  by 
the  supply  of  minimum  quantities  of  equipment. 
Any  such  assistance  in  the  months  ahead  will  hinge 
upon  the  progi-ess  of  the  plan  for  the  amalgama- 
tion of  all  the  armed  forces.  We  are  dealing  here 
with  very  large  forces.  The  Chinese  National 
Ai'niy  is  now  estimated  to  contain  approximately 
300  divisions  of  some  10,000  to  12.000  men  each. 
The  strength  of  the  Cumnuinist  Army  is  esti- 
mated, at  present,  to  be  about  one  fourth  as 
great.  To  effect  a  solution  and  combine  these 
forces  into  one  Chinese  Army  will  require  a 
flexible  and  adequate  authority,  such  as  the  bill 
before  you  provides. 

Under  the  reorganization  which  General  Mar- 
shall proposes  this  enormous  number  of  men  under 
arms  will  be  drastically  reduced,  and  selected  units 
will  be  integrated  into  a  new  and  well-trained 
Ijeacetime  Army  of  a  reasonable  size.  It  is  im- 
l)()ssible  for  me  to  give  you  in  detail  this  proposal 
at  this  time,  but  the  ultimate  goal  is  an  Army  of 
some  sixty  divisions.  General  Marshall's  proposal, 
if  it  can  be  carried  out,  and  if  we  continue  to  bear 
the  share  of  the  responsibility  which  he  recom- 
mends that  we  undertake,  will  provide  China  with 
a  far  moi-e  effective  fighting  organization  than 
she  has  ever  had,  while  it  will,  at  the  same  time, 
bring  the  size  and  type  of  that  organization  within 
limit.s  consonant  with  Chinese  peacetime  obliga- 
tions. The  effects  of  this  action  will  be  far-reach- 
ing— great  numbers  of  men  freed  for  the  job  of 
reconstructing  ruined  areas,  rehabilitating  farm 
land,  planting  crops  desperately  needed  to  meet 
the  famine  emergency,  and  reconverting  and  de- 
\eloping  Chinese  industries;  and  the  Goveimment 
will  no  longer  find  its  finances  drained  away  to 
support  an  immense  and  badly  organized  military 
force.  Not  until  this  is  done  can  we  expect  the 
Chinese  Government  to  provide  an  efficient  and 
orderly  administration  which  can  combat  infla- 
tion and  deal  with  the  aftermath  which  years  of 
war  have  left  in  their  M'ake. 

Of  primary  importance  to  the  program  pro- 
posed by  General  Mar-shall  will  be  the  sending  of 
a  Military  Advisoi-y  Group  to  China  which  was 
requested  by  the  Generalissimo  some  months  ago. 
It  is  at  the  heart  of  the  program  for  which  author- 
ity is  now  being  requested.  The  Joint  Chiefs  of 
Staff,  in  consultation  with  the  State  Department, 
have  drawn  up  a  plan  which  has  already  been 


approved  by  the  President,  for  this  Military  Ad- 
visory Group.  Under  the  President's  emergency 
powers,  he  has  directed  that  the  formation  of  this 
group  be  undertaken  on  a  temporary  basis,  but 
without  additional  legislation  the  period  of  the 
group's  existence  will  be  uncertain  and  the  formu- 
lation of  long-range  plans,  which  are  certainly 
required  in  this  situation,  will  be  impossible.  At 
present,  it  is  contemplated  that  the  Military  Ad- 
visory Group  will  consist  of  approximately  750 
U.  S.  Army  personnel  and  250  U.  S.  Navy  per- 
sonnel. With  1,000  men.  General  Marshall  be- 
lieves that  we  will  be  able  to  advise  and  assist  the 
Chinese  in  a  progi-am  for  the  modernization  of 
China's  armed  forces  and  determine  the  supplies 
and  equipment  which  they  will  have  to  have. 

It  would,  of  course,  be  presmuptuous  for  me  to 
sjDeak  to  this  Committee  about  the  details  of  the 
military  program.  I  can  only  emphasize  to  the 
Committee  the  very  great  concern  of  the  State 
De23artment  that  General  Marshall's  task  be 
facilitated  in  carrying  out  the  jirogram  he  has 
proposed.  Representatives  from  the  War  and 
Navy  Departments  are  here  and  will,  I  am  sure, 
be  able  to  give  you  the  more  specific  information 
which  you  may  wish  in  connection  with  the  use  of 
United  States  armed-forces  personnel  and  the 
shipment  of  United  States  military  supplies  to 
carry  out  the  proposed  program. 

I  believe  that  it  is  highly  desirable  and  in  the 
best  interests  of  the  United  States  that  the  bill 
be  enacted  into  law  as  soon  as  possible.  It  will 
enable  this  Government  to  fulfil  the  commitments 
made  by  the  President  in  his  statement  of  Decem- 
ber 15,  1945,  to  assist  China  in  the  establishment 
of  a  "military  organization  capable  of  dischai'ging 
China's  national  and  international  resjDonsibilities 
for  the  maintenance  of  peace  and  order."  As  the 
President  indicated  in  that  statement,  "a  China 
disorganized  and  divided  ...  is  an  undermining 
influence  to  world  stability  and  peace"  and  would 
invite  outside  interference  in  its  own  affairs.  On 
the  other  hand,  a  well-trained  and  adequately 
ecjuipped  peacetime  army  of  reasonable  size,  such 
as  is  contemplated  in  the  military  reorganization 
program  sponsored  by  General  Marshall,  would 
be  of  the  greatest  benefit  to  China,  not  only  in  the 
maintenance  of  peace  and  in  setting  its  own  house 
in  order,  but  also  in  the  fufilment  of  such  obli- 
gations as  may  devolve  upon  it  under  the  Charter 
of  the  United  Nations. 


7778 


DEPARTMENT  OF  STATE  BULLETIN 


Lend-Lease  Settlement  With  China 


[Keleased  to  the  press  June  17] 

Representatives  of  the  Government  of  the 
United  States  and  the  Republic  of  China  have 
signed  an  agreement  for  the  disposal  of  all  lend- 
lease  supplies  which  were  in  inventory  or  pro- 
curement in  the  United  States  for  China  prior  to 
the  cessation  of  active  military  hostilities  against 
the  common  eneni}'.'  The  agreement  was  signed 
021  behalf  oi  the  United  States  by  Chestei'  T.  Lane, 
Deputy  Foreign  Liquidation  Commissioner,  State 
Department,  and  on  behalf  of  the  Republic  of 
China  by  Shou  Chin  AVang,  Chairman  of  the 
Chinese  Supply  Mission. 

The  agreement,  jiopularly  known  as  a  "pipe-line 
agreement,"  stipulates  that  China  will  pay  full 
procurement  cost  in  American  dollars  for  the  lend- 
lease  suj^plies  involved,  and  in  addition  will  pay 
inland    accessorial    expenses    and    ocean    freight 


charges.  The  total  amount  to  be  paid  is  approxi- 
mately LT.  S.  $58,900,000,  of  which  approximately 
$48,000,000  is  for  the  lend-lease  supplies.  Cate- 
gories of  surplus  involved  are  as  follows:  trans- 
portation and  signal  communications,  industry 
and  mining,  ordnance  (arsenal  and  industrial 
equipment),  medical,  textile,  and  miscellaneous 
items. 

Payment  of  the  total  amount  shall  be  made  on 
or  before  July  1,  1976  in  thirty  annual  instal- 
ments, the  first  of  which  shall  become  due  and 
payable  on  July  1,  1947.  Interest  shall  be  at  the 
rate  of  2%  percent  per  annum,  accruing  from  July 
1  next  succeeding  the  date  of  transfer.  Interest 
shall  be  payable  annually,  the  first  payment  to  be 
made  July  1, 1947. 

The  agreement  shall  take  effect  as  from  12:01 
a.m.,  September  2,  1945. 


Lend-Lease  and  Surplus-Property  Settlement  With  Australia 


Representatives  of  the  Government  of  the 
United  States  and  the  Government  of  the  Com- 
monwealth of  Australia  signed  on  June  7  an 
agreement  rei^resenting  an  over-all  settlement  of 
lend-lease  and  reciprocal  aid,  and  providing  for 
the  sale  of  certain  United  States  surplus  property. 
The  agreement  was  signed  on  behalf  of  the  Gov- 
ernment of  the  United  States  by  the  Secretary  of 
State,  James  F.  Byrnes,  and  on  behalf  of  the 
Commonwealth  of  Australia  by  Herbert  V.  Evatt, 
Minister  for  External  Affairs  for  Australia.- 

The  agreement  signed  on  June  7  constitutes  a 
final  settlement  for  lend-lease  and  reciprocal  aid 
and  for  the  financial  claims  of  each  Government 
against  the  other  arising  as  a  result  of  the  war. 
Australia  made  a  major  contribution  to  the  war 
effort  of  the  United  Nations  measured  in  sacrifice 
of  both   manpower   and   materiel.     During  the 

'Not  priuted.  For  text  of  jigivement,  see  Depart iiiwit 
of  State  press  release  421  of  June  17. 

"Not  printed.  For  text  of  agreement,  see  Department 
of  State  press  release  303  of  June  7,  1946. 


war  Australia  served  as  a  vital  base  of  supply  for 
the  southwest  Pacific  area,  and  General  Mac- 
Arthur's  headquarters  were  located  in  Australia 
and  Australian  territories  for  approximately 
three  jears.  Throughout  the  war  in  the  Pacific 
Australia  was  a  vital  source  of  supply  for  food- 
stuffs and  other  materials  for  the  United  States 
armed  forces,  all  of  which  were  furnished  under 
reverse  lend-lease  without  charge  to  the  United 
States.  This  contribution  by  Australia  relieved 
the  United  States  of  a  great  part  of  the  burden  of 
supplying  its  armed  forces  in  the  Pacific  area. 
The  saving  in  shipping  space  alone  was  enormous. 
The  quantities  of  food  provided  by  Australia  eased 
the  demands  on  our  own  supplies  but  forced  the 
Australian  Government  to  impose  stricter  ration- 
ing on  its  own  citizens. 

In  the  settlement  just  concluded  it  has  been 
agreed  that  neither  Government  will  make  any 
payment  to  the  other  for  lend-lease  and  recipro- 
cal-aid articles  and  services  used  in  the  achieve- 
ment of  the  common  victory.  Prior  to  the  nego- 
tiation of  the  present  agreement,  Australia  had 


JUNE  30,  1946 


1119 


uiKlertaken  to  pay  for  the  post-war  value  of  cer- 
tain machine  tools  transferred  under  lend-lease. 
As  part  of  the  settlement  Australia  has  also  agreed 
to  pay  for  the  post-war  value  of  certain  other 
items  of  capital  equipment  transferred  mider  lend- 
lease,  and  for  certain  lend-lease  non-combat  air- 
craft and  spares  remaining  in  Australia.  This 
agreement  also  calls  for  the  purchase  by  Australia 
of  $0,500,000  of  United  States  Army  and  Navy 
surplu.ses.  The  total  payment  to  be  made  by 
Australia  under  the  settlement  amounts  to 
$27,000,000.  Of  this  total  payment  $7,000,000  will 
be  made  available  in  Australian  currency  for  the 
acquisition  of  real  estate,  construction  of  United 
States  Government  buildings,  and  furtherance  of 
cultural  relationships  of  mutual  benefit  to  the  two 
countries. 

This  settlement  is  in  accord  with  the  principles 
of  the  master  lend-lease  agreement  to  which  Aus- 
I  ralia  subscribed.  That  agreement  provided  that 
the  settlement  for  lend-lease  and  reverse  lend- 
lease  should  be  such  as  not  to  burden  commerce 
between  the  two  countries  but  to  promote  mutually 
advantageous  economic  relations  between  them 
and  the  betterment  of  world-wide  economic  rela- 
tions. The  settlement  of  the  war  account  just 
completed  thus  opens  the  way  for  further  collabo- 


ration between  the  two  countries  in  the  sphere 
of  world  economics. 

The  two  Governments  are  in  full  accord  on  the 
objectives  of  high  level  of  employment  and  in- 
creased international  commerce.  Australia  will 
take  part  in  the  forthcoming  International  Trade 
and  Employment  Conference,  jiroposed  by  the 
United  States,  the  purpose  of  which  is  to  work 
out  agreed  measures  for  the  expansion  of  world 
trade,  employment,  and  production,  and  to  estab- 
lish jiermanent  international  machinery  to  foster 
these  jiurposes.  These  proposals  will  be  consid- 
ered at  the  preliminary  meeting  to  be  held  under 
the  auspices  of  the  United  Nations  Economic  and 
Social  Council  in  October  of  this  year.  Australia 
luis  also  accepted  the  invitation  of  the  United 
States  to  take  j^art  in  a  further  conference  to  be 
held  early  next  year  at  which  a  group  of  the  major 
trade  countries  will  consider  specific  reciprocal 
trade  arrangements  for  mutual  relaxation  of  trade 
l)arriers  and  active  promotion  of  wider  trade  be- 
tween themselves  and  with  other  countries. 

Negotiations  between  the  Governments  of  the 
United  States  and  the  Commonwealth  of  Aus- 
tralia are  proceeding  on  questions  relating  to  civil 
aviation  in  an  endeavor  to  arrive  at  a  mutually 
satisfactory  agreement. 


Agreement  for  Purchase  of  Rubber  From  Far  East 


[Rele-ised  to  the  press  June  20] 

Agreements  have  been  I'eached  after  discussions 
between  the  United  States  Government  and  the 
Governments  of  the  United  Kingdom,  the  Nether- 
lands, and  France  regarding  the  purchase  of  natu- 
ral rubber  from  British,  Netherlands,  and  French 
Far  Eastern  sources  for  the  period  July  1  through 
December  31,  194(5.  These  bilateral  discussions, 
which  were  carried  on  in  a  most  frank  and  friendly 
spirit,  were  occasioned  by  the  expiration  of  the 
present  contracts  on  June  30, 1946. 

The  position  of  each  country  in  relation  to  rub- 
ber was  examined  most  carefully  and  consideration 
was  given  to  the  immediate  difficulties  faced  by 
natural  rubber-producing  areas,  together  with  the 
longer-iun  implications  of  any  price  decision  at 
the   present   time.    Determining   factors   in   the 


agreements  reached  were  the  continuing  shortage 
of  natural  rubber  in  relation  to  demand  and  the 
present  exceptionally  high  costs  of  producing 
natural  ruliber  in  these  areas. 

In  accordance  with  the  agreements  reached  the 
governments  concerned  will  support  the  continu- 
ance of  international  allocation  of  natural  rubber 
by  the  Combined  Rubber  Committee  for  the  above 
period.  The  United  States  Government  will  apply 
to  the  CRC  for  allocations  for  shipments  during 
this  period  of  145,000  long  tons  of  natural  rubber 
from  British.  French,  and  Netherlands  sources. 
Tiie  Rubber  Development  Corporation  will  pur- 
chase the  quantity  of  rubber  allocated  to  the  United 
States  during  this  period  at  a  fixed  basic  price  of 
23^2  United  States  cents  per  pound  f.o.b.  Far 
Eastern  ocean  ports  for  No.  IX  ribbed  smoked 


1120 


DEPARTMENT  OF  STATE  BULLETIN 


sheet  and  other  grades  at  agreed  differentials.  In 
order  to  ensure  the  ready  movement  of  rubber  and 
the  economical  use  of  go-down  and  shipping  space 
the  Government  of  the  United  Kingdom  will  be 
constantly  in  the  market  to  buy  rubber  in  British 
Far  East  territories  at  a  price  equivalent  to  that 
indicated  above. 

The  present  arrangements  whereby  the  Govern- 
ment of  the  United  Kingdom  purchases  all  rubber 
for  export  from  Malaya  and  resells  to  the  United 
States  or  other  govei'nments  will  cease  from  the 
end  of  June  19-16  in  respect  to  shipments  elsewhere 
than  to  the  United  Kingdom.  From  July  1  to 
December  31,  1946,  the  United  States  will  be  able 
to  purchase  rubber  from  Malaya  in  such  manner 
as  they  may  desire.  The  Governments  of  the 
Malayan  Union,  Singapore  Colony,  and  Brit- 
ish dependencies  in  Borneo  have  been  requested  to 
prohibit  the  export  of  rubber  except  under  license 
and  to  relate  the  amount  licensed  for  export  to 
each  destination  to  the. quantity  deteiniined  by 
international  allocation. 

United  States  arrangements  for  procurement 
in  Netherlands  and  French  Far  East  territories  are 
at  present  under  discussion. 

F'urther  consultations  will  be  held  from  time  to 
time  as  may  be  necessary  on  the  detailed  arrange- 
ments required  to  carry  out  this  agreement. 

The  arrangements  already  in  force  for  the  pur- 
chase of  rubber  from  Ceylon  will  of  course  con- 
tinue to  the  end  of  Sejstember  1946.  A  further 
statement  regarding  the  position  in  Ceylon  after 
tliat  date  will  be  made  in  due  cour.se. 


Remittances  to  Albania  Limited 

[Released  to  the  press  June  21 1 

It  has  come  to  the  attention  of  this  Government 
that  dollar  funds  transmitted  to  persons  in  Al- 
bania are  rigidly  controlled  by  the  Albanian  au- 
thorities. Remittances  in  amounts  not  exceeding 
$200  are  made  available  to  the  recipient  by  the 
authorities  without  too  much  difficulty.  Amounts 
in  excess  of  $200  are  made  available  only  after 
considerable  delay  and  then  only  in  small  in- 
stalments. 

Informed  sources  suggest  that  senders  of  re- 
mittances to  relatives  or  friends  in  Albania  limit 
each  remittance  to  $200  until  such  time  as  the  Al- 
banian authorities  are  able  to  modify  their  pres- 
ent system. 


U.S.-Hnngarian  Relations 

HUNGARIAN  OFFICIALS  CONCLUDE  VISIT 

TO  U.  S. 

[Released  to  the  press  June  191 

Ferenc  Nagy,  Prime  Minister  of  Hungary, 
Mathias  Rakosi,  Deputy  Prime  Minister,  Jolm 
(iyongyosi,  Minister  of  Foreign  Affairs,  and 
Stephen  Riesz,  Minister  of  Justice,  who  arrived  in 
Washington  on  June  11,  have  concluded  their 
official  visit  to  the  United  States  and  departed 
from  New  York  for  London  by  air  on  June  19. 


RESTITUTION  OF  PROPERTY  AND  GOLD  TO 
HUNGARIAN  GOVERNMENT 

[Released  to  the  press  June  lU] 

.  During  their  stay  here  as  the  guests  of  this  Gov- 
ernment, Their  Excellencies  were  received  by  the 
President,  the  Secretary  of  State,  the  Acting  Sec- 
retary of  State,  and  congressional  leaders.  In 
tlie  course  of  conversations,  which  touched  on  vari- 
ous matters  of  mutual  interest  to  Hungary  and  the 
United  States  and  took  place  in  an  atmosphere  of 
cordiality  and  understanding,  there  w^as  indicated 
this  Government's  intention  to  proceed  promptly 
with  the  restitution  to  Hungary  of  identifiable 
displaced  property  removed  under  duress  from 
Hungary.  Hungarian  gold  now  in  the  custody  of 
the  United  States  forces  in  Germany  will  also  be 
returned  to  the  Hungarian  Government,  which  de- 
sires to  utilize  this  reserve  for  the  stabilization 
of  the  Hungarian  monetary  system  and  economy. 
In  addition,  the  Prime  Minister  was  informed  of 
this  Government's  readiness  to  consider  sympathet- 
ically an  increase  in  the  present  limit  of  the  credit 
arrangement  for  the  purchase  of  American  surplus 
war  property  abroad,  which  was  recently  concluded 
with  the  Hungarian  Govermnent. 


JUNE  30,  1946 


1121 


Negotiations  on  German  Holdings  in  Switzerland 


UNDERSTANDING  REACHED  BETWEEN  ALLIED  AND  SWISS  GOVERNMENTS 


[Released  to  the  press  June  17] 

The  Department  of  State  released  on  June  17 
the  text  of  the  "Accord  and  Annex",  constituting 
letters  of  understanding  reached  between  the 
Allied  governments  and  the  Government  of 
Switzerland  in  the  recently  concluded  negotiations 
on  German  holdings  in  Switzerland,  looted  gold, 
and  related  matters. 

Letters  identical  in  all  but  one  respect  were 
exchanged  between  the  Allies  and  the  Swiss  Dele- 
gation on  May  25,  1946.^  The  sole  difference  was 
in  paragraph  V,  in  which  the  Swiss  Delegation 
stated  that  it  acted  on  behalf  also  of  the  Prin- 
cipality of  Liechtenstein,  whereas  the  Allies 
stated  that  they  acted  on  behalf  of  the  govern- 
ments signatory  to  the  Paris  Reparation  Agree- 
ment. 

The  understanding  will  come  into  effect  upon 
ratification  by  the  Swiss  Parliament  where  the 
subject  is  expected  to  be  discussed  during  its  cur- 
rent session. 

The  understanding,  whose  essential  details  have 
alread}^  been  announced,  provides  for  the  elimina- 
tion of  German  interests  in  property  in  Switzer- 
land, for  allocation  of  half  of  the  proceeds  to  the 
Allies,  and  for  payment  by  Switzerland  of 
250,000,000  Swiss  francs  in  gold,  payable  on  de- 
mand in  New  York. 

The  letters  were  exchanged  in  both  French  and 
English,  both  texts  having  equal  validity. 

Legation  or  Switzerland 

Swiss  Delegation 
Washington,  D.  C,  May  25, 19^6 
Gentlemen  : 

In  the  course  of  the  discussions  which  have  taken 
place,  the  Allied  Governments,  fully  recognizing 
Swiss  sovereignty,  claimed  title  to  German  prop- 
erty in  Switzerland  by  reason  of  the  capitulation 
of  Germany  and  the  exercise  of  supreme  authority 
within  Germany,  and  sought  the  return  from 
Switzerland  of  gold  stated  to  have  been  wrongfully 
taken  by  Germany  from  the  occupied  countries 
during  the  war  and  transferred  to  Switzerland. 


The  Swiss  Government  stated  it  was  unable  to 
recognize  the  legal  basis  of  these  claims  but  that 
it  desired  to  contribute  its  share  to  the  pacification 
and  reconstruction  of  Europe,  including  the  send- 
ing of  supplies  to  devastated  areas. 

In  these  circumstances  we  have  arrived  at  the 
Accord  which  follows : 


1.  The  Swiss  Compensation  Office  shall  pursue 
and  complete  its  investigations  of  property  of 
every  description  in  Switzerland  owned  or  con- 
trolled by  Germans  in  Grermany  and  it  shall  liqui- 
date such  property.  This  provision  shall  apply 
equally  to  the  property  of  such  other  persons  of 
German  nationality  as  are  to  be  repatriated. 

2.  The  Germans  affected  by  this  measure  shall 
l)e  indemnified  in  German  money  for  the  property 
which  has  been  liquidated  in  Switzerland  pursuant 
to  this  Accord.  In  each  such  case  an  identical  rate 
of  exchange  shall  be  applied. 

3.  Switzerland  will,  out  of  funds  available  to  it 
in  Germany,  furnish  one-half  of  the  German  money 
necessary  for  this  purpose. 

4.  The  Swiss  Compensation  Office  shall  exercise 
the  functions  entrusted  to  it  in  close  cooperation 
with  a  Joint  Commission  which  shall  be  composed 
of  a  representative  of  each  of  the  three  Allied 
Governments,  and  a  representative  of  the  Swiss 
Government.  The  Joint  Commission,  as  all  inter- 
ested private  persons,  shall  have  a  right  of  appeal 
against  the  decision  of  the  Swiss  Compensation 
Office. 

5.  The  Swiss  Government  will  bear  the  cost  of 
the  administration  and  liquidation  of  German 
property. 

II 

1.  Of  the  proceeds  of  the  liquidation  of  property 
in  Switzerland  of  Germans  in  Germany,  50  per- 
cent shall  accrue  to  the  Swiss  Government  and  50 

'The  Allied  correspondence  is  not  Included  here. 


7722 


DEPARTMENT  OF  STATE  BULLETIN 


percent  shall  be  placed  at  the  disposal  of  the  Allies 
for  the  rehabilitation  of  countries  devastated  or 
depleted  by  the  war,  including  the  sending  of 
supplies  to  famine  sti'icken  people. 

2.  The  Government  of  Switzerland  undertakes 
to  place  at  the  disposal  of  the  three  Allied  Govern- 
ments the  amount  of  250,000,000  Swiss  francs  pay- 
able on  demand  in  gold  in  New  York.  The  Allied 
Governments  declare  on  their  part  that,  in  accept- 
ing this  amount,  they  waive  in  their  name  and  in 
the  name  of  their  banks  of  issue  all  claims  against 
the  Government  of  Switzerland  and  the  Swiss 
National  Bank  in  connection  with  gold  acquired 
during  the  war  from  Germany  by  Switzerland. 
All  questions  relative  to  such  gold  will  tluis  be 
regidated. 

Ill 

The  procedures  relating  to  the  application  of 
the  present  Accord  are  set  out  in  the  Annex. 

IV 

1.  The  Government  of  the  United  States  will 
unblock  Swiss  assets  in  the  United  States.  The 
necessary  procedure  will  be  determined  without 
delay. 

2.  The  Allies  will  discontinue  without  delay  the 
"black  lists"  insofar  as  they  concern  Switzerland. 


The  undersigned  representative  of  the  Swiss 
Government  declares  on  his  part  that  he  is  acting 
also  on  behalf  of  the  Principality  <>i  Liechten- 
stein. 

VI 

In  case  differences  of  opinion  arise  with  regard 
to  the  ajjplication  or  interpretation  of  this  Accord 
which  cannot  be  settled  in  any  other  way,  recourse 
shall  be  had  to  arbitration. 

VII 

This  Accor(_l  anil  the  Annex  shall  take  eti'ect  upon 
their  aj^proval  by  the  Swiss  Parliament. 

This  Accord  and  the  Annex  have  been  written 
in  English  and  J'rench,  both  texts  having  the 
same  validity. 

Very  truly  yours, 

Stuck: 

7'o  the  Ch lefts  of  the  Allied  Dehgaf/onfi, 
Washington,  B.C. 


ANNEX 

I 

A.  Property  in  Switzerland  of  Germans  in  Ger- 
many as  defined  under  IV  below,  hereinafter 
termed  "German  property",  .shall  be  liquidated  in 
tlie  following  manner : 

a.  Persons  in  Switzerland  indebted  to  Germans 
in  Germany  shall  be  required  to  pay  their  debts 
into  an  account  in  the  name  of  the  Swiss  Com- 
pensation Oihce  with  the  Swiss  National  Bank  and 
thus  absolve  themselves  of  liability. 

h.  All  natural  and  juridical  pei'sons  in  Switzer- 
land who  in  any  form  administer  German  prop- 
erty are  to  be  required  to  surrender  these  assets 
to  the  Compensation  Ofhce.  Such  action  will  ter- 
minate their  liability.  The  Compensation  Office 
will  liquidate  the  property  and  pay  the  proceeds 
into  the  account  mentioned  under  "a"'. 

c.  The  Compensation  Office  shall  take  title  to  all 
participations  in  Swiss  enterprises  or  organiza- 
tions belonging  to  Germans  in  Germany  and  shall 
liquidate  them.  The  proceeds  of  liquidation  shall 
be  paid  into  the  account  mentioned  under  "a". 

d.  The  Compensation  Office  will  similarly  pro- 
ceed with  the  liquidation  of  any  other  German 
property. 

e.  The  Joint  Commission  will  give  sympathetic 
consideration  to  cases,  brought  to  their  attention 
by  the  Conqjensation  Office,  relating  to  property 
of  Swiss  origin  located  in  Switzerland  and  belong- 
ing to  women  of  Swiss  birth  married  to  Germans 
and  residing  in  Germany. 

B.  The  Conq)ensation  Office  will  make  every 
effort  with  the  assistance  of  the  Joint  Commission 
to  vnico\er  all  transactions  of  a  cloaking  nature 
whether  by  pawn,  pledge,  mortgage  or  otherwise, 
by  which  German  property  was  concealed,  and 
will  ensure  their  annulment. 

C  The  Compensation  Office  will  notify  to  the 
Joint  Commission,  for  ti'ansmission  to  the  com- 
petent authorities  in  Germany,  the  amount  realized 
by  the  liquidation  in  each  case  of  German  prop- 
erty with  particulars  of  the  names  and  addresses 
of  the  German  owners  of  that  property.  The 
competent  authorities  in  Germany  will  take  the 
necessary  measures  in  order  that  there  will  be 
recorded  the  title  of  the  German  owners  of  the 
property  liquidated  to  receive  the  counter  value 
thereof  in  German  money,  calculated  at  a  uni- 
form rate  of  exchange.    An  amoiuit  equal  to  one- 


JUNE  30,  1946 


1123 


half  of  the  total  of  the  indemnities  accruing  to 
the  German  owners  will  be  debited  to  the  credit 
existing  in  the  name  of  the  Swiss  Government  at 
the  "Verrechnungskasse"  in  Berlin.  Nothing  in 
this  arrangement  shall  hereafter  be  invoked  by  one 
or  the  other  party  to  this  Accord  as  a  precedent 
for  the  settlement  of  any  Swiss  claim  upon  Ger- 
many nor  shall  it  be  alleged  that  the  Allied  Gov- 
ernment thereby  recognized  any  right  on  the  part 
of  Switzerland  to  dispose  of  the  credit  above  men- 
tioned. 

II 

A.  The  Compensation  Office  will  be  empowered 
to  uncover,  take  into  possession,  and  liquidate  Ger- 
man property. 

B.  The  Swiss  Government  shall  carry  out  this 
Accord  in  collaboration  with  the  Governments  of 
the  United  States,  France,  and  the  United  King- 
dom. For  this  purpose  there  shall  sit  in  Berne  or 
Zurich  a  Joint  Conunission  composed  of  repre- 
sentatives of  each  of  the  four  Governments,  which 
shall  act  by  majority  vote.  The  functions  of  the 
Joint  Commission  are  enumerated  below. 

C.  The  Compensation  Office  and  the  Joint  Com- 
mission will  enter  upon  their  functions  as  soon  as 
possible  after  the  coming  into  force  of  the  Accord. 

D.  The  Compensation  Office  will  exercise  its 
functions  in  collaboration  with  the  Joint  Com- 
mission. It  will  keep  the  Joint  Commission 
periodically  informed  about  its  activities;  it  will 
reply  to  inquiries  submitted  by  the  Joint  Com- 
mission relative  to  the  common  objective,  i.e.,  the 
uncovering,  the  census,  and  the  liquidation  of 
German  property.  The  Compensation  Office  will 
consult  the  Joint  Commission  before  making  im- 
portant decisions.  The  Compensation  Office  and 
the  Joint  Commission  shall  place  at  the  disposal 
of  each  other  all  information  and  documentary 
evidence  likely  to  facilitate  the  accomplishment 
of  their  tasks. 

E.  The  Compensation  Office  shall  as  hitherto 
investigate  the  locus  and  status  of  items  of  proji- 
erty  suspected  by  it  or  reported  to  it  by  the  Joint 
Commission  as  being  or  believed  to  comprise  a 
German  property,  or  to  be  of  doubtful  or  disputed 
bona  fide  Swiss  ownership.  The  conclusions  of  the 
Compensation  Office  will  be  discussed  with  the 
Joint  Commission. 

F.  The  Compensation  Office  will  settle,  in  gen- 
eral or  particular,  in  consultation  with  the  Joint 


Commission,  the  terms  and  conditions  of  sales  of 
German  property,  taking  into  reasonable  account 
the  national  interests  of  the  signatory  Govern- 
ments and  those  of  the  Swiss  economy  together 
with  the  opportunity  of  obtaining  the  best  price 
and  of  favoring  freedom  of  trade.  Only  persons 
of  non-German  nationality  who  are  in  a  position  to 
present  suitable  guarantees  will  be  permitted  to 
particiiDate  in  the  purchase  of  such  property,  and 
all  possible  measures  will  be  taken  to  prevent 
resales  to  German  persons. 


Ill 


If  the  Joint  Commission  after  consultation  with 
the  Compensation  Office  is  unable  to  agree  to  the 
decision  of  that  office,  or  if  the  party  in  interest  so 
desires,  the  matter  may  within  a  period  of  one 
month,  be  submitted  to  a  Swiss  Authority  of  Re- 
view. This  Authority  shall  be  composed  of  three 
members  and  shall  be  presided  over  by  a  Judge. 
This  review  will  be  administrative  in  form  and  the 
procedure  shall  be  prompt  and  simple.  The  deci- 
sions of  the  Compensation  Office,  or  of  the  Author- 
ity of  Review,  should  the  matter  be  referred  to  it, 
shall  be  final. 

Nevertheless,  if  the  Joint  Commission  is  in  dis- 
agi'eement  with  any  decision  of  the  Authority  of 
Review,  the  three  Allied  Governments  maj^,  within 
one  month,  require  the  difference  to  be  submitted 
to  arbitration  as  follows :  if  the  difference  concerns 
matters  covered  by  the  Accord  or  the  Annex  or 
their  interpretations,  the  difference  may,  if  the 
Allied  Governments  desire,  be  submitted  to  an 
Arbitral  Tribunal.  This  Tribunal  shall  be  com- 
230sed  of  one  member  designated  by  the  thi-ee  Allied 
Governments,  a  member  designated  by  the  Swiss 
Government,  and  a  third  member  designated  by  the 
four  Governments.  Any  such  difference  which  is 
not  of  primary  importance  may,  if  the  Joint  Com- 
mission and  the  Compensation  Office  agree,  be  sub- 
mitted for  decision  to  the  member  of  the  Tribunal 
who  has  been  designated  by  agreement  of  the  four 
Governments,  who  in  such  cases  will  sit  as  the 
Arbitral  Tribunal. 

The  Arbitral  Tribunal  will  not  be  restricted  as 
regards  the  nature  or  proof  of  evidence  produced 
before  it  and  will  have  full  jurisdiction  to  consider 
all  mattei-s  of  fact  or  law  submitted  to  it. 

The  decision  of  the  Arbitral  Tribunal  shall  be 
final. 


1124 


DEPARTMENT  OF  STATE  BULLETIN 


The  expenses  of  the  Arbitral  Tribunal  shall  be  a 
charge  on  the  proceeds  of  the  liquidation  of  Ger- 
man property,  before  their  division. 


IV 


A.  The  term  "property",  as  used  in  the  Accord 
and  this  Annex,  includes  all  jjroperty  of  every  kind 
and  description  and  every  right  or  interest  of  what- 
ever nature  in  property  acquired  before  the  first  of 
January,  1048.  For  the  purposes  of  the  Accord 
sums  paid  or  payable  by  persons  in  Switzerland 
through  the  German-Swiss  Clearing  shall  not  be 
regarded  as  German  property. 

B.  The  expression  "Germans  in  Germany" 
means  all  natural  persons  resident  in  Germany 
and  all  juridical  persons  constituted  or  having  a 
place  of  business  or  otherwise  organized  in  Ger- 
many, other  than  those  organizations  of  whatever 
nature  the  ownership  or  control  of  which  is  held 
by  persons  who  are  not  of  German  nationality. 
Appropriate  measures  will  be  taken  to  liquidate 
the  interests  in  Switzerland  which  German  na- 
tionals resident  in  Germany  have  through  such 
organizations  and  equally  to  safeguard  substan- 
tial interests  of  non-German  persons  which  would 
otherwise  be  liquidated. 

Germans  who  have  been  repatriated  before  the 
first  of  January  194S,  or  in  connection  with  whom, 
before  that  date,  a  decision  by  the  Swiss  authori- 
ties has  been  taken  that  such  persons  should  be 
repatriated  from  Switzerland,  are  to  be  consid- 
ered as  falling  within  the  expression  "Germans 
in  Germany". 


The  Swiss  Government  undertakes,  in  recog- 
nition of  the  special  circumstances,  to  permit  the 
three  Allied  Governments  to  draw  immediately  up 
to  50,000,000  Swiss  francs  upon  the  proceeds  of 
liquidation  of  German  property  against  their 
share  thereof.  These  advances  will  be  devoted  to 
the  rehabilitation  and  resettlement  of  non-repatri- 
able victims  of  German  action,  through  the  Inter- 
Governmental  Committee  on  Refugees. 

VI 

A.  Pending  the  conclusion  of  multilateral  ar- 
rangements to  which  it  is  the  intention  of  the 
three  Allied  Governments  to  invite  the  Swiss  Gov- 
ernment to  adhere,  and  pending  the  participation 


of  the  Swiss  Government  in  such  arrangements,  no 
German-owned  patent  in  Switzerland  shall  be  sold 
or  otherwise  transferred  without  the  concurrence 
of  the  Compensation  Office  and  the  Joint  Commis- 
sion. 

B.  No  German-owned  trademark  or  copyright 
shall  be  sold  or  transferred  without  the  concur- 
rence of  the  Compensation  Office  and  the  Joint 
Commission. 

VII 

The  2)receding  provisions  do  not  apply  to  jDrop- 
erty  in  Switzerland  of  the  German  State,  including 
property  of  the  Reichsbank  and  the  German  rail- 
roads. 

Stucki 

Washington,  D.C.,  May  25, 19Jfi 


GERMAN  DOCUMENTS — Continued  from  page  1101. 

In  the  further  course  of  the  conversation  the 
Reich  Foreign  Minister  referred  to  a  plan  for 
undertaking  extensive  propaganda  in  the  British 
Empire,  with  the  slogan  that  the  Axis  was  coming 
out  for  the  liberation  of  all  those  peoples  who  wei-e 
oppressed  by  the  English.  In  this  connection  he 
i-eferred  to  the  presence  in  Germany  of  the  Indian 
Nationalist  leader,  Bose,  a  report  which  the  Duce 
heard  with  astonislmient  and  much  interest.  The 
Duce  declared  that  he  was  in  agreement  with  such 
a  propaganda  plan. 

The  Reich  Foreign  Minister  in  conclusion  then 
went  into  the  plans  by  which  he  would  employ 
Bose  for  Indian  propaganda  and  declared  that 
opposition  between  Bose  and  Ghandi  must  be  pre- 
vented. Ghandi  had  recently  written  a  very  good 
article  against  the  English. 

The  Duce  noted  in  this  connection  in  conclusion 
that  Italy  had  connections  with  the  Fakir  of  Ipi 
and  by  extensive  use  of  money  was  attempting  to 
induce  him  and  the  Grand  Mufti  to  activity  on  the 
side  of  the  Axis.  Even  if  these  activities  were 
not  very  extensive,  they  would  still  cause  a  num- 
ber of  unwelcome  difficulties  for  the  English. 

At  leave-taking  there  was  left  open  the  possi- 
bility of  holding  a  further  conversation  the  next 
morning,  shortly  before  the  Reich  Foreign  Min- 
ister's return  flight. 

The  tone  of  the  meeting  was  especially  cordial. 

Schmidt 

FuscHi,,  May  U,  1941. 


JLNE  30,  1946 


1125 


Further  Protests  to  Rumania  on  Election  Matters 


EXCHANGE  OF  NOTES  BETWEEN  THE  U.  S.  AND  RUMANIAN  GOVERNMENTS 


[Released  to  the  press  June  17] 

Text  of  note  delivered  bij  the  United  States  rep- 
resentative in  Rumania,  Burton  Y.  Berry,  to  the 
Rumanian  Foreign  Minister  on  June  H : 

Upon  instructions  from  my  Government,  I  have 
the  honor  to  acknowledge  the  receipt  of  your  note 
of  June  3,  194G  in  reply  to  my  communication  of 
May  27  setting  forth  the  views  of  the  United  States 
Government  with  respect  to  the  non-fulfillment  by 
the  Rumanian  Government  of  tlie  assurances  which 
it  gave  in  accepting  the  decisions  of  the  Moscow 
Conference.' 

Notwithstanding  the  comments  of  your  note 
concerning  elections,  my  Government  observes  that 
no  dates  have  been  fixed  for  consideration  by  the 
Rimaanian  Government  of  the  draft  electoral  law 
to  which  you  allude  or  for  the  promulgation  of 
an  electoral  law.  Moreover,  no  steps  have  been 
taken  for  the  registration  of  the  electorate,  and 
still  no  date  has  been  set  for  elections. 

With  legard  to  the  other  matters  in  question, 
my  Government  considers  that  the  reply  of  the 
Rumanian  Government  presents  a  wholly  inade- 
quate account  of  the  actual  situation  and  contains 
a  number  of  inaccuracies. 

In  the  circumstances,  therefore,  my  Govern- 
ment has  instructed  me  to  inform  you  that  it 
regrets  to  find  the  response  of  the  Rumanian  Gov- 
ernment unsatisfactory,  and  that  it  earnestly 
hopes  that  the  Rumanian  Government  will  see  fit 
to  take  appropriate  steps  effectively  to  implement 
the  assurances  it  has  given. 

[Released  to  the  press  June  191 

The  following  is  a  translation  of  a  note  received  on 
June  17  iy  the  United  States  representative  in 
Rumania,  Burton  Y.  Berry,  from  the  Rumanian 
Foreign  Minister: 

Sir  :  I  have  the  honor  to  acknowledge  the  receij)t 
of  your  note  of  June  the  fourteenth  whereby  you 
are  notifying  me  upon  instructions  received  the 
reply  of  the  United  States  Government  to  the 
Rumanian  Government's  note  of  June  3.- 

The  Rumanian  Government  regret  that  the 
account  and  statements  contained  in  that  note  have 
failed  to  satisfy  the  United  States  Government. 


They  regret  even  more  the  appreciation  made  of 
the  explanations  and  statements  that  have  been 
presented.  Since  these  explanations  and  state- 
ments are  based  exclusively  upon  facts  which  have 
been  scrupulously  ascertained  and  verified,  the 
Rumanian  Government  find  themselves  obliged 
not  to  retain  the  appreciation  formulated  in  your 
note. 

On  the  other  hand,  the  Rumanian  Government 
in  receiving  this  new  note  of  the  United  States 
Cxovernment  cannot  refrain  from  observing  that 
the  Moscow  decisions  have  been  the  result  of  dis- 
cussions and  of  decisions  arrived  at  jointly  by  the 
governments  of  the  Union  of  the  Soviet  Socialist 
Republics,  the  United  States  and  Great  Britain. 
Tlierefore,  the  Rumanian  Government  must  assume 
that  any  observatory  act  destined  to  control  and  to 
direct  the  implementation  of  the  Moscow  decisions 
cannot  be  the  woi-k  of  the  signatory  governments 
individually  but  the  collective  work  of  these  gov- 
ernments. 

The  Rumanian  Government,  however,  have  not 
received  from  the  government  of  the  Union  of  the 
Soviet  Socialist  Republics  any  objection  or  any 
observation  regarding  the  implementation  of  the 
Moscow  decisions  and  they  cannot  therefore  disre- 
gard this  situation. 

In  formulating  this  observation  the  Rumanian 
Government  are  prompted  only  by  the  determina- 
tion to  implement  within  the  scope  of  a  unitary 
conception  and  action  all  obligations  they  have 
assumed  towards  the  three  governments  that  are 
parties  to  the  Moscow  decisions.  General  elections 
which  will  be  held  as  soon  as  possible  and  not  later 
than  September  as  the  President  of  the  Council  has 
specified  in  his  repeated  statements  to  the  internal 
and  foreign  press,  will  provide  the  most  imj^ortant 
implementation  of  these  obligations,  the  total  ful- 
fillment of  which  remains  the  constant  purpose  of 
their  internal  jDolicy. 

'  For  text  of  U.S.  coiuiuunication,  see  Bulletin  of  June 
9,  1946,  p.  1007. 

"  For  text  of  Rumanian  communication,  see  Bxjlletin  of 
June  16,  1946,  p.  1048. 


1126 


DEPARTMENT  OF  STATE  BULLETIN 


UNRRA  Operations:  Seventh  Quarterly  Report 

THE  PRESIDENT'S  LETTER  OF  TRANSMITTAL  TO  THE  CONGRESS 


To  the  Congress  of  the  United  States  of  America: 

I  am  transmitting  herewith  the  seventh  quar- 
terly report  on  the  operations  of  UNRRA  and  ex- 
penditure of  funds  appropriated  by  the  Congress. 

The  food  crisis,  foreshadowed  in  my  last  report 
on  UNRRA  operations,  is  now  \vpo\\  us.  Many  of 
the  countries  receiving  UNRRA  assistance  have 
only  a  few  weeks'  stocks  remaining  and  the  orderly 
distribution  of  food  supplies  is  increasingly  diffi- 
cult. In  many  countries  even  minimum  food 
rations  may  not  be  met  for  people  who  have  lived 
too  long  on  the  borderline  of  starvation. 

Much  has  been  done  by  this  and  other  countries 
to  avert  this  tragedy  and  the  Congress  is  aware  of 
the  measures  taken  in  the  United  States  to  conserve 
food  and  to  make  it  available  to  the  millions 
abroad  in  urgent  need  of  help.  In  spite  of  all  that 
has  been  undertaken  millions  overseas  are  threat- 
ened with  disaster.  Although  it  may  now  be  too 
late  to  save  some,  it  is  not  too  late  to  save  many 
others.  What  can  be  done  by  the  American  people 
and  their  Government  will  be  done.  I  am  confident 
that  the  Congress  and  the  people  of  the  United 
States  will  support  any  further  measures  whicli 
may  be  necessary  to  meet  the  critical  situation. 

The  food  crisis  has  greatly  retarded  progress  in 
the  devastated  countries  towaitl  recovery  from  the 
war.  It  has  weakened  their  ability  to  help  them- 
selves, for  the  tremendous  task  of  reconstruction 
requires  strength  as  well  as  determination. 

Difficult  as  UNRRA's  task  has  been,  UNRRA 
has  at  this  date  in  the  face  of  severe  world  short- 
ages shipped  over  ten  million  tons  of  vitally  needed 
supplies  which  have  enabled  the  countries  receiv- 
ing assistance  to  survive  the  winter.  In  addition 
to  the  food  which  has  been  provided,  transporta- 
tion facilities  have  been  vastly  improved  in  the 
year  since  war's  end  and  seeds  and  agricultural 
equijament  in  substantial  quantities  are  now  avail- 
able where  they  are  needed  for  the  spring  planting. 
Some  of  the  more  important  basic  sinews  of  peace 


have  been  provided  or  are  on  the  way.  Clouded 
as  it  is  by  the  famine  in  Eurof)e  and  Asia,  a  real 
job  has  been  done  of  which  the  United  Nations 
may  be  proud. 

Through  March  31,  1946,  UNRRA  shipped 
8,251,736  gross  long  tons  of  relief  supplies  valued 
at  $1,140,419,000.  Every  American  can  take  pride 
in  the  fact  that  our  share  in  this  achievement  was 
5,917,785  tons  valued  at  $750,563,000,  which  is  71.7 
I^ercent  of  the  tonnage  and  65.8  percent  of  the 
value  of  all  UNRRA  shipments. 

In  the  crucial  weeks  and  months  ahead  until 
the  new  crojj  comes  in,  we  must  bend  every  effort, 
leave  no  jDossibility  unexplored,  and  take  every 
necessary  step  to  relieve  the  suffering  of  millions 
who  look  for  assistance  to  the  United  States  and 
the  other  uninvaided  United  Nations.  We  are 
providing  assistance  as  a  matter  of  humanity  and 
as  a  mark  of  comradeship  for  those  who  fought 
with  us  to  victory  over  our  common  enemy.  And 
we  are  doing  it  in  the  conviction  that  peace  and 
security  throughout  the  world  can  only  be  built 
on  cooperation  and  mutual  assistance.  We  can- 
not look  to  a  world  of  freedom  and  security  in  the 
midst  of  famine  and  impoverishment. 

The  funds  which  the  Congress  has  already  ap- 
propriated to  UNRRA  will  remain  available  only 
through  this  fiscal  year.  Also,  the  Congress  at  the 
end  of  the  quarter  covered  by  this  report  had  not 
yet  appropriated  to  UNRRA  $600,000,000  which 
it  had  authorized  for  United  States  participation 
in  the  work  of  UNRRA.  Since  the  close  of  the 
quarter  the  Congi-ess  has  appropriated  an  addi- 
tional $135,000,000,  leaving  $465,000,000  author- 
ized but  not  appropriated.  I  strongly  urge  that 
Congress  take  all  further  action  necessary  to  avoid 
any  interruption  in  the  participation  of  our  coun- 
try in  UNRRA's  job. 

H.\RRY  S.  TrUMAK 

The  White  Hotjse 
June  19, 19^6. 


JUNE  30,  1946 
Erratum 


1127 


Agreements  on  Economic  and  Financial  Problems  Reached 
by  U.  S.  and  Provisional  French  Governments 


DECLARATION  MADE  IN  PARIS  BY  THE 
PRESIDENT  OF  THE  PROVISIONAL  GOV- 
ERNMENT OF  THE  FRENCH  REPUBLIC 
AND  IN  WASHINGTON  BY  THE  PRESI- 
DENT OF  THE  UNITED  STATES  ON  MAY 
28,  1946 

[In  the  BULUWiN  of  June  0,  1946.  p.  004,  the  text  of 
this  Dedanitiou  appeared.  Inadvei-tently  the  paragraphs 
were  printed  out  of  order.  Here  follows  the  correct 
version:] 

Eepresentatives  of  the  Provisional  Goverimient 
of  the  French  Republic  and  the  Government  of 
the  United  States  have  met  together  in  AVashing- 
ton  and  have  discussed  important  economic  and 
financial  problems  of  common  interest.  These 
problems  have  included  the  need  for  foreign  credits 
for  reconstructing  and  modernizing  the  French 
economy,  the  settlement  of  lend-lease  reciprocal 
aid  and  other  war  accounts,  the  purchase  of 
United  States  surplus  property  situated  in  France 
and  certain  French  overseas  territories,  the  pur- 
chase of  ships  owned  by  the  United  States,  and 
international  commercial  policy. 

The  discussions  have  brought  out  clearly  the 
full  agreement  of  tlie  two  Governments  on  co- 
oiDeration  in  the  fulfillment  of  the  economic  objec- 
tives which  both  Governments  recognize  as  essen- 
tial to  world  peace  and  prosperity.  The  well-being 
of  the  people  of  all  nations  can  be  advanced 
through  a  full  flow  of  trade  which  enables  each 
country  to  maintain  higher  levels  of  ]3roduction 
and  better  standards  of  living.  These  benefits  of 
world  trade  can  be  realized  only  as  the  markets 
of  the  world  are  opened  to  all  countries  on  fair  and 
equal  terms.  The  two  Governments  are  deter- 
mined to  work  together  in  securing  general  inter- 
national acceptance  of  the  world  trade  proposals 
of  the  United  States  to  be  considered  by  a  con- 
ference of  the  United  \ations. 

The  reconstruction  and  modernization  of  the 
French  economy  will  facilitate  the  integration  of 
Europe  in  the  world  economy  and  enable  France 
to  I'esume  her  place  as  a  great  producing  and  trad- 


ing nation.  The  French  Delegation  has  presented 
a  program  for  reconstructing  and  modernizing 
the  economy  of  France.  The  immediate  objective 
is  to  restore  French  production  to  the  prewar 
level;  the  ultimate  objective  is  to  expand  French 
px'oduction  to  higher  levels  commensurate  with  the 
technical  progress  of  the  past  two  decades.  One 
requisite  for  the  fulfillment  of  this  program  is  an 
adequate  and  assured  sup^Dly  of  coal,  not  only  from 
increased  French  production,  but  also  from  im- 
ports of  German  coal.  The  United  States  Govern- 
ment will  continue  to  assist  France  in  securing  an 
adequate  supply  of  coal  from  Germany. 

In  the  opinion  of  the  American  representatives, 
attainment  of  the  objectives  of  increased  produc- 
tion and  trade  presented  by  the  French  Delegation 
is  necessary  to  the  full  and  effective  participation 
of  France  in  the  woi'ld  economy.  In  furtherance 
of  the  efforts  of  the  French  people  to  this  end,  the 
United  States  has  agreed  to  the  extension  of  addi- 
tional credits  to  France. 

At  the  end  of  1945  the  Export-Import  Bank 
made  a  loan  of  $550  million  to  France.  The  Board 
of  Directors  of  the  Export-Import  Bank  have  now 
approved  a  new  line  of  credit  of  $650  million. 
This  action  has  been  taken  pending  the  time  when 
the  International  Bank  for  Eeconstruction  and 
Development  will  be  in  full  operation. 

The  two  Governments  have  reached  complete 
agreement  for  the  final  settlement  of  all  lend-lease 
and  recijDrocal  aid,  including  military  and  civilian 
supjilies  furnished  by  each  Government  to  the 
other.  They  have  also  agreed  on  the  acquisition 
of  United  States  army  and  navy  surplus  pi-operty 
located  in  France  and  certain  French  overseas 
territories.  Under  this  Agreement,  credits  of  $720 
million  have  been  provided  for  the  purchase  of 
surplus  property  and  for  goods  supplied  to  France 
since  the  end  of  the  war. 

Discussions  are  taking  place  for  an  additional 
credit,  subject  to  the  provisions  of  the  Merchant 
Ship  Sales  Act  of  1946,  whereby  France  will  ac- 
quire  approximately   750,000   tons   of   merchant 

{Continued  on  next  payc) 


1128 


DEPARTMENT  OF  STATE  BULLETIN 


Allied   Mission  to   Observe   Revision   of  Greek   Electoral  Lists 


LELAND  MORRIS  TO  HEAD  U.  S.  SECTION 


[Released  to  the  press  Jiiiic  IS] 

Leland  Morris,  Foreign  Service  officer  and  for- 
mer United  States  Ambassador  to  Iran,  lias  been 
apjiointed  by  the  President,  with  the  personal  rank 
of  Ambassador  to  head  the  United  States  Section 
of  the  Allied  Mission  to  Observe  the  Revision  of 
Greek  Electoral  Lists. 

In  accordance  with  a  recommendation  contained 
in  the  recent  report  of  the  Allied  Mission  to  Ob- 
serve the  Greek  Elections  that  the  electoral  lists 
should  be  revised  before  the  will  of  the  Greek  peo- 
ple was  again  sought  on  any  national  question,  the 
Greek  Government  is  now  in  the  process  of  revising 
electoral  lists  in  anticipation  of  the  plebiscite 
which  it  has  announced  for  September  1.  The 
Greek  Government  has  invited  this  Government 
to  send  observers  to  Greece  to  assist  with  and  re- 
port on  this  revision  of  lists.  In  response  to  this 
request  the  United  States,  along  with  Great  Brit- 
ain, South  Africa,  Australia,  and  New  Zealand, 
has  accepted  this  invitation  with  the  desire  to  aid 
a  gallant  ally  to  continue  the  task  of  restoring  its 
democratic  procedures  which  have  been  denied  to 
the  Greek  people  during  the  past  decade. 

This  Government  therefore  plans  to  send  to 
Greece  shortly  a  group  of  about  fifty  jaeople  to 
carry  out  in  a  friendly  spirit  the  task  of  observa- 
tion. Many  of  this  group  are  .statistical  and 
sampling  experts  who  will  plan  and  administer  a 
scientific  program  for  checking  the  validity  of  the 

U.S.-FRENCH  AGREEMENT— ('o/i//)i»C(Z  from  pane  1127. 

shipping  owned  by  the  Government  of  the  United 
States. 

The  two  Governments  believe  that  the  results 
of  the  discussions  which  have  now  been  concluded 
will  help  France  in  reconstructing  and  moderniz- 
ing the  French  economy  and  are  a  substantial  step 
towards  the  achievement  of  the  international  eco- 
nomic cooi^eration  which  is  the  prerequisite  of  a 
peaceful  and  prosperous  world.  They  welcome  the 
support  of  all  of  the  United  Nations  in  establish- 
ing a  world  trading  and  monetary  system  which 
will  assure  a  full  flow  of  commerce  to  the  benefit 
of  the  peoples  of  all  countries. 


revised  lists  and  the  conditions  under  which  such 
revisions  are  being  carried  out  by  the  Greek  Gov- 
ernment during  the  months  of  June,  July,  and 
August.  American  civilian  observers  will  travel 
over  the  Greek  mainland  and  the  islands  to  col- 
lect first-hand  information.  All  of  these  observ- 
ers, veterans  of  World  War  II  with  overseas  ex- 
perience, have  been  recruited  from  universities  and 
graduate  schools  where  they  are  specializing  in  the 
fields  of  government,  politics,  and  international 
affairs. 

Except  for  a  few  advance  members  who  are  pro- 
ceeding to  Greece  by  air  within  the  week,  the 
group,  headed  by  Ambassador  Morris,  will  depart 
Thursdaj',  June  20,  from  New  York  on  the  S.S. 
Tidcania  for  Naples,  from  which  place  they  will 
be  flown  to  Greece  to  begin  their  duties  in  coop- 
eration with  the  other  Allied  representatives  now 
assembling  in  Athens. 

It  is  anticipated  that  the  report  of  the  mission 
will  be  presented  to  the  Greek  Government  and 
made  available  to  the  public  in  the  latter  part  of 
August,  at  -which  time  the  United  States  Section 
will  return  to  this  country. 

GERMAN  ASSETS — Continued  from  page  1102. 

consideration.  It  was  agreed  that  none  should  be 
sold  or  transferred  without  the  concurrence  of  the 
Conii^ensation  Office  and  the  Joint  Commission. 
At  the  same  time  it  was  stated  in  the  Annex  that 
the  Allies  intended  to  arrange  a  multilateral  con- 
ference on  the  jDatent  question  in  which  the  Swiss 
would  be  invited  to  participate. 

It  should  finally  be  noted  that  the  Accord  states 
tliat  the  United  States  will  unblock  Swiss  as-sets 
in  the  United  States,  determining  the  necessary 
jnocedure  without  delay,  and  that  the  Allies  will 
discontinue  the  "Black  Lists"  so  far  as  the}'  con- 
cern Switzerland.  Both  these  measures  have  been 
subject  to  criticism  in  the  Swiss  press,  particularly 
since  the  end  of  the  war.  It  was  felt  that  these 
were  measures  necessary  to  control  possible  dan- 
gerous activities  and  "cloaking"  operations,  that 
the  agreement  arrived  at  provided  cooperative 
methods  of  eliminating  these  dangers,  and  that 
these  controls  were  therefore  no  longer  necessarv. 


JUNE  30,  1946 


1129 


Publication  of  "Papers  Relating 
to  the  Foreign  Relations  of  the 
United  States,  1931",  Volume 
III 

[Released  to  the  press  June  23) 

Documentation  on  the  beginning  of  the  Far  East- 
ern crisis  precipitated  by  the  Japanese  seizure  of 
Manchuria  in  1931  forms  the  chief  substance  of 
vohune  III  of  Papers  Relating  to  the  Foreign  Re- 
lations of  the  United  States.  This  volume  deals 
entirely  with  matters  connected  with  United  States 
relations  with  the  Far  East.  It  is  the  first  of  the 
regular  amuial  volumes  of  Foreign  Relations  to 
deal  primarily  with  the  origins  of  World  War  II. 
More  than  two  thirds  of  the  volume  is  concerned 
with  the  menace  to  peace  arising  from  Japan's  ag- 
gression in  Manchuria.  There  are  also  chapters  on 
United  States  relations  with  China,  including  a 
comprehensive  section  on  the  negotiations  for  the 
relinquishment  of  extraterritorial  rights,  which 
were  carried  on  in  1931,  and  a  chapter  on  United 
States  relations  with  Japan,  including  the  incident 
of  the  Pangborn-Herndon  flight  over  Japanese 
territory. 

Additional  documents  on  the  Far  Eastern  crisis 
of  1931  were  published  in  1943  in  Foreign  Rela- 
tions, Japan,  1931-194:1,  volume  I,  pp.  1-75.  Those 
documents,  aside  from  a  small  selection  of  back- 
ground reports  necessary  for  an  understanding  of 
the  situation,  are  limited  to  papers  relating  directly 
to  United  States  -  Japanese  relations  without  en- 
tei'ing  into  the  ramifications  of  discussions  with 
third  powers.  The  documents  now  released  trace 
United  States  relations  with  other  countries  and 
organizations,  including  the  League  of  Nations. 
Background  reports,  analyses,  and  discussions  of 
the  day-by-day  situation  relating  to  the  Far  East 
are  a  significant  part  of  this  present  record. 
Among  some  of  the  interesting  evidences  of  mod- 
ern diplomacy  in  action  may  be  cited  trans- Atlantic 
telephone  conversations  between  Washington  and 
Geneva,  London,  and  Paris. 

The  Foreign  Relations  volumes  are  prepared  in 
the  Division  of  Research  and  Publication  under  the 
direction  of  E.  Wilder  Spaulding,  Chief  of  the 
Division,  and  E.  R.  Perkins,  Editor  of  Foreign 
Relations.  The  volume  now  being  released  on 
the  Far  East  was  comijiled  by  John  Gilbert  Reid. 
The  set  of  Foi^eign  Relatio7is  for  1931  will  consist 


of  three  volumes.    Volumes  I  and  II  will  appear 
subsequently. 

Copies  of  volume  III  (cviii,  1091  pages)  may  be 
purchased  from  the  Superintendent  of  Documents, 
Government  Printing  Office,  for  $2.75  each. 


Visit  of  General  von  der  Becke 
of  Argentina 

Pursuant  to  a  request  made  by  the  Argentine 
Embassy  for  General  von  der  Becke,  until  recently 
Chief  of  Staff  of  the  Argentine  Army,  for  an  ap- 
pointment to  pay  his  respects  to  the  Acting  Sec- 
retary, he  was  received  on  June  18  by  Mr.  Acheson 
and  Assistant  Secretary  Braden.  General  von 
der  Becke  was  accompanied  by  Sr.  Enrique  Ferrer 
Vieyra,  Counselor  of  the  Argentine  Embassy. 

General  von  der  Becke  spoke  at  length  in  respect 
to  hemispheric  defense.  The  Acting  Secretary  set 
forth  the  position  of  this  Government  in  keeping 
with  a  statement  made  by  Secretary  Byrnes  on 
April  8,  1946.1 


GERMAN-OWNED     PATENTS      CONFERENCE— ro« 

finned  from  page  1112. 

Francis  C.  Brown,  Consultant  to  Alien  Property 
Custodian. 

John  Green,  Director  of  the  Office  of  Technical 
and  Scientific  Services,  Department  of  Com- 
merce. 

Rowland  M.  Sargeant,  Chief,  Division  of  Pat- 
ents, Office  of  Alien  Property  Custodian. 

James  Simsarian,  Special  Assistant  to  the 
United  States  Delegate  to  the  Inter-Allied 
Reparation  Agency,  Department  of  State. 

Robert  P.  Terrill,  Assistant  Chief,  Division  of 
International  Resources,  Department  of 
State. 

The  Conference  is  being  held  to  consider  the  for- 
mulation of  principles  for  the  opening  up  of  Ger- 
man-owned patents  outside  Germany,  subject  to 
certain  qualifications,  on  a  reciprocal,  non-exclu- 
sive, and  royalty-free  basis. 


'  Bulletin  of  Apr.  21,  1946,  p.  666. 


1130 


DEPARTMENT  OF  STATE  BULLETIN 


Trygve  Lie  Invited  to  Atomic 
Bomb  Tests 

[Released  to  the  press  June  19] 

Acting  Secretary  Acheson  announced  on  June 
19  that  an  invitation  is  being  extended  to  Trygve 
Lie,  Secretary-General  of  the  United  Nations,  to 
witness  the  atomic  bomb  tests  known  as  "Opera- 
tion Crossroads." 

Invitations  have  previously  been  extended  to  the 
member  states  of  the  United  Nations  Atomic  En- 
ergy Commission  to  designate  governmental  and 
press  observers  to  "Operation  Crossroads." 


Visit  of  Uruguayan  Librarian 

Juan  Silva  Vila,  Director  of  the  National 
Libi*ary  of  Uruguay,  is  visiting  the  United  States, 
at  the  invitation  of  the  Department  of  State,  to 
study  library  techniques  and  methods.  He  is  a 
professor  of  literature  in  the  University  of  Monte- 
video, a  member  of  the  National  Committee  on 
Intellectual  Cooperation,  and  also  a  member  of 
the  Subcommittee  on  Exchange  of  Publications 
of  this  organization ;  a  member  of  the  Commission 
of  the  Artigas  Archives,  and  Chief  of  its  Depart- 
ment of  Publication,  Filing,  and  Index. 

Mr.  Silva  Vila  will  spend  several  weeks  work- 
ing with  the  Library  of  Congress  and  later  will 
visit  libraries  of  universities  in  the  northeastern 
section  of  the  United  States. 


The  Foreign  Service 


Consular  Offices 

The  American  Consulate  at  Oran,  Algeria,  was  closed 
on  May  0,  1940. 

The  American  Consulate  at  Tunis,  Tunisia,  was  raised 
to  the  status  of  Consulate  General  on  May  22,  1946. 

The  American  Vice  Consulate  at  Tapachula,  Mexico, 
was  closed  on  May  31,  1946. 

The  American  Consulate  at  Malmu,  Sweden,  was  closed 
March  24,  1946. 

The  American  Consulate  at  Zagreb,  Yugoslavia,  was 
established  May  9,  1946. 

The  American  Consulate  at  Horta,  Fayal,  Azores,  was 
closed  to  the  public  June  14,  1946. 


The  Congress 


The  Inter-American  Military  Cooperation  Act.  H.  Rept. 
2230,  79th  Cong.,  To  accompany  H.R.  6326.  9  pp.  [Favor- 
able report.] 

Investigation  of  Un-American  Activities  and  Propa- 
ganda. Report  of  the  Committee  on  Un-American  Activi- 
ties, pursuant  to  H.  Res.  5,  (79th  Congress),  H.  Rept.  2233, 
79th  Cong,    ix,  73  pp. 

Republic  of  the  Philippines  Military  Assistance  Act. 
H.  Rept.  2243,  79th  Cong.;  To  accompany  H.R.  6572.  5  pp. 
[Favorable  report.] 

Establishing  the  Office  of  Under  Secretary  of  State  for 
Economic  Affairs.  H.  Rept.  2249,  79th  Cong.,  To  accom- 
pany H.R.  6646.    3  pp.     [Favorable  report.] 

Foreign  Service  Buildings  Act.  H.  Rept.  2251,  79th 
Cong.,  To  accompany  H.R.  6627.  4  pp.  [Favorable 
report.] 

Government  Corporations  Appropriation  Bill,  1947,  H. 
Rept.  2269,  79th  Cong.,  To  accompany  H.  R.  6777.     06  pp. 

Implementation  of  the  Financial  Agreement  Dated  De- 
cember 0,  1945,  Between  the  United  States  and  the  United 
Kingdom.  H.  Rept.  2289,  79th  Cong.,  To  accompany  S.J. 
Res.  138.    31  pp.     [Favorable  report.] 

Reports  to  be  Made  to  Congress.  Letter  from  the  Clerk 
of  the  House  of  Representatives  transmitting  a  list  of 
reports  which  it  is  the  duty  of  any  officer  or  Department 
to  make  to  Congress.  H.  Doc.  573,  79th  Cong.  33  pp. 
[Indexed.] 

Supplemental  Estimates  of  Appropriation  for  the  De- 
partment of  State.  Communication  from  the  President 
of  the  United  States  transmitting  supplemental  estimates 
of  appropriation  for  the  fiscal  year  1947  in  the  amount 
of  $l.."i40,S0O.  for  the  Department  of  State.  H.  Doc.  631, 
79th  Cong.     2  pp. 

Supplemental  Estimates  of  Appropriation  for  the  Philip- 
pine War  Damage  Commission  and  the  Department  of 
State.  Communication  from  the  President  of  the  United 
States  transmitting  supplemental  estimates  of  appropria- 
tion for  the  fiscal  year  1947  in  the  amount  of  $66,000,000, 
for  the  Philippine  War  Damage  Commission  and  the  De- 
partment of  State.    H.  Doc.  632,  79th  Cong.    3  pp. 

Supplemental  Estimates  of  Appropriation  for  the  State 
Department.  Communication  from  the  President  of  the 
United  States  transmitting  supplemental  estimates  of  ap- 
propriation for  the  fiscal  year  1947  in  the  amount  of  $730,- 
000,  for  the  Department  of  State.  H.  Doc.  659,  70th  Cong. 
2  pp. 

Amending  the  Second  War  Powers  Act,  1942,  as 
Amended.  S.  Rept.  14i4,  79th  Cong.,  To  accompany  H.R. 
5716.     4  pp.     [Favorable  report.] 

Providing  for  the  Return  of  Certain  Securities  to  the 
Philippine  Commonwealth  Government.  S.  Rept.  1420, 
79th  Cong.,  To  accompany  S.  2210.  4  pp.  [Favorable 
report.  ] 

Providing  for  United  States  Participation  in  the  Philip- 
pine Independence  Ceremonies  on  July  4,  1946.  S.  Rept. 
1421,  79th  Cong.,  To  accompany  H.J.  Res.  360.     1  p. 


J  [WE  30,  1946 


1131 


Authorizing  the  Naturalization  of  Filipinos.  S.  Rept. 
1439,  79th  Cong.,  To  accompany  H.R.  776.    3  pp. 

Authorizing  the  Admission  into  the  United  States  of 
Persons  of  Races  Indigenous  to  India,  to  make  them 
Racially  EQigible  for  Naturalization.  S.  Rept.  1-140,  79th 
Cong,,  To  accompany  H.R.  3517.     3  pp. 

Extending  Temporarily  the  Time  for  Filing  Applications 
for  Patents,  for  Taking  Action  in  the  United  States  Patent 
Otfice  with  Respect  Thereto,  for  Preventing  Proof  of  Acts 
Abroad  with  Respect  to  the  Making  of  an  Invention.  S. 
Rept.  1502,  79th  Cong.,  To  accompany  H.R.  5223.  [Favor- 
able report.] 


The  Department 


Dep 


artmental  Regulations 


131.10    Office  of  Transport  and  Communications  (TRC): 

(Ett'ective  6-3-40) 

I  Responsibility.  TRO  shall  be  responsible  for  the 
initiation  and  coordination  of  policy  and  action  concern- 
ing the  international  aspects  of  transport  and  communi- 
cations. 


II 


Functions. 


A  The  office  of  the  Director  shall  direct  and  coordi- 
nate the  activities  of  the  Divisions ;  review  and  integrate 
policies  formulated  in  the  Divisions ;  represent  the  Depart- 
ment of  State  on  international  bodies,  and  interdepart- 
mental committees  concerned  with  transportation  and 
ccunmunication  matters;  and  establish  and  maintain  ade- 
quate liaison  at  the  Office  level  and  above  within  the 
Department,  and  with  other  Government  agencies. 

B  The  otfice  of  the  Executive  Officer  shall  plan,  rec- 
ommend, and  install  methods  and  procedui-es  designed  to 
improve  the  effectiveness  of  TRC ;  advise  as  to  the  admin- 
istrative feasibility  of  proposed  programs  ;  represent  TRC 
on  all  management  and  administrative  service  matters, 
and  provide  administrative  services  for  TRC. 


Ill 


Relationships. 


A  TRC,  which  for  the  purpose  of  this  paragraph 
shall  include  the  constituent  Divisions  of  TRC,  shall  main- 
tain continuous  liaison  with  other  offices  of  the  Depart- 
ment of  State  having  an  interest  in  policy  and  action  in 
connection  with  transport  and  communications,  and  shall 
give  consideration  to  the  views  of  such  offices.  Other 
offices  of  the  Department  shall  refer  to  TRC  all  matters 
concerning  transport  and  communications. 

B  In  the  conduct  of  negotiations  with  foreign  govern- 
ments on  transport  and  communications  matters  and  in 
the  advance  preparations  for  such  negotiations,  TRC  shall 
act  in  collaboration  with  all  interested  United  States  Gov- 
ernment agencies  and  shall  coordinate  and  integrate  the 
policy  formulated  in  connection  with  such  preparation. 


IV  Organization.  TRC  shall  be  headed  by  a  Director 
who  shall  report  and  be  responsible  to  the  Assistant  Secre- 
tary for  Economic  Affairs,  and  it  shall  consist  of  the  fol- 
lowing organization  units : 

A  Office  of  the  Director  which  shall  consist  of  a 
Director,  a  Deputy  Dii-ector,  and  such  a.ssistants  and 
advisers  as  may  be  necessary. 

B        Office  of  the  Executive  Officer. 

C         Aviation  Division  (AV). 

D         Shipping  Division  (SD). 

E        Telecommunications  Division   (TD). 

131.11    Aviation  Division   (AV):    (Effective  6-.3-46) 

I  Functions.  AV  shall  initiate  and  coordinate  policy 
and  action  in  all  matters  pertaining  to  the  international 
aspects  of  aviation,  including  the  development  and  oper- 
ation of  airlines  and  air  transportation,  the  handling  of 
problems  relating  to  airports  and  air-navigation  facilities, 
and  the  acquisition  of  landing  rights  abroad ;  and  in 
matters  relating  to  international  airmail.  Specifically 
AV  shall : 

A  Conduct  discussions  and  negotiations  with  for- 
eign governments  on  civil-aviation  matters  and  draft 
agreements  on  this  subject. 

B  .  Assemble  and  analyze  data  and  documents  and 
otherwise  prepare  for  international  aviation  conferences, 
and  represent  the  Department  on  international  bodies  deal- 
ing with  aeronautical  affairs. 

C  Maintain  liaison  with  and/or  representation  on 
interdepartmental  committees  and  other  government 
agencies  concerned  with  problems  of  aviation. 

D  Observe  and  review  developments  in  the  field  of 
aviation  in  the  United  States  and  other  countries  in  order 
to  identify  and  advise  on  their  implications  to  tlie  foreign 
policy  of  the  United  States,  and  disseminate  pertinent  in- 
formation to  offices  of  the  Department  and  other  govern- 
ment agencies;  collaborate  in  drafting  instructions  to 
Foreign  Service  establishments  regarding  reports  on  mat- 
ters of  economic  and  political  significance  in  the  field  of 
aviation. 

E  Collaborate  with  the  Civil  Aeronautics  Board,  and 
other  government  agencies,  and  with  foreign  agencies  en- 
gaged in  similar  activities,  in  planning  and  making  ar- 
rangements for  training  foreign  aircraft  and  ground  per- 
sonnel in  the  United  States  and  abroad. 

F  Collaborate  with  other  offices  of  the  Department 
and  other  government  agencies  on  matters  relating  to  the 
export  of  aircraft  and  aeronautical  equipment. 

G  Obtain  civil  and  military  flight  permits  for  United 
States  aircraft  proceeding  abroad  and  for  foreign  aircraft 
visiting  the  United  States  and  its  possessions. 

H  Perform  such  additional  functions  as  may  be  neces- 
sary in  the  discharge  of  the  assigned  respousibilities. 

II  Organization.  AV  shall  be  composed  of  the  follow- 
ing organization  units : 

A  Office  of  the  Chief. 

B  Office  of  the  Adviser  on  Air-Law. 

C  Planning  and  Coordination  Section. 

D  Air  Transport  Section. 

E  Facilities  Section. 

F  Technical  Assistance  Section. 


1132 


DEPARTMENT  OF  STATE  BULLETIN 


131.12  Shipping   Division  (SD):    (Effective  6-3-46) 

I  Functions.  SD  shall  initiate  and  coordinate  policy 
and  action  in  all  matters  relating  to  the  international 
aspects  of  shipping.    Specifically,  SD  shall : 

A  Conduct  discussions  and  negotiations  with  foreign 
governments  on  shipping  matters  and  draft  agreements 
on  this  subject. 

B  Assemble  and  analyze  data  and  documents  and 
otherwise  prepare  for  international  shipping  conferences, 
and  represent  the  Department  on  international  bodies 
dealing  with  shipping  affairs. 

C  Maintain  liaison  witli  and/or  repre.sentation  on 
other  government  agencies  and  interdepartmental  com- 
mittees concerned  witli  shipping  problems. 

D  Observe  and  review  develojiments  in  the  mari- 
time services  and  laws  of  the  United  States  and  other 
countries  in  order  to  identify  and  advise  on  their  im- 
plications to  the  foreign  policy  of  the  United  States,  and 
disseminate  pertinent  information  to  oflicers  of  the  De- 
partment and  to  other  interested  government  agencies ; 
collaborate  in  drafting  instructions  to  Foreign  Service 
establishments  regarding  reports  on  matters  of  economic 
and  political  signiticance  in  the  maritime  services  and 
shipbuilding  industries  of  other  countries. 

E  Initiate  and  coordinate  policy  and  action  relating 
to  international  conventions  concerning  seamen,  and  ad- 
vi.se  Foreign  Service  establishments  as  to  the  handling 
of  individual  cases. 

F  Perform  such  additional  functions  as  may  be 
necessary  in  the  discharge  of  the  assigned  responsibilities. 

II  Organization.  SD  shall  be  composed  of  tlie  fol- 
lowing organization  units : 

A  Office  of  the  Chief. 

B  Planning  and  Coordination  Section. 

C  Traffic  Section. 

D  Shipping  Law  and  Treaties  Section. 

E  Inland  Transportation  Section. 

F  Seamen  Affairs  Section. 

131.13  Telecommunications  Division  (TD) :  (Effective 
6-3-46) 

I  Functions.  TD  shall  initiate  and  coordinate  policy 
and  action  in  all  matters  relating  to  the  international 
aspects  of  telegraph,  telephone,  cable,  and  postal  com- 
munications, and  the  technical  aspects  of  radio.  Specifi- 
cally TD  shall : 

A  Conduct  discu.ssions  and  negotiations  with  foreign 
governments  on  telecommunications  matters  and  draft 
agreements  on  this  subject. 

B  Assemble  and  analyze  data  and  documents  and 
otherwise  prepare  for  international  telecommunications 
conferences,  and  represent  the  Department  on  interna- 
tional bodies  dealing  with  telecommunication  affairs. 

C  Maintain  liaison  with  and/or  representation  on 
other  government  agencies  and  interdepartmental  com- 
mittees concerned  with  problems  of  postal  and  telecom- 
munications affairs. 

D  Observe  and  review  developments  in  the  field  of 
telecommunications  in  the  United  States  and  other  coun- 
tries in  order  to  identify  and  advise  on  their  implications 


to  the  foreign  policy  of  the  United  States,  and  disseminate 
pertinent  information  to  offices  of  the  Department  and 
other  government  agencies ;  collaborate  in  drafting  in- 
structions to  Foreign  Service  establishments  regarding 
reports  on  matters  of  economic  and  political  significance 
in  the  field  of  telecommunications. 

E  Perform  such  additional  functions  as  may  be  nec- 
essary to  the  discharge  of  the  assigned  responsibilities. 

II  Okganization.  TD  shall  be  composed  of  tlie  follow- 
ing organization  units : 

A  Office  of  the  Chief. 

B  Planning  and  Coordination  Section. 

C  Telecommunications  Law  and  Agreements  Section. 

D  Communications  Section. 

E  Technical  Plans  Section. 

134.1     Assistant  Secretary  of  State  for  Occupied  Areas: 

(Effective  4-8—46)  For  the  purpose  of  this  regulation, 
the  term  "occupied  areas"  shall  include  Germany,  Austria, 
Japan,  and  Korea  ;  and  the  term  "United  States  Policy" 
shall  mean  all  policy  which  requires  concerted  study,  con- 
sideration, or  coordination  by  the  State,  War,  and  Navy 
Departments. 

I  Functions.  The  Assistant  Secretary  of  State  for 
Occupied  Areas  shall  be  directly  responsible  to  the  Secre- 
tary of  State  for  the  coordination  of  State  Department 
policy  with  respect  to  all  occupation  matters.  He  shall  be 
the  State  Department  member  of  the  State-War-Navy  Co- 
ordinating Committee  (  SWNCC)  on  all  matters  of  occupa- 
tion policy;  and  shall  take  the  initiative  in  submitting  to 
SWNCC,  or  to  any  appropriate  subcommittee  thereof,  such 
policy  matters  as  may  require  concerted  study,  considera- 
tion, or  action.  All  occupation  policy  matters  or  decisions 
shall  he  presented  by  the  State  Department  to  SWNCC  or 
communicated  outside  of  the  State  Department  through 
the  Assistant  Secretary  of  State  for  Occupied  Areas  or 
with  his  concurrence. 

II  Depaetmental  Secretariats.  The  coordination  of 
Departmental  policy  provided  for  in  paragraph  I,  whether 
political,  cultural,  or  economic,  shall  be  accomplished  by 
the  Assistant  Secretary  of  State  for  Occupied  Areas,  and 
under  his  direction  and  control,  through  the  mechanism  of 
the  Secretariats  as  provided  below. 

A  Germany-Ausfria  Secretariat.  The  Departmental 
position  with  respect  to  any  and  all  matters  of  United 
States  policy  in  respect  of  Germany  and/or  Austria  shall 
be  developed  by  a  Secretariat  organized  and  maintained 
for  the  purpose  under  the  Chairmanship  and  administra- 
tion of  the  Chief,  Division  of  Central  European  Affairs 
(CE),  Office  of  European  Affairs  (EUR).  The  Chairman 
shall  report  and  be  responsible  to  the  Assistant  Secretary 
with  respect  to  the  operation  of  his  Secretariat. 

B  Japan-Korea  Secretariat.  The  Departmental  po- 
sition with  respect  to  any  and  all  matters  of  United  States 
policy  in  respect  to  Japan  and  Korea  shall  be  developed 
by  a  Secretariat  organized  and  maintained  for  the  pur- 
pose under  the  Chairmanship  and  administration  of  the 
Director,  Office  of  Far  Eastern  Affairs  (FE),  or  his  des- 


]L!\E  30,  2946 


1133 


ignee.  The  Cliainuaii  shall  report  and  be  respousible  to 
the  Assistant  Secretary  with  respect  to  the  operation  of 
his  Secretariat. 

C:  Mcmhcrs.  Each  Secretariat  sliall  iiicluile  appro- 
priate membership  from  the  Oliices  of  Research  and  Intel- 
ligence (OKI).  luteriiational  Information  and  Cultural 
Affairs  (OIC).  EuroiH'ari  Affairs  (EUR),  Far  Eastern  Af- 
fairs (FE),  Economic  Security  I'olicy  (ESP),  Financial 
and  Development  Policy  (OFD),  Legal  Adviser  (Le)  and 
such  other  Oflices  of  the  Department  as  the  Chairman  may 
determine. 

D        Functions. 

1  Each  Secretariat  shall  hold  stated  meetings  and 
a  record  of  its  proceedings  shall  be  maintained.  Each 
Chairman  shall  compile  a  list  of  projects  and  studies  In 
respect  of  occupational  affairs,  as  suggested  by  the  mem- 
bers of  the  Secretariat.  These  projects  shall  be  assigned 
for  study  and  preparation  and  submission  to  SWNCC  on 
the  basis  of  relative  urgency  as  determined  by  the  Assist- 
ant Secretary  of  State  for  Occupied  Areas. 

2  Subject  to  the  approval  of  the  Assistant  Secre- 
tary of  State  for  Occupied  Areas,  each  Chairman  shall 
prescribe  the  rules  of  conduct  of  his  Secretariat,  the 
time  and  place  of  its  meetings,  and  the  functional 
relationship  thereof  to  the  Central  Secretariat  (ESC) 
of  the  Department.  All  interdepartmental  liaison  by 
members  of  the  Secretariat  with  respect  to  matters 
within  its  cognizance  shall  be  accomplished  as  the 
Assistant  Secretary  of  State  for  Occupied  Areas  may 
determine. 

3  Subject  to  the  approval  of  the  Assistant  Secretary 
of  State  for  Occupied  Areas,  or  by  his  direction  the 
Chairman  of  each  Secretariat  shall  place  matters  on  the 
SWNCC  agenda  for  consideration.  He  shall  recommend 
to  the  Assistant  Secretary  of  State  for  Occupied  Areas 
duly  qualified  candidates  for  State  Department  member- 
ship on  any  SWNCC  subcommittee  appointed  to  con- 
sider any  matter  in  respect  of  occupation  affairs,  and 
no  one  shall  be  appointed  as  the  State  Department  mem- 
ber of  any  such  subconmiittee  of  SWNCC  without  the 
approval  of,  or  clearance  by,  the  Assistant  Secretary  of 
State  for  Occupied  Areas. 

III  Responsibility  With  Respect  to  REPtJCEES  and 
Displaced  Persons.  The  Assistant  Secretary  of  State  for 
Occupied  Areas  shall  be  responsible  for  the  Coordination 
of  State  Department  policy  and  action  with  respect  to 
refugees  and  displaced  persons  and  shall  direct  and  super- 
vi.se  the  activities  of  the  Adviser  on  Refugees  and  Dis- 
placed Persons  (A-C/R).     (Added  6-15-16) 

IV  Utiuzation  of  Departmental  RESOtmcES.  The 
Directors  of  all  Offices  of  the  Department  are  hereby  sev- 
erally directed  to  take  any  and  all  action  as  may  be 
necessary  or  appropriate  f\illy  to  implement  the  fore- 
going. Upon  the  approval  of  the  Assistant  Secretary  of 
State  for  Occupied  Areas,  the  Chairman  of  each  Secretariat 
established  in  paragraph  II  may  apply  from  time  to  time, 
or  at  any  time,  to  the  Assistant  Secretary  of  State  for 
Administration  for  such  personnel  and  facilities  as,  in 
his  opinion,  may  be  necessary  or  appropriate  for  the  proper 
execution  of  the  mi.ssion  hereby  assigned  to  such  Secre- 
tariat.    The  Assistant  Secretary  of  State  for  Administra- 


tion shall,  to  the  extent  necessary,  in  his  opinion,  levy  on 
any  office  or  Division  of  the  Department  for  such  personnel 
and  facilities  as  the  Secretariats  may  require.  (Renum- 
bered 6-15^6) 


Training  Announcements 

Dr.  Henry  Lee  Smith,  Jr.,  has  assumed  his  duties 
in  the  Division  of  Training  Services  as  Director  of 
Language  Studies  for  the  Department  of  State  and 
the  Foreign  Service. 

Dr.  Smith  brings  to  his  position  a  sound  founda- 
tion in  the  science  of  linguistics  and  a  thorough 
knowledge  of  the  application  of  the  principles  of 
that  science  as  develoi)ed  during  the  war.  li'rora 
October  19-12  to  April  1940  he  serve<l  in  the  United 
States  Army  where  he  was  directly  responsible  for 
the  staff  work  which  produced  many  of  the  new 
techniques  and  new  materials  perfected  for  the 
more  rapid  and  efficient  teaching  of  languages.  This 
work  was  carried  on  with  the  cooperation  of  the 
Intensive  Language  I'rogram  of  the  American  Coun- 
cil of  Learned  Societies.  He  also  was  in  charge  of 
teaching  English  as  a  foreign  language  to  selected 
cooperative  (ierman  prisoners  of  war,  employing 
similar  methods  and  techniques. 

It  is  hoped  that  the  language-training  program 
will  be  begun  in  the  near  future.  The  objective  of 
this  program  Is  to  equip  every  officer  and  other 
employee  of  the  Foreign  Service  with  at  least  the 
rudiments  of  the  language  of  the  country  to  which 
he  is  assigned.  Thorough  and  intensive  courses 
will  be  given  where  required,  and  it  is  contemplated 
that  equipment  and  materials  will  be  shipped  to 
posts  overseas  in  order  to  facilitate  language  train- 
ing in  the  field. 

Language  training  will  also  be  made  available  to 
such  State  Department  personnel  as  require  knowl- 
edge of  languages  as  an  important  factor  in  their 
work. 


Agricvilture  in  the  Americas 

The  following  article  of  interest  to  readers 
of  the  Bulletin  appeared  in  the  May  issue  of 
Agriculture  in  the  Americas,  a  publication  of  the 
Department  of  Agriculture,  copies  of  which  may 
be  obtained  from  the  Superintendent  of  Docu- 
ments, Government  Printing  Office,  for  10  cents 
each : 

"Dominican  Coffee",  by  RoUo  P.  Stovall,  eco- 
nomic analyst,  American  Embassy,  Ciudad 
Trujillo,  Dominican  Republic. 


1134 


DEPARTMENT  OF  STATE  BULLETIN 


Publications 


Department  of  State 


During  the  quarter  beginning  April  1,  1946,  tlie 
following  publications  liave  been  released  by  the 
Department :  ^ 

2459.  Mutual  Aid :  Agreements  Between  the  United 
States  of  America  and  the  Netherlands,  including :  Agree- 
ment Relating  to  Supplies  and  Services,  signed  at  Wash- 
ington April  30,  1945,  effective  April  30,  1945;  Accompany- 
ing Memorandum  and  Exchange  of  Notes ;  Agreement 
Relating  to  Principles  Applying  to  the  Provision  of  Aid  to 
the  Armed  Forces  of  the  United  States ;  and  Exchanges  of 
Notes.     Executive  Agreement  Series  480.     17  pp.     10<f. 

2472.  Charter  of  the  United  Nations  (a  poster).  2  pp. 
Free. 

2479.  Health  and  Sanitation  Program :  Agreement  Be- 
tween the  United  States  of  America  and  Nicaragua — 
Effected  by  exchange  of  notes  signed  at  Managua  March  30 
and  31,  1944.     Executive  Agreement  Series  484.     5  pp.    5^. 

2480.  Mutual  Aid:  Agreements  Between  the  United 
States  of  America  and  Belgium,  including:  Agreement 
Relating  to  Supplies  and  Services,  signed  at  Washington 
April  17,  1945,  effective  April  17,  1945;  Memorandum  of 
Interpretation;  Exchanges  of  Notes;  and  Agreement  Re- 
lating to  Principles  Applying  to  the  Provision  of  Aid  to 
the  Armed  Forces  of  the  United  States.  Executive  Agree- 
ment Series  481.     18  pp.     54. 

2481.  Health  and  Sanitation  Program :  Agreement  Be- 
tween the  United  States  of  America  and  Chile — Effected 
by  exchange  of  notes  signed  at  Santiago  May  5  and  11, 1943. 
Executive  Agreement  Series  485.     5  pp.     5^. 

2484.  The  United  States  and  the  United  Nations.  Re- 
port of  the  U.  S.  Delegation  to  the  First  Part  of  the  First 
Session  of  the  General  Assembly  of  the  United  Nations, 
London,  England,  January  10  to  February  14,  1946.  Con- 
ference Series  82.    X,  54  pp.    150.     (Reprinted.) 

2485.  The  British  Loan.  Message  of  President  Tru- 
man to  the  Congress,  January  30,  1946.  Address  by 
Secretary  of  State  Byrnes  before  the  Foreign  Policy  Asso- 
ciation, February  11,  1946.  Commercial  Policy  Series  85. 
26  pp.    10«'. 

2487.  Armistice :  Agreement  Between  the  United  States 
of  America,  the  Union  of  Soviet  Socialist  Republics,  and 
the  United  Kingdom,  and  Rumania,  together  with  Annex, 
Protocol  and  Letter  of  September  12,  1944 — Agreement 
and  protocol  signed  at  Moscow  September  12,  1944;  effec- 
tive September  12,  1944.  Executive  Agreement  Series  490. 
17  pp.    lOif. 

2488.  Anglo-American  Committee  of  Iniiuiry:  Agree- 
ment Between  the  United  States  of  America  and  the 
United  Kingdom  of  Groat  Britain  and  Northern  Ireland — 
Effected  by  exchange  of  notes  signed  at  Washington  De- 
cember 10, 1945.    Executive  Agreement  Series  491.  2  pp.  5^. 


2489.  Commercial  Relations  :  Agreement  Between  the 
United  States  of  America  and  Italy — Effected  by  exchange 
of  notes  signed  at  Washington  December  6,  1945.  Execu- 
tive Agreement  Series  492.    2' pp.    5((. 

2491.  The  International  Court  of  Justice.  Selected 
Documents  Relating  to  the  Drafting  of  the  Statute.  Con- 
ference Series  84.     167  pp.     $1. 

2492.  Address  by  the  Honorable  James  F.  Byrnes,  Sec- 
retary of  State.    February  28,  1946.     14  pp.     50. 

2493.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

350,  March  17,  1946.     52  pp.     lO^i.^ 

2494.  Diplomatic  List,  March  1946.  145  pp.  Subscrip- 
tion, .$2  a  year ;  single  copy  20^. 

2495.  Jurisdiction  Over  Prizes  :  Agreement  Between  the 
United  States  of  America  and  the  United  Kingdom  of 
Great  Britain  and  Northern  Ireland  for  India  (and  Procla- 
mation)— Agreement  effected  by  exchange  of  notes  signed 
at  London  June  10  and  September  24,  1943.  Executive 
Agreement  Series  489.     5  pp.     5^'. 

249ti.     The  Department  of  State  Bulletin,  vol.  XIV,  no. 

351,  March  24,  1946.     48  pp.     10^. 

2497.  Report  of  the  Delegation  of  the  United  States  of 
America  to  the  Inter-American  Conference  on  Problems 
of  War  and  Peace,  Mexico  City,  Mexico,  February  21- 
Mareh  8,  1945.    Conference  Series  85.    371  pp.    55«*. 

2498.  A  Report  on  the  International  Control  of  Atomic 
Energy,    xiii,  61  pp.    20^.     (Reprinted  twice.) 

2499.  Air  Transport :  Agreement  Between  the  United 
States  of  America  and  Other  Powers — Opened  for  signa- 
ture at  Chicago  December  7,  1944,  and  signed  for  the 
United  States  of  America  December  7,  1944;  accepted  by 
the  United  States  of  America  February  8,  1945,  with 
an  understanding.  Executive  Agreement  Series  488. 
9  pp.     54. 

2500.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

352,  March  31,  1946.    44  pp.    10«i. 

2501.  Air  Services  Transit  Agreement  Between  the 
United  States  of  America  and  Other  Powers — Opened  for 
signature  at  Chicago  December  7,  1944  and  signed  for  the 
United  States  of  America  December  7,  1944 ;  accepted  by 
the  United  States  of  America  February  8,  1945,  with 
an  understanding.  Executive  Agreement  Series  487. 
8  pp.    5(*. 

2502.  Relations  Between  Armed  Forces  in  Iceland : 
Agreement  Between  the  United  States  of  America  and 
Norway — Effected  by  exchange  of  notes  signed  at  London 

'  Serial  numbers  which  do  not  appear  in  this  list  have 
appeared  previously  or  will  appear  in  subsequent  lists. 

■  Subscription,  $3.50  a  year ;  trial  subscription  for  13 
weeks,  $1   (renewal  only  on  yearly  basis). 


JUNE  30,  1946 


1135 


August   28,   1942;   effective  August   28.    1942.      Executive 
Agreement  Series  497.    3  pp.    .'')<?. 

2503.  Cultural  Centers  in  tlie  Other  American  Repub- 
lics. Article  by  Dorothy  Greene  and  Sherly  Goodman 
E.sujiin,  Department  of  State.    20  pp.    Free. 

2504.  Surrender  by  Japan :  Terms  Between  the  United 
States  of  America  and  the  Other  Allied  Powers  and  Japan 
(together  with  proclamation  by  the  Emperor  of  Japan)  — 
Terms  signed  at  Tokyo  Bay  September  2,  1945;  effective 
September  2,  1945.  Executive  Agreement  Series  493.  7 
pp.     5i}. 

2505.  Agreement  Regarding  Japan  :  Agreement  Between 
the  Leaders  of  the  Three  Great  Power.s— The  United 
States  of  America,  the  Union  of  Soviet  Socialist  Repub- 
lics, and  the  United  Kingdom  of  Great  Britain  and  North- 
ern Ireland— Signed  at  Yalta  February  11,  1945.  Execu- 
tive Agreement  Series  498.    4  pp.    5^. 

2506.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

353,  April  7,  1946.    52  pp.    10«!. 

2507.  Military  Mission :  Agreement  Between  the  United 
States  of  America  and  Costa  Rica — Signed  at  Washington 
December  10,  1945;  effective  December  10,  1945.  Execu- 
tive Agreement  Series  486.     12  pp.     5<S. 

2508.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

354,  April  14,  1946.    48  pp.     10«(. 

2509.  Diplomatic  List,  April  1946.  145  pp.  Subscrip- 
tion, $2  a  year ;  single  copy  20<f. 

2510.  Recent  Publications  of  the  Department  of  State, 
1946.    4  pp.     Free. 

2511.  International  Bank  for  Reconstruction  and  De- 
velopment :  Articles  of  Agreement  Between  the  United 
States  of  America  and  Other  Powers — Formulated  at  the 
United  Nations  Monetary  and  Financial  Conference  at 
Bretton  Woods,  New  Hampshire,  July  1  to  22,  1944 ;  signed 
at  Washington  December  27,  1945 ;  effective  December  27, 

1945.  Treaties  and  Other  International  Acts  Series  1502. 
33  pp.     lO^". 

2512.  International  Monetary  Fund  :  Articles  of  Agree- 
ment Between  the  United  States  of  America  and  Other 
Powers — Formulated  at  the  United  Nations  Monetary  and 
Financial  Conference  at  Bretton  Woods,  New  Hampshire, 
July  1  to  22,  1944 ;  signed  at  Washington  December  27, 
1945;  effective  December  27,  1945.  Treaties  and  Other 
International  Acts  Series  1501.     43  pp.     10^. 

2513.  Commercial  Relations :  Agreement  Between  the 
United  States  of  America  and  Greece — Effected  by  ex- 
change of  notes  signed  at  Washington  January  2  and  11, 

1946.  Treaties  and  Other  International  Acts  Series  1505. 
2  pp.     5t 

2514.  Commercial  Relations :  Agreement  Between  the 
United  States  of  America  and  Colombia  relating  to  waiver 
in  respect  of  tariff  preferences  accorded  Ecuador  by  Co- 
lombia under  a  treaty  of  commerce  between  Colombia  and 
Ecuador  signed  July  6,  1942,  as  amended  October  14, 
1943 — Effected  by  exchange  of  notes  signed  at  Bogota 
April  17,  1945.  Executive  Agreement  Series  496.  4  pp. 
54. 

2515.  Surrender  by  Germany :  Terms  Between  the 
United  States  of  America  and  the  Other  Allied  Powers 
and  Germany — Signed  at  Bheims  May  7,  1945  and  at 
Berlin  May  8,  1945;  effective  May  8,  1945.  Executive 
Agreement  Series  502.     10  pp.     5^. 


2516.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

355,  April  21,  1946.     44  pp.     10«S. 

2517.  Foreign  Service  List,  January  1,  1946.  147  pp. 
Sub.scription,  50^^  a  year,  single  copy  204. 

2518.  Report  to  Congress  on  Foreign  Surplus  Disposal. 
April  194G.     54  pp. 

2.519.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

356,  April  28,  1946.     48  pp.     10(f. 

2520.  Atomic  Energy :  Agreed  Declaration  by  the  Presi- 
dent of  the  United  States  of  America,  the  Prime  Minister 
of  the  United  Kingdom,  and  the  Prime  Minister  of  Can- 
ada— Signed  at  Washington  November  15,  1945.  Treaties 
and  Other  International  Acts  Series  1504.     5  pp.     54- 

2.521.  Exchange  of  Information  on  Penicillin :  Agree- 
ment Between  the  United  States  of  America  and  the 
United  Kingdom  of  Great  Britain  and  Northern  Ireland — 
Effected  by  exchange  of  notes  signed  at  Washington 
January  25,  1946;  effective  December  1,  1943.  Treaties 
and  Other  International  Acts  Series  1506.     14  pp.     5^. 

2522.  Report  of  the  Allied  Mission  to  Observe  the  Greek 
Elections.     36  pp. 

2523.  Military  Mission  to  Honduras :  Agreement  Be- 
tween the  United  States  of  America  and  Honduras — Signed 
at  Washington  December  28,  1945 ;  effective  December  28, 
194.5.  Treaties  and  Other  International  Acts  Series  1503. 
10  pp.     54. 

2524.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

357,  May  5,  1946.     44  pp.    10<f. 

252G.  The  Department  of  State  Bulletin,  vol.  XIV, 
no.  358,  May  12,  1946.     48  pp.     104- 

2527.  Diplomatic  List,  May  1946.  145  pp.  Subscription, 
$2  a  year ;  single  copy  20^. 

2530.  Liberated  Prisoners  of  War  and  Civilians :  Agree- 
ment Between  the  United  States  of  America  and  the  Union 
of  Soviet  Socialist  Republics — Signed  in  the  Crimea  Febru- 
ary 11,  1945 ;  effective  February  11,  1945.  Executive 
Agreement  Series  505.     9  pp.     54- 

2533.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

359,  May  19,  1946.     44  pp.     IO4. 

2534.  Suggestions  as  to  the  Method  and  Character  of 
Representations  to  the  Committee  for  Reciprocity  Infor- 
mation.    Commercial  Policy  Series  86.     5  pp. 

2536.  Anglo-American  Committee  of  Inquiry.  Near 
Eastern  Series  2.     92  pp. 

2537.  Paris  Meeting  of  Foreign  Ministers.  Report  of 
Secretary  Byrnes,  May  20,  1946.  Conference  Series  86. 
16  pp. 

2538.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

360,  May  26,  1946.    48  pp.    104- 

2541.  The  Department  of  State  Bulletin,  vol.  XIV,  no. 

361,  June  2,  1946.    52  pp.    100. 

2543.  The  Proclaimed  List  of  Certain  Blocked  Nationals, 
Cumulative  Supplement  No.  3,  June  6,  1946,  to  Revision  X 
of  December  20,  1945.    20  pp.    Free. 

2544.  The  Department  of  State  Bulletin,  vol.  XIV,  no 

362,  June  9,  1946.    48  pp.    10^. 

2549.  Seventh  Report  to  Congress  on  Operations  of 
UNRRA,  as  of  March  31,  1946.    62  pp. 

Tre.\tt  Series 

994.  Utilization  of  Waters  of  the  Colorado  and  Tijuana 


1136 


DEPARTMENT  OF  STATE  BULLETIIS 


Rivers  and  of  the  Rio  Grande  :  Treaty  Between  the  United 
States  of  America  and  Mexico,  and  Protocol — Treaty 
signed  at  Washington  February  3,  1944,  protocol  signed  at 
Washington  November  14,  1944;  ratified  by  the  President 
of  the  United  States  November  1,  1945,  subject  to  certain 
understandings;  ratified  by  Mexico  October  IG,  1945;  pro- 
claimed by  the  President  of  the  United  States  November 
27,  1945,  subject  to  said  understandings;  effective  Novem- 
ber S,  1945.    57  pp.    15^. 

The  Department  of  State  publications  ehtitled  Treaty 
Scries  and  Executive  Agreement  Series  have  been  discon- 
tinued. The  Treaties  and  Other  International  Acts  Series 
has  been  inaugurated  to  make  available  in  a  single  series 
the  texts  of  treaties  and  otiier  instruments  (such  as  con- 
stitutions and  charters  of  international  organizations,  dec- 
larations, agreements  effected  by  exchanges  of  diplomatic 
notes,  et  cetera)  establishing  or  defining  relations  be- 
tween the  United  States  of  America  and  other  countries. 
The  texts  printed  in  the  present  series,  as  in  the  Treaty 
Scries  and  Executive  Agreement  Scries,  are  authentic  and, 
in  appropriate  cases,  are  certified  as  such  by  the  Depart- 
ment of  State.  The  Treaties  and  Other  International  Acts 
Series  begins  with  the  number  1501,  the  combined  num- 
bers in  the  Treaty  Series  and  Executive  Agreement  Scries 
having  reached  1500,  the  last  number  in  the  Treaty  Series 
being  i;94  and  the  last  number  in  the  Executive  Agreernent 
Scries  being  .500. 

The  Department  of  State  also  publishes  the  United 
States  Statutes  at  Large  which  contain  the  laws  of  the 
United  States  and  concurrent  resolutions  of  Congress, 
proclamations  of  the  President,  treaties,  and  international 
agreements  other  than  treaties.  The  Statutes  are  issued 
after  adjournment  sine  die  of  each  regular  session  of  Con- 
gress. The  laws  are  also  published  in  separate  prints, 
popularly  known  as  slip  laws,  immediately  after  enact- 


ment. These  are  issued  in  two  series :  Public  Laws  and 
Private  Laws,  consecutively  numbered  according  to  the 
dates  of  approval  or  the  dates  upon  which  bills  or  joint 
resolutions  otherwise  become  law  pursuant  to  the  provi- 
sions of  the  Constitution.  Treaties  also  are  issued  in  a 
special  series  and  are  numbered  in  the  order  in  which 
they  are  proclaimed.  Spanish,  Portuguese,  and  French 
translations,  prepared  by  the  Department's  Central  Trans- 
lating Division,  have  their  own  publication  numbers  run- 
ning consecutively  from  1.  All  other  publications  of  the 
Department  since  October  1,  1929  are  numbered  consecu- 
tively in  the  order  in  which  they  are  sent  to  press ;  in 
addition,  some  of  them  are  subdivided  into  series  accord- 
ing to  general  subject. 

To  avoid  delay,  requests  for  publications  of  the  Depart- 
ment of  State  should  be  addressed  direct  to  the  Superin- 
tendent of  Documents,  Government  Printing  Office,  Wa.sh- 
ington  2.">,  D.  C,  except  in  the  case  of  free  publications, 
which  may  be  obtained  from  the  Department.  The  Super- 
intendent of  Documents  will  accept  deposits  against  which 
the  cost  of  publications  ordered  may  be  charged  and  will 
notify  the  depositor  when  the  deposit  is  exhausted.  The 
cost  to  depositors  of  a  complete  set  of  the  publications  of 
the  Department  for  a  year  will  probably  be  somewhat  in 
excess  of  $15.  Orders  may  be  placed,  however,  with  the 
Superintendent  of  Documents  for  single  publications  or 
for  one  or  more  series. 

The  Superintendent  of  Documents  also  has,  for  free 
distribution,  the  following  price  lists  which  may  be  of 
interest:  Foreign  Relations  of  the  United  States;  Ameri- 
can History  and  Biography;  Laws;  Commerce  and  Man- 
ufacture; Tariff;  Immigration;  Alaska  and  Hawaii:  Insu- 
lar Possessions;  Political  Science;  and  Maps.  A  list  of 
publications  of  the  Bureau  of  Foreign  and  Domestic  Com- 
merce may  be  obtained  from  the  Department  of  Commerce. 


/ 


Contents continued 


^ 


Cultural  Cooperation  Page. 

Visit  of  Uruguayan  Librarian 1130 

The  Foreign  Service 1130 

The  Congress 1130 

The  Department 

Departmental  Regulations 1131 

Publications 

Publication  of  "Papers  Relating  to  the  Foreign  Relations  of 

the  United  States,  1931",  Volume  III 1129 

Quarterly  List  of  Department  of  State 1134 

Agriculture  in  the  Americas 1133 

Training  Announcements 1133 

U.  S,  GOVERNMENT  PRINTING   OFFICE:  1946 


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