f^
niH'^ihiuii,
Given By
U. S. SUPT. OF DOCUMENTS
^
"^^yyUe/t
The U.N. and Specialized Agencies Page
Challenges and Opportunities in World
Health: The First World Health Assem-
bly. Article by H. van Zile Hyde,
M.D 391
Assassination of Count Folke Bernadotte,
U.N. Mediator in Palestine:
Statement by Secretary Marshall .... 399
Message From Representative of Secretary-
General to Israeli Foreign Minister . . 399
Preliminary Report From American Con-
sul General at Jerusalem 399
United Nations Charter: A Standard for
Conduct Among Nations. Address by
Secretary Marshall 400
U.N. Documents: A Selected Bibliography . 401
General Policy
American Diplomatic Personnel Detained in
Rumania 403
Freedom of Movement Allowed Mrs. Kasen-
kina and Mr. Samarin: U.S. Note to the
Soviet Embassy on September 9. . . . 408
Science Falls Victim to Communism's Strait
Jacket. Address by George V. Allen. . 409
Communist Strategy in Southeast Asia. . . 410
Incident Involving Seating of Ethiopian
Minister at Meeting of Scientists: Ex-
change of Correspondence Between the
Ethiopian Legation and the Department
of State 413
Evacuation of U.S. Nationals From Hydera-
bad 414
Treaty Information Paga
Disposition of the Former Italian Colonies:
U.S. Position in the Council of Foreign
Ministers 402
Rumanian Nationalization Legislation Con-
sidered Violation of Peace Treaty:
U.S. Note to Rumania Delivered Sep-
tember 7 408
Yugoslavia Pays for Nationalized American
Property 413
Correction in Protocol of Schedule XX of
General Agreement on Tariffs and
Trade 414
Occupation Matters
Displaced-Persons Resettlement Program:
Steps for Admission of Aliens Into U.S. . . 411
DP Commission Staff Departs for Ger-
many 412
Registration of Immigrants to the U.S.
From German and Austrian Zones . . 412
Economic AKairs
Czechoslovakia Settles Lend-Lease Account . 413
The Congress
A Review of the Work of the Eightieth Con-
gress 415
Publications
Foreign Relations of the United States, 1932,
Volumes III and IV 418
Department of State 419
U. S. SOVERNMENT PRtNTlN* OFFlCEi IG4a
420
ii
^ T/Q: r
r
,j/te/ ^eha^imen{/ ,{w t/taie^
THE BERLIN CRISIS:
Communique by U.S., U.K., and France 423
U.S. Note to the Soviet Government 423
Soviet Note to U.S. Government 426
Tri-Partite Aide-Memoire lo Soviet Government . . 427
NO COMPROIMISE ON ESSENTIAL FREEDOMS •
Address by Secretary Marshall to General Assembly ... 432
CONCLUSIONS FROM REPORT BY PALESTINE
MEDIATOR 436
For complete contents see back cover
1
October 3, 1918
.^lENT oj^
OCT 25 1948
^«" o»
e>%e Zl^c/ia/ytnie^ £^ t/lale
bulletin
Vol. XIX, No. 483 • Publication 3295
Oaoher 3, 1948
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Note: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Defabtment
OF State Bulletin as the source will be
appreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
Office of Public Affairs, provides the
public and interested agencies of
the Government with information on
developments in the field of foreign
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Publications of the Department, as
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currently.
The Berlin Crisis
COMMUNIQUE BY U.S., U-K., AND FRANCE
[Released to the press September L'6]
Text of the joint communique isxued by the three
Foreign Ministers in Paris on September 26
Mr. Schuman, Mr. Bevin and Mr. Marshall met
shortly after noon at the Quai d'Orsay to consider
the Soviet note of September 25, 1948, I'elating to
the situation in Berlin, caused by the imposition
and continuance of the Soviet blockade of rail,
road and water communications between Berlin
and the Western Zones of occupation in Germany.
In view of the fact that the Soviet Government
in violation of the understanding between the Four
Powers has chosen to make public unilaterally its
version of these negotiations, the three Ministers,
authorized the following statement :
"The Governments of France, the United States
and the United Kingdom are in agreement that
the Soviet note of September 25 is unsatisfactory.
The Soviet Government fails to provide the assur-
ance requested in the notes from the three govern-
ments of September 22, 19-18, that the illegal block-
ade measures be removed. In addition it demands
that commercial and passenger traffic between the
Western Zones and Berlin, by air as well as by
rail, water and road be controlled by the Soviet
Command in Germany. This demand of the
Soviet Government is restated with emphasis in
the official communique issued in Moscow. More-
over, in I'egavd to currency, the Soviet note is
evasiA'e and does not answer the clear position
stated by the three governments.
"Accordingly, the three governments are trans-
mitting a note to the Soviet Government fully
setting out their position and informing it that in
view of the insistence of the Soviet Government
upon maintaining the blockade and upon the insti-
tution of restrictions on air communications they
are compelled in compliance with their obligations
under the Charter of the United Nations, to refer
the matter to the Security Council."
U.S. NOTE DELIVERED TO THE SOVIET GOVERNMENT
[Released to the press September 27]
The Acting Secretary of State presents his com-
pliments to His Excellency, the Ambassador of
the Union of Soviet Socialist Republics,^ and has
the honor to transmit the following communica-
tion :
1. The Governments of the United States,
France and the United Kingdom, conscious of
their obligations under the Charter of the United
Nations to settle disputes by peaceful means, took
the initiative on July 30, 1948 in approaching the
Soviet Government for informal discussions in
Moscow in order to explore every possibility of
adjusting a dangerous situation wliich had arisen
by reason of measures taken by the Soviet Gov-
ernment directly challenging the rights of the
other occupying powers in Berlin. These meas-
ures, persistently pursued, amounted to a blockade
of land and water transport and communication
between the Western zones of Germany and Berlin
which not onh' endangered the maintenance of the
, forces of occupation of the United States, France
and tlie United Kingdom in that city but also
Ocfober 3, 7948
jeopardized the discharge by those Governments
of their duties as occupying powers through the
threat of starvation, disease and economic ruin
for the population of Berlin.
2. The Governments of the United States, France
and the United Kingdom have explicitly main-
tained the position that they could accept no ar-
rangement wliich would deny or impair the rights
in Berlin acquired by them through the defeat and
unconditional surrender of Germany and by Four-
Power agreements. They were, however, willing
to work out in good faith any practical arrange-
ments, consistent with their rights and duties, for
restoring to normal the situation in Berlin, in-
cluding the problems presented by the existence of
two currencies in that city.
?>. After long and patient discussion, agree-
ment was arrived at in Moscow on a directive to
the four Military Governors under which the re-
strictive measures placed by the Soviet Military
Government upon transport and communications
' Alexander S. Panyushkin.
423
between the Western zones and Berlin would be
lifted simultaneously with the introduction of
the German mark of the Soviet zone as the sole
currency for Berlin under Four-Power control of
its issue and continued use in Berlin.
4. In connection with the lifting of restrictions
and the maintenance of freedom of communica-
tion and the transport of persons and goods be-
tween Berlin and the Western zones, the agreed
directive provided that restrictions recently im-
posed should be lifted. Generalissimo Stalin dur-
ing the discussions personally confirmed that this
meant the removal also of any restrictions imposed
prior to June 18, 1948.
In connection with the currency situation in
Berlin, the Soviet authorities insisted that the
German mark of the Soviet zone be accepted as the
sole currency for Berlin. The three Western
occupying powers declared that they were ready
to withdraw from circulation in Berlin the West-
ern mark "B"' issued in that city and to accept the
German mark of the Soviet zone subject to Four-
Power control over its issuance, circulation and
continued use in Berlin (i.e. in Berlin only and
not in the Soviet zone). After long discussions
Generalissimo Stalin, on August 23, 1948, person-
ally agreed to this Four-Power control and him-
self iDroposed the establishment of a Four-Power
Financial Commission which would control the
practical implementation of the financial arrange-
ments involved in the introduction and continued
circulation of a single currency in Berlin and
which. Generalissimo Stalin specifically stated,
would have the power to control the German
Bank of Emission of the Soviet zone insofar as its
operations with respect to Berlin were concerned.
5. It was with these understandings, personally
confirmed by Generalissimo Stalin, that the agreed
directive was sent to the four Military Governors
in Berlin to work out the technical arrangements
necessary to put it into eflPect.
6. Despite these clear understandings, the So-
viet Military Governor soon made it plain in the
discussions held by the four Military Governors
that he was not prepared to abide by the agreed
dii'ective.
Although the directive called for the unqualified
lifting of the restrictions on transport and com-
munications between the Western zones and Berlin,
the Soviet Military Governor failed to comply.
What is more he demanded that restrictions should
be imposed on air traffic. He endeavored to sup-
port his demand by a false interpretation of a de-
cision of the Control Council of November 30,
1945. Actually during the discussions leading up
to the decision of the Control Council of November,
1945, to establi-sh air corridors the Soviet military
authoi-ities in Berlin had suggested that the traffic
in the corridors should be limited to the needs of
the military forces. Neither the Control Council,
424
however, nor any other Four-Power body accepted
this proposal and the traffic in the corridors has
since been subject only to those safety regulations
which were agreed on a P^our-Power basis. Other
than these agreed safety regulations, no restric-
tions whatsoever have been or are in existence
on the use by aircraft of the occupying powers
of air communications in the corridors between
Berlin and the Western zones of Germany.
In regard to Four-Power control of the German
mark of the Soviet zone in Berlin, the Soviet
Military Governor refused to admit, despite the
agreement in Moscow, that the Financial Commis-
sion should exercise control over the operations
with respect to Berlin of the German Bank of
Emission of the Soviet zone.
Furthermore, with res])ect to the question of the
control of the trade of Berlin, the position of the
Soviet Military Governor amounted to a claim for
exclusive Soviet authority over the trade of Berlin
with the Western zones of occupation and with
foreign countries. This claim was a contradiction
of the clear meaning of the agreed directive to
the Four Military Governors.
7. Even while discussions were in progress, the
Soviet authorities in Berlin tolerated attempts on
the part of minority groups sympathetic to their
political aims forcibly to overthrow the legal gov-
ernment of the city of Berlin, constituted by demo-
cratic elections held under Four-Power super-
vision. On August 30 the representatives of the
three Western occupying powers in Moscow had
drawn Mr. Molotov's attention to the disturbed
situation in Berlin. They suggested that instruc-
tions be sent to the Four Military Governors that
they should do all in their power to preserve a
favorable atmosphere in Berlin, but Mr. Molotov
claimed that such instructions to the Soviet Mili-
tary Governor were unnecessary. Nevertheless,
after that date these attempts to overthrow the city
government increased in violence.
8. On September 14, 1948 the representatives of
the Governments of the United States, France and
the United Kingdom, acting on specific instruc-
tions, called the attention of the Soviet Govern-
ment to the Soviet Military Governor's disregard
of the agreements reached during the Moscow dis-
cussions and requested that he be instructed to
give effect to them.
9. The Soviet Government's reply of September
18, however, upheld the Soviet Military Governor's
position. The Soviet Government further con-
firmed its intention to disregard its commitment
to lift the restrictions imposed on transport and
communications by seeking to impose restrictions
which had not before been in effect.
With respect to trade, the Soviet requirement
that the licensing of trade with Berlin be placed
in the hands of the Soviet military authorities
made plain the Soviet Government's intention to
obtain exclusive control over the trade of Berlin.
Department of State Bulletin
As regards the powers of the Four-Power Fiiiiiii-
eial Commission, the Soviet reply asserted that
the AVestern occupying powers desired to estab-
lish control over all operations of the German
Bank of P'mission. In fact the United States, the
United Kingdom and French Military Governors
sought only to secure the Soviet Military Gov-
ernor's acceptance of the agreed principle tnat the
Four- Power Financial Connnission should control
the operations of the Bank with respect to the
financial arrangements relating to the currency
changeover and to the continued provision and use
of the German mark of the Soviet zone in the city
of Berlin, (i.e. in Berlin only and not in the
Soviet zone). In the light of Mr. Molotov's state-
ments during the discussion of the Soviet reply,
it became clear that no assurance was given that
the Soviet Military Governor would be prepared
to proceed on the previously agreed basis. Thus
in this matter, as in others, the intention of the
Soviet Government was manifestly to impose con-
ditions nullifying the authority of the Western
occupying powers and to acquire complete control
over the city of Berlin.
10. For the Governments of the United States,
France, and the United Kingdom to continue dis-
cussions when fundamental agreements previously
reached had been disregarded by the Soviet Gov-
ernment would have been futile. It would have
been equally fruitless to continue such discussions
in the face of the unmistakable intention of the
Soviet Government to undermine, and indeed to
destroy, the rights of the three Governments as
occupying powers in Berlin as a price for lifting
the blockade, illegally imposed in the first instance
and still unlawfully maintained. The Three Gov-
ernments therefore despatched identical notes on
September 22nd to the Soviet Government. In
those notes after restating their position on the
specific points at issue they asked the Soviet Gov-
ernment whether it was prepared to remove the
blockade measures which it had imposed and
thereby to establish conditions which would permit
a continuation of discussions.
11. The reply of the Soviet Government in its
notes to the three Governments of September 25,
1948 is unsatisfactory.
As regards the introduction and continued cir-
culation and use in Berlin of the German mark of
the Soviet zone, the Soviet Government misrepre-
sents the position of the three Western occupying
powers. The latter have made it clear from the
outset that they do not desire to exei-cise any con-
trol over the financial arrangements in the Soviet
zone of occupation, but are insisting on those con-
ditions only which would provide adequate Four-
Power control over the financial arrangements for
the introduction and continued circulation and use
of the German mark of the Soviet zone as the sole
currency in Berlin.
As regards control of the trade of Bei-lin the
Ocfober 3, 1948
Soviet Government contrary to its previous atti-
tude now states its willingness to agree to the es-
tablishment of Four-Power control over the issu-
ance of licenses for the import and export of goods
provided that agreement is reached on all other
questions. It is clear, after more than six weeks
of discussions, from the Soviet Government's per-
sistent refusal to remove the blockade measures
and its continued insistence on other conditions
which would enable it to destroy the authority
and rights of the United States, France and the
United Kingdom as occupying powers in Berlin.
that this conditional concession is illusory.
As regards air traffic between Berlin and the
Western zones of occupation, the Soviet Govern-
ment, while neither affirming nor withdrawing the
demand for the particular restrictions put for-
ward by the Soviet Military Governor during the
discussions in Berlin and confirmed in its reply of
September 18th, introduces another requirement
to the effect that transport by air of commercial
freight and passengers must be placed under the
control of the Soviet command.
The Soviet Govermnent's note of September 25
therefore not only ignores the request of the three
Governments that the blockade measures should
be removed in order that conditions may be estab-
lished which would permit the continuation of
discussions; it also seeks to impose restrictions on
transport and communications between Berlin and
the Western zones which would place the mainte-
nance of the forces of occupation of the three West-
ern occupying powers and the whole life of the
Berlin population within the arbitrary power of
the Soviet command, thus enabling the Soviet
military authorities to reimpose the blockade at
any moment in the future if they so desired.
12. Accordingly, it is apparent that the Soviet
Government had no intention of carrying out
the undertakings to which it had subscribed dur-
ing the Moscow discussions in August. In the
face of the expressed readiness of the Governments
of the United States, France and the United King-
dom to negotiate with the Soviet Government all
outstanding questions regarding Berlin and Ger-
many as a whole in an atmosphere free from duress,
the Soviet Government has, in fact, persisted in
using duress. It has resorted to acts of force
rather than to the processes of peaceful settlement.
It has imposed and maintained illegal restrictions
amounting to a blockade of Berlin. It has failed
to work out in good faith Four-Power arrange-
ments for the control of the currency of that city.
Even while the Western occupying powers were
seeking agreement on measures to implement the
understandings reached in Moscow the Soviet mili-
tary authorities condoned and encouraged attempts
to overthrow the legally constituted municipal
government of Berlin. These actions are plainly
attempts to nullify unilaterally the rights of the
Western occupying powers in Berlin, which are
425
co-equal with those of the Soviet Union and like
them are derived from the defeat and unconditional
surrender of Germany and from Four-Power
agreements to which the Soviet Government is a
party. Moreover, the use of coercive pressure
against the Western occupying powers is a clear
violation of the principles of the Charter of the
United Nations.
13. Tlie issue between the Soviet Government
and tlie Western occupying powers is therefore not
that of technical difficulties in communications
nor that of reaching agreement upon the condi-
tions for the regulation of the currency for Berlin.
The issue is that the Soviet Government has clearly
shown by its actions that it is attempting by illegal
and coercive measures in disregard of its obliga-
tions to secure political objectives to which it is
not entitled and which it could not achieve by
peaceful means. It has resorted to blockade
measures; it has threatened the Berlin population
with starvation, disease and economic ruin; it has
tolerated disorders and attempted to overthrow
the duly elected municipal govei'nment of Berlin.
The attitude and conduct of the Soviet Govern-
ment reveal sharply its purpose to continue its
illegal and coercive blockade and its unlawful ac-
tions designed to reduce the status of the United
States, France and the United Kingdom as oc-
cupying powers in Berlin to one of complete sub-
ordination to Soviet rule, and thus to obtain abso-
lute authority over the economic, political and
social life of the people of Berlin, and to incorpo- .
rate the city in the Soviet zone.
14. The Soviet Government has thereby taken
upon itself sole responsibility for creating a situa-
tion, in which further i-ecourse to the means of
settlement prescribed in Article 33 of the Charter
of the United Nations is not, in existing circum-
stances, possible, and which constitutes a threat
to international peace and security. In order
that international peace and security may not be
further endajigered the Governments of the United
States, France and the United Kingdom, there-
fore, while reserving to themselves full rights to
take such measures as may be necessary to main-
tain in these circumstances their position in Berlin,
find themselves obliged to refer the action of the
Soviet Government to the Security Council of the
United Nations.
Department of State, Washington
September 26, 191^8.
SOVIET NOTE DELIVERED TO THE U.S. GOVERNMENT
[Released to the press September 27]
On September 26 the Soviet Ambassador in Wash-
ington delivered to the Acting Secretary of State
the following reply of the Soviet Government to
the third-person note of September 22, 19Ii.8
Translation]
1. The Government of the Union of Soviet So-
cialist Republics has acquainted itself with the
note of the Government of the USA of September
22, 1948 concerning the negotiations of the four
powers which have taken place in Moscow and
Berlin on the question of the introduction of the
German mark of the Soviet zone as the sole cur-
rency in Berlin and concerning the removal of the
restrictions on communications, transport and
trade between Berlin and the western zones of
Germany.
In connection with this the Soviet Government
considers it necessary to declare that the position
taken by the Government of the USA not only
does not facilitate but on the contrary complicates
the reaching of agreement concerning the settle-
ment of the situation which has arisen in Berlin
as a result of carrying out of a separate currency
reform and the introduction of a sejmrate currency
in the westei'n zones of Germany and in the west-
ern sectors of Berlin, which constituted an extreme
and most far reaching measure in execution of the
426
policy of partitioning Germany being carried out
by the Governments of the USA, Great Britain
and France.
2. In its note the Government of the USA refers
to three disputed questions which were mentioned
by the Governments of the USA, Great Britain
and France in the aide memoire of September 14
and by the Government of the USSR in the aide . ,
memoire of September 18, 1948. li
The Government of the United States of Amer- "^
ica states that the continuation of the negotiations
on the above-mentioned questions on the present
basis would be useless and considers that in order
to create the conditions which would permit a
continuation of the negotiations, there would have
to be a removal of the temporary transport restric-
tions between Berlin and the western zones which .
were introduced by the Soviet Command for the I'
purpose of protecting the interests of the German
population as well as the economy of the Soviet
zone of occupation and of Berlin itself.
Such a statement of the Government of the USA
is in direct conflict with the agi'eement reached on
August 30 in Moscow between the four govern-
ments (the directive to the Military Governors),
in which it was stated :
"The Governments of France, the United King-
dom, the United States, and the USSR have de-
cided that, subject to agreement being reached
Department of State Bulletin
among the four inilitiiry <rovernors in Berlin for
their practical impleinenlatioii, the following steps
shall be taken simultaneously :
" (a ) Restrictions on communications, transport
and connnerce between Berlin and the western
zones, and also on the movement of cargoes to and
from the Soviet zone of Germany, which have re-
cent h' been imposed, shall be lifted;
"(b) The German mark of the Soviet zone
shall be introduced as the sole currency for Berlin,
and the Western mark B shall be withdrawn from
circulation in Berlin."
From the text of the agreement cited above it
is evident that the four governments agreed during
the negotiations in Moscow on the simultaneous
lifting of restrictions on trade and communica-
tions between Berlin and the western zones and
introduction of the German mark of the Soviet
zone as the sole currency in Berlin. The Soviet
Government insists on this, since the situation
created by the separate measures of the western
powers means that the three governments are not
limiting themselves to their sovereign adminis-
tration of the western zones of Germany but wish
at the same time to administer in currency and
financial matters the Soviet zone of occupation as
well, by means of introducing into Berlin, which
is in the center of the Soviet zone, their separate
currency and thus disrupting the economy of the
eastern zone of Germany and in the last analysis
forcing the USSR to withdraw therefrom.
The Soviet Government considers it necessary
that the agreement reached in Moscow be carried
out and considers that further negotiations can be
successful only in the event that the other three
governments likewise observe that agreement. If
the Government of the USA repudiates the agree-
ment reached on August 30, only one conclusion
can be drawn therefrom : namely, that the Gov-
ernment of the USA does not wish any agreement
between the USSR, the USA, Great Britain and
France for the settlement of the situation in Berlin.
3. Inasmuch as the position of the Governments
of the USA, Great Britain and France on the three
disputed points was set forth in the note of Sep-
tember 22, the Soviet Government considers it
necessary to do likewise :
A) As regards air communication between Ber-
lin and the western zones, the establishment by the
Soviet Command of a control over the transport
of commercial cargoes and passengers is just as
necessary in this case as in the case of railway,
water and highway transport. The air routes can-
not remain uncontrolled, since an understanding
has been reached between the four governments to
the eft'ect that the agreement must envisage the
establishment of a corresjionding control over cur-
rency circulation in Berlin and the trade of Berlin
with the western zones.
B) In the directive to the Military Governors
adopted by the four governments on August 30th
the functions of control by the four power finan-
cial commission of the execution of financial meas-
ures connected with the introduction and circula-
tion of a single currency in Berlin were explicitly
provided for.
The Soviet Government considers it necessary
that this agreement be carried out, including the
maximum reduction of occupation costs in Berlin
and the establishment of a balanced budget in Ber-
lin (not considered up to this time in the Berlin
conversations), which were provided for in that
agreement.
C) The Soviet Government has already ex-
pressed its agreement that trade between Beilin,
third countries and the western zones of Germany
should be placed under the control of the four
power financial commission. The Soviet Govern-
ment now declares its readiness to agree to the
establishment of four power control likewise over
the issuance of import and export licenses, pro-
vided agreement is reached on all other questions.
4. Thus the reaching of agreement about the
situation in Berlin now depends above all on
whether the Governments of Great Britain, the
United States of America and France are seeking
such agreement.
TRI-PARTITE AIDE-MEMOIRE TO SOVIET GOVERNMENT
"1. The Governments of France, the United
Kingdom and the United States having received
and studied reports from their Military Governors
of the discussions in Berlin find it necessary to
draw the attention of the Soviet Government to
the fact that the position adopted by the Soviet
Miltary Governor during the meetings in Berlin
on a number of points deviate from the principles
agreed at Moscow between the four Governments
and contained in the agreed directive to the four
Military Governors. As the Soviet Government
is aware, the terms of this directive were finally
Ocfober 3, J 948
agreed after long and careful consideration, and
after clarifications as to interpretation had been
received from the Soviet Government.
"2. The specific issues on which in the opmion of
the Governments of France, the United Kingdom
and the United States, the Soviet Military Gov-
ernor has departed from the understandings
reached at Moscow relate to: (1) restrictions on
communications, transport and commerce between
Berlin and the western zones; (2) the authority
and functions of the financial commission, and in
particular its relation to the German bank of
427
emission; and (3) the control of the ti'ade of
Berlin.
"3. As to the first, the Soviet Military Governor
has presented a proposal which falls outside the
agreed principle that the restrictions which have
recently been imposed on communications, trans-
port and commerce be lifted. He has proposed
that restrictions upon air traffic, not heretofore
existing, should now be imposed, and in particu-
lar that air traffic to Berlin should be strictly
limited to that necessary to meet the needs of the
military forces of occupation.
"4. As the Soviet Government is aware, the
directive makes no mention of air transport and
this question was not discussed at Moscow. The
directive reads: 'Restrictions on communications,
transport and commerce between Berlin and the
western zones and to and from the Soviet zone of
Germany which have recently been imposed shall
be lifted.' There have been and are no such re-
strictions on air traffic. The purpose of tlie di-
rective is to lift restrictions and not to impose new
ones. The proposal of the Soviet Commander-in-
Chief, therefore, falls outside the scope of the
present discussions and is unacceptable.
"5. Secondly, on the question of the authority
and functions of the financial commission there
should be not the slightest grounds for any mis-
understanding. At the meeting on August 23 at-
tended by Premier Stalin and Mr. Molotov and the
representatives of the Governments of France, the
United Kingdom and the United States, the in-
tention of the directve in regard to the powers of
the financial commission including its power to
control the operations in Berlin of the German
bank of emission was clearly and specifically con-
firmed by Premier Stalin. The Soviet Military
Governor has refused to accept both the meaning
of the dii-ective and the clear understanding: of the
Four Powers reached at Moscow.
"6. Thirdly, there is the question of the control
of the trade of Berlin. The position of the Soviet
Military Governor during the discussions in Ber-
lin in regard to matters relating to the control of
trade between Berlin and the western zones of
Germany amounts to a claim for exclusive Soviet
authority over such matters. Such a claim is a
contradiction of the spirit and meaning of the
directive to the four Military Governors to which
the four Governments gave their approval and is
therefore unacceptable.
"7. In bringing these major points of difference
to the notice of the Soviet Government, the Gov-
ernments of United States, the United Kingdom
and France do not wish to imply that these are the
only points of difference which have arisen during
the conversations in Berlin.
"8. The Governments of France, the United
Kingdom and the United States have understood
clearly the principles agieed to in Moscow and the
428
assurances given by Premier Stalin. Their Mili-
tary Governors in Berlin have acted in accordance
with these principles and assurances. The po-
sition taken by the Soviet Military Governor, on
the contrary, has constituted a departure from
what was agreed in Moscow and strikes at the
very foundation upon which these discussions were
undertaken. Tlie divergencies which have accord-
ingly arisen on these questions are so serious that
the Governments of France, the United Kingdom |
and the United States feel compelled to inquire !
whether the Soviet Government is prepared to j
affirm the understandings outlined herein and to
issue the necessary instructions to the Soviet Mili-
tary Governor, confirming the agreed intention of
the directive in regard to
"(1) the lifting of all restrictions on communi-
cations, transport and commerce imposed after
March 30, 1948, without imposition of any new
air or other restrictions; and
"(2) the control by the financial commission of
the financial arrangements contemplated in the
agreed directive, including control of the opera-
tions of the Bank of emission with respect to Ber-
lin as specifically confirmed by Premier Stalin;
and
"(3) a satisfactory basis for trade between Ber-
lin and third countries and the western zones of
Germany in accordance with an agreement to be
reached between the four Military Governors
which does not involve the unilateral control of
such trade by the Soviet Trade Administration and
which recognizes the rights of the occupying pow-
ers to import in fulfillment of their responsibilities,
and to control the proceeds from, food and fuel for
the use of the Berlin population and industry.
"9. They believe that only if the steps proposed
in the aide memoire are taken would it be possible
for the Military Governors to continue their |
discussions." |
Stalin being out of town and unavailable, this
aide-mernoire was delivered to Mr. Molotov by the
three Western envoys on September 14.
Molotov expressed the view that progress could
be facilitated if, instead of an immediate exchange
of communications at the government level, the
Military Governors were first to prepare an agreed
report of their discussions; and he proposed that
tliey be given two days to do this. The Western
envoys pointed out that the Military Governor had
already found it impossible to agree on such a
joint report. Molotov then reluctantly agreed to
submit the aide-memoire to his Government for
study and reply.
On September 18, Mr. Molotov invited the West-
ern envoys to the Kremlin and handed them the
Soviet Government's reply, which was likewise in
the form of an aide-memoire. The text was as
follows :
Department of State Bulletin
"1. Tlie Government of the USSR has ac-
quainted itself witli the aide memoire dated Sep-
tember 14 hist of the Governments of France, the
United KinL;-doin and the US, wliich gives a unilat-
eral account of the course of discussions between
the four Jlilitary (jovernors in Berlin and which
presents incorrectly the position adopted by
the Soviet Military Govei-nment during those
discussions.
"The Soviet Government believes that considera-
tion of the difference referred to in the said aide
memoire, which arose durin<; the Berlin discus-
sions in regard to the interpretation of the directive
to the Military Governors would have been facili-
tated and expedited had the four Military Gover-
nors submitted to their governments a joint re])ort
with an account of the course of discussions. In
that event the discussions in Moscow would not
have been based on any unilateral communications
but on an accurate statement of the positions
adopted by all four Military Governors both on
]5oints already agreed between them and on points
left outstanding. Since, however, the representa-
tives of the three Governments have refused to
follow that method of discussion, the Soviet Gov-
ernment finds it necessary to reply to the question
raised in the aide memoire.
"The aide memoire of September 14 refers to the
following 3 questions: (1) Restrictions on com-
munications, transport and commerce between
Berlin and the Western zones; (2) the authority
and functions of the financial commission, and in
particular its relation to the German Bank of
Emission; (3) the control of the trade of Berlin.
At the same time it is asserted that the Soviet
Military Governor allegedly deviated from the
understanding reached on these questions in
Moscow.
"The Soviet Government believes this assertion
to be without foundation because during the Ber-
lin discussions the Soviet Military Governor
strictly followed the agreed directive and the clari-
fications which had been given by Soviet Govern-
ment when it was being drawn up iti Moscow.
Study by the Soviet Government of all materials
relating to the Berlin discussions has shown that
the reason for the differences which arose during
the Berlin discussions lies in the desire of the US,
the UK and the French Military Governors to in-
terpret the directive agreed upon in Moscow in a
unilateral manner and to give it an interpretation
which had not been implied when it was being
drawn up and which constitutes a violation of the
directive, and with this the Soviet Government is
unable to agree.
"2. The directive to the four Military Governors
states the following in regard to the first question
referred to in the aide memoii-e of September 14:
'restrictions on communications, transport and
commerce between Berlin and the Western zones
Ocfober 3, 1948
and on the traffic of goods to and from the Soviet
zone of Germany which have recently been imposed
shall be lifted.'
"The concrete proposals submitted by the Soviet
Military Governor on this point are in full con-
formity with the directive and have for their pur-
pose the lifting of all restrictions on communica-
tions, transport and commerce, which have been
imposed after March 30, 1948, as was stipulated
when the directive was drawn up. During consid-
eration of this question the Soviet Military
Governor pointed to the necessity of the other
three Military Governors complying strictly with
the regulations imposed by the Control Coun-
cil's decision of November 30, 1945 on air traffic for
the needs of the occupation forces and this had
never been disputed by any of the Military Govern-
ors since the adoption of these regulations three
years ago. There is no foundation whatsoever for
regarding this justified demand of the Soviet Mili-
tary Governor as an imposition of new restrictions
on air traffic, because these regulations had been
imposed as far back as 1945 and not after March
30, 1948. Nevertheless, the USA has attempted to
deny the necessity of observing the regulations
which had been imposed by the Control Council on
air traffic of the occupation forces and which re-
main in force to this very day.
"In view of the above, the Soviet Government
believes that the position of the Soviet Military
Governor on this question is absolutely correct,
while the position of the USA Military Governor,
far from being based on the agreed directive, is in
contradiction with it. An interpretation to the
contrary might lead to an arbitrary denial of any
decision previously agreed upon by the Control
Council, and to this the Soviet Government cannot
give its assent.^
"3. The directive to the INIilitary Governors also
contains a clear statement regarding the authority
and functions of the Financial Commission and
regarding the German Bank of Emission.
"This directive was drawn up in full conformity
with the preliminary clarifications on this matter
■ The facts with respect to the Control Council's Nov. 30,
194.5, decision are as follows :
During the discussions prior to the establishment of air
corridors in 1945 the Soviet Military Authorities in Berlin
had in fact suggested that the traffic in the corridors should
be limited to the needs of the military forces. The Allied
Control Authority (Allied Control Council) did not accept
this Soviet proposal and the trafiBc in the corridors has
since then been subject only to agreed safety regulations.
No restrictions whatever were in existence on the use by
aircraft of the occupying powers of air communications in
the corridors between Berlin and the Western zones of
Germany on or before Mur. 3il, 1948.
This fact was specifically pointed out to Mr. Molotov by
the British env(jy, Mr. Roberts, inmiediately upon the
receipt and reading of the aide-memoire handed to the
Western representatives by Mr. Molotov on Sept. 18, 1948.
429
made by Premier J. V. Stalin on August 23, and
referred to in the above-mentioned aide memoire.
"It will be seen from the above text that the
authority and functions of the financial commis-
sion and of the German Bank of Emmission are
precisely laid down in the directive, and it was
by this that the Soviet Military Governor was
guided. According to that directive and to the
understanding reached in Moscow by the four
powers, the financial commission should not exer-
cise control over all operations of the Bank of
Emission in regard to Berlin, but only over those
operations of the Bank of Emission in Berlin
which are specifically provided for in paragraphs
(A), (B), (C), and (D) of the directive. The
proposal to establish control of the financial com-
mission over the whole activity of the German
Bank of Emission in Berlin was not accepted dur-
ing the discussion of this question in Moscow be-
cause this would have led to such interference on
the part of the financial commission in matters of
the regulation of currency circulation as is in-
compatible with the Soviet Administration's re-
sponsibility for the regulation of currency
circulation in the Soviet zone of occupation.
"Accordingly, the Soviet Government cannot
agree to the incorrect interpretation of the agreed
directive given in the aide memoire of the Govern-
ment of France, the UK and the USA, and believes
it necessary that the directive should be strictly
followed.
"4. As to trade, the previously agreed directive
is confined to an instruction to the Militai'y Gov-
ernors to work out a satisfactory basis for trade
between Berlin and third countries and the West-
ern zones of Germany. It will be recalled that on
August 23 during the discussions in Moscow, the
Soviet Government submitted a definite proposal
on this subject, but the question was not considered
in detail and was referred to the Militai-y Gov-
ernors for discussion.
"The proposals on this subject made by the
Soviet Military Governor give no reason to assert
that they are a contradiction of the spirit and
meaning of the agreed directive. On the contrary,
the intention of those proposals is to have the
diiective fulfilled in accordance with the agree-
ments reached in Moscow.
"However, for the purpose of expediting the
drawing up of practical ari-angements in Berlin
the Soviet Government proposes that the Military
Governors be given more detailed instructions on
this matter than those contained in the agreed
directive. The Soviet Government agrees to have
trade between Berlin and third countries and the
Western zones of Germany placed under the con-
trol of the quadripartite financial commission,
which control should provide at the same time
for the maintenance of the existing procedure
regarding the traffic of goods in and out of Berlin
under license of the Soviet Military Administra-
tion. The Soviet Government believes that such
an instruction would be of help in the drawing up
of a concrete agreement on matters of trade with
Berlin.
"5. The Soviet Government believes that discus-
sions between the Military Governors in Berlin
can yield positive results only in the event that all
the Military Governors follow strictly the direc-
tives and instructions agreed between the Govern-
ments of France, the UK, the US and the USSR."
The Western envoys, after reading this docu-
ment, stated that they would submit it to their
governmnets for consideration but warned that it
would scarcely be acceptable.
After studying the reply just quoted, the three
governments delivered to the Soviet Embassies in
Washington, London and Paris on September 22,
1948, identical third person notes in the following
text:
"(1) The Government of the United States, to-
gether with the Governments of France and the
United Kingdom, has now reviewed the discussions
which have taken place on the Berlin situation and
which have culminated in the Soviet reply of Sep-
tember 18 to the aide-memoire of the three Govern-
ments of September 14, 1948.
"(2) The three Governments find that the So-
viet unwillingness to accept previous agreements,
to which reference is made in their aide-memoire
of September 14, is still preventing a settlement.
The reply of the Soviet Government in its aide-
memoire of September 18 is unsatisfactory.
"(3) The final position of the three Govern-
ments on the specific points at issue is as follows :
"(A) They cannot accept the imposition of any
restrictions on air traffic between Berlin and the
Western zones.
"(B) They insist that the Finance Commission
must control the activities of the German Bank of
Emission of the Soviet Zone in so far as they relate
to the financial arrangements for the introduction
and continued use of the Soviet zone mark as the
sole currency in the city of Berlin.
"(C) They insist that trade between Berlin and
the Western zones and other countries must be
under quadripartite control, including the issuance
of licenses.
"(4) After more than six weeks of discussion,
the Governments of the United States, France and
430
Deparfment of Stale Bulletin
the United Kinjrdoin feel tliat the Soviet Govern-
ment is now fully iunmainted with the position of
the three Governments, and that further discus-
sions on the present basis woidd be useless.
"(5) It is clear that the difficulties that have
arisen in the attempts to arrive at practical ar-
raufiements which would restore normal conditions
in Berlin derive not from technical matters but
from a fundamental difference of views between
the (xovei-nments of tiie United States, France and
tlie Unitetl Kiniidom, and the Soviet Government
as to the rijxlits and obligations of the occupyinj2
powers in Berlin, their right to have access by air,
rail, water and road to Berlin and to participate in
tiie administration of the affairs of the city of
Berlin. The blockade imposed by the Soviet au-
thorities together with other of their acts in Berlin
are in violation of the rights of the three AVestern
occupying powers.
"(6) Accordingly the Government of the
United States, in agreement with the Governments
of France and the United Kingdom, asks the Soviet
Government whether, in order to create conditions
which would permit a continuance of discussions,
it is now prepared to remove the blockade meas-
ures, thus restoring the right of the three Western
occupying powers to free communications by rail,
water, and road, and to specify the date on which
this will be done.
"(7) The Foreign Ministers of the three Gov-
ernments will be meeting shortly in Paris, and
they will be glad to have the reply of the Soviet
Government as soon as possible."
.Septemier 22, 194S
Publication of the Report on the
Moscow Discussions
In view of the breakdown of the discussions at
Moscow between the representatives of the West-
ern Powers and the Soviet Union, centering u{>on
the Berlin crisis, the Department of State on Sep-
tember 27 released a report on the Moscow dis-
cussions that reviews the events leading to the
breakdown and records the documents in the case.
Section I of the report recalls that the Soviet
Government lias maintained first that its measures
restricting communications, transport, and com-
merce between Berlin and Western Germany were
necessitated by "technical difficulties" and then
that they were "defensive" against conditions
created by the curi-ency reform in Western Ger-
many and Western Berlin. Tlie chronological
record of events, however, from March 30 to Sep-
tember 26, 1948, reveals that many of the Soviet
restrictive measures were imposed months before
the currency reform and that they have been
systematic products of a deliberate coercive pur-
pose rather than the results of "teclinical diffi-
culties".
Section II records the Moscow discussions that
started on July 30, when the three Western Powers,
unable to see either Molotov or Vishinsky, held a
meeting with Deputy Foreign Minister Zorin.
The first meeting with Foreign Minister Molotov
and Generalissimo Stalin took place on August 2.
In the course of events, from the original request
by the Western Powers for discussions on the Ber-
lin crisis to the ultimate breakdowns of negotia-
tions, the following statements, notes, and pro-
posals are reproduced either in part or in full in
the report : The American note of July 6 and the
Soviet reply of July 14 ; the Western request for
discussion with Stalin and Molotov and the U.S.
aide-immoire of July 30; accounts of the meetings
with Zorin on July 30 and with Molotov on July
31 ; the record of the first meeting with Stalin, in-
cluding his proposals. In the drafting meetings
with Foreign Minister Molotov, the initial West-
ern draft of August 6 is printed together with Mr.
Molotov's counter-draft; also printed are Am-
liassador Smith's statement on behalf of the
Western Powers of August 12, Mr. Molotov's re-
action, the Western draft text of August 17, and
Mr. Molotov's counter-draft of August 17.
The following documents relating to the second
meeting with Stalin on August 23 are reproduced :
his statements on August 23; U.S. views tele-
graphed to Ambassador Smith; draft communi-
que and directive of August 27 worked out with
Molotov and Vishinsky; and the directive of
August 30 sent to Military Governors in Berlin.
The technical discussions in Berlin from August
31 to September 7 are commented on briefly. The
text of the new aide-mwrnmre of the Western
Powers delivered in Moscow on September 14 is
printed together with Mr. Molotov's aide-memoire
of September 18 in reply, and the notes delivered
by the three Governments to tlie Soviet Embassies
in Washington, London, and Paris on September
22. The last documents included in the report
include the Soviet note of September 2.5, the com-
nnniique issued in Paris on September 26 by the
Foreign Ministers of France, the United King-
dom, and the United States, and the note delivered
on September 26 by the Acting Secretary of State
in Washington to the Soviet Ambassador.
Copies of The Berlin Crisis: A Report on the
Moscotv Discussions, 19If8, Department of State
publication 3298, may be obtained from the Super-
intendent of Documents, Government Printing
Office, Washington 25, D.C., for 20 cents each.
Ocfober 3, J 948
431
THE THIRD REGULAR SESSION OF THE GENERAL ASSEMBLY, PARIS
No Compromise on Essential Freedoms
ADDRESS BY SECRETARY MARSHALL ON SEPTEMBER 23, 1948
Chairman, U.S. Delegation
[Released to the press September 23]
Mr. President, Fellow Delegates: We are
particularly liappy to meet here in Paris. France
has, through the centuries, nourished the arts and
sciences for the enrichment of all mankind and
its citizens have striven persistently for expand-
ing freedom for the individual. It is entirely
fitting that this General Assembly, meeting in
France which fired the hearts of men with the
Declaration of the Rights of Man in 1789, should
consider in 1948 the approval of a new declaration
of human rights for free men in a free world.
U.N. Charter as Protection for Free Men
Not only is it appropriate that we should have
reaffirmed our respect for the human rights and
fundamental freedoms but that we should renew
our determination to develop and protect those
rights and freedoms. Freedom of thought, con-
science, and religion ; freedom of opinion and ex-
pression; freedom from arbitrary arrest and de-
tention ; the right of a people to choose their own
government, to take part in its work, and, if they
become dissatisfied with it, to change it; the obli-
gation of government to act through law — these
are some of the elements that combine to give
dignity and worth to the individual.
The Charter of the United Nations reflects these
concepts and expressly provides for the promotion
and protection of the rights of man, as well as for
the riglits of nations. This is no accident. For
in the modern world, the association of free men
within a free state is based upon the obligation of
citizens to respect the rights of their fellow citi-
zens. And the association of free nations in a
free world is based upon the obligation of all states
to respect the rights of other nations.
Systematic and deliberate denials of basic
human rights lie at the root of most of our troubles
and threaten the work of the United Nations. It
is not only fundamentally wrong that millions of
men and women live in daily terror of secret
police, subject to seizure, imprisonment, or forced
labor without just cause and without fair trial, but
these wrongs have repercussions in the community
of nations. Governments which systematically
disregard the rights of their own people are not
432
likely to respect the rights of other nations and
other people and are likely to seek their objectives
by coercion and force in the international field.
The maintenance of these rights and freedoms
depends ujion adherence to the abiding principles
of justice and morality embodied in the rule of law.
It will, therefore, always be true that those Mem-
bers of the United Nations which strive with sin-
cerity of purpose to live by the Charter and to
conform to the principles of justice and law pro-
claimed by it, will be those states which are genu-
inely dedicated to the preservation of the dignity
and integrity of the individual.
Let this third regular session of the General
Assembly approve by an overwhelming majority
the Declaration of Human Rights as a standard
of conduct for all ; and let us, as Members of the
United Nations, conscious of our own shortcomings
and imperfections, join our effort in good faith to
live up to this high standard.
Recent Economic and Social Progress
Our aspirations must take into account men's
practical needs — improved living and working
conditions, better health, economic and social ad-
vancement for all, and the social responsibilities
which these entail. The United Nations is pledged
in the Charter to promote "higher standards of
living, full employment, and conditions of eco-
nomic and social progress and development".
The Secretary-General has devoted a consider-
able part of his annual report to the nature of the
progress thus far made in this field. It is evi-
dent from the record that we can be encouraged
by what is being done. The United Nations is
directly engaged in efforts to alleviate the social
and economic disorder and destruction resulting
from the war. The International Refugee Organ-
ization is giving assistance to displaced persons.
The International Children's Emergency Fund is
providing emergency aid to children and mothers
over wide areas. As part of the United Nations
efforts to increase productivity by applying new
and advanced techniques, the Food and Agricul-
ture Organization is broadening the use of im-
proved seeds and fertilizers. The tuberculosis
Department of State Bulletin
pmject jointly sponsored by the World Health
Oriranization and the International Children's
Emerjijency Fund represents another example of
the consti'uctivc work of our organization.
Thi'onirh tiic United Nations we are seeking to
combine our etForts to promote international trade,
to solve the difliculties of foreign excliange, to
facilitate tl\e voluntary migration of peoples, and
to increase the ilow of information and ideas across
national boundaries. Tlie International Trade Or-
ganization charter would establish procedures for
expanding multilateral trade, with the goal of
raising living standards and maintaining full em-
ployment. Tile Conference on Freedom of Infor-
mation was responsible for the conventions made
before this Assembly whicli embody principles and
procedures for expanding the exchange of infor-
mation. It is our hope that the Assembly will
give these conventions thouglitful and favorable
consideration. While the Unitetl Nations and its
related agencies are increasingly helpful in the
economic and social field, primary responsibility
for improving standards of living will continue to
rest with the governments of the peoples them-
selves. International oiganizations cannot take
the place of national and personal etl'ort, or local
initiative and individual imagination. Interna-
tional action cannot replace self-help, nor can we
move toward general cooperation without maxi-
mum mutual help among close neighbors.
Deep Rift Among Nations Must Be Checked
The United Nations was not intended to preclude
cooperative action among groups of states for
common purposes consistent with the Charter of
the United Nations. It has been disappointing
that efforts at economic recovery consistent with
this concept have been actively opposed by some
wiio seem to fear the return of stability and con-
fidence. We must not be misled by those who, in
the name of revolutionary slogans, would prevent
reconstruction and recovery to hold out illusions
of future well-being at the price of starvation and
disorder today.
A year ago I expressed the view to the General
Assembly that "a supreme effort is required from
us all if we are to succeed in breaking through the
vicious circles of deepening political and economic
crisis". I believe that most of us in this organiza-
tion have sought to make such an effort — and that
this is beginning to bring results.
Despite the cooperative action of most nations
to rebuild peace and well-being, tension during the
past year has increased. The leaders of the other
nations are creating a deep rift between their coun-
tries and the rest of the world community. We
must not allow that rift to widen any further, and
we must redouble our efforts to find a common
ground. Let us go back to the Charter, to words
that were solemnly written by the peoples of the
Ocfober 3, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
United Nations while the tragedy of war was
vividly stamped on their minds.
"We the peoples of the United Nations", says
the Charter, are "determined to save succeeding
generations from the scourge of war . . . and for
these ends to practice tolerance and live together
in peace with one another as good neighbors".
Three 3'ears later, we are confronted with the need
to save not only succeeding generations, but also
our own.
The first purpose of the United Nations is to
maintain international peace and security and to
that end all members are pledged to settle their
international disputes by peaceful means and in
conformity with the principles of justice and
international law.
We are pledged to seek an accommodation by
which different cultures, different laws, different
social and economic structures, and different polit-
ical systems can exist side by side without vio-
lence, subversion, or intimidation. An elemen-
tary requirement is that international obligations
be respected and that relations among states be
based on mutual confidence, respect, and tolerance.
How can we establish among governments and
peoples the confidence which is necessary to a just
and stable peace and is basic to the work of the
United Nations? The need at this session of the
General Assembly and in subsequent months is to
achieve, or at least to move nearer, a settlement of
the major issues which now confront us. For its
part, the United States is prepared to seek in every
possible way, in any appropriate forum, a construc-
tive and peaceful settlement of the political con-
troversies which contribute to the present tension
and uncertainty.
I do not wish to deal at this time with the details
of any particular issue, but there are broad lines
along which a just and equitable settlement of each
of these questions might be reached. Some of
these matters are on the agenda of the United Na-
tions, others, such as those dealing with the peace
settlements, are to be dealt with in other forums.
Nevertheless, whatever the forum, as members of
the United Nations, we are all subject to the prin-
ciples of the Charter.
If we want to have peace we must settle the is-
sues arising out of the last war. The Charter was
written with the expectation that the solution of
the problems before the United Nations would not
be made more difficult by long delay in completing
the peace settlements.
Goals Toward Peace
Germany, Japan, and Austria. We should,
therefore, make every effort to achieve an early
and just peace settlement so that Japan and Ger-
many may exist as democratic and peaceful na-
tions, subject to safeguards against the revival of
433
THE UNITED NATIONS AND SPECIALIZED AGENCIES
military or economic means of aggression, and so
that they may in due course demonstate their qual-
ification for admission to membership in the
United Nations. In Austria our aim is the restora-
tion of its political and economic freedom within
its 1937 frontiers and its immediate admission as
a Member of the United Nations.
Other questions affecting world peace are now
before the United Nations, some of them before
this Assembly. We believe that the ends to be
sought on these matters may be briefly summa-
rized as follows :
Palestine. A Palestine free from strife and the
threat of strife, with both the Jews and Arabs
assured the peaceful development envisaged by
the actions of the General Assembly and the Se-
curity Council ; an early demobilization of armed
forces to permit the return to conditions of peace
and normal living in Palestine; the repatriation of
refugees who wish to return and live in peace with
their neighbors ; economic aid to Jews and Arabs
to restore and strengthen their economic well-be-
ing; the admission of Transjordan and Israel to
membership in the United Nations.
Korea. A unified and independent Korea, ac-
cepted as a member of the United Nations, acting
under a constitution and a government selected
by the Koreans themselves through free elections,
and receiving the economic and political encour-
agement which it will need as it embarks upon its
new life as a Korean Nation.
Greece. A Greece made secure from aggressive
and unlawful interference from without, order-
ing its political life by the democratic process
and by respect for law, enabled to rebuild its
economy and to provide its people the essentials
of a decent life which they have been without for
so long.
Indonesia. A negotiated settlement without
further bloodshed in Indonesia, along the broad
lines of the Renville agreement, providing within
a brief period both the sovereign independence
sought by the peoples of Indonesia and continued
cooperation between them and the people of the
Netherlands.
India and Pakistan. Continuation of the
mediation and negotiation between the great na-
tions of India and Pakistan with respect to
Kashmir, in order that the processes of peaceful
settlement may bring to a conclusion an issue which
has been charged with great dangers.
Atomic Energy. The early adoption of an in-
ternational system for the control of atomic energy,
providing for the elimination of atomic weapons
from national armaments, for the development of
atomic energy for peaceful purposes only, and
for safeguards to insure compliance by all nations
with the necessary international measures of con-
trol.
Armaments. Under adequate and dependable
434
guaranty against violation, a progressive reduc-
tion in armaments as rapidlj as the restoration of
political confidence permits.
Other Problems
Other situations or problems might be men-
tioned, but if constructive steps are taken toward
the settlement of those which have been indicated,
new hope would arise among men and new con-
fidence among the nations of the world. It will
be readily seen that the above pattern is toward
peace. No governments or peoples who work
toward such ends can be held to be seeking war,
or imperialist expansion, or disorder and strife.
Trusteeship. We have noted with particular
interest the report of the Secretary-General on
the work of the nations relating to the millions of
people who are not yet fully self-governing. We
are mindful of the obligations undertaken in the
Chai'ter for the political, economic, and social
development of these peoples. We believe that all
possible assistance and encouragement should be
given to them, to the end that they may play their
full 23art in the family of nations — either as in-
dependent states or in freely chosen association
with other states.
Membership. In our efforts toward political
settlement we must continue working to improve
tlie functioning of the machinery of the United
Nations. We hope that the Security Council will
proceed to recommend during this session of the
General Assembly the admission of additional new
members. There are a number of fully qualified
states, now awaiting admission, whose elevation
has been supported by the United States but has
been blocked for reasons not consistent with the
Charter. The most recent application, Ceylon,
one of the few states to emerge in southern Asia,
has been denied the membership to which it prop-
erly aspires.
Interim Committee. The report of the Interim
Committee on the problem of voting in the Security
Council represents the first comprehensive study
on this vital problem since San Francisco and con-
tains the views of an overwhelming majority of
the members. The woi'k of the Security Council
would be greatly facilitated if the recommenda-
tions of the Interim Committee could be accepted
by the members of the Council.
The Interim Committee itself has worked use-
fully and effectively during the past year and can
continue to render an important service to the
General Assembly. We hope that the Assembly
will agree to its continuation for another year in
order to give us more experience before deciding
whether it should become a permanent part of our
Organization.
Need for U.N. Guard. The United States joins
in expressing great appreciation to those individ-
uals who have served on United Nations missions
Department of State Bulletin
during tlie past year, either as members of national
dele<rations or of the Secretariat. These repre-
seiitati\es in the fickl have served with courage
and devotion to duty. Their service has been given
a purticuhiriy solenui reminder of these condi-
tions by tiie tragic death of Count Folke Berna-
dotte and Colonel Serot at the liands of assassins.
The jjeople of the United States join in tribute to
the man who worked brilliantly and courageously
as the United NutioTis mediator in Palestine. We
pay tribute also to those others who have lost their
lives in the .service of peace.
We believe that the Assembly should give sym-
pathetic consideration to the suggestions of the
Secretarj'-General for the establishment of a small
United Nations guard force to assist United Na-
tions missions engaged in the pacific settlement of
disputes. The fate of the Mediator in Palestine
and the exjjerience of the several commissions
already working in the field have already demon-
strated the need for such a group. This great
world organization should not send its servants
on missions of peace without reasonable protection.
The guards would be entirely distinct from the
armed forces envisaged under article 43 and would
not carry out military operations. They could,
iiowever, perform important services in connec-
tion with United Nations missions abroad not
only as guards but also as observers and as com-
munications and transportation personnel.
Minority Position Self-imposed
Mr. President, one of the principal purposes of
the United Nations, according to article 1, is "to
be a center for harmonizing the actions of nations
in the attainment of the common ends" set forth
in the Charter. The problem of making and keep-
ing the peace involves many governments and
many peoples. On the issues which call for settle-
ment, tlie large powers as well as the small must
submit their policies to the judgment of the world
community. For this purpose appropriate forums
have been established for the adjustment of differ-
ences through the impartial opinions of the inter-
national society. This process has been seriously
hampered by the refusal of a group of nations to
THE UNITED NATIONS AND SPBCIALIZED AGENCIES
participate in certain of the imjjortant commis-
sions established by this Assembly, such as the
Balkan Commission, the Korean Commission, and
the Interim Committee.
More important than this boycott, however, is
the disturbing lack of cooperation which the
United Nations has received in its efforts to resolve
such questions as Korea and Greece and to bring
about the international control of atomic energy.
This persistent refusal of a small minority to con-
tribute to the accomplishment of our agreed pur-
poses is a matter of profound concern.
There is no plot among Members of this Organi-
zation to keep any nation or group of nations in
a minority. The minority position is self-imposed.
The record shows that there are no mechanical
majorities at the disposal of any nation or group
of nations. Majorities form quickly in support
of the principles of the Charter. Nations consist-
ently in the minority would be welcomed among
the ranks of the majority — but not at the price of
compromise of basic principle.
Patience in Understanding
The United Nations has sought to promote the
free exchange of ideas on a basis of full reciproc-
ity. The effort is of the greatest political im-
portance. Any government which by deliberate
action cuts itself and its people off from the rest
of the world becomes incapable of understanding
the problems and policies of other governments
and other peoples. It would be a tragic error, if,
because of such misunderstanding, the patience of
others should be mistaken for weakness.
The United States does not wish to increase the
existing tension. It is its wholehearted desire to
alleviate that tension. But we will not compromise
essential principles. We will under no circum-
stances barter away the rights and freedoms of
other peoples. We earnestly hope that all Mem-
bers will find ways of contributing to the lessening
of tensions and the promotion of peace with jus-
tice. The peoples of the earth are anxiously watch-
ing our efforts here. We must not disappoint
them.
October 3, 1948
435
Conclusions From Progress Report of the U.N. Mediator on Palestine
MEDIATION EFFORT
VIII. Conclusions
1. Since I presented my written Suggestions to
the Arab and Jewish authorities on 27 June, I
have made no formal submission to either party
of further suggestions or proposals for a definitive
settlement.^ Since that date, however, I have held
many oral discussions in the Arab capitals and
Tel Aviv, in the course of which various ideas on
settlement have been freely exchanged. As re-
gards my original Suggestions, I hold to the opin-
ion that they offered a general framework within
which a reasonable and workable settlement might
have been reached, had the two parties concerned
been willing to discuss them. They were flatly re-
jected, however, by both parties. Since they were
put forth on the explicit condition that they were
purely tentative, were designed primarily to elicit
views and counter-suggestions from each party,
and, in any event, could be implemented only if
agreed upon by both parties, I have never since
pressed them. With respect to one basic concept
in my Suggestions, it has become increasingly clear
to me that however desirable a political and eco-
nomic union might be in Palestine, the time is cer-
tainly not now propitious for the effectuation of
any such scheme.
2. I do not consider it to be within my province
to recommend to the Members of the United Na-
tions a proposed course of action on the Palestine
question. That is a responsibility of the Members
acting through the appropriate organs. In my role
as United Nations Mediator, however, it was in-
evitable that I should accumulate information and
draw conclusions from my experience which might
well be of assistance to Members of the United
Nations in charting the future course of United
Nations action on Palestine. I consider it my duty,
therefore, to acquaint the Members of the United
Nations, through the medium of this report, with
certain of the conclusions on means of peaceful
adjustment which have evolved from my frequent
consultations with Arab and Jewish authorities
over the past three and one-half months and from
my personal appraisal of the present Palestinian
scene. I do not suggest that these conclusions
would provide the basis for a proposal which
would readily win the willing approval of both
parties. I have not, in the course of my intensive
'Excerpts from U.N. doe. A/648 (part one, p. 29; part
two, p. 23; and part three, p. 11), Sept. 18, 1948. The re-
port wa.s signed by Folke Bernadotte in Rhodes on Sept. IG,
1948.
" Bulletin of July 25, 1948, p. 105.
436
Statement by Secretary Marshall
[Released to the press September 21]
The United States considers that the conclusions
contained in the final report of Count Bernadotte
offer a generally fair basis for settlement of the
I'ale.'^tine question. My Government is of the
opinion that the conclusions are sound and strongly
urges the parties and the General Assembly to ac-
cept them in their entirety as the best possible basis
for bringing peace to a distracted land.
No plan could be proposed which would be en-
tirely satisfactory in all respects to every interested
party. The United Nations has endeavored to
achieve a solution by peaceful adjustment and en-
trusted the task to its mediator. Count Bernadotte.
He enerfietically, courageously, and with a spirit
of complete fairness, we feel, canvassed all the
possibilities and proposed as his last contribution
toward a world of peace a sound basis for settle-
ment. He gave his life to this effort.
The complexities of the problem and the violent
emotions which have been engendered are such that
the details of any plan could be debated endlessly.
As a matter of fact, the debate on this question has
been carried on for years in almost every kind of
public forum. It is our sincere hope that the parties
concerned vvill realize that their best interests and
the interests of the world community will be served
by accepting in a spirit of fair compromise the
judgment of Count Bernadotte.
efforts to achieve agreement between Arabs and
Jews, been able to devise any such formula. I am
convinced, however, that it is possible at this stage
to formulate a proposal which, if firmly approved
and strongly backed by the General Assembly,
would not be forcibly resisted by either side, con-
fident as I am, of course, that the Security Council
stands firm in its resolution of 15 July that mili-
tary action shall not be employed by either party
in the Palestine dispute. It cannot be ignored that
the vast difference between now and last November
is that a war has been started and stopped and
that in the intervening months decisive events
have occurred.
Seven basic premises
3. The following seven basic premises form the
basis for my conclusions :
Return to peace
(a) Peace must return to Palestine and every
feasible measure should be taken to ensure that
hostilities will not be resumed and that harmonious
relations between Arab and Jew will ultimately
be restored.
Department of State Bulletin
The Jewish State
(b) A Jewish State called Israel exists in Pal-
estine and there are no sound reasons for assuming
that it will not continue to do so.
Boundary determination
(c) The boundaries of this new State must
finally be fixed either by formal agreement between
tlie parties concerned or failing that, by the United
Nations.
Continuous frontiers
(d) Adherence to the principle of geographical
homogeneity and integration, which should be the
major objective of the boundary arrangements,
should apply equally to Arab and Jewish terri-
tories, whose frontiers should not therefore, be
rigidly controlled by the territorial arrangements
envisaged in the resolution of 29 November.
Right of repatriation
(e) The right of innocent people, uprooted from
their homes by the present terror and ravages of
war, to return to their homes, should be affirmed
and made effective, with assurance of adequate
compensation for the property of those who may
choose not to return.
Jerusalem
(f) The City of Jerusalem, because of its re-
ligious and international significance and the com-
plexity of interest involved, should be accorded
special and separate treatment.
International responsibility
(g) International responsibility should be ex-
pressed where desirable and necessary in the form
of international guarantees, as a means of allay-
ing existing fears, and particularly with regard
to boundaries and human rights.
Specific conclusions
4. The following conclusions, broadly outlined,
would, in my view, considering all the circum-
stances, provide a reasonable, equitable and work-
able basis for settlement:
(a) Since the Security Council, under pain of
Chapter VIII sanctions, has forbidden further
employment of military action in Palestine as a
means of settling the dispute, hostilities should be
pronounced formally ended either by mutual
agreement of the parties or, failing that, by the
United Nations. The existing indefinite truce
should be superseded by a formal peace, or at the
minimum, an armistice which would involve either
complete withdrawal and demobilization of armed
forces or their wide separation by creation of broad
demilitarized zones under United Nations super-
vision.
(b) The frontiers between the Arab and Jewish
Ocfofaer 3, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
territories, in the absence of agreement between
Arabs and Jews, should be established by the
United Nations and delimited by a technical
boundaries commission appointed by and respon-
sible to the United Nations, with the following
revisions in the boundaries broadly defined in the
resolution of the General Assembly of 29 Novem-
ber in order to make them more equitable, work-
able and consistent with existing realities in Pales-
tine.
(i) The area known as the Negev, south of a
line running from the sea near Majdal
east southeast to Faluja (both of which
places would be in Arab territory), should
be defined as Arab territory ;
(ii) The frontier should run from Faluja north
northeast to Ramleh and Lydda (ooth of
which places would be in Arab territory),
the frontier at Lydda then following the
line established in the General Assembly
resolution of 29 November;
(iii) Galilee should be defined as Jewish ter-
ritory.
(c) The disposition of the territory of Palestine
not included within the boundaries of the Jewish
State should be left to the Governments of the
Arab States in full consultation with the Arab
inhabitants of Palestine, with the recommenda-
tion, however, that in view of the historical con-
nection and common interests of Transjordan and
Palestine, there would be compelling reasons for
merging the Arab territory of Palestine with the
territory of Transjordan, subject to such frontier
rectifications regarding other Arab States as may
be found practicable and desirable.
( d ) The United Nations, by declaration or other
appropriate means, should undertake to provide
special assurance that the boundaries between the
Arab and Jewish territories shall be respected and
maintained, subject only to such modifications as
may be mutually agreed upon by the parties con-
cerned.
(e) The port of Haifa, including the oil refin-
eries and terminals, and without prejudice to their
inclusion in the sovereign territory of the Jewish
State or the administration of the city of Haifa,
should be declared a free port, with assurances of
free access for interested Arab countries and an
undertaking on their part to place no obstacle in
the way of oil deliveries by pipeline to the Haifa
refineries, whose distribution would continue on
the basis of the historical pattern.
(f) The airport of Lydda should be declared a
free airport with assurance of access to it and
employment of its facilities for Jerusalem and in-
terested Arab countries.
(g) The City of Jerusalem, which should be
understood as covering the area defined in the res-
olution of the General Assembly of 29 November,
437
THE UNITED NATIONS AND SPECIALIZED AGENCIES
should be treated separately and should be placed
under effective United Nations control with maxi-
mum feasible local autonomy for its Arab and
Jewish communities, with full safeguards for the
protection of the Holy Places and sites and free
access to them, and for religious freedom.
(h) The right of unimpeded access to Jerusa-
lem, by road, i-ail or air, should be fully respected
by all parties.
(i) The right of the Arab refugees to return to
their homes in Jewish-controlled territory at the
earliest possible date should be affirmed by the
United Nations, and their repatriation, resettle-
ment and economic and social rehabilitation, and
payment of adequate compensation for the prop-
erty of those choosing not to return, should be
supervised and assisted by the United Nations con-
ciliation connnission described in paragraph (k)
below.
(j) The political, economic, social and religious
rights of all Arabs in the Jewish territory of
Palestine and of all Jews in the Arab territory of
Palestine should be fully guaranteed and respected
by the authorities. The conciliation commission
provided for in the following paragraph should
supervise the observance of this guarantee. It
should also lend its good offices, on the invitation
of the parties, to any efforts toward exchanges of
populations with a view to eliminating trouble-
some minority problems, and on the basis of ade-
quate compensation for property owned.
(k) In view of the special nature of the Pales-
tine problem and the dangerous complexities of
Arab-Jewish relationships, the United Nations
should establish a Palestine conciliation commis-
sion. This commission, which should be ap-
pointed for a limited period, should be responsible
to the United Nations and act mider its authority.
The commission, assisted by such United Nations
personnel as may prove necessary, should under-
take
(i) To employ its good offices to make such
recommendations to the parties or to the
United Nations, and to take such other
steps as may be appropriate, with a view
to ensuring the continuation of the peace-
ful adjustment of the situation in Pales-
tine;
(ii) Such measures as it might consider ap-
propriate in fostering the cultivation of
friendly relations between Arabs and
Jews;
(iii) To supervise the observance of such
boundary, road, railroad, free port, free
airport, minority rights and other arrange-
ments as may be decided upon by the
United Nations;
(iv) To report promptly to the United Nations
any development in Palestine likely to
alter the arrangements approved by the
United Nations in the Palestine settle-
ment or to threaten the peace of the area.
SUPERVISION OF THE TWO TRUCES
V. Some Conclusions Regarding the
Truce Operation
1. The supervision of the truce is a continuing
responsibility and it is neitlier necessary nor de-
sirable at this stage to formulate any definitive
views concerning the operation. The experience
thus far gained in the supervision of two truces
extending over a total period of more than three
months has been very valuable, however, and on
the basis of this experience certain analyses and
conclusions maj' even now be usefully set forth.
2. In assessing in general terms the entire period
of truce, my dual role of Mediator and of super-
visor of truce obsei'vation is an important factor.
Conditions of truce, even though subject to fre-
quent minor and occasional major infractions by
both parties, provide a peaceful basis indispensa-
ble to the task of mediation. At the same time,
organizing and supervising truce observance make
imperative demands on time and staff. I am in-
evitably drawn into the settlement of disputes
arising solely out of the truce, and it may be I'eadily
appreciated that my position and decisions as
truce supervisor cannot, in the minds of the dis-
putants, be easily dissociated from my role in the
more fundamental task of mediation.
3. The situation in Jerusalem has been consider-
ably more tense and difficult during the second
truce than during the first. This fact is due to
a complex of reasons among which are the change
in military dispositions between truces, and the
increased concentration of manpower which ap-
jiears to have taken place there in the interval be-
tween the truces. The special importance which
each side attaches to the status of Jerusalem in a
general settlement of the Palestine problem is, in
the circumstances, a constant influence tending to
heighten the tension there.
4. However, the situation in Jerusalem has
shown recent improvement. The decision of the
Security Council on 19 August fixing the responsi-
bility of the parties under the cease-fire order, a
considerable increase in the number of United Na-
tions Observers stationed there, and intensive
efforts to achieve localized demilitarization agree-
ments, have produced beneficial results. Never-
theless, the conditions in Jerusalem are such that
not even the increased number of Observers now
there could for long maintain the truce in the City
438
Department of State Bulletin
if it slioiild appear likely that a settlement would
be indefinitely deferred.
5. United Nations supervision of the regular
food convoys of Jerusalem has been an important
feature of both truces. The movement of these
convoys involved dithcult negotiation and constant
supervision anil escort. A}iart from some sniping
activity during the early days of each truce, the
convoy .sysieni has worked remarkably well. On
the other hand, persistent efforts to ensure the flow
of water to Jerusalem through the main pipe-lines
have met with failure during both truces, the de-
struction of the Latrun pumping station having
so far nullilied all efforts to solve the problem
during the second truce.
G. The period of the first truce coincided with
the ripening of cereal crops in Palestine. Since
the front lines ran almost entirely through land
belonging to Arab cultivators, a great number of
fields bearing crops was in no-man's land or behind
Jewish positions. Attempts by Arabs to harvest
crops in no-man's land and in the vicinit\' of and
sometimes behind Jewish positions often led the
Jews to react by firing on the harvesters. This
was a major complication during the first truce,
both before and after my ruling of 16 June, and
explains many of the breaches of truce and the
difficulties of truce observation over a wide area.
During the second truce, incidents of this nature
have been relatively few, since the harvest season
for cereal crops is over. The efforts of Observers
in securing local agreements regarding harvesting
of crops undoubtedly saved many crops that would
otherwise have been lost.
7. The fact that in the Negev there is no con-
tinuous front line has been, during both truces, a
special cause of difficulty as a result of the need for
each side to by-pass the other's positions in order
to supply some of its own positions. Convoys
under United Nations supervision largely solved
the problem, though not without friction, during
the first truce. During the second truce a similar
system was proposed, but agreement on conditions
could not be reached with the parties. Conse-
quently, on 14 September I laid down the terms
governing future convoys in the Negev.
8. In considering the effectiveness of the truce
supervision, attention must be paid to two distinct,
though related, aspects of the problem. On the
one hand, there is the problem of observing the
actual fighting fronts, of dealing with incidents
■which may arise there and preventing, if jjossible,
any further outbreak of hostilities. On tlie other
hand, there is the observation which is necessary
over a vast area to check whether or not materials
and men are being moved in a manner to confer
a military advantage contrary to the terms of the
THE UNITED NATIONS AND SPECIALIZED AGENCIES
truce. As regards the second aspect of this prob-
lem, an important consideration is that the area
under observation covers a very large part of the
Middle East and that the necessity to concentrate
a majority of the limited number of Observers at
my disposal near the fighting fronts restricts the
number available for duties elsewhere. The avail-
ability of an increased number of Observers has
enabled me to ensure a more extensive supervision,
especially in territories outside Palestine.
9. Experience has shown that the more quickly
action can be taken to deal with a local violation,
the more easily incidents are controlled or pre-
vented. It must be admitted that, on occasion,
slowness to act, often because of circumstances be-
yond control, has hampered the operation of the
truce supervision. Although the Secretary-Gen-
eral of the United Nations has given me the fullest
co-operation and every assistance available to him,
it is apparent that the United Nations was not in
position as regards Observer personnel, armed
guards, communications and transportation equip-
ment or budgetary provision to set up rapidly the
elaborate machinery of truce observation required.
10. The second truce differed from the first
principally in the fact that it was ordered by the
Security Council under threat of further action
under Chapter VII of the Charter, and that no
time limit was set. This introduced a new ele-
ment into the situation as compared with the first
truce, in that the second truce involved compliance
with a Security Council order. There is a tend-
ency on each side to regard alleged breaches by
the other side of a truce which has been ordered
by the Security Council as calling for prompt
action by that Council. Both sides now evidence a
sense of grievance and complain that the compul-
sory prolongation of the truce is contrary to their
interests. This feeling is inevitably reflected in
their attitudes toward the Observers and truce
obligations in general. The truce undoubtedly
imjjoses a heavy burden on both sides, but even
so, the burden of war would be heavier.
11. The truce is not an end in itself. Its pur-
pose is to prepare the way for a peaceful settle-
ment. There is a period during which the poten-
tiality for constructive action, which flows from
the fact that a truce has been achieved by interna-
tional intervention, is at a maximum. If, how-
ever, there appears no prospect of relieving the
existing tension by some arrangement which holds
concrete promise of peace, the machinery of truce
supervision will in time lose its effectiveness and
become an object of cynicism. If this period of
maximum tendency to forego military action as a
means of achieving a desired settlement is not
seized, the advantage gained by international in-
tervention may well be lost.
October 3, 1948
439
THE UNITED NATIONS AND SPBCIAUZED AGENCIES
ASSISTANCE TO REFUGEES
VI. Conclusions
1. Conclusions which may be derived from the
experience to date are summarized as follows :
(a) As a result of the conflict in Palestine there
are approximately 360,000 Arab refugees and 7,000
Jewish refugees requiring aid in that country and
adjacent States.
(b) Large numbers of these are infants, chil-
dren, pregnant women and nursing mothers. Their
condition is one of destitution and they are "vul-
nerable groups" in the medical and social sense.
(c) The destruction of their property and the
loss of tlieir assets will render most of them a
charge uj^on the communities in which they have
sought refuge for a minimum period of one year
(through this winter and until the end of the 1949
harvest).
(d) The Arab inhabitants of Palestine are not
citizens or subjects of Egypt, Iraq, Lebanon, Syria
and Transjorclan, the States which are at present
providing them with a refuge and the basic neces-
sities of life. As residents of Palestine, a former
mandated territory for which the international
community has a continuing responsibility until
a final settlement is achieved, these Arab refugees
understandably look to the United Nations for
effective assistance.
(e) The temporary alleviation of their condi-
tion, which is all that my disaster relief pro-
gramme can promise them now, is quite inadequate
to meet any continuing need, unless the resources
in supplies and personnel available are greatly
increased. Such increased resources might indi-
rectly be of pei-manent value in establishing social
services in the countries concerned, or improving
greatly existing services. This applies partic-
ularly to general social administrative organiza-
tions, maternal and child care services, the train-
ing of social workers, and the improvement of food
economics.
(f ) The refugees, on return to their homes, are
entitled to adequate safeguards for their personal
security, normal facilities for employment, and
adequate opportunities to develop within the com-
munity without racial, religious or social discrim-
ination.
(g) So long as large numbers of the refugees
remain in distress, I believe that responsibility for
their relief should be assumed by the United Na-
tions in conjunction with the neighbouring Arab
States, the Provisional Government of Israel, the
specialized agencies, and also all the voluntary
bodies or organizations of a humanitarian and
non-political character.
2. In concluding this part of my report, I must
emphasize again the desperate urgency of this
problem. The choice is between saving the lives
of many thousands of people now or permitting
them to die. The situation of the majority of these
hapless refugees is already tragic, and to prevent
them from being overwhelmed by further disaster
and to make possible their ultimate rehabilitation,
it is my earnest hope that the international com-
munity will give all nece.ssary support to make the
measures I have outlined fully etfective. I believe
that for the international community to accept its
share of responsibility for the refugees of Pales-
tine is one of the minimum conditions for the suc-
cess of its efforts to bring peace to that land.
Position on Withdrawing Occupying
Forces From Korea
[Released to the press September 20J
It has been the consistent view of this Govern-
ment that the best interests of the Korean people
would be served by the withdrawal of all occupying
forces from Korea at the earliest practicable date.
This same view was embodied in the United Na-
tions General Assembly resolution of November
14, 1947, in which provision was made for such
withdrawal as soon as practicable after the estab-
lishment of the Korean Government which it was
the intention of that resolution to bring into beings
Had the Soviet Union cooperated in carrying out
the provisions of the resolution of November 14,
1947, the question of troop withdrawal from
Korea would doubtless have been already resolved.
The United States Government regards the ques-
tion of the withdrawal of occupying forces as but
one facet of the entire question of the unity and
independence of Korea. The General Assembly of
the United Nations has taken cognizance of this
larger question, as evidenced by the resolution
referred to above, and may be expected to give fur-
ther consideration to the matter at its forthcoming
meeting.
440
Department of Slate BuUetini
The United States in the United Nations
THIRD REGULAR SESSION OF
The Third Kegular Session of the General
Assembly opened in Paris at the Palais de Chaillot
on September 21. At its first plenary session the
Assembly elected Dr. Herbert V. Evatt (Aus-
tralia) as its President and Paul-Henri Spaak
(Bel<iium) as Chairman of the Political and
Seemity Committee (Committee I).
Secretary Marshall's Address
In his address before the General Assembly on
Sejitenibei' 2o. Secretary of State George C. Mar-
shall, Chairman of the U.S. Delegation, stated that
the United States does not want to inci'ease exist-
ing tension in the United Nations but "we will not
compromise essential principles" and "we will
luuler no circumstances barter away the rights and
freedoms of other peoples. We earnestly hope
that all Members will find ways of contributing
to the lessening of tensions and the promotion of
peace with justice." The Secretary warned that
those nations who are creating a deep rift between
our countries and the rest of the world community
must not be permitted to widen that rift any
further.
Agenda
General debate got under way at the second
meeting of the Assembly on September 23, when
70 agenda items were allocated among the appro-
priate committees. New items approved for the
agenda included the question of extending the
U.N. Appeal for Children through next year;
future of former Italian colonies; Mediator's re-
port on Palestine; creation of U.N. Guard force;
and reparation for those injured in U.N. service.
Andrei Vyshinsky (U.S.S.R.) on September 25
introduced a resolution calling upon the major
powers to reduce all their armaments by one third
within a year. The resolution would liave the
Assembly recommend that an international con-
trol body be established by the Security Council,
where the veto prevails, "for the supervision and
control over implementation of measures for re-
duction of armaments and armed forces and for
prohibition of atomic weapons."
A member of the U.S. Delegation pointed out
that the United States welcomes the emphasis that
the Soviet Union places upon the importance of
the regulation and reduction of armaments. The
development of a necessary basis for a system for
control of atomic energy is the crucial aspect of
the problem of armaments regulation. The Soviet
Union in former discussions in the Atomic Energy
Commission had rejected such a plan. The U.S.
spokesman continued that the position of the
United States on this question has been repeatedly
stated and has been recently confirmed by a vote
of the United States Senate.
On September 28 the General Assembly agreed
Ocfofaer 3, 1948
THE GENERAL ASSEMBLY
to add to its agenda the Soviet proposal, and the
item M-as referred to Committee I.
The United States on September 29 charged the
Soviet Union with action in the Bei'lin situation
constituting a threat to the peace under the mean-
ing of the U.N. Charter, and it requested the
Security Council to consider the case as soon as
possible. Ambassador Austin signed the U.S.
request and sent it to the Secretary-General at the
same time that identical notifications from Great
Britain and France were delivered. In this re-
quest the three Governments draw attention to "the
serious situation which has arisen as the result of
the unilateral imposition by the Government of
the Union of Soviet Socialist Republics of restric-
tions on transport and communications between
the Western zones of occupation in Germany and
Berlin."
On September 30, Ambassador Austin told
Committee I that only international control of
atonuc energy could assure long-time security.
Mr. Austin renewed the U.S. offer to share its
atomic knowledge with the world under an inter-
national control system which would provide safe-
guards against "destructive rivalry in atomic
weapons." The vast U.S. atomic-development
plant, Mr. Austin said, would be placed under an
international agency after that agency is deemed
to be in effective operation. This procedure, ac-
cording to the U.N. Atomic Energy Commission,
is vital to assure against what would amount to
unilateral disarmament by the United States under
a proposal such as that of the Soviet Union
whereby discussion of control plans must await
prohibition and destruction of existing atomic
weapons. Mr. Austin recalled that the Soviet
proposal was studied at length by the Commission
whose majority "reached conclusions which are
briefly described by these words from the Commis-
sion reports : 'completely unrealistic', 'feeble', and
'fundamentally inadequate'."
The Soviet proposal, Mr. Austin explained,
"would allow any nation to carry on scientific
research regardless of dangerous materials or
facilities involved. The U.N. Commission in its
third report declares that in the Soviet proposal
'there appears to be no limit to the clandestine
activities that may take place in laboratories
ostensibly devoted to peaceful work.'
"Should a violation of security be discovered the
international agency must be empowered to pre-
vent its fruition and correct the damage done to
the cause of peace. The Commission provided for
this by holding that judicial or other processes for
the determination of violations and punishments
must be certain and swift. And there must, the
Commission said, be no legal right by veto or other-
wise whereby awilful violator could thwart punish-
ment and evade the consequences of violation."
441
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
Calendar of Meetings ^
Adjourned during September
Council of Foreign Ministers: Deputies for Italian Colonial Problems .
18th International Geological Congress '
London . . ,
London
Geneva
Oct. 3, 1947-Sept.
1, 1948
1948
Aug. 25-Sept. 1
Aug. 25-Sept. 15
Aug. 30-
Sept. 1-
Sept. 1-4
Sept. 1-10
Sept. 6-14
Sept. 7-16
Sept. 7-20
Sept. 10-
Sept. 13-15
Sept. 20-24
Sept. 20-25
1946
Feb. 26-
Mar. 25-
Ito (International Trade Organization) : Meeting of Interim Com-
mission.
United Nations: Economic and Social Council, Subcommission on
Statistical Sampling.
Ito (International Telecommunication Union) : Meeting of Admini-
strative Council.
UNESCO (United Nations Educational, Scientific and Cultural Or-
ganization) : Expert Conference for High .Altitude Stations.
Sixth International Congress and Exposition of Photogrammetry . .
XXXVII General Assembly of the Interparliamentary Union ....
Geneva
Geneva
Interlaken, Switzerland . .
The Hague
Rome
Utrecht
Denver
Inter-American Conference on the Conservation of Renewable Natu-
ral Resources.
Iro (International Refugee Organization) : Seventh Part of First
Session of Preparatory Commission.
Council of Foreign Ministers: Discussions on the Disposition of Italian
Pre-war Colonies.
Fifth International Conference of Directors of Mine Safety Research
Stations.
Ilo (International Labor Organization): Joint Maritime Commis-
sion.
In Session as of October 1, 1948
Far Eastern Commission
United Nations:
Security Council
Geneva
Paris
Pittsburgh
Geneva
Washington
Lake Success
Lake Success
Lake Success
Salonika and Geneva . . .
Seoul
Geneva and Kashmir . . .
Paris
Lisbon
Military Staff Committee
Mar. 25-
Security Council's Committee of -Good Offices on the Indonesian
Question.
General Assembly Special Committee on the Balkans
Teniporarv Commission on Korea
1947
Oct. 20-
Nov. 21-
1948
Jan. 12-
Security Council's Kashmir Commission
June 15—
General Assembly: Third Session
Sept. 21-
1946
Sept. 3-
1948
Jan. 15-
German External Property Negotiations with Portugal (Safehaven) .
Itu (International Telecommunication Union) :
Provisional Frequency Board
Planning Committee for High Frequency Broadcasting Conference .
International Bank for Reconstruction and Development: Third
Annual Meeting of the Board of Governors.
International Monetary Fund: Third Annual Meeting of the Board
of Governors.
Ilo (International Labor Organization): Technical Tripartite Con-
ference on Safety in Factories.
Who (World Health Organization) : Expert Committee on Tubercu-
losis.
Conference for the Establishment of the International Union for the
Protection of Nature.
Scheduled October 1-31, 1948
Pan American Sanitary Organization:
Meeting of Executive Committee
Second Meeting of Directing Council
Second Meeting of Wool Study Group
Mexico City
Washington
Washington
Sept. 13-
Sept. 27-
Sept. 27-
Sept. 27-
Sept. 30-
Paris
Fontainebleau
Mexico City
Mexico City
London i
Sept. 30-
Oct. 2-3
Oct. 4-16
Oct. 4-6
' Prepared in the Division of International Conferences, Department of State.
442
Department of State Bulletin
Calendar of Meetings — Continued
International Council for the Exploration of the Sea
Second Inter-American Conference on Indian Life
Universal Postal I'nion: Meeting of the Provisional Executive and
Liaison Committee.
Ninth (ieneral Conference on Weights and Measures
Bolivian International Fair
Fourth Pan American Consultation on Cartography
Who (World Health Organization):
Expert Committee on Venereal Disease
Second Session of Executive Board
Fifth Inter-American Congress of Surgery
Itu (International Telecommunication Union): International Con-
ference on High Frequency Broadcasting.
Second Meeting of South Pacific Commission
International Tin Study Group: Third Meeting
Ilo (International Labor Organization): Industrial Committee on
Textiles: Second Session.
Copenhagen
Cuzco, Peru
Bern . . . .
Paris and Sdvrcs .
La Paz
Buenos Aires . .
Paris ....
Geneva . . .
La Paz . . .
Mexico Citv
Sydney . .
The Hague
Cairo . .
Oct. 4-11
Oct. 10-20
Oct. 11-
Oct. 12-21
Oct. 20-
Oct. 15-
Oct. 15-19
Oct. 25-
Oct. 17-21
Oct. 22-
Oct. 25-
Oct. 25-
Oct. 26-
U.S. Delegations to International Meetings
Protection of Nature
The Department of State announced September
22 that Ira Noel Gabrielson, President, Wildlife
Management Institute, Washington, has been des-
ignated Chairman of the United States Delega-
tion to the Conference for the Establishment of the
International Union for the Protection of Nature,
scheduled to be held at Fontainebleau, France,
Sejatember oO-October 7, 1948. Harold Jefferson
Coolidge. Executive Secretary, Pacific Science
Board, National Research Council, has been ap-
pointed to serve as delegate.
This Conference has been called bj' the French
Goverimient in conjunction with the United Na-
tions Educational, Scientific and Cultural Organi-
zation to adopt a final constitution for the Inter-
national Union for the Protection of Nature which
was created provisionally by an international con-
ference convened by the Swiss League for the Pro-
tection of Nature at Brunnen, Switzerland, in
1947.
Wool
The Department of State announced on Sep-
tember 24 tlie United States Delegation to the
Second Meeting of the International Wool Study
Group, scheduled to be held at London. England,
October 4-6, 1948. The Delegation is as follows:
Chairman
Donald D. Kennedy, Chief, International Resources Divi-
sion, L)epartment of State
Adriserx
Rene Lutz. Office of International Trade, Department of
Commerce
Floyd E. Davis, Office of Foreign Agricultural Relations,
Department of Agriculture
Paul O. Nyhus, Agricultural Attach^, American Embassy,
London
Ocfober 3, 7948
The purpose of the meeting is to exchange in-
formation and views regarding the present general
wool situation, to consider any specific problems
that may have arisen since the last meeting held at
London in March and April, 1947, and to discuss
im])rovements in the organization and activities
of the Study Group.
The establishment of the Wool Study Group
was proposed at the International Wool Talks at
London in 1946 when representatives from 13
countries substantially interested in the produc-
tion, consumption, ancl trade of wool reviewed the
world situation of apparel wool. The desirability
of keejjing the world position of wool under inter-
governmental review was unanimously agreed
upon at that meeting.
Cartography
The Department of State announced on Septem-
ber 22 the United States Delegation to the Fourth
Pan American Consultation on Cartography,
scheduled to be held at Buenos Aires, Argentina,
October 15-November 14, 1948. The Delegation
is as follows:
Chairmnn
Robert H. Randall, Bureau of the Budget, Executive OflBce
of the President; U.S. Member and Chairman, Com-
mission on Cartography, Pan American Institute of
Geography and History
Delegates
Lt. Col. Albert G. Foote, Commanding Officer, Aeronautical
Chart Service, Department of the Air Force
Capt. Clement L. Garner ( Retired ) , Former Chief, Division
of Geodesy, U.S. Coast and Geodetic Survey, Depart-
ment of Commerce
Charles B. Hitchcock, Assistant Director, American
Geographical Societ.v
Capt. Allen Hobbs, Hydrographer of the Navy, Department
ut the Navy
443
;>cnv/7-;£s and developments
Col. John G. Ladd, Office of Chief of Engineers, Depart-
ment of the Army
Col. Freemont S. Tandy, Chief, Inter-American Geodetic
Survey, Caribbean Defense Command, C.Z.
Marshall S. Wright, Technical Assistant to the Chief, OfiSce
of Plans and Operations, Department of Agriculture
Advisers
Capt. K. T. Adams, Chief, Division of Photogrammetry,
U.S. Coast and Geodetic Survey, Department of
Commerce
Brig. Gen. Paul T. Cullen, Commanding General, 311th
Air Division Reconnaissance, Topeka Air Force Base,
Topeka, Kans.
Harry T. Kelsh, Head, Methods and Standards Unit,
Geological Survey, Department of the Interior
Guillermo Medina, Chief Engineer, Hydrographic Office,
Department of the Navy
Col. William H. Mills, Commanding Officer, Army Map
Service, Department of the Army
Comdr. Elliott B. Roberts, Chief, Division of Geomagnetism
and Seismology, U.S. Coast and Geodetic Survey,
Department of Commerce
Adviser and Secretary
Andre C. Simonpietri, Special Adviser, Department ol
State
The Fourth Pan American Consultation on
Cartography will be a meeting of the Commission
on Cartography, one of several technical commis-
sions of the Pan American Institute of Geography
and History. The Cartography Commission, es-
tablished by the Institute's Assembly held at Lima,
Peru, in 1941 to further the surveying and mapping
activities of the member governments of the Insti-
tute, provides the medium for the interchange of
knowledge and techniques among the officials of
the American governments working in these fields.
At the Fourth Consultation on Cartography new
developments and techniques in the field will be
considered and the establishment of uniform
standards of accuracy will be furthered. The
meeting will be divided into the following
committees: geodesy, including gravity and geo-
magnetism; topographic maps and aerial photo-
grammetry; aeronautical charts; hydrography,
including tides and special maps; and urban
surveys.
In addition to the committee sessions there will
be an exhibit of instruments and equipment used in
the production of all types of cartographic docu-
ments. This will be the first time that an exhibit
of this nature has been held in connection with the
Consultation. United States manufacturers of
cartographic instruments have been invited by the
Argentine Government to participate in the dis-
play. There will also be the regular exhibit of
map products by member governments which is
always a part of the Consultation.
The Third Pan American Consultation on
Cartography was held concurrently with the
Fourth General Assembly of the Pan American
Institute of Geogi-aphy and History at Caracas,
Venezuela, August-September 1946. Invitations
to participate in the forthcoming Consultation
have been extended by the Argentine Government
to all the American republics and Canada, to the
members of the Commission on Cartography, and
to interested international organizations.
Executive Committee Achievements of ITO Interim Commission
[Released to the press September 20]
The Department of State announced on Sep-
tember 20 that a number of organizational and
procedural agreements were reached at the recent
second session of the Executive Committee of the
Interim Commission of the International Trade
Organization, held at Geneva.
The agenda of the second session consisted of a
number of procedural and organizational matters.
Several recommendations were considered and
agreed upon by the Committee with respect to
such items as the relationship of the Ito, when
established, to other international organizations
and bodies, such as the International Court of
Justice, the International Monetary Fund, and the
Food and Agriculture Organization; the expenses
incurred during preparatory meetings which
drafted the Havana Ito charter; and the prep-
aration of an authentic Spanish text of the Havana
charter for submission to those Spanish-speaking
governments which are members of the Interim
Commission.
The Commission was decided upon last winter
when the charter for an International Trade Or-
ganization, known as the Havana charter, was
drawn up at Havana by a conference at which
some 57 countries participated and which lasted
four and a half months. It was realized at Havana
that it might take a considerable length of time
for the charter to be ratified by the required num-
ber of governments. Therefore the Havana con-
ference, by resolution, established an Interim
Commission to deal with certain administrative
and procedural matters which should be provided
for before the Trade Organization itself would be
established. The 53 member countries of the In-
terim Commission selected 18 of the members as
an Executive Committee to perform tliese tasks.
The use of the Interim Commission technique has
also been adopted by the other specialized agen-
cies set up by the United Nations, such as the health
and refugee organizations.
The 18 countries selected are Australia, the
Benelux countries (acting as a unit), Brazil,
Canada, China, Colomliia, Czechoslovakia, Egypt,
El Salvador, France, Greece, India, Italy, Mexico,
Norway, the Philippines, the United Kingdom,
and the United States. This Executive Commit-
444
Department of State Bulletin
ACTIVITIES AND DEVELOPMBNTS
tee held its first, purely organizational meeting in
Havana directly after the Havana conference and
elected Dana Wilgress, Canadian Minister in
Bern, as Chairman. The second meeting of the
Committee began in Geneva on August 25 and
ended on September 15. All the 18 member coun-
tries were represented. The United States Dele-
gation was headed by Leroy D. Stinebower, Spe-
cial Assistant to the Assistant Secretary of State
for economic affairs.
Plans To Increase Value of General Agreement on Tariffs and Trade
[Released to the press September 22]
The second session of the contracting parties to
the General Agreement on Tariffs and Trade,
which opened in Geneva on August 16, completed
its work on September 14. It has laid plans de-
signed to increase further the value of the agree-
ment to the countries already parties, including
the United States, and to enable more countries
to become parties.
Under the general agreement itself, negotiated
in 1947 by the United States and 22 other coun-
tries, each country agrees to certain general rules
for the conduct of its international trade and
grants to all the others a schedule of specific con-
cessions in its tariff treatment of imports, includ-
ing reductions in tariffs, bindings of moderate
rates or of free treatment, reductions or elimina-
tions of preferences, and the like. These con-
cessions cover about one half of total world trade.
Accession of New Countries
The major accomplishment of the meeting just
ended is adoption of procedures for bringing ad-
ditional countries into the agreement as rapidly as
possible through taritT negotiations with them.
On inquiry by the contracting parties it was found
that several countries not yet parties are definitely
interested in early accession. A timetable was ac-
cordingly adopted for negotiations with them.
Requests for concessions are to be exchanged be-
tween the present parties and the new countries
and also among the new countries by January 15,
1949. DeHnitive negotiations are scheduled to
open at Geneva on April 11. 1949. The new coun-
tries which will negotiate are Denmark, the Do-
minican Republic, El Salvador, Finland, Greece,
Haiti, Italy, Nicaragua, Peru, Sweden, and Uru-
guiiy-
So far as the United States is concerned, nego-
tiations will be conducted under the usual trade-
agreement procedure as recently amended by the
Trade Agreements Extension Act of 1948. The
customary notice of intention to negotiate, accom-
panied by announcement of products to be con-
sidered for possible concession by this country,
will be made as soon as the necessary preparatory
work is completed by the interdepartmental trade-
agreements organization.
Oc/ober 3, 1948
Other TariK Negotiations
Except in certain special cases there will be no
reopening of negotiations among the countries
which ai-e already parties to the agreement.
Brazil, however, was granted temporary permis-
sion to establish rates on three items which are
higher than otherwise permitted under the general
agreement, in consideration of the fact that the
Brazilian Congress has applied rates on a number
of other items which are lower than the maximum
permitted by the agreement. Within 60 days the
interested countries are to negotiate a definitive ad-
justment of the concessions involved. Ceylon and
Pakistan were also authorized to renegotiate cer-
tain concessions which each had granted to other
countries. Cuba was granted permission to
renegotiate with the United States the rates of
duty on six items which Cuba is finding it difficult
to apply as originally negotiated, the understand-
ing being that the United States is to receive full
compensation for any modifications agreed to.
These adjustments are to be worked out bilaterally
subject to final action at the time of the negotia-
tions next spring. Any other negotiations among
countries already parties to the agreement are
likelj' to be in the nature of completion of work
which it was not possible to finish at the 1947 con-
ference, none of it involving the United States.
Most-Favored-Nation Treatment for
Western Germany
One of the most important achievements of the
conference was agreement by a substantial number
of countries to extend to Western Germany niost-
f avored-nation treatment with respect to merchan-
dise trade on a reciprocal basis. This undertaking
is incorporated in a separate document, not a part
of the General Agreement on Tariffs and Trade,
and was opened for signature on September 14.
So far nine countries have signed, and it is ex-
pected that most of the remaining countries repre-
sented at the meeting will sign in the near future.
Modification of General Agreement
Some changes were also made in the agreement
which, it was felt by the contracting parties, were
an improvement over the original text. These
changes were based largely on work done at the
Havana trade conference subsequent to the conclu-
sion of the general agreement.
445
ACTIViriBS AND DEVELOPMENTS
In addition, Chile was accorded an extension of
time, to February 17, 1949, in which to become a
contracting party to the agreement, even though
after negotiating concessions at Geneva Cliile did
not put the agreement provisionally into effect by
June 30, 1948, the time originally set.
Arrangements were made under which the
United States will be free to accord preferences to
imports from the Trust Territory of the Pacific
Islands. Though technically tliis constitutes es-
tablishment of a new preference, it will permit the
working out of a trading arrangement which will
jjromote the advancement of the peoples of the
Trust Territory consistent with United States obli-
gations under this country's trusteeship agree-
ment with the Security Council of the United
Nations.
Cuban-American Trade
IJuring the session just ended, the United States
submitted to the contracting parties under article
XXIII of the general agreement a problem arising
out of an import licensing system applied by Cuba
with respect to a wide range of products, including
raw cotton and cotton, rayon and wool fabrics, and
wearing apparel. Cuba's action liad the effect of
preventing the importation of these products from
the United States and other countries, thus nulli-
fying in considerable part the benefits granted
by Cuba in the general agreement. The contract-
ing parties recommended that Cuba promptly
take steps to relieve the immediate difficulties and
to consult with representatives of the United
States Government at Habana with a view to find-
ing a mutually satisfactory solution of the prob-
lems that have arisen in connection with the Cuban
import controls under Cuban Eesolution 530. On
September 14 the Cuban Government issued a reso-
lution removing restrictions on the importation
of all products except piece-goods remnants and
waste other than industrial. The restrictions on
the importation of these products will be discussed
by the Cuban Government and the United States
Embassy at Habana.
Discussions on Convention for
Foreign Motor Travel
[Released to the press September 20]
To prepare for a new international convention
designed to j^ermit motorists to drive their cars in
foreign countries, the Department of State is hold-
ing informal discussions with interested groups.
The American Association of Motor Vehicle Ad-
ministrators, composed of State officials respon-
sible for issuing drivers' licenses and registration
plates, endorsed the Department's plans at their
annual meeting in Detroit September 10. On
September 21 a meeting of private agencies, in-
cluding motoring associations, bus and truck asso-
ciations, and other highway-user groups, was held
446
in Washington to discuss the matter. In October
representatives of all Federal Government agencies
interested in highway and touring problems will
meet in Washington for the same purpose. Out
of these informal discussions is expected to develop
a list of the main points which the United States
will desire to have included in the proposed world-
wide convention in order to make possible the ad-
herence of this Government, for the benefit of
American motorists.
Final action on the convention will be taken
under the auspices of the United Nations, whose
Economic and Social Council recently authorized
the holding of an international conference for this
purpose before the end of August 1949.
South Pacific Commission Meeting
The Department of State announced on Septem-
ber 15 that the three United States Commissioners
in the South Pacific Commission had arrived at
Washington for a three-day i^eriod of consultation.
Those attending the series of meetings are:
Senior Commissioner: Felix M. Kessing, Profes-
sor of Anthropology at Stanford University.
Commissioner: JMilton Shalleck, lawyer of New
York City.
Alternate Cormnissioner: Karl C. Leebrick, Act-
ing President of the University of Hawaii.
This will be the first meeting at Washington of
of the United States Commissioners, who were ap-
pointed by the President on April 28, 1948. It has
been arranged in order that the Commissioners
may confer with officers of this Government on
matters relating to the South Pacific Commission.
Among problems which the Commissioners will
discuss are items on the agenda of the Second Ses-
sion of the Commission to be convened at Sydney,
Australia, on Octolier 25.
The South Pacific Commission was established
May 1948 as a regional advisory and consultative
body on social and economic matters to the Gov-
ernments of Australia, France, the Netherlands,
New Zealand, the United Kingdom, and the United
States. The territorial scope of the Commission
comprises all those non-self-governing territories
in the Pacific Ocean which are administered by
these participating Governments and which lie
wholly or in part south of the Equator and east
from and including Netherlands New Guinea.
The Commission will be concerned primarily
with subjects which are of every-day concern in
the lives of the people, particularly agriculture
(including animal husbandry), communications,
transport, fisheries, forestry, industry, labor, mar-
keting, production, trade and finance, public
works, education, health, housing, and social
welfare.
Department of State Bulletin
THE RECORD OF THE WEEK
Bulgaria's Disregard for Obligations Under Peace Treaty and U. N. Charter
[Released to the press September 24]
Text of an aide-memoire delivered September ^3,
1948, to Bulgarian Foreign Minister Kolarov by
the Ajnerican Minister in Sofia, Donald R. Heath
The United States Government has noted that
(lie Minister for Foreign Affairs, in a speeclr in
tlie Sobranje on September 4, is reported to have
staled that Bulgaria has been scrupulous in ful-
filling its obligations under the Peace Treaty, and
to have attributed to the United States the rejec-
tion of Bulgaria's application for membership in
the United Nations.
The Minister for Foreign Affairs is quoted as
saying that '"during the past year Bulgaria car-
ried out and continues to carry out all she con-
tracted under the Peace Treaty"'. On the conti'ary,
from the very moment it signed the Treaty the
Bulgarian Government has prosecuted a syste-
matic and ruthless campaign to obliterate demo-
cratic opposition, in direct disregard of the funchv-
mental principles of freedom which it undertook
by Article 2 to secure. Through abuse of the in-
strumentalities of police power and subversion of
judicial process, the Bulgarian Government has
subjected substantial numbers of the Bulgarian
people whose only crime was a belief in the rights
of man, to involuntary servitude, banishment, con-
centration camps, imprisonment, torture and
e.xecution. It has obliterated the opposition press
and by means of terror stifled free expression. On
the day after it ratified the Peace Treaty the
National Assembly adopted legislation declaring
any attempt to reestablish under any form a po-
litical party which in the last elections, despite
fraud and intimidation, was admitted by the Bul-
garian Government to have polled over one-fourth
of the total vote, to be a crime punishable by life
imprisonment or death. The United States Gov-
ernment and the world was shocked when, one week
after the Treaty came into effect, the Bulgarian
Government performed the judicial murder of
Nikola Petkov.
As regards the reportetl claim of the Minister
for Foreign Affairs that Bulgaria is abiding by
the provisions of the military clauses of the Treaty,
the United States Government refers to its re-
quests to observe the execution of the military pro-
visions of the Treaty, such as Article 12, and to
obtain oiRcially information concerning the size of
Bulgaria's military establishment, which have
been rejected.
The United States Government would be happy
to welcome Bulgaria into the United Nations.
However, the Bulgarian Government has not
sliown itself qualified for membership in that
organization under the provisions of the Charter.
Aside from non-fulfillment of its international
obligations under the Peace Treaty as noted above,
a majority of the Security Council Balkan Com-
mission of the United Nations in which Bulgaria
seeks membership determined that the Bulgarian
Government has supported on its territory guer-
rilla activity directed against Greece, a member
of the United Nations, of which further confirma-
tion, tantamount to an admission of guilt, is appar-
ent in the effort Bulgaria has matle to obstruct the
work of that Commission and of the subsequent
Special Balkan Committee of the General Assem-
bly. In its Supplementary Report of September
10, 1948 to its Annual Report to the General As-
sembly, the Special Balkan Committee, in con-
firming its finding that such Bulgarian support is
continuing, has declared that the conduct of Bul-
garia "has been inconsistent with the pur]:)oses and
principles of the Charter of the United Nations".
In the circumstances, Bulgaria's application has
failed of support not only of the United States but
also of the overwhelming majority of other mem-
bers of the Security Council.
The American Leg.vtion,
Sofia, September 23, 191^8.
Efforts To Assist Near Eastern Refugees
STATEMENT BY ACTING SECRETARY LOVETT
[Released to the press Spptcmber 22]
It will be recalled that the late Count Berna-
dotte. United Nations mediator for Palestine, re-
cently directed an appeal to the United States for
aid to Near Eastern refugees. In response to the
critical nature of this emergency, the Department's
Advisory Committee on Voluntary Foreign Aid is
Ocfofaer 3, 1948
moliilizing American voluntary resources, and sub-
stantial assistance has already been rendered by
church and lay groups. In order to expedite de-
livery in the Near East of urgently needed supplies,
the Department has authorized the American Mis-
sion for Aid to Greece to release certain foodstuffs
and DDT, which will be replenished through
447
THE RECORD Of THE WEEK
monetary contributions from American voluntary
sources.
In Count Bernadotte's last report to the United
Nations he laid particular emphasis on the fact
that aid provided to date is inadequate to meet any
continuing need. It is hoped that the American
people will respond with generosity and sympathy
to this urgent need.
PLANNING COMMITTEE APPOINTED
William L. Batt, Acting Chairman of the Ad-
visory Committee, has appointed a planning com-
mittee composed of representatives of church, edu-
cational, industrial, and lay interests under the
chairmanship of A. L. Warnshuis, in collaboration
with the American Red Cross. The planning
committee, which reports to all interested organi-
zations and groups, is serving as a focal point for
American relief activities. It is now engaged in
the procurement of food supplies and is collabo-
rating with the Christian Rural Overseas Program
in obtaining wheat. It is also stimulating collec-
tions of clothing and blankets through the church
organizations. The Near East Foundation is pro-
viding the planning committee with facilities for
its operations and is serving as a repository for
contributions. To insure its most effective use,
American aid will be coordinated with the efforts
of Sir Rafael Cilento, the mediator's Director of
Relief Operations.
In response to the appeal for voluntary support
a number of gifts in the form of monetary con-
tributions, supplies, and services are being made
available from church and industrial sources. Ad-
ditional assistance is being rendered. The Ameri-
can Red Cross is providing the services of expert
personnel to assist in refugee activities and has do-
nated two ambulances to the Syrian Red Crescent.
It has also made available medical supplies valued
at $50,000 in addition to its earlier contributions
estimated at $450,000.
These efforts to alleviate the critical situation
of the Near Eastern refugees are being pursued
with the unqualified support of the Department of
State. The major portion of these refugees, of
whom 75 percent are women and children, are
now destitute. Thousands are without funds, shel-
ter, or adequate supplies of food, water, and cloth-
ing. Medical and sanitary facilities are too lim-
ited to meet the needs of the present situation.
The Department is hopeful that this great hu-
manitarian problem will meet with the sympa-
thetic response of the American people.
Incident Involving Seating of Ethiopian Minister at Science Meeting
EXCHANGE OF MEMORANDA BETWEEN DEPARTMENT OF
STATE AND THE IMPERIAL ETHIOPIAN LEGATION
[Released to the press September 23]
Imperial Ethiopian Legation
Washinffton, D.C.
September 20^ 19^8
The Imperial Ethiopian Legation acknowledges
the receipt of the memorandum from the Depart-
ment of State dated September 17th, expressing
regret for the incident involving His Excellency
Ras Imru, Minister of Ethioi^ia, on September 13,
1948.
The Legation, while very much appreciative for
the endeavor of the Department to investigate into
the circumstances of the case with a view toward
taking appropriate action, regrets to state that
the information given to the Department of State
by the Organizations and individuals mentioned
in the memorandum, alleging that the Minister
was seated first in the box by mistake and was
subsequently requested to move to the orchestra,
which was assigned to him is incorrect. The ex-
planation in the memorandum of the Department,
therefore, which was based on such information
and tending to justify the indignity and injury
suffered by the Minister, is unacceptable to the
Legation.
The Minister had in his hands tickets bearing
Box Nos. E-2, 4, 6, and 8, issued to him and the
other members of the Legation by the American
Association for the Advancement of Science, of
which corresponding numbers were clearly shown
on the Boxes. His Excellency went direct to the
Boxes marked with the same numbers of the tickets
in his hand and presented his tickets to an usher
who was standing by and who checked the corre-
sponding numbers of the tickets and the boxes and
invited the Minister to choose one of the four seats
mentioned hereinabove. His Excellency took Box
No. 8, and it was from that same Box that he was
told to leave.
For the verification of the fact stated above, and
to enable the Department in its investigation of
the case toward taking appropriate action as de-
manded in the previous note of this Legation,
herewith is enclosed one of the tickets which the
American Association for the Advancement of
Science issued to His Excellency and members of
his Legation for attending the ceremony on 13th
September and which the Minister had in his hand
on that date when the incident occurred.
448
Department of State Bulletin
The Department of State ac-knowleclges the re-
ceipt of the note from the Imperial Etliiopian
Legation, ihited September 20, 19-18, making fiir-
tiier reference to tlie incitlcnt involving the Honor-
able Ras Imrii, Minister of Ethiopia, at Constitu-
tion Hall on September 13, 1948.'
The Depai-tnient, while reiterating its regret for
the embarrassment caused the Minister, wishes to
inform the Imperial Ethiopian Legation that its
further investigations into the case, based on the
information contained in the Legation's note under
reference, confirm that the incident was solely the
result of a series of misunderstandings.
The Department has examined the ticket en-
closed with the Legation's note and finds that it
bears the following inscription, the first two lines
of which are j^rinted and the third line type-
written :
Guest Admission
Box No.
Reserved Seats E-2, 4, 6, 8.
It is apparent that the American Association for
the Advancement of Science used a form guest
ticket for the meeting on SeiDtember 13. In the
case of those Chiefs of ^Mission who were assigned
box seats, the box number was inserted in the
proper place by the Association. In the case, how-
ever, of those Chiefs of Mission who were assigned
orchestra seats, the location of the reserved seats
was typed in below the box reference. Owing to
the Association's failure to delete the reference to
the box, it is quite understandable that the Min-
ister concluded that the seats reserved to him were
in a box rather than on the floor of the auditorium.
Furthermore, this impression was apparently con-
firmed when the usher, after examining the ticket,
unfortunately made the mistake of directing the
Minister to a box seat instead of to the orchestra
seat assigned to him.
The Department's examination of the seating
arrangement employed by the Association confirms
this explanation. The boxes at Constitution Hall
are numbered and bear no letter designation.
E-2, 4, G, S, identify seat locations in the orchestra,
rather tlian box locations.
The Department hopes that the foregoing satis-
factorily explains the cause of the embarrassment
to which the Minister was so regrettably subjected.
Department of State,
Washington, September 22, 191)8
' Bulletin of Sept. 26, 1948, p. 41.3.
' Bulletin of Aug. 15, 1948, p. 211.
THE RECORD OF THE WEEK
Radiotelegraph Service With Saudi Arabia
Telegram from Secretdry MarshaU to the Ameri-
can Minister at Jidda, J. Rives Childs
[Released to the press September 17]
September 16, 191,8
Please convey to the Minister of Foreign Af-
fairs my felicitations on the opening of direct
radiotelegraph service between the United States
and the Kingdom of Saudi Arabia and express to
him the satisfaction this Government takes in the
establishment of this channel of communications
between our two countries.
In this, the first message to be sent over this cir-
cuit, I wish also to express appreciation for the
assistance rendered by the Legation for the past
several years in bringing this circuit into existence.
Letter of Credence
Egypt
The newly appointed Ambassador of Egypt,
Mohamed Kamel Abdul Eahim Bey, presented his
letters of ci-edence to the President on September
14, 1948. For texts of the Ambassador's remarks
and the President's reply, see Department of State
press release 731 of September 14.
Attaciters of Stephen Haas Apprehended
[Released to the press September 10]
The American Embassy in Cairo has received a
note dated August 22 from the Egyptian Foreign
Office in reply to the Embassy's notes of July 19
and July 24 regarding the death of Stephen Haas.^
After renewing the Egyptian Government's ex-
pression of deep regret for this unfortunate occur-
rence, the note states that three persons believed
responsible for the attack have been apprehended
and charged with the crime before the appropriate
court and that they will receive the punishment
they merit.
Ceylon Appoints First Ambassador to U.S.
In pursuance of an agreement between the Gov-
ernment of the United States of America and the
Government of Ceylon to exchange diplomatic rep-
resentatives at the Embassy level, Felix Cole was
accredited recently as Ambassador of the United
States of America to Ceylon.
The Ceylon (lovernment has now decided, in
consultation with the Government of the United
States, to appoint G. C. S. Corea, presently the
Ceylon Government representative in London as
Ceylon's first Ambassador to the United States.
Mr. Corea is expected to assume the duties of his
new post early in October 1948.
Ocfofaer 3, 7948
449
THE RECORD Of THE WEEK
Italy Expresses Gratitude for
Economic Assistance
[Released to the press by the White House September 17]
Letter from Alcide de Gasperi, President of the
Council of Ministers of Italy, to President Trni-
inan, after the signing of the economic-cooperation
agreement iy Italy and the United States
Rome, July 6, 1948
My dear Mr. President :
In signing the Economic Cooperation Agree-
ment with the Government of the United States,
the Italian Government and people are fully aware
of the gravity and importance of their undertak-
ing. The number and range of recent debates in
political circles and in the press ai-e an indication
of how thoroughly the commitment is appreciated
in this country. We are likewise aware that the
decision taken by Congress is the result of much
consideration and debate by the public opinion of
the United States, and that genuine concern is felt
for the wise administration and best employment
of American aid so generously tendered for the re-
covery of Europe.
My Government is fully appreciative of these
considerations, and it is our resolve that our ob-
ligations under the Economic Cooperation Agree-
ment be discharged in their spirit and in full.
I wish to reassure you that I will devote my per-
sonal attention to the execution of the Agreement,
and will be in close and constant touch with those
of my colleagues and advisers, in and outside the
Cabinet, who are in charge of the Administration
of the Plan. I shall therefore be most grateful,
in the event of general or particular problems
arising which, in your opinion or in that of your
advisers, require special consideration or re-exam-
ination, if you will cause me to be personally in-
formed.
Four years have now elapsed since from this
newly released Capital we set about the mighty
task of rebuilding the country. With the unstinted
help of the people of America, we then repaired
the wrecked fabric of our administration. More
recently we have succeeded in establishing the
democratic method. Now we go forward — again
with your aid — to achieve full recovery both as a
Nation and as a component and complementary
part of world economy.
I feel confident that the concerted effort of so
many wills to work effectively, and the firm de-
sire to collaborate in the joint interests of peace
and the economic welfare of so many millions of
' Bulletin of May 2, 1948, p. 584.
men cannot fail, Mr. President, to carry us through
successfully to our end.
I am, my dear Mr. President,
respectfully yours,
De Gasperi
Letter from President Truman to Premier De
Gasperi
Septemher 16, 19J^8
Dear Mr. President :
Thank you for the letter you wrote to me after
signing the Economic Cooperation Agreement.
Men everywhere participate in and contribute
more effectively to an undertaking when the terms
and purposes are clearly understood and the com-
mitments are freely undertaken. The great
amount of discussion in our respective countries
and the large consensus in favor of the Agreement
augurs well for its success.
The American people support this program
wholeheartedly both for humanitarian and for
practical reasons. In a world growing smaller
day by day, no nation can profit by isolating itself.
Mutual dependence means that your welfare affects
our welfare and vice versa. Therefore, for our
sake, for your sake, and for the sake of all other
like-minded countries, it is our hope that the pro-
gram in Italy and elsewhere will be crowned with
success.
I express my admiration for the will to work
shown by the Italian people in their most difScult
moments. I admire also the sense of moderation
and political maturity shown by your people who
have regained so recently the privileges and re-
sponsibilities inherent in a liberal democracy.
I am certain that with the broad pai'ticipation
in the Recovery Progi'am of all elements in the
Italian nation, with your demonstrated will to
work, and with your political maturity, Italy will
play a significant constructive part in the Euro-
pean Recovery Program.
With cordial greetings, I am
Very sincerely yours,
Harrt S. Truman
No Time Limit on Filing Claims for
Property Loss in Italy
[Released to the press September 9]
The attention of the Department of State has
been called to statements in the press which have
been interpreted by residents of the United States
as indicating that claims of American citizens for
compensation on account of damage to, or removal
or destruction of, property in Italy during the war,
must be filed by September 15,"l9-48.i The De-
partment points out that no time limit has as yet
been fixed for the filing of claims of that character.
450
Department of State Bulletin
THE FOREIGN SERVICE
Facts Relating to Withdrawal of Donald F.
Evving From Legation at Sofia
[Released to the press September 5]
With reference to the report of the Bulgarian
radio coiicerninir the withdrawal from the Ameri-
can Legation in Sofia of Vice Consul Donald F.
Ewing. the following are the facts in the matter.
On July 16, 1948, in response to their request,
Vice Consul Ewing agreed to meet, outside the
Legation, two Bulgarian acquaintances whom he
had previously known in connection with the visa
work of the Legation to which he was assigned but
had not seen in several months. The Bulgarian
secret police arrested the two Bulgarians in Mr.
Ewing"s company, and on the basis of a document
of which the contents are unknown allegedly
"found" in the pocket of one of them and of al-
leged subsequent "confessions" on their part to
the effect that they had been engaging in
'"espionage" for the United States through Ewing,
the Bulgarian Government declared Ewing
yersonn noii grata and requested his recall.
The American Minister protested to the Bul-
garian Government the arbitrary nature of that
(lovernment's action on the basis of a transpar-
ently fabricated maneuver on the part of I3ul-
garian authorities.
Mr. Ewing has left Bulgaria.
Consular Offices at Matamoros and
Agua Prieta To Remain Open
[Released to the press September 21]
The American Consulates at Matamoros and
Agua Prieta, Mexico, will not be closed September
30, as previously announced. These two impor-
tant Foreign Service posts on the United States-
Mexican border will be kept open for at least four
more months, when the question will be re-
examined.
The decision to continue to maintain the posts at
Matamoros and Agua Prieta was reached at a
conference of Department of State and Foreign
Service officials in Washington, whei-e communi-
cations protesting the closing of the posts were
considered. Among those asking that the posts be
maintained were Senators Tom Connally and W.
Lee O'Daniel of Texas; Senators Ernest W. Mc-
Farland and Carl Hayclen of Arizona; Congress-
men Milton H. West and Lyndon B. Johnson of
Texas; Congressman-elect Lloyd Benson of Texas;
the chambers of commerce of Brownsville, San
Benito, Corpus Christi, and Welasco, Tex., and
Bisbee and Douglas, Ariz. ; the Brownsville Rotary
THE FOREIGN SERVICE
Club; and a considerable number of prominent
citizens, including Curtis Vinson of the Browns-
ville /Jerald, Salvador Lova of the Brownsville
Palm-Hat Factory, S. A. Albert Mendelsohn of the
Cananea Consolidated Copper Company, and
Frank Greene of the Greene Cananea Cattle
Company.
Following the conference John E. Peurifoy, As-
sistant Secretary of State for administration, an-
nounced that the Mexican border posts would be
kept open at least temporarily. He said :
'Tt is never pleasant to consider the closing of
one of our posts abroad, particularly ones so long
in existence and in areas so thriving as Matamoros
and Agua Prieta, but it is our clear duty on the
other hand constantly to review all our posts and
maintain only as many as, under available appro-
priiitions, can be properly supported in the per-
formance of their functions as required Ijy law.
"The decision against continuing to maintain
Matamoros and Agua Prieta seemed unavoidable.
It was taken only after long and serious considera-
tion, and with the greatest reluctance.
"As a result of the earnest solicitations offered by
the representatives of Congress and others inter-
ested, however, we have reconsidered the matter
in the hope that these posts may be maintained
without break. At considerable sacrifice else-
where we have succeeded in finding ways and
means of keeping these offices open for at least the
next four months. By that time we should know
more about the future and it will then be appro-
priate to reexamine the situation."
Located across the Rio Grande River from
Brownsville, Tex., Matamoros is an important
center of inter-American commerce. It is joined
to the United States by the connection of the Xa-
tional Railroad Lines of Mexico to two American
railroads, by a recently completed link of the Inter-
American Highway, and by airlines operating out
of a nearby international airjiort. Through Mata-
moros is funneled bus, truck, and automobile traf-
fic serving the commercial and tourist trade be-
tween two nations.
Agua Prieta, located opposite Douglas, Ariz., is
in the midst of a rapidly developing minerals area
and is thus the center of increasing trade between
the United States and Mexico.
THE DEPARTMENT
Appointment of Officer
Arthur B. Berthnld, as Chief of the Bibliography Branch,
Division of Libraries and Reference Services,, effective
September 17, 1948.
Ocfofaer 3, 1948
451
Occupation Matters Page
The Berlin Crisis:
Communique by U.S., U.K., and France . 423
U.S. Note Delivered to the Soviet Govern-
ment 423
Soviet Note Delivered to the U.S. Gov-
ernment 426
Tripartite Aide-M6moire to Soviet Gov-
ernment 427
The U.N. and Specialized Agencies
The Third Regular Session of the General
Assembly, Paris: No Compromise on
Essential Freedoms. Address by Secre-
tary Marshall 432
Conclusions From Progress Report of the
U.N. Mediator on Palestine:
Mediation Effort 436
Statement by Secretary Marshall .... 436
Supervision of the Two Truces 438
Assistance to Refugees 440
Position on Withdrawing Occupying Forces
From Korea 440
The United States in the United Nations . . 441
U.S. Delegation to Protection of Nature
Conference 443
Bulgaria's Disregard for Obligations Under
Peace Treaties and U.N. Charter. U.S.
Aide-M^moire to Bulgarian Foreign Min-
ister 447
Treaty Information
Executive Committee Achievements of Ito
Interim Commission 444
Plans To Increase Value of General Agree-
ment on Tariffs and Trade 445
Discussions on Convention for Foreign Motor
Travel 446
Italy Expresses Gratitude for Economic
Assistance. Exchange of Communica-
tions Between U.S. and Italy 450
Treaty Information — Continued Page
Bulgaria's Disregard for Obligations Under
Peace Treaty and U.N. Charter. U.S.
Aide-M6moire to Bulgarian Foreign
Minister 447
General Policy
Efforts To Assist Near Eastern Refugees:
Statement by Acting Secretary Lovett . . 447
Planning Committee Appointed 448
Incident Involving Seating of Ethiopian
Minister at Science Meeting. Exchange
of Memoranda Between Department of
State and the Imperial Ethiopian Lega-
tion 448
Letter of Credence 449
Attackers of Stephen Haas Apprehended . . 449
Economic Affairs
U.S. Delegations to International Meetings:
Wool 443
South Pacific Commission Meeting .... 446
Radiotelegraph Service With Saudi Arabia . 449
No Time Limit on Filing Claims for Prop-
erty Loss in Italy 450
International Information and Cultural
Affairs
U.S. Delegation to Cartography Meeting . . 443
Calendar of International Meetings. . . 442
The Foreign Service
Ceylon Appoints First Ambassador to U.S . . 449
Facts Relating to Withdrawal of Donald
F. Ewing From Legation at Sofia .... 451
Consular Offices at Matamoros and Agua
Prieta To Remain Open 451
The Department
Appointment of Officer 451
U. S. GOVERNMENT PRINTING OFFICE; 1948
V
f 3X3. / ft^o
tJne/ zl}eha^t7}ten(/ xw tnaie^
For complete contents see back cover
•ptRtmeNOENT OF UOUilw*i*
OCT 25 194a
UAe
z/^efi€ivtm,€^ /o£ C/ui^ V^ LI. X JL \D L X X X
Vol. XIX, No. 484 • Publication 3303
Oaoher 10, 1948
For sale by the Superintendent of Documents
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Published with the approval of the
Director of the Bureau of the Budget
Note: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Department
OF State Bulletin as the source will be
appreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
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 De-
partment of State and the Foreign
Service. The BULLETIN includes
press releases on foreign policy issued
by the White House and the Depart-
ment, 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 inter-
national affairs and the functions of
the Department. Information is in-
cluded concerning treaties and in-
ternational agreements to which the
United States is or may become a
party and treaties of general inter-
national interest.
Publications of the Department, as
well as legislative material in the field
of international relations, are listed
currently.
The Berlin Crisis
U.S. NOTIFIES U.N. OF SERIOUS SITUATION'
29 Septcmhcr J94S
I have the honor, on behalf of the Government
of the United States of America, in a<ireement
with the Governments of the French Republic
and the United Kingdom, to draw your atten-
tion to the serious situation which has arisen
as the result of the unilateral imposition by the
Government of the Union of Soviet Socialist
Republics of restrictions on transport and com-
munications between the "Western Zones of Occu-
pation in Germany and Berlin. Quite apart from
the fact that it is in conflict with the rights of the
Government of the United States of America and
the Governments of France and the United King-
dom with regard to the occupation and adminis-
tration of Berlin, this action by the Soviet Govern-
ment is contrary to its obligations under Article 2
of the Cliarter of the United Nations and creates
a threat to the peace within the meaning of Chap-
ter VII of the Charter.
2. It is clear from the protracted exchange of
notes and the conversations which have taken place
on the initiative of the three governments between
them and the Soviet Government that the three
governments, conscious of their obligation under
the Charter to settle their disputes by peaceful
means, have made every effort to resolve their
differences directly with the Soviet Government.
Copies of the relevant documents are submitted
separately. In particular, attention is drawn to
the summary of the situation which is contained
in the notes of the United States Government and
the Governments of France and the United King-
dom, dated September 2(5/27, 1948, as follows :
"The issue between the Soviet Government and
the Western Occupying Powers is. therefore, not
that of technical difficulties in communications nor
that of reaching agreement upon the conditions
for the regulation of the currency for Berlin.
The issue is tliat the Soviet Government has clearly
shown by its actions that it is attempting by illegal
and coercive measures in disregard of its obliga-
tions to secure political objectives to which it is
Ocfober JO, 1948
not entitled and which it could not achieve by
peaceful means. It has resorted to blockade meas-
ures ; it has threatened the Berlin population with
starvation, disease and economic ruin; it has
tolerated disorders and attempted to overthrow
the duly elected municipal government of Berlin.
The attitude and conduct of the Soviet Govern-
ment reveal sharply its purpose to continue its
illegal and coercive blockade and its unlawful
actions designed to reduce the status of the United
States, the United Kingdom and France as occupy-
ing powers in Berlin to one of complete subordi-
nation to Soviet rule, and thus to obtain absolute
authority over the economic, political and social
life of the people of Berlin, and to incorporate the
city in the Soviet zone.
"The Soviet Government has thereby taken upon
itself sole responsibility for creating a situation,
in which further recourse to the means of set-
tlemen prescribed in Article 33 of the Charter
of the United Nations is not, in existing circum-
stances, possible, and which constitutes a threat to
international peace and security. In order that in-
ternational peace and security may not be further
endangered the Governments of the United States,
the United Kingdom and France, therefore, while
reserving to themselves full rights to take such
measures as may be necessary to maintain in these
circumstimces their position in Berlin, find them-
selves obliged to refer the action of the Soviet
Government to the Security Council of the United
Nations."
3. Accordingly, the Government of the United
States requests that the Security Council consider
this question at the earliest opportunity.
Warren R. Austin
' Note addre.ssed to Trygve Lie, Secretary-General of the
United Nations. Tlie notifications of tiie Governments of
the French Republic, the United Kingdom, and the United
State.s are contained in U.N. doe. S/1020, Sept. 29, 1948;
the annexed documents were distributed separately. The
U.S'. notification was also released to the press in Wash-
ington on Sept. 29, 1948.
455
LIST OF RELATED DOCUMENTS
The documents being submitted to the Secre-
tary-General of the United Nations by the Gov-
ernment of the United States, the Government of
the French Republic and the Government of the
United Kingdom are as follows :
I A. Identic notes from the Governments of the United
States and the United Kingdom addressed to the
Government of the U.S.S.R., dated July G, 194S.
I B. Note from the Government of tlie French Republic
addressed to the Government of the U.S.S.R., dated
July 6, 1948.
II A. Identic notes of the Government of the U.S.S.R.,
dated July 14, 1948, addressed to the Governments
of the United States and the United Kingdom.
II B. Note of the Government of the U.S.S.R., dated July
14, 1948, addressed to the Government of the French
Republic.
III. Aide-memoire delivered to Mr. Zorin on July 30,
1948, by the representatives of the Governments of
the United States, the United Kingdom and the
French Repul)lic.
rV. Oral statement to Premier Stalin made on August 3,
1948, by the United States Ambassador on behalf of
the representatives of the Governments of the
United States, United Kingdom and the French Re-
public.
V. Tlie directive to the four Military Governors in
Berlin agreed to on August 30, 1948, by the Govern-
ments of the U.S.S.R., the United States, United
Kingdom and the French Republic.
VI. Joint report of the conversations of the four Mili-
tary Governors in Berlin by the United States,
United Kingdom and French Military Governors in
Germany, dated September 7, 1948.
VII. Aide-memoire delivered to Mr. Molotov on Septem-
l)er 14, 1948, by the representatives of the Govern-
ments of the United States, United Kingdom and the
French Republic.
VIII. Aide-memoire of the Government of the U.S.S.R., de-
livered to the representatives of the United States,
United Kingdom and the French Republic on Sep-
tember 18, 1948.
IX. Identic notes from the Governments of the United
States, United Kingdom and the French Republic
addressed to the Government of the U.S.S.R., dated
September 22, 1948.
X. Identic notes of the Government of the U.S.S.R.,
dated September 20, 1948, addressed to the Gov-
ernments of the United States, United Kingdom
and France.
XI. Identic notes to the Government of the U.S.S.R.,
from the Governments of France, the United King-
dom and the United States, dated September 20-27,
1948.
Position on Withdrawal of Troops From Korea
EXCHANGE OF NOTES BETWEEN U.S. AND SOVIET GOVERNMENTS
No. 155 [Translation] [Released to the press September 30]
September 18, 194.8
The Minister of Foreign Affairs of the Union
of Soviet Socialist Republics presents his compli-
ments to the Embassy of the United States of
America and requests the following be communi-
cated to the Government of the United States of
America.
The Supreme National Assembly of Korea on
September 10, 1948 addre.ssed itself to the Govern-
ment of the Union of Soviet Socialist Republics
and to the Government of the United States of
America with a request for the simultaneous and
immediate withdrawal of Soviet and American
troops from Korea.
The Presidium of the Supreme Soviet of the
Union of Soviet Socialist Republics, having con-
sidered this appeal of the Supreme National
Assembly of Korea, have recognized as possible
meeting the wish expressed in this appeal and have
given appropriate instructions to the Council of
Ministers of the Union of Soviet Socialist Re-
publics concerning the evacuation of Soviet troops
from northern Korea so that the evacuation would
be concluded at the end of December, 194S.
At the same time the Presidium of the Supreme
Soviet expressed the hope that the Government of
the United States of America will also agree to
evacuate American troops from southern Korea
within this period.
456
The Presidium of the Supreme Soviet of the
Union of Soviet Socialist Republics on September
18 informed the President of the Presidium of the
Supreme National Assembly of Korea, Mr. Kim
Doo Bong, of the above decision.
September 28, 1948
The Embassy of the United States of America
presents its compliments to the Minister of Foreign
Affairs of the Union of Soviet Socialist Republics
and has the honor to acknowledge receipt of the
Ministry's note no. 155 of September 18, 1948, in
connection with the withdrawal of occupation
forces from Korea. The text of the Ministry's
note was immediately communicated to the United
States Government which has now instructed the
Embassy to state that the United States Govern-
ment has taken note of the decision of the Soviet
Government to evacuate its occupation forces from
Korea by the end of December, 1948.
The Embassy has been further instructed to
state that the United States Government regards
the question of troop withdrawal as part of the
larger question of Korean unity and independence,
concerning which its views will be presented at
the appropriate time by the United States Delega-
tion to the General Assembly of the United
Nations.
Department of State Bulletin
The Struggle for Human Rights
BY MRS. FRANKLIN D. ROOSEVELT >
U.S. Representative to the Commission on Human Rights
I have come this evening to talk with you on one
of the greatest issues of our time — that is the pres-
ervation of human freedom. I have chosen to
discuss it iiere in France, at the Sorbonne, because
here in this soil the roots of hiunan freedom have
long ago struck deep and here they have been
richh^ nourished. It was here the Declaration of
the Sights of Man was proclaimed, and the great
slogans of the French Revolution — libert}', equal-
ity, fraternit}' — fired the imagination of men. I
have chosen to discuss this issue in Europe because
this has been the scene of the greatest historic
battles between freedom and t^yranny. I have
chosen to discuss it in the early days of the General
Assembly because the issue of human liberty is
decisive for the settlement of outstanding political
differences and for the future of the United
Nations.
The decisive importance of this issue was fully
recognized by the founders of the United Nations
at San Francisco. Concern for the preservation
and promotion of human rights and fundamental
freedoms stands at the heart of the United Na-
tions. Its Charter is distinguished by its preoccu-
pation with the rights and welfare of individual
men and women. The United Nations has made
it clear that it intends to uphold human rights and
to protect the dignity of the human personality.
In the preamble to the Charter the keynote is set
when it declares: "We the people of the United
Nations determined ... to reaffirm faith in
fundamental human rights, in the dignity and
worth of the human person, in the equal rights of
men and women and of nations large and small,
and ... to promote social progress and bet-
ter standards of life in larger freedom." This re-
flects the basic premise of the Charter that the
peace and security of mankind are dependent on
mutual respect for the rights and freedoms of all.
One of the purposes of the United Nations is
declared in article 1 to be: "to achieve interna-
tional cooperation in solving international prob-
lems of an economic, social, cultural, or humani-
tarian character, and in promoting and encourag-
ing respect for human rights and for fundamental
freedoms for all without distinction as to race, sex,
language, or religion."
Ocfofaer 70, 7948
This thought is repeated at several points and
notably in articles 55 and 56 the Members pledge
themselves to take joint and separate action in
cooperation with the United Nations for the pro-
motion of "universal respect for, and observance
of, human rights and fundamental freedoms for
all without distinction as to race, sex, language, or
religion."
The Human Rights Commission was given as its
first and most important task the preparation of
an International Bill of Rights. The General
Assembly which opened its third session here in
Paris a few days ago will have before it the first
fruit of the Commission's labors in this task, that
is the International Declaration of Human Rights.
This Declaration was finally completed after
much work during the last session of the Human
Rights Commission in New York in the spring of
1948. The Economic and Social Council has sent
it without recommendation to the General Assem-
bly, together with other documents transmitted by
the Human Rights Commission.
It was decided in our Commission that a Bill of
Rights should contain two parts :
1. A Declaration which could be approved through
action of the Member States of the United Nations in the
General Assembly. This Declaration would have great
moral force, and would say to the peoples of the world
"this is what we hope human rights may mean to all peo-
ple in the years to come." We have put down here the
rights that we consider basic for individual human beings
the world over to have. Without them, we feel that the
full development of individual personality is impossible.
2. The second part of the bill, which the Human Rights
Commission has not yet completed because of the lack of
time, is a covenant which would be in the form of a treaty
to be presented to the nations of the world. Each nation,
as it is prepared to do so, would ratify this covenant and
the covenant would then become binding on the nations
which adhere to it. Each nation ratifying would then be
obligated to change its laws wherever they did not conform
to the points contained in the covenant.
This covenant, of course, would have to be a
simpler document. It coulrl not state aspirations,
which we feel to be permissible in the Declaration.
It could only state rights which cotdd be assured
by law and it must contain methods of imple-
" Address delivered at the Sorbonne, Paris, Sept. 28,
1948, and released to the press on the same date.
457
THB UNITED NATIONS AND SPBCIAUZBD AGENCIES
mentation, and no state ratifying the covenant
could be allowed to disregard it. The methods of
implementation have not yet been agreed upon,
nor have they been given adequate consideration
by the Commission at any of its meetings. There
certainly should be discussion on the entire ques-
tion of this world Bill of Human Rights and there
may be acceptance by this Assembly of the Decla-
ration if they come to agreement on it. The
acceptance of the Declaration, I think, should
encourage every nation in the coming months to
discuss its meaning with its people so that they
will be better prepared to accept the covenant with
a deeper understanding of the problems involved
when that is presented, we hope, a year from now
and, we hope, accepted.
The Declaration has come from the Human
Rights Commission with unanimous acceptance
except for four abstentions — the U.S.S.R., Yugo-
slavia, Ukraine, and Byelorussia. The reason for
this is a fundamental difference in the conception
of human rights as they exist in these states and in
certain other Member States in the United Nations.
In the discussion before the Assembly, I think
it should be made crystal clear what these differ-
ences are and tonight I want to spend a little time
making them clear to you. It seems to me there is
a valid reason for taking the time today to tliink
carefully and clearly on the subject of human
rights, because in the acceptance and observance
of these rights lies the root, I believe, of our chance
for peace in the future, and for the strengthening
of the United Nations organization to the point
where it can maintain peace in the future.
We must not be confused about what freedom is.
Basic human rights are simple and easily under-
stood: freedom of speech and a free press; free-
dom of I'eligion and worship ; freedom of assembly
and the right of petition ; the right of men to be
secure in their homes and free from unreasonable
search and seizure and from arbitrary arrest and
punishment.
We must not be deluded by the efforts of the
forces of reaction to prostitute the great words of
our free tradition and thereby to confuse the
struggle. Democracy, freedom, human rights
have come to have a definite meaning to the people
of the world which we must not allow any nation
to so change that they are made synonymous with
suppression and dictatorship.
There are basic differences that show up even in
the use of words between a democratic ancl a totali-
tarian country. For instance "democracy" means
one thing to the U.S.S.R. and another to the
U.S.A. and, I know, in France. I have served
since the first meeting of the nuclear commission
on the Human Rights Commission, and I think
this point stands out clearly.
The U.S.S.R. Representatives assert that they
already have achieved many things which we, in
458
what they call the "bourgeois democracies" cannot
achieve because their government controls the ac-
complishment of these things. Our government
seems jiowerless to them because, in the last an-
alysis, it is controlled by the people. They would
not put it that way — they would say that the
people in the U.S.S.R. control their government
by allowing their government to have certain abso-
lute rights. We, on the other hand, feel that cer-
tain rights can nevei' be granted to the government,
but must be kept in the hands of the people.
For instance, the U.S.S.R. will assert that their
press is free because the state makes it free by pro-
viding the machinery, the paper, and even the
money for salaries for the people who work on the
paper. They state that theie is no control over
what is printed in the various papers that they
subsidize in this manner, such, for instance, as a
trade-union paper. But what would happen if a
paper were to print ideas which were critical of
the basic policies and beliefs of the Communist
government? I am sure some good reason would
be found for abolishing the paper.
It is true that there have been many cases where
newspapers in the U.S.S.R. have criticized officials
and their actions and have been responsible for the
removal of those officials, but in doing so they did
not criticize anything which was fundamental to
Communist beliefs. They simply criticized meth-
ods of doing things, so one must differentiate
between things which are permissible, such as
criticism of any individual or of the manner of
doing things, and the criticism of a belief which
would be considered vital to the acceptance of
Communism.
Wliat are the differences, for instance, between
trade-unions in the totalitarian states and in the
democracies? In the totalitarian state a trade-
union is an instrument used by the govermnent
to enforce chities, not to assert rights. Propa-
ganda material which the government desires the
workers to have is furnished to the trade-unions
to be circulated to their members.
Our trade-unions, on the other hand, are solely
the instrument of the workers themselves. They
represent the workers in their relations with the
government and with management and they are
free to develop their own opinions without govern-
ment help or interference. The concepts of our
trade-unions and those in totalitarian countries
are drastically different. There is little mutual
understanding.
I think the best example one can give of this
basic difference of the use of terms is "the right to
work". The Soviet Union insists that this is a
basic right which it alone can guarantee because it
alone provides full employment by the govern-
ment. But the right to work in the Soviet Union
means the assignment of workers to do whatever
task is given to them by the government without
Department of State Bulletin
an opportunity for the people to participate in the
decision that tlie f^overnnicnt slioiiUl do tliis. A
society in whicli everyone works is not necessarily a
free society and nia}- indeed be a slave society ; on
the other hand, a society in which there is wide-
spread economic insecurit}' can turn freedom into
a barren and vapid ripht for millions of people.
We in the United States have come to realize it
means freedom to choose one's job, to work or not
to work as one desires. We, in the United States,
have come to realize, however, that people have a
ri<ilit to demand that their government will not
allow them to starve because as individuals they
cannot find work of the kind they are accustomed
to doing and this is a decision brought about by
l)ub]ic ojiinion which came as a result of the great
dejiression in which many people were out of work,
but we would not consider in the United States
that we had gained any freedom if we were com-
pelled to follow a dictatorial assignment to work
where and when we were told. The right of choice
would seem to us an important, fundamental
freedom.
I have great sympathj' with the Russian people.
They love their country and have always defended
it valiantly against invaders. They have been
through a period of revolution, as a result of which
they were for a time cut off from outside contact.
They have not lost their resulting suspicion of
other countries and the great difficulty is today
that their government encourages this suspicion
and seems to believe that force alone will bring
them respect.
We, in the democracies, believe in a kind of
international respect and action which is recipro-
cal. We do not think others should treat us
differently from the way they wish to be treated.
It is interference in other countries that especially
stirs up antagonism against the Soviet Govern-
ment. If it wishes to feel secure in developing
its economic and political theories within its terri-
tory, then it should grant to others that same
security. We believe in the freedom of people to
make their own mistakes. We do not interfere
with them and they should not interfere with
others.
The basic problem confronting the world today,
as I said in the beginning, is the jji-eservation of
human freedom for the individual and conse-
quently for the society of which he is a part. We
are fighting this battle again today as it was fought
at the time of the French Revolution and at the
time of the American Revolution. The issue of
himian liberty is as decisive now as it was then.
I want to give you my conception of what is meant
in my country by freedom of the individual.
Long ago in London during a discussion with
Mr. Vyshinsky, he told me there was no such thing
as freedom for the individual in the world. All
freedom of the individual was conditioned by the
Ocfober 10, 7948
THE UN/TED NATIONS AND SPeCIALIZED AGBNCIBS
rights of other individuals. That, of course, I
granted. I said : "We approach the question from
a different point of view; we here in the United
Nations are trying to develop ideals which will be
broader in outlook, whicli will consider first the
rights of man, which will consider what makes
man more free : not governments, but man."
The totalitarian state typically ])laces the will
of the people second to decrees promulgated by a
few men at the top.
Naturally there must always be consideration of
the rights of others; but in a democracy this is
not a restriction. Indeed, in our democracies we
make our freedoms secure because each of us is
expected to respect the rights of others and we are
free to make our own laws.
Freedom for our peoples is not only a right, but
also a tool. Freedom of speech, freedom of the
press, freedom of information, freedom of assem-
bly' — these are not just abstract ideals to us; they
are tools with which we create a way of life, a w^ay
of life in which we can enjoy freedom.
Sometimes the processes of democracy are slow,
and I have known some of our leaders to say that
a benevolent dictatorship would accomplish the
ends desired in a much sliorter time than it takes
to go through the democratic processes of discus-
sion and the slow formation of public opinion.
But there is no way of insuring that a dictatorship
will remain benevolent or that power once in the
hands of a few will be returned to the people with-
out struggle or revolution. This we have learned
by exj^erience and we accept the slow processes of
democracy because we know that short-cuts com-
promise principles on which no compromise is
possible.
The final expression of the opinion of the people
with us is through free and honest elections, with
valid choices on basic issues and candidates. The
secret ballot is an essential to free elections but
you must have a choice before you. I have heard
my husband say many times that a people need
never lose their freedom if they kept their right to
a secret ballot and if they used that secret ballot
to the full.
Basic decisions of our society are made through
the expressed will of the people. That is why
when we see these liberties threatened, instead of
falling apart, our nation becomes unified and our
democracies come together as a unified group in
spite of our varied backgrounds and many racial
strains.
In the United States we have a capitalistic econ-
omy. That is because public opinion favors that
type of economy under the conditions in which we
live. But we have imposed certain restraints; for
instance, we have anti-trust laws. These are the
legal evidence of the determination of the Ameri-
can people to maintain an economy of free com-
459
THE UNITED NATIONS AND SPECIALIZED AGENCIES
petition and not to allow monopolies to take away
the people's freedom.
Our trade-unions grow stronger because the
people come to believe that this is the proper way
to guarantee the rights of the workers and that the
right to organize and to bargain collectively keeps
the balance between the actual producer and the
investor of money and the manager in industry
who watches over the man who works with his
hands and who produces the materials which are
our tangible wealth.
In the United States we are old enough not to
claim perfection. We recognize that we have some
problems of discrimination but we find steady
progress being made in the solution of these
problems. Through normal democratic processes
we are coming to understand our needs and how
we can attain full equality for all our people. Free
discussion on the subject is permitted. Our
Supreme Court has recently rendered decisions to
clarify a number of our laws to guarantee the
rights of all.
The U.S.S.K. claims it has reached a point
where all races within her borders are officially
considered equal and have equal rights and they
insist they have no discrimination where minori-
ties are concerned.
This is a laudable objective but there are other
aspects of the development of freedom for the indi-
vidual which are essential before the mere absence
of discrimination is worth much, and these are
lacking in the Soviet Union. Unless they are be-
ing denied freedoms which they want and which
they see other people have, people do not usually
complain of discrimination. It is these other free-
doms—the basic freedoms of speech, of the press,
of religion and conscience, of assembly, of fair
trial and freedom from arbitrary arrest and
punishment, which a totalitarian government can-
not safely give its people and which give meaning
to freedom from discrimination.
It is my belief, and I am sure it is also yours, that
the struggle for democracy and freedom is a criti-
cal struggle, for their preservation is essential to
the great objective of the United Nations to main-
tain international peace and security.
Among free men the end cannot justify the
means. "We know the patterns of totalitarianism—
the single political party, the control of schools,
press, radio, the arts, the sciences, and the church
to support autocratic authority ; these are the age-
old patterns against which men have struggled for
three thousand years. These are the signs of re-
action, retreat, and retrogression.
The United Nations must hold fast to the heri-
tage of freedom won by the struggle of its peoples;
it must help us to pass it on to generations to come.
The development of the ideal of freedom and its
translation into the everyday life of the people in
great areas of the earth is the product of the ef-
460
forts of many peoples. It is the fruit of a long
tradition of vigorous thinking and courageous
action. No one race and no one people can claim
to have done all the work to achieve greater
dignity for human beings and greater freedom to
develop human personality. In each generation
and in each country there must be a continuation
of the struggle and new steps forward must be
taken since this is preeminently a field in which to
stand still is to retreat.
The field of human rights is not one in which
compromise on fundamental principles are pos-
sible. The work of the Commission on Human
Eights is illustrative. The Declaration of Human
Eights provides : "Everyone has the right to leave
any country, including his own.'' The Soviet
Eepresentative said he would agree to this right
if a single phrase was added to it — "in accordance
with the procedure laid down in the laws of that
country." It is obvious that to accept this would
be not only to compromise but to nullify the right
stated. This case forcefully illustrates the im-
portance of the proposition that we must ever be
alert not to compromise fundamental human
rights merely for the sake of reaching unanimity
and thus lose them.
As I see it, it is not going to be easy to attain
unanimity with respect to our different concepts
of government and human rights. Tlie struggle
is bound to be difficult and one in which we must
be firm but patient. If we adhere faithfully to
our principles I think it is possible for us to main-
tain freedom and to do so peacefully and without
recourse to force.
The future must see the broadening of human
rights throughout the world. People who have
glimpsed freedom will never be content until they
have secured it for themselves. In a true sense,
human rights are a fundamental object of law and
government in a just society. Human rights exist
to the degree that they are respected by people in
relations with each other and by governments in
relations with their citizens.
The world at large is aware of the tragic con-
sequences for human beings ruled by totalitarian
systems. If we examine Hitler's rise to power, we
see how the chains are forged which keep the indi-
vidual a slave and we can see many similarities in
the way things are accomplished in other coun-
tries. Politically men must be free to discuss and
to arrive at as many facts as possible and there
must be at least a two-party system in a country
because when there is only one political party, too
many things can be subordinated to the interests
of that one party and it becomes a tyrant and not
an instrument of democratic government.
The propaganda we have witnessed in the re-
cent past, like that we perceive in these days, seeks
(Continued on page 466)
Department of State Bulletin
Albania and Bulgaria Continue To Reject UNSCOB
U.S.-BULGARIAN CORRESPONDENCE
[Released to the press September 27]
During the period August-September, there was
an exchange of notes between the Bulgarian
Foreign Office and the U.S. Legation, Sofia, on the
subject of Bulgarian charges that Greek forces
were violating the Bulgarian frontier or taking up
threatening positions in its vicinity. The Bul-
garian note contained statements and allegations
which the Sofia government also forwarded to the
Secretary-General of the United Nations. The
correspondence between the Bulgarian Govern-
ment and the Secretary-General of the United
Nations on this matter has already been published.^
The following is the text of the latest exchange
of notes between this Government and the Bul-
garian Government. This exchange has been com-
municated by the United States to the body im-
mediately concerned with relations between
Greece and the Balkan States, the United Nations
Special Committee on the Balkans.
Note of August 28, 1948, delivered hy the U.S.
Legation at Sofia to the Bulgarian Ministry of
Foreign Affairs, replying to its note of August 18
The Legation of the United States of America
presents its compliments to the Ministry of
Foreign Affairs and has the honor to acknowledge
receipt of the latter's note no. 36014-20-1 of
August IS, bringing to the attention of the Lega-
tion certain allegations as to violations of the
Greco-Bulgarian border by Greek groups, which
information has been submitted to the Security
Council of the United Nations by the Bulgarian
Government together with an energetic protest
and request that the Security Council of the
United Nations take steps to effect the retirement
of Greek troops from the frontier to the interior
of Greece in order to avoid any incidents.
AMiile the Legation is appreciative of the action
of the Ministry in bringing this information to its
attention, it ventures to point out that the appro-
priate agency for the investigation of charges
made against Greece by the Bulgarian Government
would appear to be the United Nations Special
Commission on the Balkans, members of which
are presently in Greece, and who would be availa-
ble for an investigation in connection therewith.
Should this suggestion be not agreeable to the
Bulgarian Government the Legation would be
pleased to make available one or more of its Service
Attaches, perhaps in conjunction with similar
officers of other diplomatic missions here, to carry
out an impartial investigation of the areas named
in the Ministry's note, such investigation naturally
to be in cooperation with the competent Bulgai'ian
authorities.
The Legation would appreciate being advised
as to whether either or both of the suggestions made
above prove of interest to the Ministry.
The Legation of the United States of America
avails itself [etc.]
Note of September 11, 19^8, from the Bulgariam,
Foreign Office to the U.S. Legation at Sofia
In reply to note verhale 498 of August 28, the
Foreign Office has the honor to advise as follows :
Communication made to Legation by circular
note of August 18 was purely informative in nature
in view of fact that concentration of important
Greek troops along Greco-Bulgarian frontier could
have provoked serious incidents and difficulties.
It is for this reason reply of American Legation
somewhat surprised Ministry of Foreign Affairs
and more so because Honorable Mission knows per-
fectly point of view of Bulgarian Government in
regard to Unscob and knows equally well that
Bulgarian Government has declined all demands
for investigation along Greco-Bulgarian frontier
by military attaches of U.S. and Great Britain in
connection with peace treaty considering such in-
vestigations as reflection of sovereignty of state.
ALBANIA'S REPLY TO TRIPARTITE APPEAL
[Released to the press October 1]
The Department has received from the French
Government the text of the remarks made on Sep-
tember 20 by Mr. Hysni Kapo, Deputy Minister
of Foreign Affairs of Albania, in reply to the
demarche made at Tirana on September 13 by the
French Minister on behalf of the United States,
Ocfober JO, J948
the United Kingdom and French Governments
concerning Albanian aid to the Greek guerrillas.^
The reply rejects the French Minister's appeal
that the competent agency of the United Nations,
the U.N. Special Committee on the Balkans, be
1 U.N. press release BAL/376, Sept. 2, 1948.
'Documents and State Papers, September 1948.
461
THE UNITED NATIONS AND SPECIALIZED AGENCIES
permitted to opeiiite in Albanian territory, while
at the same time, in defiance of logic, it accuses the
United States, Great Britain, and France of usurp-
ing the peacemaking functions of the United Na-
tions. Equally inisatisfactory is the fact that the
reply rejects as well any other type of neutral ob-
servation of Albanian conduct towards the Greek
guerrillas. The language is evasive but the mean-
ing is clear, being underlined by the statement that
Albania "has designated forbidden zones in its
territory."
In effect, Albania asks acceptance, without
demur or inquiry, of its own allegations of good
behavior despite the evidence in the hands of the
U.N. Special Committee of extensive and illegal
Albanian support of guerrilla operations against
the people and Government of Greece, evidence
based in considerable part on eyewitness observa-
tion by U.N. officials.
Following is an unofficial translation of the
Albanian reply :
"1. The Albanian Government is not aware that
France, the United States, and Great Britain have
the right to represent themselves as powers guar-
anteeing peace as stated by the Minister of France.
The Albanian Government considers not only that
such a claim has no foundation in itself but also
that such a claim on the part of France, the United
States and Great Britain is in direct contradiction
with the existence of the United Nations organiza-
tion and with its goals and principles. In its
opinion, such intervention by the three states in
Albano-Greek relations, because of its unilateral
character, can only serve to create or aggi-avate
friction and misunderstandings between the Al-
banians and Greece, or at least to encourage the
move of the aggressors.
"2. The creation of a new International Control
Commission or of any other Commission would
not facilitate the settling of these relations as ex-
perience has already shown that the Balkan Com-
mission not only does not contribute to peace but
on the contrary, as we know, it has served to
woi"sen the relations between Greece and Albania
and Greece's other northern neighbors.
"3. It is necessary to eniphasize again that in
the abnormal conditions existing between Greece
and Albania, it is the Greek Government which is
guilty, although it always tries to shake off the
responsibility for this state of affairs, and that the
Albanian Government has more than once shown
itself ready for the settlement of relations with its
Greek neighbors. With good will on the part of
the Greek Government, the border conflicts could
have been avoided and the situation at the border
would be normal.
"4. The Albanian Government's conduct in re-
gard to the interning and disarming of Partisans
crossing the Albano-Greek border is entirely in
conformity with the rules of international law ; in
addition, the Albanian Government categorically
rejects as absolutely at variance with the facts the
Greek statement that interned Partisans were
armed in Albanian territory and returned to
Greece. The action of the Albanian Government
in giving protection and assistance to Greek
women, children and old people also conforms
exactly to international law. As to movement in
the frontier zone, it is necessary to point out that
Albania, as do also other states, has designated
forbidden zones in its territory, which is an undis-
putable right of a sovereign state."
Documents and State Papers
September 1948
The September issue of Documents and State Papers^ which will be released shortly, will
contain the following items :
U.N. Special Committee on the Balkans :
Comment on Report to the 3rd Session of the General Assembly
The First and Second Interim Reports
The Annual Report to the U.N. and a Supplementary Report
Restitution of Looted Property by Japan
Designation of Successor Organization to Claim Jewish Property
Calendar of International Meetings with Amiotations
Copies of this publication are for sale by the Superintendent of Documents, Government
Printing Office, Washington 25, D.C. at 30 cents a copy; subscription price for 12 issues
is $3.00 a year.
462
Department of State Bulletin
The United States in the United Nations
The Berlin Crisis
At the Palais de Chaillot in Paris on October
4, the Security Council debated whether it was
competent to take up the Berlin question. Mr.
Vysninsky (U.S.S.R.) opened the discussion by
denyinjr the Council's competence in the matter
as an overt violation of article 107 of the Charter
as well as of the Potsdam and Yalta agreements.
He denied that the situation in Berlin was a threat
to the i)eace. He further maintained that Berlin
was ])art of the entire question of Germany, for
which the Council of Foreign Ministers was re-
sponsible. He further declared that in reality
there was no blockade of Berlin and that the Soviet
authorities had repeatedly stated that they were
ready to assume responsibility for feeding the
population of Berlin.
Philip C. Jessup, Deputy U.S. Representative
in the Security Council, emphasized that the
actions of the Soviet Union demonstrated that the
Soviet Union was attempting by illegal and co-
ercive measures to achieve political objectives to
which it was not entitled and which it could not
achieve by peaceful means. The real issue, Mr.
Jessup maintained, was whether the only existing
international machinerj^ for the preservation of
the peace can be used to remove a threat to the
peace. In accordance with article 33 of the Charter
the United States, in agreement with the United
Kingdom and France, had made every effort
through direct discussion with the U.S.S.R. to
settle the matter. The Soviet Union's repudiation
of its promises made further discussion futile, and
the three Governments brought the matter to the
attention of the Security Council.
Sir Alexander Cadogan (United Kingdom) fol-
lowed ^Ir. Jessup and supported the United States
Representative.
Warren Austin called the October 4 session to
order but relinquished the presidency for the dura-
tion of the discussion of the Berlin question. Juan
A. Bramuglia (Argentina) presided over the
meeting.
Tlie Security Council voted 9 to 2 to hear the
complaint of the United States, the United King-
dom, and France against the actions of the Soviet
Union in the Berlin blockade as constituting a
threat to world peace and security.
The position of the United States Government
was outlined by Mr. Jessup on October 6, when he
reviewed the development of the Berlin situation.
"The salient feature of the case before the Secu-
rity Council", he said, "is that the Soviet blockade
is still maintained and thus continues in existence
a threat to the peace which it created." He con-
cluded by stating that ''we do not bring this case to
the Securitv Council with anv cut-and-dried
formula for its solution. It is our hope the Se-
curity Council can assist in removing the threat to
peace. Nothing which has happened has changed
our position on that point. The moment that the
blockade is lifted, the United States is ready to
have an immediate meeting of the Council of
Foreign Ministers to discuss with the Soviet Union
any questions relating to Germany."
Atomic Energy
Mr. Tsiang (China) opened the October 1 meet-
ing of Committee I by calling attention to tlie
Atomic Energy Commission's majority proposals,
which were a process of evolution, while the Soviet
Union had not responded to the repeated requests
of the Atomic Energy Commission to furnish con-
crete evidence in support of its proposals. Mr.
Tsiang stated that China stood "solidly behind the
majority plan" and supported the Canadian reso-
lution. Mr. El Khouri (Syria) introduced an
amendment to the Canadian resohition which was
similar to the U.S. June 22 resolution previously
vetoed in the Security Council. Colombia and
Belgium supported the Syi'ian version.
On October 4 Warren Austin again called for
action for effective international control of atomic
energy and questioned whether the Soviet Union
in its new proposal on the question would accept
the international control plan already approved by
a majority of the Atomic Energy Commission.
Mr. Austin pointed out that without effective and
enforceable international control of atomic energy
in the beginning and all the time the world would
have no security from atomic destruction.
In an analysis of the new Soviet proposal . . .
made by Mr. Vyshinsky on October 2 for two con-
ventions — one on prohibition of atomic weapons
and the other on "effective" international control —
which would be signed and put into force simul-
taneously, Mr. Austin said that if this meant the
Soviets approved really effective control, then a
long step had been taken, but he noted that Mr.
Vyshinsky and JNIr. Manuilsky (Ukrainian S.S.R.)
had indicated they still adhere to the narrow na-
tionalist stand they have maintained and would
seek to retain veto right over any control agency
which might be established. If that is the true
interpretation of the language, Mr. Austin said,
"there is a chasm that has yet to be bridged."
Mr. Austin reiterated the U.S. support for the
majority control plan of the Atomic Energy Com-
mission and for the Canadian resolution now
before Committee I. That draft resolution would
have the General Assembly approve the Commis-
sion reports, recommending the international con-
trol system and telling of Soviet opposition to the
inspection and regulation powers the Commission
would accord to a world control agency.
October 10, 1948
463
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
Toward Revision of the Geneva Convention
BY WILLIAM H. McCAHON
The United States has actively supported the
initiative taken in tlie fall of 1945 by the Interna-
tional Committee of the Red Cross to revise exist-
ing international treaties applicable to prisoners
of war ^ and to bring into being a new convention
establishing liuniane standards of treatment for
civilians in time of war. In the light of experi-
ences of World War II those in the Government
charged with the responsibility of the practical
application of the existing conventions were con-
vinced of the necessity for rather extensive re-
visions of those conventions for the purpose of (1)
bringing them up to date, (2) making them easier
to apply uniformly and less susceptible to different
interpretations, and (3) providing more effective
protection for the categories of persons covered.
It was considered equally important to obtain
through international treaty similar legal pro-
tection for civilians in belligerent and occupied
territories. The generally unsatisfactory stop-
gap measure of attempting to apply the prisoners-
of-war convention to certain categories of civilians
during World War II had pointed up the need
for a separate convention formally defining the
treatment to be accorded such pereons in wartime.
The United States participated in preliminary
informal discussions of this subject at a meeting
of government experts convened at Geneva under
the auspices of the International Committee of
the Red Cross, April 14-26, 1947.^ At that meet-
ing 14 Allied governments were represented, and
considerable progress was made in the formula-
tion of revised and new draft conventions. The
Seventeenth International Red Cross Conference
which took place at Stockholm August 20-30, 1948,
and in which 49 governments and 51 national Red
Cross societies participated, offered an opportunity
for continuance of these discussions on a some-
what broader scale, and represented another step-
ping-stone toward the ultimate objective — the
formal signing by governments of new conven-
tions.
The United States sent a Delegation to the
Stockholm conference which included Government
representatives from the Department of State, the
three military services, the Department of Justice,
' The two Geneva conventions of 1929 relative to tlie
treatment of prisoners of war and tlie wounded and sick,
and the Hague convention of 1907 relative to maritime
warfare (commonly referred to as the hospital ships
convention).
^For an account of this meeting by Albert E. Clatten-
burg, Jr., see Bulletin of June 22, 1947, p. 1205.
464
and the Post Office Department. In addition,
members of the American Red Cross delegation to
the conference participated in the convention re-
vision discussions. Basil O'Connor, president of
the American Red Cross, served as chairman of
both delegations. While there were many other
matters of interest to the Red Cross world before
the conference, the United States Government
Delegation confined its activities almost entirely
to the work of the Legal Commission, which was
charged with the responsibility for reviewing and
making recommendations witli respect to the sev-
eral draft conventions under considei\ation. The
working drafts submitted to the conference had i
been prepared by the International Committee J
of the Red Cross on the basis of the recommenda-
tions coming out of the earlier meeting at Geneva.
Thirty governments and 32 Red Cross societies
took part in the work of the Legal Commission,
the first meeting of which took place the morning
of Saturday August 21. On the motion of the
United States, it was agreed to set up immediately
three technical subcommissions to make possible a
detailed study of each of the draft conventions.
The election of subcommission chairmen and other M
organizational details were completed at this
morning session so that the subcommissions were
able to start their deliberations the afternoon of
the same day to consider respectively (I) the
treatment of the sick and wounded and the estab-
lishments devoted to their care including hospital
ships; (II) the treatment of prisoners of war; and
(III) the treatment of civilians.
With the exception of Sunday, these subcommis-
sions met daily through Friday, August 27, and
then returned the following day to a plenary ses-
sion of the Legal Commission for reporting and
obtaining ajjproval of their findings and recom-
mendations. Finally, the accomplishments of the
Legal Commission were formally api:)roved at a
plenary session of the conference on August 30,
the last day of the conference.
In view of the volume of the work entailed in
reviewing article by article each of the draft con-
ventions, it became obvious early in the discussions
tliat if the task before the Legal Commission were
to be accomplished within tlie time allotted, eni-
IJhasis must be placed on obtaining in the subcom-
missions agreement on the substantive text of each
article. This procedure was generally followed.
Considering the large number of governments and
Red Cross societies represented and their varying
Department of State Bulletin
intpiTsts. the degree of agreement reached was
remarkable.
Substantial portions of the United States draft
position on all four of the conventions were ac-
cepted as presented. This position had been
formulated by the Interdepartmental Prisoners
of War Committee in whose work the representa-
tives of the Departments of State, Army, Navy,
Air Force, Justice, Treasury, Post Office, and the
American Ketl Cross had participated in prejiara-
tion for this meeting. The only major point on
which the United States recommendation did not
prevail was in connection with the discussion in
Subcommission I concerning the status to be ac-
corded doctors, chaplains, and medical corps men
attached to the armed forces, if they fall into the
hands of the enemy. Opposition was encountered
to the United States position that such personnel
be treated as i:)risoners of war. The opposition
based its stand primarily on traditional grounds,
holding that the language of the present conven-
tion which states that if captured such personnel
"shall not be treated as prisoners of war"', should
be retained; that to do otherwise would be a step
backward and would have the effect of placing a
stigma on medical personnel. Additionally the
fear was expressed that the proposed change might
adversely affect recruitment of doctors for the
armed forces. In supporting its position the
United States Delegation stressed the following
considerations: (1) that practical experience has
shown it to be administratively impossible to ex-
empt such personnel from prisoners-of-war status,
and consequently, to endeavor to do so would only
invite violations; (2) that by giving such personnel
the status of prisoners of war they are thereby
accorded fuller protection under the conventions
than they might otherwise receive; and (3) that
medical and spiritual services rendered by such
personnel are more than ever necessary in circum-
stances of capitivity in ministering to the need of
their comrades, and if they were to share the same
lot it would serve as a morale builder for their own
men. In addition, the United States Delegation
made it clear that it was not recommending the
detention of such personnel as prisoners of war
indefinitely or in numbers greater than the situa-
tion warranted, but on the other hand it strongly
believed that a detaining power should have the
right for practical as well as humanitarian reasons
to detain a sufficient number of captured doctors,
chaplains, and medical corps men to insure ade-
quate care for wounded and sick prisoners of war.
The United States Delegation maintained that all
such pei-sonnel not being used for this purpose
should be repatriated promptly, that the profes-
sional status of those detained should be recog-
nized and respected, and that the detaining power
under the convention should provide adequate
Ocfober 10, 7948
ACTIVITIES AND DEVELOPMENTS
facilities, supplies, and equipment for their use
in caring for the wounded and sick.
Although it is unfortunate that agreement on
this point could not be reached at this conference,
it is apparent that the objective of the proponents
of both views is basically the same, that is, to obtain
the maximum amount of protection for this cate-
gory of personnel while at the same time providing
for the adequate care of the wounded and sick.
Consequently, it is confidently hoped that a sat-
isfactory formula acceptable to both sides can be
found without too much difficulty in subsequent
discussions of representatives of the interested
governments.
Foremost among the revisions supported by the
United States which were concurred in by the con-
ference were the following: (1) a complete i-e-
wording of the article concerning food which, in
essence, provides that the food ration of prisoners
of war shall be sufficient in quantity, quality, and
variety to keep prisoners in good health, and pre-
vent loss of weight or the development of nutri-
tional deficiencies; (2) a new and simplified for-
mula regarding the employment of prisoners of
war which among other things prohibits their use
for mine clearance and disposal work ; (3) prompt
repatriation of prisoners of war after the cessation
of hostilities ; (4) a provision permitting transfers
of prisoners of war among allies provided the re-
ceiving government is a party to the convention,
and placing on both governments involved in the
transfer equal responsibility in seeing that the
treatment received by prisoners of war following
their transfer is in accordance with the terms of
the convention; (5) the extension of the applica-
tion of the prisoners of war and civilian conven-
tions to civil wars provided the dissident party
agrees for its part reciprocally to apply the terms
of those conventions; (G) definition of the con-
ditions which must be met by partisan forces if
they ai'e to be accorded treatment as prisoners of
war and entitled to protection of that convention ;
and (7) improved identification markings for hos-
pital ships including night lighting.
While none of the decisions reached at this con-
ference are formally binding upon the participat-
ing governments, the degree of agreement reached
through open discussion on certain of the more
contentious articles augers well for the future. It
is recognized that much additional work lies ahead,
but it is now believed by those in the Government
who have been closest to the problem that, as a
result of the progress made to date, further pre-
paratory meetings on the subject are unnecessary
and would serve only to delay matters. It is hoped
therefore that the next step will be the convocation
early next year of a formal diplomatic conference
of governments for the purpose of final drafting
and the signing of new conventions.
465
ACTIVITIES AND DBVBLOPMENTS
Representatives to Weights and
Measures Conference
[Released to the press September 30]
The Department of State announced on Septem-
ber 30 that the United States will be represented
at the Ninth General Conference of the Interna-
tional Bureau of Weights and Measures scheduled
to be held at Paris and Sevres, France, October
12-21, 1918, by Dr. Edward U. Condon, Director
of the National Bureau of Standards, U.S. De-
partment of Commerce, and Dr. Eugene C. Crit-
tenden, Associate Director of the National Bureau
of Standards.
This Conference is being held under the pro-
visions of the treaty known as "the convention of
the meter" which was signed at Pai'is on May
20, 1875, and to which the United States Govern-
ment is a party. This treaty provided for an or-
ganization of three parts : the International Com-
mittee, the General Conference, and the Inter-
national Bureau of Weights and Measures. This
organization is responsible for all joint work of
adhering countries on the problems of metrology.
The meetings of the General Conference are
held at six-year intervals, for the purpose of deal-
ing with mattei-s of international agreement af-
fecting measures of length and weight, electrical
measurements, temperature measurements, and
units of photometric measurement. The meeting
scheduled for October 1939 was postponed owing
to the outbreak of war; consequently, since the
last meeting was held in 1933, the conference has
an unusually important agenda of topics to con-
sider.
The National Bureau of Standards has been in
charge of important technical jireparatory work
of the Conference in earlier meetings of specialized
committees meeting in advance of the General
Conference.
Reports to be considered at the Conference in-
clude the results of recent international compari-
sons of the national prototype meter bars and the
national prototype kilograms, standardization of
the use of wave lengths of light as a means of
precision length measurement, jiroblems con-
cerned with the adoption of the absolute system
of electrical units for general use, adoption of a
new definition of the unit of light intensity, re-
vision of the international temperature scale, and
other matters related to the fundamental basis
of precise measurements as used in science and
industry.
Struggle for Human Rights — Conlinxied from page 460
to impugn, to undermine, and to destroy the lib-
erty and independence of peoples. Such propa-
ganda poses to all peoples the issue whether to
doubt their heritage of rights and therefore to
compromise the principles by which they live, or
try to accept the challenge, redouble their vigi-
lance, and stand steadfast in the struggle to main-
tain and enlarge human freedoms.
People who continue to be denied the respect to
which they are entitled as human beings will not
acquiesce forever in such denial.
The Charter of the United Nations is a guiding
beacon along the way to the achievement of human
rights and fundamental freedoms throughout the
world. The inunediate test is not only the extent
to which human rights and freedoms have already
been achieved, but the direction in which the world
is moving. Is there a faithful compliance with
the objectives of the Charter if some countries con-
tinue to curtail human rights and freedoms in-
stead of to promote the universal respect for an
observance of human rights and freedoms for all
as called for by the Charter?
The place to discuss the issue of human rights
is in the forum of the United Nations. The
United Nations has been set up as the common
meeting ground for nations, where we can con-
sider together our mutual problems and take ad-
vantage of our differences in experience. It is
inlierent in our firm attachment to democracj' and
freedom that we stand always ready to use the
fundamental democratic procedures of honest dis-
cussion and negotiation. It is now as always our
hope that despite the wide differences in approach
we face in the world today, we can with mutual
good faith in the principles of the United Nations
Charter, arrive at a common basis of under-
standing.
AVe are here to join the meetings of this great
international Assembly which meets in your
beautiful capital city of Paris. Freedom for the
individual is an inseparable pai't of the cherished
traditions of France. As one of the Delegates
from the United States I pray Almighty God that
we may win another victory here for the rights
and freedoms of all men.
466
Department of Stale Bulletin
THE RECORD OF THE WEEK
Agreement Between the United States and the United Kingdom
Proposing International Committee on Scrap
[Released to the press October 1]
Annoiuicenient was made on October 1 by the
Department of State of the signing in Washing-
ton of an agreement with the United Kingdom
I^roposing the establishment of an international
committee to recommend allocations of iron and
steel scrap available for export from Erp coun-
tries including the Bizonal Area of Germany.
The agreement also provides for the immediate
allocation from the Bizonal Area of 500,000 tons
of scrap each to the United States and to the
United Kingdom and 225,000 tons for distribu-
tion to other deficit countries at uniform prices to
be established by the U.S.-U.K. military gover-
nors. It is hoped that the total quantity to be
shipped from the Bizonal Area in the next 12
months will be about 2,000,000 tons or more. All
scrap shipped from Germany will be in excess of
the legitimate requirements of the Bizone steel in-
dustry. Much of the scrap available in the Bizonal
Area consists of rubble material from wrecked
industrial plants, railway installations, abandoned
ships, etc.
Since the end of the war little commercial scrap
has been imjiorted to the United States from Ger-
many. As a result of the recent currency reform
and the signing of this agreement, it is expected
that Germany will now make a substantial con-
tribution toward relieving the serious scrap short-
age existing in this country as well as in Europe.
The text of the agreement which follows was
embodied in an exchange of notes on September
30, 1948, between the two Governments.
AGREEMENT ON FERROUS SCRAP
I. Proposal to OEEC Countries on Allocation
Machinery
A proposal will be put before the members of the
Organization of European Economic Cooperation ttiat an
ad hoc Committee be established in Paris consisting of
representatives of Oeec members and the United States
as a full member. It is proposed that this Committee, al-
though outside the jurisdiction of the Oeec Council,
.should work in clcjse cooperation with it and its com-
mittees. The functions of the Committee shall be to
make recommendations to the Governments of the
countries participating in the Oeec, including the Bi-
zonal Area of Germany and the French Zone, on the dis-
tribution of scrap exports from those countries. Final
decisions with respect to exports will be made, however,
by the Governments of the exporting countries. In the
Bizonal .\rea decisions will be made by the US and UK
Military Governors suljject to the provisions of Article
III of this Agreement.
II. Instructions to Military Governors
Identical instructions shall be .sent to the US and UK
Military Governors in Germany as follows:
1. It is the desire of the Governments of the United
States and United Kingdom that the total collection and
exi)ort of scrap from the Bizonal Area, after providing
for the legitimate requirements of the German steel in-
dustry, be maximized.
Initial Autliori:ntio>is Outside of Future Allocations
2. The existing authorization (approved May 1.'?, 1948)
of 000,000 tons (namely 200,000 tons to the United States,
.300.0(X) tons to the United Kingdom and 100,000 tons to
other countries) is confirmed.
H. In addition there will be the following supple-
nieiitarv authorizations :
(a) 100,000 tons to the United States, to bring the United
States share to parity with the above-mentioned United
Kingdom share of 300.000 tons ;
(b) 75,000 tons to the United Kingdom as a final ship-
ment of booty scrap without payment ;
(c) 7.5,000 tons to the United States, to correspond to (b)
above, but not free of payment.
4. The above total authorizations of 375,000 tons to
the United States, 375,000 tons to the United Kingdom
and 100,000 tons to other countries shall not be charged to
future allocations, and the two Military Governors shall
implement these authorizations immediately.
Export Availahilities from Bizonal Area
5. The US and UK Military Governors shall inform
the ad hoc Committee, promptly after its establishment
and from time to time thereafter, of the anticipated volume
of scrap exports from the Bizonal Area. It is hoixnl that
this figure for the year ending October 1, 1949, will be
1,000,000 tons or more, over and above the 850,000 tons
authorized above outside of future allocation.?.
Interim Authorizations Chargeahle Against Future
Allocations
6. As an advance against contemplated early allocations
within the framework of the regular allocating procedure,
there shall also be authorized a further 12.5,000 tons to the
United States, 125,000 tons to the United Kingdom and
125,000 tons to other countries, such quantities to be
charged against future allocations. The two Military
Governors shall also implement these authorizations
immediately.
7. In the event that no recommendation is made by the
ad hoc Committee before October 31, 1948, further interim
authorizations shall be made on that date and on the last
Ocfober 10, 7948
467
THE RECORD OF THE WBBK
day of each month thereafter in the ratio of 2-2-1 for the
United States, the United Kingdom and other countries,
respectively, until such time as the regular allocation
procedure is in operation.
Impletuetitation of Allocations
8. In implementing this Agreement, the US and UK
Military Governors shall determine among other matters :
(a) whether to implement allocations by control over
contracts or control over exports or both ;
(b) vfhether, if control over exports is adopted, the
Joint Export-Import Agency may approve contracts w'ithin
agreed limitations in excess of the total outstanding alloca-
tions of any country ;
(c) whether, in appropriate cases, contracts shall pro-
vide for delivery of scrap within specified short periods in
order to prevent undue tying up of allocations in individual
long-term contracts ;
(d) whether and in what manner to instruct Jeia to
take precautions to satisfy itself as to the competence of
contracting parties to implement the terms of the contract.
Effective Date of Foregoing Authorizations
9. All scrap exported subsequent to the date of this
Agreement shall be charged against the foregoing authori-
zations.
Booty Scrap
10. There shall be no further exports of booty scrap
after the date of this Agreement except for the 75,000 tons
authorized under paragraph II 3 (b) above.
Price
11. The price of scrap with appropriate differentials for
loading points, quality of scrap, etc., shall be uniform for
all foreign buyers, and shall be set from time to time by
the US and UK Military Governors under such procedures
as they may establish.
Special Measures
12. If the US and UK Military Governors consider that
adequate quantities of exportable scrap cannot be obtained
without special measures, they are authorized to approve
the recovery of scrap by such measures. Scrap recovery
under such arrangements, if approved, may be outside
regular allocations but subject to such special allocations
as the US and UK Military Governors may determine
after consultation with the ad hoc Committee.
Direct Recovery of Scrap
13. Nothing in this Agreement shall preclude operations
by non-German organizations for the recovery of scrap
from disarmament and other sources not readily accessible
to German scrap merchants provided such operations are
carried on in a manner acceptable to the US and UK Mili-
tary Governors and that all recoveries of scrap (other
than the 75,000 tons of booty scrap mentioned above) are
paid for at prices established by the US and UK Military
Governors and are within either the regular or the special
allocations determined by the US and UK Military
Governors.
VS-UK Scrap Control Authority
14. The US and UK Military Governors shall set up
a US-UK scrap control authority in which each shall
appoint a coordinator to supervise and control the collec-
tion and export of ferrous scrap. This control authority
shall be subject, through whatever organization the Mili-
tary Governors may determine, to the jurisdiction of the
Bipartite Board. .
III. Reservation of Fusion Agreement
Nothing in this Agreement shall be deemed to modify
the arrangements set forth in the Fusion Agreement of
December 2, 1946 as amended liy the Agreement of Decem-
ber 17, 1947. Questions which may arise with respect to
scrap exports under the present Agreement wUl be re-
solved as contemplated in paragraph 5 of the Agreement
of December 17, 1947, having regard also to the provisions
of paragraph 3 (a) of the latter Agreement.
Policy on Commercial Fishing in Pacific Island Trust Territory
JOINT AGENCY APPROVAL
[Released to the press September 29]
The Department of State announced on Sep-
tember 29 the policy of this Government relating
to commercial fishing operations in the United
States Trust Territory of the Pacific Islands. The
policy was approved by the Departments of State,
Army, Navy, Air Force, and Interior as a guide
to the administration of the Trust Territory and
will have the effect of opening the area to com-
mercial fishing. Rich fishery resources, particu-
larly tuna, are available in the waters around this
Territory in an area as large as the continental
United States. The Territory, itself, contains
scarcely as much land area as the State of Dela-
ware. Several commercial fishing companies have
shown interest in beginning fishing operations im-
468
mediately. It is possible that an industry can be
built on the fishery resources that will eventually
pay a considerable part of the administrative cost
of the Territory.
Fishing operations will be under the strict con-
trol of the High Commissioner of the Trust Terri-
tory in order that the welfare of the native inhabi-
tants can be safeguarded and the harvesting of the
resources can be undertaken along adequate con-
servation lines.
Fishing opportunities will be equally available
to the fishiiig enterprises of all nations except that
the High Commissioner will have discretion in
excluding enterprises for reasons of security or for
the purpose of carrying out the obligation to pro-
mote the advancement of the inhabitants.
Deparfmenf of State Bulletin
TEXT OF POLICY DIRECTIVE
[Released to the press September 29]
A. With a view to cooperating in the effort to
increase world food production and in order to
improve the local economy and to obtain informa-
tion needed for conservation of fishing resoui'ces
of the area, the territorial waters surrounding the
Trust Territory, except those parts closed for
security reasons, should be open to the commercial
fishing enterprises of all nations on a non-discrimi-
natory basis, except that whenever a country denies
rights with respect to fishing and ancillary opera-
tions needed and desired by the local inhabitants
of the Trust Territory, the Government of the
Trust Territory may, if necessary to obtain those
rights, deny that country rights in the Trust
Territory.
B. The administering agency, in collaboration
■with the Fish and Wildlife Service of the Depart-
ment of the Interior, shoidd conduct research as
soon as possible with a view to establishing con-
servation regulations. Fishing grounds within
the territorial waters found to be necessary for the
local economy should be reserved exclusively for
the use and benefit of the local inhabitants.
C. Immediate steps should be taken to foster the"
development of aquatic resources, including locally
owned and operated commercial fishing, bait cul-
ture, and ancillary commercial industries.
D. With respect to canning and other fish-proc-
essing industries, the administering agency should
give priority to the development of locally owned
and operated enterprises.
E. The administering agency may. under such
conditions, as may be agreed upon by the interested
departments, grant permission for the establish-
ment and maintenance of shore facilities to out-
side canneries and other fish-processing industries
provided that, in determining whether such per-
mission shall be gi-anted and in establishing the
conditions under which such permission is to be
granted, the interests of the local inhabitants shall
be paramount.
F. Annual licenses should be required of all
commercial fishing vessels operating within terri-
torial limits or operating out of local ports.
Licenses to nonlocal fishing vessels should be
granted on the understanding that they are sub-
ject to revocation or modification wherever se-
curity interests or the interests of the inhabitants
so require. Licensees should be required to fur-
nish such statistical information regarding fishing
operations as the administering agency, in col-
laboration with the Fish and Wildlife Service,
shall deem appropriate.
G. Local inhabitants should be employed in the
October 10, 1948
complement of a fishing vessel or canning or other
ancillary industry licensed for operation in a
Trust Territory to the maximum extent consonant
with efficient operations. Regulations should be
issued prescribing minimum and nondiscrimina-
tory wages and standards of working conditions
and otherwise protecting locally hired personnel.
The employment of noidocal personnel in shore
establishments should be subject to regulations by
the government of the Trust Territory.
H. Except as provided in paragraph A above,
and subject to the right of the High Commissioner
of the Trust Territory of the Pacific, within estab-
lished governmental policy to exclude any indi-
vidual or group of individuals for reason of se-
curity, and the obligation to promote the advance-
ment of the inhabitants, the principle of nondis-
crimination on the basis of nationality shall be ob-
served in the implementation of the foregoing
principles and shall apply to all aspects of com-
mercial fishing and ancillary operations and the
regulation thereof in the Trust Territory.
Two U.S. Citizens Held Incommunicado in
Hungary Released
[Released to the press September 27]
American citizens Paul Ruedemann and George
Bannantine, president and technical adviser re-
spectively of Maort. an American-owned affiliate
in Hungary of the Standard Oil Company (New
Jersey ) , have been released from detention by the
Hungarian authorities following vigorous United
States representations both at Washington and at
Budapest to the Hungarian Government and, ac-
companied by an officer of the American Legation
at Budapest, arrived in Vienna at 11 : 30 a.m. on
September 26.
Mr. Ruedemann and Mr. Bannantine were taken
into custody by the Hungarian police on the night
of September 18 and held incommunicado until
their release on September 25. The United States
Government considers the allegations made against
these two men by the Hungarian authorities and
by the officially controlled Hungarian press and
radio involving "economic sabotage" were wholly
unfounded. These arrests followed a long series
of encroachments by the Hungarian authorities on
the rights of Maort, wliich have now cidminated
in the seizure of the company under a decree issued
by order of tlie Cabinet Council on September 24
and published in the Official Gazette on Septem-
ber 25.
469
THE RECORD OF THE WBEK
Economic Cooperation Agreement
With Portugal Signed
Statement hy Acting Secretary Lovett
[Released to the press September 29]
A bilateral agreement in connection with the
European Recovery Program was signed with the
Portuguese Government on September 28 at Lisbon
by Ambcassador MacVeagh and the Portuguese
Foreign Minister.' Although the Portuguese Gov-
ernment is receiving no financial aid under the
European Recovery Program, they have given
their firm support to the program from the very
beginning. The signing of the Erp agreement
and the cordial remarks of the Portuguese Foreign
Minister on that occasion have shown again the
spirit of good will and cooperation of the Portu-
guese Government in participating in the huge
task of European reconstruction.
Department of State To Have Full Direction
of Voice of America Programs
[Released to the press September 30]
Preparation and broadcasting of those Voice of
America programs which had previously been
handled by the National Broadcasting Company
and Columbia Broadcasting System under con-
tract with the Department of State, were under-
taken by the Department beginning October 1.
In making the announcement, George V. Allen,
Assistant Secretary of State for public affairs, said
' For text of the agreement, see Department of State
press release 788 of Sept. 29, 1948. For text of a similar
agreement witii Italy, see BtTtxETiN of July 11, 1948, p. 38.
Identical notes between the two Governments were
exchanged relating to niost-favored-nation treatment for
areas under military occupation. With the exception of
the following paragraph this exchange Is similar to the
understanding with the U.K. which was printed in the
BiiLLETiN of July 11, 1948, p. 43 :
"1. For such time as the Government of the United
States of America participates In the occupation or con-
trol of any areas in western Germany, the Free Terri-
tory of Trieste, the Government of Portugal will apply
to the merchandise trade of such area the provisions
relating to the most-favored nation treatment of the
merchandise trade of the United States of America set
forth in the Commercial Agreement signed June 28, 1910,
or for such time as the Governments of the United States
of America and Portugal may both be contracting parties
to the General Agreement on Tariffs and Trade, dated
October 30, 1947, the provisions of that Agreement, as now
or hereafter amended, relating to the most-favored-nation
treatment of such trade. It is understood that the under-
taking in this paragraph relating to the application of the
most-favored-nation provisions of the Commercial Agree-
ment shall be subject to the exceptions recognized in the
General Agreement on Tariffs and Trade permitting de-
partures from the application of most-favored-nation
treatment; provided that nothing in this sentence shall be
construed to require compliance with the procedures sjieci-
fied in the General Agreement with regard to the applica-
tion of such exceptions."
470
the transfer of functions was effected under agree-
ment between the Department and the radio net-
works following their decision to withdraw from
programming activities in the field of interna-
tional broadcasting.
The two networks were preparing and broad-
casting Voice of America programs in English,
Spanish, Portuguese, French, Italian, German,
Annamese, Malayan, and Siamese.
The Department's International Broadcasting
Division, which has charge of Voice of America
operations, will continue to lease short-wave trans-
mitting facilities of private companies, including
those of NBC and CBS.
The broadcast output to Latin America was
reduced October 1 to 2 hours and 45 minutes daily
from the previous 4 hours and 45 minutes' sched-
ule. Daily Far Eastern programs of 15 minutes
each in Annamese, Malayan, and Siamese, which
had been prepared by CBS up to October 1, were
discontinued. European schedules will remain
virtually intact with broadcasts continuing in Bul-
garian, Czech, English, French. German, Greek,
Hungarian. Italian, Polish, Rumanian. Russian,
Serbo-Croat, Slovak, Slovene, and Spanish.
Broadcasts will continue to the Far East in
Chinese, Korean, Russian, and English, and to
Latin America in English, Portuguese, and
Spanish.
The Voice of America will increase certain exist-
ing broadcasts and will inaugurate programs in
additional languages as soon as an adequate staff
can be recruited. The output to Europe was given
added impetus October 3 when the relay of Voice
of America programs through the British Broad-
casting Corporation facilities was increased from
9 to 101/2 hours daily.
Ambassador Butler To Represent President at
Cuban Inauguration
[Released to the press October 1]
Robert Butler, United States Ambassador to
Cuba, has been named Special Ambassador to
represent the President at the inauguration of Dr.
Carlos Prio Socarras, President-elect of Cuba, on
October 10, 1948. Members of his special mission
will be Admiral Louis E. Denfeld. United States
Navy, Lt. General Matthew B. Ridgway, United
States Army, Major General Willis F. Hale,
United States Air Force, and officers of the United
States Embassy at Habana.
Air Transport Agreement With Bolivia
[Released to the press September 30]
The Department of State on September 30 an-
nounced that an air-transport agreement between
the Governments of Bolivia and the United States
was signed in La Paz on September 29, 1948.
Department of Sfofe BuWet'in
Tlie ajjreement is of tlie so-callod Benmula type,
upon wliicli is based the great niajority of the 3G
bihiteral air ajjreements of the United States. The
a<rreenient jirants trallie rights to United States
air lines at La Paz. C'ochabamba, Santa Cruz.
Robore. Oruro, and Puerto Suarez. A route for
Bolivian air lines is to be agreed upon when
Bolivia is ready to operate a service to the United
States.
Complete text of the agreement will be an-
nounced later.
U.S. Vessels Sailingto Arctic in Support of
Canad!an-U. S. Joint Weather Station Program
[Released to the press September 28]
It was announced in Ottawa and Washington on
June 4 that three U.S. Navy and Coast Guard ves-
sels, with Canadian representatives aboard, would
shortly be sailing to Canadian Arctic waters in
support of the joint weather-station program
which is being carried out by the Governments of
Canada and the United States.
These three sliips — The U.S.S. Edhto, icebreaker,
the U.S.C.G. Eastwind., icebreaker, and the U.S.S.
Wyandot, cargo vessel, have now returiied to
Boston.
During the summer they resnpplied the joint
weather stations established in 1947 at Eureka
Sound, EUesmere Island, and at Resolute Bay,
Cornwallis Island. They also made a preliminary
investigation of the possibility of establishing a
further joint station in the vicinity of Winter
Harbour. Melville Island. In the course of recon-
noitering a site for an additional joint station on
Ellesmere Island, the Edhto and the Eastwind
managed to reach, via Robeson Channel, the Cape
Sheridan area at the north of that island. This
area in the extreme north of Canada was the scene
of the activities of the British explorer, Sir George
Xares. in 1875-1876 and of the subsequent activi-
ties of the United States explorer. Admiral Peary,
in 1905-1906. The supply mission came across
Xares' and Peary's cairn and, as is usual on north-
ern expeditions, Peary's notes found in the cairn
were replaced by appropriate documents. The
Edhto and the Emtmind returned to the Atlantic
coast through Fury and Hecla Strait, between the
Melville Peninsula and Baffin Lsland.
The ships which participated in the supply mis-
sion were under the command of Capt. George J.
Dufek, U.S.X., embarked in the Edisto. The
Edisto was commanded by Commander E. C. Fol-
ger. U.S.N. ; the Wyandot by Capt. J. D. Dickey,
U.S.X. : and the Eastwind by Capt. J. A. Flynn,
U.S.C.G. Among the principal Canadian repre-
sentatives who participated in the supply mission
were J. Ivor Griffiths of the Meteorological Divi-
sion, Department of Transport, and Capt. Albani
Ocfober JO, 7948
THE RECORD OF THE V/EIK
Chouinard, master of the Department of Transport
icebreaker Sau/rel.
Records of Nares and Peary Canadian
Arctic Expeditions Found
[Keleased to the press September 30]
Announcement was made on September 28 of the
recent return to Boston of the ships which partici-
pated in the resupply of the Canada-United States
weather stations in the Canadian Arctic.
While near Cape Sheridan, on the north coast of
Ellesmere Island, a landing party from the supply
mission located a cairn which contained records of
two famous Arctic expeditions. The first was that
of Sir George Xares, of the Royal Xavy, whose
ship, the Afert, sailed north, in 1875, between
Canada and Greenland, to Cape Sheridan. In
July, 1876, after exploring the Ellesmere coast
westward to Cape Alfred Ernest, Nares' expedi-
tion left a record of its activities in a cairn near
,Cape Sheridan. While on a polar expedition,
Admiral Robert E. Peary, the U.S. explorer, subse-
quently visited the same region in 1905-1906 and,
as usual among Arctic explorers, he opened Nares'
cairn, took the original note, left a copy of it in the
cairn, and added a record of his own activities.
When at Cape Sheridan, the recent supply mis-
sion again opened the cairn, removed the notes in
it and left copies of them together with a note on
the 1948 visit.
The texts of the notes brought back this summer
are given below :
Copy of Original Document Left by Admiral
Rohert E. Peary at Cape Sheridan
Cape Sheridan, tSeptcmher 5th, 1905.
The Peary Arctic Club's Ship "Roosevelt"
arrived here from New York at 7. a.m. and made
fast to the ice foot under the point of the cape
awaiting the turn of the tide to proceed to Cape
Hecla.
Tlie Roosevelt left New York July 16th., Sidney,
Cape Breton, July 2('>tli, arrived Cape York Au-
gust 7th, and left Etah August I7th. Her last
stopping place was the icefoot south of Cape Union
which she left at 3 : 30 this morning.
Personally visited the Alert's Cairn at Floberg
Beach and took there from Alert's Record, copy of
which accompanies this. Roster of the Roosevelt's
Company is also enclosed.
R. E. Peart, U.S.N.
Com.manding the Expedition
Copy of E.M.S. Alert's Record Left in 1876
Arctic Expedition. 25th Jidy-1876
H.M.S. "Alert", at Floe-berg Beach (Lat. 82° 27'
North. Long. 61° 22' West)
H.M.S. "Alert" wintered off this coast: inside
the grounded ice 1875-1876. H.M.S. "Discovery,"
471
THE RECORD OF THE WBEK
her consort, passed the same winter in a well shel-
tered harbour in Lat. 81° 44' North, Long. 65° 5'
West.
The sledge crews after a very severe journey
over the ice succeeding in attaining Lat. 83° 20'
30" N. No land has been sighted to the North.
Another division explored the coast line to the
Northward and Westward to Lat: 82° 23' N.
Long : 84° 56' W. Cape Columbia the northermost
Cape being in Lat 83° 7' N. Long. 70° 30' W.
Sledge parties from the "Discovery" have ex-
plored the Greenland Shore for some distance to
the Northward and Eastward, but the result of the
examination is not yet known to me.
Scurvy attacked nearly all the men employed in
sledge traveling. Two deaths have occurred :
Niels. C. Peterson from the effects of a severe
frostbite (which necessitated a part of each foot
being amputated) followed by exhaustion and
scorbutic taint: — and George Porter, Gunner
K.M.A. who died from scurvy and general debility
when absent on a sledge journey ; and was buried
on the floe in Lat, 82° 41' N.
The ice in the Polar Sea broke up on the 20th
July, — when it permits us to move, the "Alert" will
proceed south and join company with the "Dis-
covery"; both ships will then sail for Port Foulke,
and most probably thence to England.
G. S. Nares,
Captain R.N.
Commanding Arctic Expedition
Control of Foreign Assets in U.S. Ended
[Released to the press by the Treasury Department September 30]
Secretary Snyder announced on September 30
the close of more than eight years of activity by the
Treasury in the field of controlling foreign assets
in the United States. The program started by the
Treasury Department almost a decade ago is to be
carried through to its ultimate liquidation by the
Department of Justice pursuant to a Presidential
transfer of jurisdiction.
Plans for this transfer, which is effective as of
midnight, September 30, were made by the inter-
ested departments in February and were at that
time approved by the National Advisory Council
and communicated to the Congress. Accordingly,
the Treasury Dej^artment regulations setting
forth the organization and procedures of Foreign
Funds Control, and other related regulations
promulgated in 1942, are being revoked. These
regulations are being superseded by new regula-
tions similar in scope issued by the Department of
Justice.
Treasury participation in this field began with
the freezing order of April 1940, issued at the time
of the German invasion of Norway and Denmark.
The scope of the order was gradually expanded
until by 1941 it covered China and Japan as well
472
as all the countries of continental Europe, except
Turkey. A 1941 census revealed that the Treasury
Department was then controlling foreign assets in
the United States worth more than eight billion
dollars.
A primary aim of the freezing control was to
prevent nationals of the invaded countries of Eu-
rope from being despoiled and forced under duress
to transfer to the Axis powers their claims to
American assets. The freezing controls also served
in many ways as a weapon of economic warfare to
hamper the financial and commercial activities of
our World War II enemies. 1
The elimination of restrictions on ti'ansactions I
and the gradual unblocking of foreign assets be-
gan shortly after the end of actual hostilities. The
elimination of these controls has been handled so
as to maintain the major objectives for which they
were instituted. Unblocking of property has pro-
ceeded on a basis which has preserved the ability
of the United States to vest assets actually belong- ,
ing to enemies. The procedures now in effexit for %
unblocking foreign assets in the United States '
have also been developed with a view toward assist-
ing in the imi^lementation of the European Recov-
ery Program.
I
Proclamation on Revision of a
ILO Convention |
The President on August 30, 1048, issued his
proclamation of the Final Articles Revision Con-
vention, 1946, which was adopted at the Twenty-
ninth Session of the International Labor Confer-
ence at Montreal on October 9, 1940. That con-
vention is designed to revise partially the conven-
tions adopted by the General Conference of the
International Labor Organization at its first 28
sessions for the purpose of making provision for
the future discharge of certain chancery functions
entrusted by those conventions to the Secretary-
General of the League of Nations and introducing
therein certain further amendments consequential
upon the dissolution of the League of Nations
and the amendment of the Constitution of the
International Labor Organization. The Final »
Articles Revision Convention, 1946, entered into 1
force with respect to the United States on June
24, 1948, the date of deposit with the International
Labor Organization of the instrvnnent of ratifica-
tion thereof on the part of the United States.
The Opportunity of the National Commission <
The Assistant Secretary for public affairs,
George V. Allen, made an address before the i
UNESCO National Commission meeting which was
held in Boston on September 27. For the text of
Mr. Allen's address on the opportunity of the
National Commission, see Department of State
press release 777 of September 27, 1948.
Department of State Bulletin
Freedom of Information
STATEMENT BY SECRETARY MARSHALLi
Tlie theme of National Newspaper Week, "Your
Riglit To Know Is The Key To All Your Liber-
ties'", emjihasizes a fundamental freedom which
our Government is activelj' seeking to encourage
throughout the world — freedom of the people to
know the truth.
Half of the World's population lives under some
form of censorship today. Denied access to the
facts, people in countries where censorship and
government control of the press exist can base
their judgments only on half-truths or false in-
formation fed to them by those in control. Cen-
sorship and press control are the first and most
important steps in the subjugation of people by a
dictator.
Americans should keep constantly in mind that
no people have lost their liberties so long as their
press remains free.
It is also a vital concern of ours to see that the
barriers to the flow of information are reduced
and, as far as possible, eliminated. This is an es-
sential to the world peace which we are seeking.
Our Government is making every effort,
through the United Nations, to reduce these bar-
riers between countries. In the Commission on
Human Rights, in the Economic and Social Coun-
cil, in the General Assembly, at the recent Confer-
ence at Geneva on Freedom of Information, and in
Unesco, we have pressed for active considera-
tion of freedom of information during the past 18
months. Progress has been difficult, yet it is
encouraging.
A heavy responsibility rests with the press and
other organs of information to aid in this impor-
tant work. In their best traditions, it is for them,
in the language of the United Nations, "to seek
the truth without prejudice and report the facts
without malicious intent".
Surplus Property Agreements on Educational Exchange With
United Kingdom and New Zealand Signed
United Kingdom
The United Kingdom signed on September 22
an agreement under the Fulbright act with the
United States, putting into oj^eration the i^rogram
of educational exchanges authorized by Public
Law 584, Seventy-ninth Congress. The signing
took place in London, with Foreign Minister
Ernest Bevin representing the United Kingdom
and U.S. Ambassador Lewis Douglas representing
the United States. The agreement was signed in
the presence of Senator J. W. Fulbright of Arkan-
sas, sponsor of the act.
The agi-eement provides for a United States
Educational Commission in the United Kingdom
to assist in the administration of the educational
program financed from certain funds resulting
from the sale of surplus property to that country.
The present agreement provides for an annual
progi-am of the equivalent of $1,000,000 in British
pounds for certain educational purposes. These
l^urposes include the financing of "studies, re-
search, instruction, and other educational activi-
ties of or for citizens of the United States of
America in schools and institutions of higher
October 10, 7948
learning located in the LTnited Kingdom or the
colonial dependencies, or of the citizens of the
United Kingdom and colonies in United States
schools and institutions of higher learning located
outside the continental United States . . . in-
cluding payment for transportation, tuition, main-
tenance and other expenses incident to scholastic
activities; or ftirnishing transportation for citi-
zens of the United Kino:dom and colonies who de-
sire to attend United States schools and institu-
tions of higher learning in the continental United
States . . . whose attendance will not deprive
citizens of the United States of America of an op-
portunity to attend such schools and institutions."
The Commission in the United Kingdom will
consist of 12 members, the honorary cliairman of
which will be the U.S. Ambassador to the United
Kingdom. The members of the Commission will
include 7 citizens of the United States and 5 mein-
bers from the United Kingdom and the colonial
dependencies.
' Made on Oct. 1, 1948, in connection with observance of
National Newspaper Week (Oct. 1-8, 1948), and released
to the ijress on the same date.
473
THE RECORD OF THE WBCK
New Zealand
On September 13 New Zealand also signed an
agreement with the United States, under the Ful-
bright act.
The signing took place in Wellington, with
Prime Minister Peter Fraser representing tlie
Government of New Zealand and American Minis-
ter Robert Scotten representing the United States.
It was the fifth agreement signed under the act,
previous arrangements having been made witli tlie
Governments of China, Burma, the Philippines,
and Greece.
The agreement with the New Zealand Govern-
ment establishes the United States Educational
Foundation in New Zealand to administer certain
funds resulting from the sale of surplus property
to that country, and provides for an annual
program of at" least $115,000 in New Zealand
pounds for certain educational purposes.
The Foundation in New Zealand will have an
eight-man Board of Directors, the honorary chair-
man of which will be the principal officer in charge
of the United States diplomatic mission in New
Zealand. The members of the Board will be three
officers of the U.S. Legation in New Zealand, two
citizens of the United States resident in New Zea-
land, and three nationals of New Zealand, one of
whom shall be prominent in the field of education.
Information about specific opportunities for
American citizens to pursue study, teaching, or
reseai-ch in the two countries will be made public
in the near future. Further inquiries about those
opportunities and requests for application forms
should be addressed to the following three
agencies: Institute of International Education,
2 West 45th Street, New York 19, N. Y. (for
graduate study) ; United States Office of Edu-
cation, Washington 25, D.C. (for teaching in na-
tional elementary and secondary schools) ; and
Conference Board of Associated Research Coun-
cils, 2101 Constitution Avenue, Washington 25,
D.C. (for teaching at the college level, for post-
doctoral research, and for teaching in American
elementary and secondary schools in New Zealand
and the United Kingdom and colonies).
Previous agreements have been signed witli the
Governments of China, Burma, the Philippines,
and Greece.^
Brazilian Cultural Leader Visits U.S.
Joao da Silva Monteiro, President of the Board
of Directors of the Uniao Cultural Brasil-Esta-
dos Unidos, Sao Paulo, Brazil, has arrived in the
United States for a three months' visit under the
travel-grant program of the Department of State.
Mr. Monteiro will observe various aspects of the
' Bulletin of Mar. 21, 1948, p. 388 ; Apr. 11, 1948, p. 488 ;
and May 16, 1948, p. 654.
474
economic and cultural life of this country and
study problems of educational exchange between
Brazil and the United States. Particularly in-
terested in rural life on small farms, he plans to
spend a week on such a farm in New England as
part of his visit here, gathering material for a
report to be published in Brazil on "The Educa-
tion and Pi'ogress of a Country Through Rural
Free Delivery Service".
Mr. Monteiro has been a member of the Board
of Directors of the Uniao Cultural for six years
and has served as president for the past two years.
This cultural center was founded in ID-'JS to foster
better understanding between Brazilians and
North Americans. It currently enrolls over
4,000 students of English, has the largest circulat-
ing library of books in English in Brazil, and
sponsors various cultural programs interpreting
North American and Brazilian cidture.
Brazilian Philosopher Visits U.S. ^
Joao Cruz Costa, professor of philosophy, Uni- I
versity of Sao Paulo, Sao Paulo, Brazil, has ar- 1
rived in Washington to act as Consultant for the '
Library of Congress and observe the work of sev-
eral eastern universities. He is here under the a
grant-in-aid program of the Department of State l|
at the request of the Library of Congress.
He is at present preparing for publication a
study on positivism, a subject on which he is plan-
ning to do research while at the Library of Con-
Visit of Chilean Historian
Dr. Eugenio Pereira Salas, professor of Ameri-
can history at the University of Chile, recently ar-
rived in Washington, where he is to serve as visit-
ing professor of Latin American history at the
American University during the 1948 fall semester
under the travel-grant pi'ogram of the Depai'tment
of State.
Dr. Pereira is the President of the Instituto
Chileno-Norteamericano de Cultura in Santiago.
This organization, a bi-national cultural society
which is assisted by the Department of State, is
devoted to promoting a better luiderstanding be-
tween Chile and this country.
Language Professor To Teach in Haiti
William Leonard Schwartz, associate professor
of Romanic languages at Stanford University, has
left Washington to begin a six months' assignment
as visiting professor of English at the University
of Haiti under the travel-grant program of the
Department of State.
Department of State Bulletin
THE FOREIGN SERVICE
Rules of Precedence Relating to Foreign
Service and Government Officers '
r.y viitiu' of the iiutlioiity vfsted in mo by section 1752
of tlip Hrvised Statutes (22 U. S. C. 182), anil as l'n>si(lent
of tlip United States, and in the interest of the orderly
conduct abroad of the foreign-afl'aii-s functions of the
United States, I hereby prescribe the foUowins rules gov-
erniiig precedence anions officers of the Foreign Service
and oUict>rs or accredited representatives of other Govern-
ment agencies :
1. In the country to which he is accredited, the chief of
the diplomatic mission sliall take precedence over all of-
ficers or accredited representatives of other Executive
departments or establishments.
2. In the al)sence of the titular head of the mission, the
charge d'affaiies ad interim shall take precedence over
all officers or accredited representatives of other Executive
departments or establishments.
.". At a diplomatic mission the ofiHcer who takes charge
in the absence of the chief of mission sliall always take
precedence next in succession to the chief of mission : Pro-
ridrd. That unless the chief of mission is absent, sucli
officer shall, consonant with the hist sentence of section
100 (a) of the Foreign Assistance Act of 1048 (Public
Law 472, SOth Congress), and during the continuance in
force of such Act, take precedence after the chief of
special mission.
4. Military, naval, and air attaches .shall take preced-
ence next in succession after the counselors of embassy or
legation or, at a post where the Department of State has
deemed it unnecessary to assign a counselor, after the
senior secretary. Military, naval, and air attaclK^s shall
take precedence among themselves according to their re-
spective grades and seniority therein.
n. Attach<^s who are not officers of the Foreign Service
and who are not covered by section 4 shall take precedence
with but after military, naval, and air attaches.
G. Officers of the Foreign Service below the rank of
counselor shall take precedence among themselves as the
Secretary of State may direct ; but they shall take preced-
ence after military, naval, and air attaches and attaches
who are not officers of the Foreign Service, except when
the provisions of section 11 hereof are applicable and such
officers of the Foreign Service are also assigned as diplo-
matic officers.
7. Assistant military, naval, and air attaches shall
take precedence next after the lowest ranking second
secretary. At a post to which there is no second secre-
tary assigned, assistant military, naval, and air attache's
shall take precedence as a group among the officers of the
Foreign Service of rank equivalent to second secretaries
as the chief of mission may direct. Assistant military,
naval, and air attach<5s shall take precedence among them-
selves according to their respective grades and seniority
therein.
8. Assistant attaches who are not officers of the Foreign
Service and who are not covered by section 7 shall take
precedence with but after assistant military, naval, and
air attaches.
9. Except as provided herein no extra precedence shall
be conferred upon an Army, Naval, Marine, or Air Force
officer because of his duties as attach^ to a diplomatic
mission,
10. At ceremonies and receptions where the members of
the mission take individual position, and in the lists fur-
nished foreign governments for inclusion In their (lii)lo-
matlc lists, precedence shall follow the ranking indicated
in the preceding sections.
October 70, J 948
11. At ceremonies and receptions where the personnel
of diplomatic missions are present as a body, the chief
of mission, or charg6 d'alTaires ad Interim, accomixinied
by all officers of the Foreign Service Included in the
diplomatic list, shall be followed next by the military,
naval, and air attaches and assistant attaches, and other
attaches and assistant attaches who are not officers of the
Foreign Service, formed as distinct groups In the order
determined by their respective grades and seniority.
12. In international conferences at which the American
delegates possess plenipotentiary powers, the senior coun-
selor of embassy or legation attached to the delegation
shall take precedence immediately after the delegates,
unless otherwise instructed by the Secretary of State.
13. In the districts to which they are assigned, consuls
general shall take precedence with but after brigadier
generals in the Army, Air Force, and Marine Corps and
commodores in the Navy ; consuls shall take precedence
with but after colonels In the Army, Air Force, and Marine
Corps and captains in the Navy ; officers of the Foreign
Service commissioned as vice consuls shall take preced-
ence with but after captains in the Army, Air Force, and
Marine Corps and lieutenants in the Navy.
14. Officers of the Foreign Service with the title of
consul general, consul, or vice consul shall take precedence
with respect to medical officers of the Public Health Serv-
ice a.ssigned to duty in American consular offices as fol-
lows : consul general before medical director; consul with
but after medical director : vice consul with but after
senior assistant surgeon: Provided; That this regulation
shall not oijerate to give precedence to any medical officer
above that of the consular officer in charge.
15. This order supersedes Executive Orders No. 8356
of March 2, 1940, and No. 8377 of March 18, 1940 (3 CFB
Cum. Supp. 024, 032).
Harry S. TRUiiAN
The White Hou.se
September l), 19^8
Fifteen Hundred Persons Complete Foreign
Service Examinations
[Released to the press September 30]
Approximately 1,500 young men and women in
18 cities in the United States and 70 cities abroad
completed on September 30 the rigid three-day
written examination which is the first step to-
ward entrance into the Foreign Service of the
United States as a Foreign Service officer.
A total of 1,960 persons were designated to take
the examination, which is the second regular test
to be given since the end of World War II. How-
ever, only about 1.500 of the number designated
have actually presented themselves at the 88 ex-
amining, offices scattered throughout the world.
The facts concerning the current examination
differ in many respects from those relating to pre-
war examinations. For example, the number of
persons examined this year is almost four times
the number in 1941, the year of the last prewar
' Ex. Or. 9998, 14 Fed. Reg. 5359.
475
THE FOREIGN SERVICE
examination, wlien 440 persons took the tests.
Formerly, also, the examinees tended to be clus-
tered on the two coasts of the United States. This
year, large numbers have been designated in cities
in all regions of the country, 58 persons having
been designated to be examined in Atlanta, 165 in
Chicago, 62 in Dallas, 37 in Denver, 87 in St. Louis.
In addition, 145 persons residing abroad, most of
them already in the Foreign Service in other cate-
gories than Foreign Service officers, applied to take
the examinations. These include 1 person at
Moscow, 9 in Seoul, 13 in Berlin, 1 in Mombasa,
1 in Reykjavik, 2 in Montevideo, and 3 in Montreal.
To pass the written examination — which covers
many different subjects, including international
law, economics, history, government, and maritime
law — the examinee must make an average grade of
at least 70 percent. In prewar tests, the percent-
age of those taking the examination who made this
grade varied from 18.6 percent to 19.7 percent.
Those who pass the written tests must undergo an
oral examination before being classed as eligible
for appointment as a Foreign Service officer. An
average grade of 80 percent on both the written
and oral examinations is passing. Those making
this average before the war constituted from 6.8
percent to 9.3 percent of the total designated candi-
dates. Thus, in 1941, 440 persons took the exami-
nations. Of that number, 77 jJassed the written
test, and 37 passed both the written and oral
examinations.
Test Program Conducted for International
Health information
The Foreign Service of the United States, in
cooperation with the United States Public Health
Service, is conducting a te.st program in the field
of international health information. The test is
being conducted through a Public Health attache,
Dr. Morris B. Sanders, who has been assigned to
the American Embassies at Paris, Brussels, and
The Hague, with residence at Paris.
Intended as an aid both to Europe and the
United States, the future of the program depends
upon the availability of funds and the successful
development of the initial effort in harmony with
the work of the World Health Organization of the
United Nations, of which the United States is a
member.
Dr. Sanders, a member of the United States
Public Health Service Reserve and a recognized
expert in problems of anesthesia and oxygen and
in the field of aviation medicine, received instruc-
tions outlining the following as his duties in
Europe :
1. Dissemination of United States Public Health
and medical developments within assigned coun-
tries and reporting upon current developments
and thinking in those countries;
476
2. Collection of and reporting on available in-
formation from those countries on : health condi-
tions; current medical research and opj^ortunities
for United States research abroad; public-health
administrative practices and tecluiiques and their
results; prevalence of diseases of particular inter-
est to the United States; extent of health-insur-
ance programs; and developments in sciences
related to health and medicine;
3. Familiarizing himself with administration
and technique of national health services abroad;
4. Ascertaining the research progi'ams and
activities of scientific institutions and organiza-
tions in the field of health ;
5. Attending and, when appropriate, partici-
pating in conferences and congresses in health and
related fields ;
6. Identifying himself with the public health
and medical-research life of the comitries of
assignment.
Closing of Consular Offices and
Opening of New Offices
[Released to the press September 23]
Five more American consulates and one vice
consulate are being closed in a continuing stream-
lining of Foreign Service posts throughout the
world. The posts to be closed are Tahiti, Society
Islands ; La Guaira. Venezuela ; Cartagena, Colom-
bia; Martinique, French West Indies; Cocha-
bamba, Bolivia; and the combined Fort William-
Port Arthur post in Canada.
The closing of these six Foreign Service of-
fices brings to 17 the number of American con-
sular offices closed in various parts of the world
since January 1, 1948. Some were closed because
of a lessening of work caused by shifting world
conditions, some because the volume of work did
not justify their cost, some because they had been
wartime emergency posts.
One, at Changchun, China, was closed for poli-
tical considerations because it was in an area with
few American interests and surrounded by Chinese
Communist-controlled forces. Another, at Vladi-
vostok, was closed by the United States following
the shutting down of Soviet consulates in this
country by the U.S.S.R.
An additional reason for the closing of these
consular offices has been the necessity of utilizing
budgeted funds for opening and staffing with ex-
perienced personnel new posts in areas now con-
sidered vital to American interests.
Some of those closed have been or will be sup-
planted by consular agents ; the work of the others
will be transferred to nearby offices. Thus, the
volume of business to be done on behalf of United
States interests by the Foreign Service should not
be seriously affected.
Department of State Bulletin
Fourteen new Foreign Service offices were
establislied in the fiscal year 1948 and two more —
important enough to be missions, Tel Aviv, Israel,
and Seoul, Korea — have been established in recent
months. In addition, reports to the State De-
l)artment indicate a growing need for the opening
of still more American consular offices in the fu-
ture, particularly in the Mediterranean ai'ea and
in the Xear East.
The posts recently opened are sending repre-
sentatives of the United States back into areas
which have regained their prewar importance for
this country and into regions newly important be-
cause of a wealth of strategic materials, an in-
crease in shipping, or the establishment of new
means of corannniications. Three — at Lahore, Tel
Aviv, and Seoul — were brought into being because
of the birth of new nations, Pakistan, Israel, and
Korea.
The posts recently established follow :
Bergen, Norway; Bratislava, Czechoslovakia;
Cebu, Philippines; Curitiba, Brazil; Dar es
Salaam, Tanganyika; Elisabethville, Belgian
Congo; Haifa, Palestine; Kobe, Japan; Kuala
Lumpur, Malayan Union; Lahore, Pakistan; Ni-
cosia, Cyprus; Puerto Cortes, Honduras; Tripoli,
Libya ; Venice, Italy ; Tel Aviv, Israel ; and Seoul,
Korea.
The full list of posts eliminated since January
1, in addition to the six now in process of closing,
is as follows :
Fredericton, N.B., Canada ; Changchun, China ;
St. Stephen, X.B., Canada; Hull, England; Gre-
nada, British West Indies; Port Limon, Costa
Rica; Antigua, British West Indies; Plymouth,
England; Sarnia, Ontario, Canada; La Ceiba,
Honduras ; and Vladivostok, U.S.S.R.
Sale of Surplus Combat Materiel
A list uf surplus combat materiel sold to foreign
governments by the Department of State in its
capacity as foreign-surplus disposal agency during
April, May, June, and July 1948 and not previously
reported was contained in Department of State
press release 664 of August 17, 1948.
THE DEPARTMENT
Schedule of Fees by Interim Office for
German Affairs ^
Septemher 3, 104B.
Public Notice No. DA-121, effective August 10,
1948, established an Interim Office for German
Affairs in the Division of Protective Services,
Office of Controls, Department of State.
The Interim Office for German Affairs is au-
thorized to prescribe from time to time such fees
as nuiy be deemed appropriate for any services
rendered. The following schedule of fees is here-
by established :
Natube of SsatvicE
Travel Document Service
Execution of application for travel document and
military-entry permit $2.00
Issuance of travel document 10. 00
Amendment or verification of a travel document 2. 00
Renewal of travel document 5.00
Execution of affidavit in regard to German birth iu
connection with application for travel document 1. 00
Notarial and Other Miscellaneous Services
Administering an oath and certificate thereof 2.00
Aelinowledgment of a deed or power of attorney, or
similar service, including one or more signatures,
with certificate thereof, for each copy 2. 00
Certifying to official character of a notary or other
official 2. 00
For taking depositions, executing commissions or
letters rogatory, where the record of testimony
including caption and certificate does not exceed
.500 words (excluding punctuation) 2.00
For each additional 100 words or fraction thereof . 50
Certifying to the correctness of a copy of, or extract
from, a document, official or private 2. 00
Recording unofficial documents in Interim Office
upon request (for every 100 words or fraction
thereof) 1. 00
Obtaining copy of German public document (exclu-
sive of local charges of foreign officials and cer-
tification by United States Consul) 2.00
The fees received by the Interim Office for Ger-
man Affairs shall be covered into the Treasury as
miscellaneous receipts.
This notice shall become effective immediately
upon publication in the Federal Register.
Approved: September 2, 1948.
For the Secretary of State.
[seal] John F. Peurifoy,
Assistant Secretary.
PUBLICATIONS
Foreign Relations of the United States, 1932,
Volume I, Released
[Released to the press October 2]
The Department of State on October 2 re-
leased Foreign Relations of the United States,
1932, volume I, General. This volume deals en-
tirely with multilateral subjects which do not
properly fall under separate country headings.
' 13 Fed. Reg. 5382.
Ocfober 10, J 948
477
PUBLICATIONS
The Foreign Relations record of American diplo-
macy for 1932 is contained in five volumes.
Volume II, The British Commonwealth, Europe,
the Near East and Africa, and volumes III fnd IV,
The Far East, have already been published.
Volume V, The A^nerican RepuMcs, will be ready
for publication in the near future.
The year 1932 is the first for which the mass of
documentation in the Department files is so great
that an expansion of the number of regular annual
volumes to five has been necessary. The reason
for this increase in diplomatic documentation is
primarily the development of those interna-
tional tensions which within a few years led to the
outbreak of World War II.
The central problem presented m the vohime
now released is that of negotiations for disarma-
ment, the subject treated in the first 574 pages of
documents. Efforts of the United States, with
considerable support from the British, to bring
about international agreement for reduction m
military forces failed of success in the face of the
German demand for military equality and the
French fear of disarming without other effective
guarantees of security. There were warnings even
then, before seizure of power by the Nazis, that
the spirit which dominated Germany in 1914 was
reviving, but the American Government was not
in a position at that time to pledge its aid to main-
tain peace or security in Europe.
Efforts for an adjustment of war-debt payments
are also extensively treated in this volume. Other
sections contain papers on preliminaries to the
London Economic Conference, the proposed eco-
nomic confederation of the Danubian states, ten-
sion over the Polish Corridor and Danzig, and a
number of technical and economic subjects.
A preface by the editor explains the principles
which guide in the compiling and editing of
Foreign Relations, and names the Department
officers responsible for the preparation of the 1932
volumes.
Copies of Foreign Relations of the United
States, 1932, volume I (cxv, 979 pages), may be
purchased from the Superintendent of Documents,
Government Printing Office, Washington, D. C,
for $3 each.
Other Publications
For Kale by the Siiprrintendent of Dornmentu, Government
Printing Office, Washington 25, D.C. Address requests
direct to the Superintendent of Docinuents. except in the
case of free puhlicutions, u-hich miiij he obtained from the
Depariment of State,
American Dead in World War II. Treaties and Other
Interaational Acts Series 1720. I'ub. 3113. 10 pp. 50.
Agreement Between the United States and France —
Signed at Paris Oct. 1, 1047; entered into force Oct.
1, 1917.
478
Liquidation of German Property in Sweden: Allocation
of Proceeds. Treaties and Otlier International Acts Series
1731. I'ub. 3153. 4 pp. 50.
Understanding Between the United States and
Fi-jiuce— Effected by exchange of notes dated at Wash-
ington July 18, 1040 ; entered into force July 18, 1946.
Education: Cooperative Program in Ecuador. Treaties
and Other International Acts Series 1749. Pub. 3191.
24 pp. 10(f.
Agreement Between the United States and Ecuador
Extending and Modifying Asreenient of Jan. 22,
1945— Effected by exchange of notes signed at Quito
Oct. 2 and Nov. 14, 1947 ; entered into force Nov. 14,
1947, effective from Jan. 22, 1948.
Mutual Aid Settlement. Treaties and Other International
Acts Series 1750. I'ul). 3102. 30 pp. 150.
Agreement and Exchanges of Notes Between the
United States and the Netherlands— Signed at Wash-
ington May 28, 1947 ; entered into force May 28, 1047 ;
Agreement Between tlie United States and the
Netherlands Indies- Signed at Washington May 28,
1047 ; entered into force May 28, 1947 ; and Memoran-
dum of Arrangement Between the United States, the
United Kingdom, and the Netherlands— Signed at
Washington" May 28, 1947; entered into force May
28, 1947.
Proceedings and Documents of the United Nations Mone-
tary and Financial Conference. Bretton Woods, New
Hampshire, July 1-22, 1944. Vol. I. International Organ-
ization and Conference Series I, 3. Pub. 2860. 1126 pp.
$3.50.
Includes principal substantive documents showing the
work of the three commissions of the Conference.
The material in this volume outlines the proce<lures
which led to the Articles of Agreement of both the
International Monetary Fund and the International
Baidv for Reconstruction and Development. Volume
II will contain additional substantive documents, lists
of docimients and symbols, and a comprehensive index
to both volumes.
Italy: Establishment of Four Power Naval Commission,
Disposal of Excess Units of Italian Fleet, and Return by
Soviet Union of United .States and British Warships on
Loan. Treiities and Other International Acts Series 1733.
Pub. 3155. 6 pp. 5^.
Protocol Between the United States, the Union of
Soviet Socialist Republics, the United Kingdom of
Great Britain and Northern Ireland, and France —
Signed at Paris February 10, 1947; entered into force
February 10, 1947.
American Dead in World War II; Sites in Italy for Estab-
lishment of aiilitary Cemeteries. Treaties and Other
International Acts Series 1743. Pub. 3183. 3 pp. 50.
Agreement Between the United States and Italy Modi-
fying the Agreement of September 13 and 26, 1946 —
Effected by exchange of notes dated at Washington
December IS, 1947, and January 21, 1948 ; entered into
force January 21, 1048 ; And Un<lerstanding Between
the United States and Italy Amending the agree-
ment <if December 18, 1947, and January 21, 1948 —
Effected hv exchange of notes dated at Washington
March 24 and April 19, 1948; entered into f<irce April
19, ]94,S.
United States Educational Foundation in Greece. Trea-
ties and Other International Acts Series 1751. Pub. 3193.
39 pp. 150.
Department of Slate Bulletin
Agreement Between the United States and Oreece —
Signed at Athens April 23, 104S; entered intn force
April 23, 194S.
Air Transport Services. Treaties and Other International
Acts Series 1753. I'ub. 3198. 13 pp. 5<t.
Agreement Between the United States and Paraguay —
Signed at Asuncii'in February 2S, 19-17 ; entered into
force Febrnary IC, 1948.
Regulation of Production and ."Marketing of Sugar. Trea-
ties and Other International Acts Series 1755. I'ub.
3213. 5 pp. 5^.
Protocol Between the United States and Other Gov-
ernments Prolon^ring the International Ai;reement of
May 6, 1937— Signed at Ixmdon August 29, 1947;
ratification advised by the Senate of the Unitetl States
April 28, 1948; ratified by the President of the United
States May 14, 1948 ; ratification of the United States
deposited in the Archives of the Government of the
I'nited Kingdom of Great Britain and Northern Ire-
land May 25, 1948; proclaimed by the President of the
United States .Time 1, 1948 ; eliCective September 1, 1947.
Military Obligations of Certain Persons Having Dual
Nationality. Treaties and Other International Acts Series
17.5t!. Pull! 3214. 4 pp. 5c.
Agreement Between the United States and France —
Effected by exchange of notes signed at Paris Febru-
ary 25, 1948 ; entered into force February 25, 1948.
Publications of the Department of State. July 1, 1948.
Pub. 3219. 12 pp. Free.
A semiannual list cumulative from January 1, 1948.
Air Service: Transfer and Maintenance of Radio Range
and SCS 51 Equipment. Treaties and Other International
Acts Series 17r.»;. Pub. 3234. 6 pp. 5^.
Agreement Between the United States and the United
Kingdom of Great Britain and Northern Ireland —
Effected by exchange of notes signed at London May
8 and July 31. 1946 ; entered into force July 31, 1946.
Documents and State Papers.
60 pp. 30^.
August 1948. Pub. 3236.
Contains articles on freedom of the air; America's in-
terests in Hungarian struggle for Independence ; and
the problem of voting in the Security Council.
Economic Cooperation with France Under Public Law
472 — SOth Congress. Treaties and Other International
Acts Series 17s;^. Pub. 3251. 59 pp. 1.5.;'.
Agi-eement Between the United States and France —
Signed at Paris June 28, 1948 ; entered into force July
10, 1948.
Presidential Elections. Provisions of the Constitution and
of the United States Code. Pub. 3261. 12 pp. 5<l.
Progress Report on Human Rights. International Organi-
zation and Conference S'eries III, 13. Pub. 3262. 16
pp. lOi*.
An analysis of the accomplishments of the United
Nations Commission on Human Rights through the
two years of its existence showing the status of the
declaration and covenant of htuaan rights as drafted
in the Commission.
The Berlin Crisis: A Report on the Moscow Discussions.
1948. Kuroi)ean and Britisli Commonwealth Series 1.
Pul). ;'.29S. (;l pp. 20C.
October 10, 1948
A review of the events lending to the Berlin crisis
including documents showing stages of diplomatic
discussion.
No Compromise on Essential Freedoms. International
Organization and Conference Series III, 16. Pub. 3299.
13 pp. Free.
Address by Secretary of State, George C. Marshall,
before the General Assembly of the United Nations,
Paris, September 23, 1948.
THE CONGRESS
Trade Agreements Program : Testimony before the Sub-
committee on TarilTs and Foreign Trade of the Committee
on Ways and Means, House of Representatives, SOth Cong.,
2d sess.. on the Operation of the Trade Agreements Pro-
gram. May 3, 4, 5, 6, 7, and 8, 1948. vi, 542 pp.
Structure of the United Nations and tlie Relations of
the United States to the United Nations: Hearings be-
fore the Committee on Foreign Affairs, House of Repre-
sentatives, SOth Cong., 2d sess. May 4, 5, 6, 7, 11, 12, 13,
14, 1948. vi, 591 pp. [indexed.]
The International Wheat Agreement : Hearings before
a Subcommittee of the Committee on Foreign Relations,
United States Senate, SOth Cong., 2d sess., on the ratifi-
cation by the United States Government of the Interna-
tional Wheat Agreement. May 14, 15, and 17, 1948. iii,
226 pp. [Department of State, pp. 29-37.]
War Claims Commission : Hearings before a Subcom-
mittee of the Committee on the Judiciary, United States
Senate, SOth Cong., 2d sess., on H. R. 4044, an act to amend
the Trading with the Enemy Act, as amended ; to create
a commission to make an inquiry and reiwrt witli respect
to war claims; and to provide for relief for internees
in certain cases. Feb. 17, 19. Mar. 9, and May 11, 1948.
iii, 250 pp. [Department of State, pp. 21-27, 223-29.]
Investigation of Questionable Trade Practices : No. 32,
Hearings before the Subcommittee To Investigate Ques-
tionable Trade Practices of the Committee on Public
Works, House of Representatives, SOth Cong., 2d sess.,
pursuant to H. Res. 403, a resolution to authorize and
direct the Public Works Committee, or any subcommittee
thereof, to make a study of conspiratorial or otlier ques-
tionable practices. Part 1, Jan. 5, 26, Feb. 26, Mar. 30, 31,
Apr. 19, June 3, 4, Aug. 10, 194S. iv, 528 pp. [Department
of State pp. 323-341.]
Investigation, Disposition of Surplus Property : Hear-
ings before the Surplus Property Subcommittee of the
Committee on Expenditures in the Executive Department,
SOth Cong., 2d sess., pursuant to H. Res. 90 and H. Res.
100. Part 7 : Hearings on exportation of surplus ma-
terials to foreign governments, leasing of aircraft by the
Department of the Air Force, di.sposal of Lend-Lease ma-
terials originally purchased for U.S.S.R. Mar. 24 and 25,
Apr. 15. 1948. iv, 124 pp. [Department of State, pp. 2095-
2104, 2135-48.]
Reorganization Plan No. 1 of 1948 : Hearings before
tlie Committee on Expenditures in the Executive Depart-
ments, House of Representatives, SOth Cong., 2d sess., on
H. Con. Res. 131, Feb. 5, 6, and 7, 1948. iv, 332 pp.
.\mending Section 32 (A) (2) of the Trading with the
Enemy Act. H. Rept. 1842, SOth Cong., 2d sess., to ac-
company H. R. .5960. 4 pp.
Amending Section 33 of the Trading with the Enemy
Act. H. Rept. 1843, SOth Cong., 2d sess., to accompany
H. R. 6110. 3 pp.
Protecting the United States Against Un-American and
Subversive Activities. H. Rept. 1844, SOth Cong., 2d sess.,
to accompany H. R. .5852. 14 pp.
Final Report on Foreign Aid of the House Select Com-
mittee on Foreign Aid, pursuant to H. Res 296, a resolu-
tion creating a Select Committee on Foreign Aid. H. Rept.
1845, SOth Cong., 2d .sess. xvi, 8S3 pp.
479
'£enM'
The U.N. and Specialized Agencies Pag«
The Struggle for Human Rights. Address by
Mrs. Franklin D. Roosevelt 457
Albania and Bulgaria Continue To Reject
Unscob:
Summary of U.S.-Bulgarian Correspond-
ence 461
Albania's Reply to Tripartite Appeal . . . 461
The U.S. in the U.N 463
The Opportunity of the National Commis-
sion 472
Occupation Matters
The Berlin Crisis:
U.S. Notifies U.N. of Serious Situation . . 455
List of Related Documents 456
Position on Withdrawal of Troops From
Korea. Exchange of Notes Between
U.S. and Soviet Governments 456
Economic Affairs
Representatives to Weights and Measures
Conference 466
Policy on Commercial Fishing in Pacific
Island Trust Territory:
Joint Agency Approval 468
Te.xt of Policy Directives 469
U.S. Vessels Sailing to Arctic in Support of
Canadian-U.S. Joint Weather Station
Program 471
Records of Nares and Peary Canadian Arctic
Expeditions Found 471
Control of Foreign Assets in U.S. Ended . . 472
General Policy
Two U.S. Citizens Held Incommunicado in
Hungary Released 469
Sale of Surplus Combat Materiel 477
Ambassador Butler To Represent President
at Cuban Inauguration 470
Treaty Information
Toward Revision of the Geneva Convention.
Article by Wilham H. McCahon .... 464
Treaty Information — Continued Page
Agreement Between U.S.-U.K. Proposing
International Committee on Scrap . . . 467
Economic Cooperation Agreement With Por-
tugal Signed 470
Air Transport Agreement With Bolivia . . . 470
Proclamation on Revision of Ilo Conven-
tion 472
Surplus Property Agreements on Educational
Exchange With United Kingdom and
New Zealand Signed 473
International information and
Cultural Affairs
Department of State To Have Full Direction
of Voice of America Programs 470
Freedom of Information. Statement by
Secretary Marshall 473
Surplus Property Agreements on Educational
Exchange With United Kingdom and
New Zealand Signed 473
Brazilian Cultural Leader Visits U.S. . . . 474
Brazilian Philosopher Visits U.S 474
Visit of Chilean Historian 474
Language Professor To Teach in Haiti . . . 474
The Department
Schedule of Fees by Interim Office for German
Affairs 477
Publications
Foreign Relations of the United States, 1932,
Volume I, Released 477
Other Publications 478
The Foreign Service
Rules of Precedence Relating to Foreign
Service and Government Officers . . . 475
Fifteen Hundred Persons Complete Foreign
Service Examinations 475
Test Program Conducted for International
Health Information 476
Closing of Consular Offices and Opening of
New Offices 476
The Congress 479
%<yrvt^mwt(y}^
WllUam H. McCahon, author of tlie article on the Inter-
national Committee of the Red Cross, is Special Assistant to the
Chief of the Division of Protective Services, Office of Controls,
Department of State. Mr. McCahon served as Technical Adviser
on the U.S. Delegation to the Seventeenth International Red
Cross Conference.
¥!
U. S. GOVERNMENT PRINTING OFFICE: 1949
tJne/ ^eha^t^nteni/ y(w t/taie^
PROGRESS OF U.N. IN PARIS • Statements by the
President and Secretary Marshall ........ 483
DISCUSSION IN THE SECURITY COUNCIL OF THE
BERLIN CRISIS • Statement by Philip C. Jessnp . . 484
FIRST CONGRESS OF THE INTERNATIONAL
THEATRE INSTITUTE • Article by Rosamond Gilder . 488
For complete contents see back cover
Vol. XIX, No. 485
October 17, 1948
^ENT Ofr
tes
U. S. SUPERIt-n'EKOENT OF pOUUMtNlS
DEC 2 1948
«.*^,wy*. bulletin
Vol. XIX, No. 485 • Pdblication 3314
Oaober 17,1948
For sale by the Superinterdent of Documents
U.S. Oorernmcnt rrintinf Oflice
Washinglon 26, D.C.
PniCK:
62 Issues, domestic $5, foreign $7.25
Single copy, 16 cents
Published with the approval of the
Director of the Bureau of the Budget
Note: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Department
or State Bulletin as the source will be
appreciated.
ThelDepartment of State BULLETIN,
a^iveekly publication compiled and
edited in the Division of Publications,
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currently.
THE UNITED NATIONS AND SPECIALIZED AGENCIES
Third Regular Session of the General Assembly
Discussions on Progress of U.N. in Paris
STATEMENT BY THE PRESIDENT
[Released to the press by the White House October 9]
General Marshall has returned to Washington
at my request to report to me on the progress of
the work of the various United Nations bodies in
Paris. I had a long talk with him this morning,
and again this afternoon. He gave me a detailed
picture of what has been taking place in Paris, and
we discussed questions relating to the future
course of this Government in the various matters
at issue.
With regard to the report published in this
morning's press concerning a possible journey of
Chief Justice Vinson to Moscow, the facts are as
follows : On last Tuesday, when I communicated
with Secretary Marshall, I told him of my continu-
ing great desire to see peace firmly established in
the world, and of my particular concern at this time
over the attitude taken by the Soviet representa-
tives regarding the atomic problem. I said that
I was wondering whether their attitude did not
reflect a misunderstanding in the minds of the
Soviet leaders so serious, from the standpoint of
world peace in general, that we would be remiss if
we left undone anything that might conceivably
serve to dispel it. I asked the Secretary whether
he felt that a useful purpose would be served by
sending to Moscow Chief Justice Vinson, in an
effort to make the Soviet leaders understand the
seriousness and sincerity of the feelings of the
people of the United States about these matters.
Secretary Marshall described to me the situation
which we faced in Paris, and, in the light of his
report and the possibilities of misunderstanding
to which any unilateral action, however desirable
otherwise, could lead at present, I decided not to
take this step.
My talk with Secretary Marshall has been grati-
fying to me. I was glad to hear his report of the
unity which has prevailed between ourselves and
the French and British representatives in Paris in
all phases of the handling of the Berlin crisis, and
of the earnest efforts being made by the Security
Council and the General Assembly of the United
Nations to find solutions to many of the other prob-
lems which have been troubling people everywhere.
I was glad to be able to assure him of the determi-
nation with which people in this country are sup-
porting our efforts to find the road to peace.
STATEMENT BY SECRETARY MARSHALL
[Released to the press October 9]
At his press conference on October 9 Secretary
of State George C. Marshall said :
"The President called me home to go over with
him the intimate details of what had happened in
Paris. The daily events had been reported by
radio. We settled on this week end as being the
time most convenient to both of us to get together.
I did not know until I got off the plane this morn-
ing of the statements in the press regarding the
matter of Chief Justice Vinson making a direct
approach to Generalissimo Stalin.
Due to his very special position in this matter,
the President had been deeply concerned by the
intransigent attitude of the Soviet Government
during the debate of the atomic problem of the
past ten days. He called me late Tuesday after-
Oc/ofaer U, 1948
noon to a teletype conference and discussed with
me the proposal of sending Justice Vinson direct
to Moscow. After discussing the matter with him
by teletype, the President decided it would not be
advisable to take this action. Tlie matter was then
dropped. I had called to my attention in Paris
and since my arrival here several statements in the
press or by radio to the effect that there was a
split between the President and the Secretary of
State regarding important matters of foreign rela-
tions. There is no foundation for this. As a
matter of fact, the policy to be followed by our
Delegation in the current meeting of the United
Nations General Assembly and of the Security
Council was decided upon by the President before
I left for Paris and has been the basis for the
implementation by our delegates of the American
483
THE UNITBD NATIONS AND SPECIAUZED AGENCIES
position in the conferences in Paris. Such state-
ments can do no good and they certainly can do
a great deal of harm and I deplore them.
My plans at present are a little indefinite but
I will probably return tomorrow night to Paris.
The issues being discussed there are highly im-
portant and it is important that I be present."
Asked whether this Government had reached a
position of reopening discussions of the German
question with the Soviet Union, Secretary Marshall
said:
"We are perfectly ready to enter into negotia-
tions with the Council of Foreign Ministers on the
Berlin question, on the German question, if and
provided first, the blockade is raised."
In this connection the Secretary was asked
whether this willingness on the part of the United
States to reopen negotiations permitted or ex-
cluded talks with the Foreign Ministers simultane-
ously with the lifting of the blockade. Secretary
Marshall replied: "Yes, it precludes that. The
blockade must be lifted before we meet."
Discussion In tiie Security Council of the Berlin Crisis^
STATEMENT BY PHILIP C. JESSUP
Deputy U.S. Representative in the Security Council
[Released to the press October 8]
The United States Government has sought by
peaceful means to remove the threat to peace
created by the Soviet Union, which, while it re-
mains, is the insuperable obstacle to free nego-
tiation. Our very resort to the Security Council
is a further use of the same peaceful means and is
directed to the same end. The United States will
be no party to encouraging or submitting to prac-
tices which would make a mockery of the Charter.
Secretary Marshall also declared in his address :
"For its part, the United States is prepared to seek
in every possible way, in any appropriate forum,
a constructive and peaceful settlement of the po-
litical controversies which contribute to the pres-
ent tension and uncertainty." I say expressly that
this statement includes continued readiness of the
United States to negotiate with the Soviet Gov-
ernment in any appropriate forum regarding any
issue outstanding between it and the United States
Government. The term "any appropriate forum"
includes the Council of Foreign Ministers. But
what we are now discussing is tliis barrier to nego-
tiations — this threat to the peace created by the
Soviet blockade of Berlin. The appropriate
forum for discussion of the threat to peace is this
Security Council. We are here to discuss it.
What constitutes a "threat to peace" as that term
is used in article 39 ? A threat to peace is created
when a state uses force or threat of force to secure
' Excerpts from Mr. Jessup's statement made before the
Security Council on Oct. 6, 1948. In this statement Mr.
Jessup reviewed the development of the Berlin blockade
and the breakdown of the discussions at Moscow between
representatives of the Western Powers and the Soviet
Union. For this material see The Berlin Crisis, A Report
of the Moscoic Discussions, 1948, Department of State
publication 3298.
484
compliance with its demands. Acts of the Soviet
Government in illegally obstructing by threat of
force the access of three Western Powers to Ber-
lin creates a threat to peace.
The Soviet Union may pretend it cannot under-
stand why it can be charged with threat or use
of force against the United States, France, i^nd
the United Kingdom when a primary consequence
of its action falls directly and intentionally upon
the civilian population of Berlin for whose well-
being the three Western occupying powers are re-
sponsible. That an effort should be made to de-
prive two and one-half million men, women, and
children of medicines, food, clothing, and fuel, to
subject them to cold and starvation and disease,
may seem to some a small matter. But to us, the
welfare of people committed to our charge is a
matter of serious concern. We cannot be callous
to the sufi'ering of millions of people in any coun-
try, much less when we have responsibility for
them as an occupying power.
Today the daily living requirements of these
2,500,000 people, two thirds of the population of
Berlin, are being met by the combined efforts of
the British and American air forces; 250 planes
are supplying the western sectors of Berlin with
food, coal, and other essentials. Efforts of thou-
sands of American and British and French men
and women have been devoted to the organization
and establishment of an air bridge, which, in one
day, has delivered almost 7,000 tons of supplies
to the land-blocked city. The Security Council,
as well as the population of Berlin, may well re-
gard the air-lift as a symbol of peace and of meth-
ods of a pacific settlement.
But the fact that the courage and ingenuity of
men and women who are participating in this stu-
Deparfmenf of State Bulletin
ponduous achievement saved the people in Berlin
from much of the suffering which the Soviet Gov-
ernment sought to enforce upon them does not
mean the threat to peace is removed. The Mem-
bers of the Council will recall that Marshal So-
kolovsky, in an obvious attempt to counteract the
air-lift, in complete disregard of the directive
as interpreted by Premier Stalin himself, in-
sisted upon new restrictions upon air transporta-
tion between Berlin and the Western zones of Ger-
many. The Soviet Government, in a note of Sep-
tember 25, instead of repudiating Marshal
Sokolovsky's action, added new demands that
air communications should be subjected to the con-
trol of the Soviet command.
Origin of Rights
The United States is in Berlin as of right. The
rights of the United States as a joint occupying
power in Berlin derive from the total defeat and
unconditional surrender of Germany. Article I of
jirotocol on zones of occupation in Germany agreed
to by the Soviet Union in the European Advisory
Commission on November 14, 1944, provides :
"I. Germany, within frontiers as were on De-
cember 31, 1937, will, for purposes of occupation,
be divided into three zones, one of which will be
allotted to each of three powers, and a special Ber-
lin area, which will be under joint occupation by
the three powers."
This agreement (later amended to include
France) established the area of Berlin as an in-
ternational enclave to be jointly occupied and
administered by four powers.
The representatives of commanders-in-chief
adopted, on July 7, 1945, a resolution establishing
tlie Allied Kommandatura for administration of
Berlin. The Kommandatura was to be under the
direction of the chief military commandant, which
post was to be held in rotation by each of four
military commanders. The chief military com-
mandant in consultation with the other command-
ers was to exercise administration of all Berlin
sectors when a question of principle and problems
common to all sectors arose. In order to exercise
supervision of Berlin local government, one or two
representatives from each Allied command were
to be attached to each section of the local German
government.
Implicit in these agreements is the right of each
of the four powers to free access to and egress from
the greater Berlin area. Xot only has this right
been clearly recognized and confirmed by the So-
viet Union by practice and usage for almost three
years, but it has been the subject of written agree-
ments between the respective governments as well
as by their representatives in the Allied Control
Council for Germany. Rights of free access were
Ocfofaer 17, 1948
THB UN/rfD NATIONS AND SPECIALIZeO AGCNCIBS
directly specified in the message from President
Truman to Premier Stalin on June 14, 1945, which
agreed to withdraw back to the prescribed zonal
boundaries those forces which in the course of the
war had overrun part of the territory which later
became the Soviet zone of occupation, provided
satisfactory arrangements for free access by rail,
road, and air to the forces in Berlin could be en-
tered into between the military commanders. I
quote one sentence from the Truman message :
". . . As to Germany, I am ready to have in-
structions issued to all American troops to begin
withdrawal into their own zone on June 21 in
accordance with arrangements between the respec-
tive commanders, including in these arrangements
simultaneous movement of the national garrisons
into greater Berlin and provision of free access by
air, road and rail from Frankfurt and Bremen to
Berlin for United States forces."
Premier Stalin replied on June 16, 1945, accept-
ing this plan excepting for a change in date. Pre-
mier Stalin gave assurances that all necessary
measures would be taken in accordance with the
plan. Correspondence in a similar sense took
place between Premier Stalin and Prime Minister
Churchill. Premier Stalin thus agreed that the
Western occupying powers should have "free access
by air, road and rail" to Berlin. Even in the
Russian language, "free access" does not mean
"blockade".
The four zone commanders met in Berlin on
June 29, 1945, to put the agreement of the Chiefs
of State into force. At this meeting it was agreed
that the Western Powers would withdraw their
forces from the Soviet zone and would have the
use of the Helmstedt-Berlin Autobahn and rail
routes without restriction and subject only to the
normal traffic regulations of the Soviet zone. In
replv to a question from General Clay, Marshal
Zhukov, the Soviet commander, stated : "It will be
necessary for vehicles to be governed by Russian
road signs, military police, document checking, but
no inspection of cargo — the Soviets are not inter-
ested in what is being hauled, how much or how
many trucks are moving." In accordance with
this understanding, the United States, whose
armed forces had penetrated deep into lands of
Saxony and Thuringia, in the Soviet zone, with-
drew its forces to its zone. Simultaneously,
United States garrisoning forces took up their
position in Berlin.
The right of the United States to be in Berlin
thus stems from the same source as the right of the
Soviet Union. Rights of occupying powers are
co-equal as to fi'eedom of access, occupation, and
administration of the area.
Confirmation by Agreements and Usage
It clearly results from these undertakings that
Berlin is not a part of the Soviet zone of occupa-
485
THf UNITED NATIONS AND SPECIALIZED AGENCIES
tion, but is, by express agreement, an international
enclave. Commitments entered into in good faith
by the commanders of the four zones of occupation,
agreements reached by the Allied Control Author-
ity in Germany, as well as uncontested usage, have
recognized basic rights of the United States in the
joint administration of Berlin and rights of free-
dom of access thereto for the purpose of fulfilling
United States obligations and responsibilities as an
occupying power.
Since July 7, 1945, it agreed that supplies neces-
sary for the welfare of the people of Berlin were a
joint responsibility of the four powers. There
have been a series of quadripartite agreements en-
tered into between July 1945 and April 1948 for
the joint provision of food, solid fuels and electric
IDOwer, and medical supplies.
All agreements, of course, carried with them the
right of access to permit the Western occupying
powers to bring their share of supplies to Berlin.
Pursuant to agreement in the Control Council
establishing train paths, military trains regularly
traversed the Helmstedt-Berlin train route.
There was no inspection by Soviet authorities and
no Soviet permit was required for outgoing ship-
ments from the Berlin area. Proof of identity
through proper documentation was sufficient to
coniply with traffic regulations, whicli during this
period were reasonable and were fully accepted by
the Western Powers. Similarly, personnel of the
United States Military Forces and other United
States officials traveled freely by train or motorcar
over the rail and Autobahn'routes from Berlin to
Helmstedt without Soviet visa.
Air corridors were established between the
Western zones and Berlin with unrestricted flight,
subject, of course, to safety regulations. Three
such corridors were established in November 1945
by Four Power agreement in the Allied Control
Council to augment the single provisional corridor
agreed to in the meeting of the Allied Command-
ers-in-Chief on July 7, 1945. In December 1945
uniform safety regulations were adopted in these
corridors, under which aircraft have operated con-
tinuously since that date. These regulations were
reaffirmed by publication on October 22, 1946, of
the agreed second revision of these flight rules.
In practice, military and civilian airline aircraft
of the three Western Powers used the corridors
for unlimited flight without notification to Soviet
authorities.
Bilateral agreements were made by British and
Soviet authorities concerning barge traffic between
their two zones. Quadripartite arrangements con-
cerning postal traffic, telecommunications and
movement of Germans between the Western zones
and Berlin were concurred in, and carried out
satisfactorily, prior to institution by the Soviet
Union of blockade measures.
There can thus be no question of the legal basis
4a6
for United States rights to free access to Berlin or
of recognition of these rights by the Soviet Union.
Regulation of Traffic
The United States maintains its basic juridical
rights of fi'ee access to Berlin. These are clearly
established and recognized by the Soviet Govern-
ment. As every reasonable and practical person
knows, rail, road, barge, and air traffic must be
subject to some degree of regulation. Let me re-
peat the statement of Marshal Zhukov on June 29,
1945:
"It will be necessary for vehicles to be governed
by Russian roadsigns, military police, and docu-
ments checking, but no inspection of cargo —
Soviets not interested in what is being hauled, how
much or how many trucks are moving."
The United States agi-eed to this position and
we still agree. We do not assert freedom of access
means absence of reasonable regulations, but pre-
caution cannot be distorted to mean imposition of
restrictions to the i^oint where the principle of
free access is completely strangled. The United
States will not permit the Soviet Govermnent to
use the agreed principle of reasonable regulation
as a measure to cloak the threat of force designed
to force the United States to abandon Berlin to
single domination and rule by the Soviet Union.
Development of tlie Berlin Blocl<ade
When the three Western Powers on July 3
formally protested in Moscow against the block-
ade, the Soviet Government's reply of July 14 con-
tained no reference to the previous Soviet explana-
tion that the blockade measures were due to "tech-
nical difficulties". Rather it openly admitted the
blockade was in effect retaliation against actions
of the Western Powers in their own occupation
zones of Germany, empliasizing in this connection
the currency reform of the- Western zones. Now,
for the first time, and in direct conflict with all
agreements to the contrary, the Soviet Government
put forward the claim that Berlin "is a part of"
the Soviet zone of Germany. The Soviet note
ended with the contention that Berlin problems
were inseparably linked with questions involving
the whole of Germany and negotiations would be
effective only if they encompassed the entire Ger-
man situation. Moreover, the Soviet Government
refused to permit the restoration of lines of com-
munication between the Western zones and Berlin,
which restoration was declared by the United
States Government to be a prerequisite for any
negotiations.
Finally, the hollowness of various Soviet pre-
texts for imposition of the Berlin blockade was
completely exposed at the recent meetings of the
four military governors when, in total disregard
of the dii'ective agreed upon in Moscow, the Soviets
demanded measures of permanent control of traf-
Department of Sfafe Bullef'm
fie between Berlin and the West, measures to be
continued even after Western zone currency would
have been removed from Berlin. The Soviet note
of September 22 reinforced this demand and thus
gave final proof, if any were needed, that Soviet
blockade measures are designed to force the three
Western Powers to abandon imder duress their
rightful position in Berlin.
Soviet Attacks on Berlin Municipal Institutions
In addition to the blockade, the Soviet Govern-
ment, to the same end, resorted to other measures
of duress against the Western Powers by attempt-
ing to undermine and sabotage the lawfully con-
stituted city government of Berlin. This govern-
ment had been formed in accordance with the
temporary constitution of Berlin — an instrument
approved by the Allied Control Authority.
United States licensed German publications
were repeatedly confiscated by German Soviet
sector police in direct violation of Control Council
directive number 55. The Soviet licensed press in
Berlin, which of course prints onl}' items approved
by the Soviet authorities, became more strident in
attacks on the Western Powers and the elected
city government of Berlin.
Perhaps most serious, Soviet authorities con-
doned and encouraged public disorders in the
Soviet sector of Berlin.
Discussions With Soviet Government
Indeed, since the very beginning of the Soviet
imposition of the illegal blockade, the United
States Government has made direct, repeated, and
persistent efforts to adjust with the Soviet Govern-
ment the dangerous situation in Berlin.
These efforts were made to obtain the lifting of
the blockade which has created a threat to peace
which the Security Council is now considering.
To achieve this objective, the United States Gov-
ernment was prepared, and is still prepared, to
work out in good faith practical arrangements
which would permit the introduction of the Ger-
man mark of the Soviet zone, under appropriate
Four Power control, as the single currency for
Berlin. However, it was not and is not willing to
yield its rights and obligations regarding Berlin
or Germany under coercive pressure of the Soviet
blockade. It was made clear that the removal of
this coercive pressure would open the door to ne-
gotiations on other outstanding issues regarding
Berlin. This was repeatedly expressed, was and
still is the policy of the United States Government.
The course of the negotiations in Berlin was
characterized by the failure of the Soviet military
governor to abide by the understandings reached
in Moscow. ^
Ocfober 17, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
He proposed new restrictions on transport by
demanding that air trailic be limited to supplying
the needs of the occupation forces in Berlin. No
such restriction heretofore existed or was ever
agreed to. The Directive to the four military gov-
ernors called for the removal of all restrictions,
not the imposition of new ones.
On September 22, the three Western Govern-
ments sent identical notes to the Soviet Govern-
ment in which they set forth their final position
on three issues of principle. In view of the mani-
fest unwillingness of the Soviet authorities to
carry out the agreement reached in Moscow, the
three Western Governments also called upon the
Soviet Government to lift the blockade and to
specify the date on which that would be done. The
illegal blockade had been then imposed for over
three months. Further talk was obviously point-
less. Action by the Soviet Union to cease its at-
tempt to induce compliance by duress was essential.
The Soviet Government made its unsatisfactory
reply on September 25. It went even further
than Marshal Sokolovsky in demanding control
by the Soviet military command over air traffic
between Berlin and the West.
Role of the Security Council
The salient feature of the case before the Se-
curity Council is that the Soviet blockade is still
maintained and thus continues in existence a threat
to the peace which it created.
That is the reason why this case has been brought
before the Council as a threat to peace within the
meaning of chapter VII of the Charter. Con-
sidering the circumstances which confront us it
would have been disingenuous to call the blockade
and its actual, as well as its potential, consequences
by any other name.
However, the fact that this matter comes before
the Council under chapter VII of the Charter does
not mean the Council is precluded from using any
of the machinery of pacific settlement suggested
in any part of the Charter. In this case, as in all
cases that come before it, the Security Council has
the greatest flexibility of action in order to carry
out the primary responsibility conferred upon it
for maintenance of peace.
Mr. President, we do not bring this case to the
Security Council with any cut-and-dried formula
for its solution. It is our hope the Security Coun-
cil can assist in removing the threat to peace. Noth-
ing which has happened has changed our position
on that point. The moment that the blockade is
lifted, the United States is ready to have an im-
mediate meeting of the Council of Foreign Min-
isters to discuss with the Soviet Union any ques-
tions relating to Germany.
487
First Congress of the International Theatre Institute
BY ROSAMOND GILDER
The International Theatre Institute came into
official existence on July 1, 1948. This important
event in world theater was the outcome of more
than two years' work on the part of a large number
of theater workers in more than twenty countries.
Encouraged and assisted by the United Nations
Educational, Scientific and tultural Organization
(UxESCo), theater experts from Europe, Asia, the
United Kingdom, and North and South America
had met at Paris. France, in the summer of 1947
and had laid the foundation of a structure which is
planned as a permanent woi-ld-wide autonomous
organization serving, sustaining, and developing
the theater in every country of the globe.
The concept has its basis in the conviction that
the artists of the world speak a common language
and can serve as valuable agents in obtaining mu-
tual understanding and good will among nations.
As early as November 1946. the creation of a per-
manent International Institute was envisaged by
UxEsco's committees. The project had been car-
ried to completion by Uxesco. not only by the call-
ing of the experts' meeting in 1947 and' the Con-
gress in 1948, but by the untiring efforts of the
theater section of Uxesco"s Paris secretariat where
there has been a permanent focus of continuing
activity through the past two years. Today, as a
result of UxESco's efforts, the theaters of the' world
have a well-organized international body which
every country capable of setting up a national
center within its own borders is invited to join. It
has a progi-am of activities, immediate and long-
range, an active executive committee and, by Janu-
ary 1, 1949. it will have a home of its own.
UNESCO, having fostered this new international
body, will, it is confidently expected, continue to
assist it for the next few years. In the meanwhile,
the Institute will build up its own resources, in-
crease its membership, and become a force in "pro-
moting international exchange in the knowledge
and practice of the arts", as its constitution
succinctly states.
Twenty countries were represented at the First
International Theatre Congress of the Interna-
tional Theatre Institute which was held at Praha,
Czechoslovakia, from June 28 to July 3, 1948.
These were Australia, Austria, Belgium, Canada,
China, Czechoslovakia, Denmark, Egvpt, Finland,
France, Hungary, the Netherlands, Norway, Po-
land, Sweden, Switzerland, the Union of South
Africa, the United Kingdom, the United States,
and Yugoslavia. After a formal opening session
488
at which the host country was represented by the
Minister of Foreign Affairs and the Minister of
Education, and speeches were made by Julian
Huxley, Director General of Unesco, Jindrich
Honzl, director of the National Theatre and head
of the Czechoslovak Delegation, and J. B. Priest-
ley, the British playwright who had been chairman
of the interim committee, the delegates went into
plenary session and elected Mr. Priestley president
of the Congress.
Five days were none too long for the three major
subcommittees into which the Congress resolved
itself to accomplish their tasks. The Committee
on Organization, headed by Emil Oprecht of
Switzerland, guided the draft charter through its
last phases and untangled the various organiza-
tional snarls. The Committee on the Exchange of
Companies, under the chairmanship of Dr. Arnold
Szyfman of Poland, worked out ways and means
to smooth the path of theater groups planning in-
ternational tours. The Committee on Informa-
tion, presided over Dr. Yui Shan^Yuen of China
and Mile. Jeanne Laurent of the French Ministry
of Education, made a host of decisions leading to
the immediate establishment of an information
bulletin and other publications.
When the Congress met in final plenary session
July 1, the following countries, represented by dele-
gates of fully established national centers, voted
the International Theatre Institute into being:
Austria, Belgimn, China, Czechoslovakia, France,
Poland, Switzerland, and the United Kingdom.
An Executive Committee was elected of which
Arman Salacrou, the French playwright, is presi-
dent, and the other members are Erich Nikowitz,
Austrian actor and director; Maurice Huisman,
director of the Belgium National Theatre; S. I.
Hsuing, Chinese author and playwright ; Jindrich
Honzl, director of the National Theatre, Praha;
Kichard Ordynski, Polish director-designer;
Llewellj'n Rees, drama director of the Arts Coun-
cil of Great Britain ; and Emil Oprecht, president
of the Association of Swiss Theatre Directors.
The Executive Committee at its first meeting de-
cided on Paris as the temporary headquarters of
the International Theatre Institute and named
Maurice Kurtz as secretary general, the appoint-
ment to take effect when the Institute moves to
its o.wn quarters in January 1949. It also ap-
pointed an Editorial Committee of four — Rosa-
mond Gilder, Rene Hainaux, Emil Oprecht, and
Kenneth Rae — to work out details of the inf orma-
Deparfment of State Bulletin
tion bulletin which will appear this year and to
phiii for future publications.
The United States was represented at the Praha
Congress by an observer delegation of three. Two
of the delegates, Rosamond Gilder and Warren
Caro, were nominated by the Department of State
while Clarence Derwent, president of Actors'
Equity, represented the American National Thea-
tre and Academy. The American delegates were
active on all the committees. Two of them, Miss
Gilder and Mr. Derwent, had attended the meet-
ing of experts at Paris in 1947 and had taken part
in the formulation of the progi'am and in the
drafting of the charter. The United Kingdom
sent a large delegation representing its newly
founded National Centre. Like the national cen-
ters of France. Belgium, and other countries, the
British Centre was officially organized by the Min-
istry of Education and is supported and financed
by the British Council and the Arts Council, both
of which operate under government subsidies. It
has enlisted the cooperation of such nongovern-
mental agencies as the British Equity and the
League of British Dramatists and has set up head-
quarters in the office of the Joint Council of the
National Theatre and the Old Vic. The French
CeJitre also has the official and financial backing
of the Ministry of Education and the Ministry of
Foreign Affairs and has likewise secured the co-
operation of independent artists' groups and
unions. The Czechoslovak Centre shows a slightly
different organizational pattern in that it is en-
tirely under the direction of the government Min-
istries of Education and Information.
The United States Center, which has already
been established under the joint chairmanship of
Clarence Derwent, president of Actors' Equity,
and Moss Hart, president of the Dramatists' Guild,
will necessarily have a different form. It must be
supported by private funds as no government
agency exists to give it backing. However, the
Center does have the backing of the American
National Theatre and Academy which holds a
charter from the Congress of the United States.
The L^nited States Center of the International
Theatre Institute is. as it were, the foreign-affairs
branch of the American National Theatre and
Academy. It has a separate committee of its own
representing all the theater unions and important
national irroups. professional and nonprofessional.
At its offices at 63 West 44th Street in New York
THE UN/TED NATIONS AND SPECIALIZED AGENCIES
City, it has already undertaken the duties indi-
cated in the International Theatre Institute char-
ter: it has published a mimeographed Interna-
tional News Bulletin, acted as friend and adviser to
traveling theater students and workers, established
contact with the International Office at Paris and
with other national centers in Europe and else-
where. In addition, it serves as the advisory panel
on dramatic arts for the United States National
Commission of Uxesco. As soon as the delegates
to the First Congress can report to the Conunittee
of the United States Center and to the American
National Theatre and Academj' and can secure the
funds necessary for the L'nitecl States share of the
International Office of the Institute, the American
theater should take its place as an active and force-
ful member of this world movement.
Of what value is the International Theatre In-
stitute to the theater as a whole ? This is a prac-
tical question that J. B. Priestley, the most prac-
tical of idealists, can best answer. In his preface
to the International Theatre Institute report, he
says that the International Theatre Institute —
"will collect and then distribute a great deal of
valuable information : about new plays and pro-
ductions in all countries concerned; about the
stage dimensions, technical resources, seating ca-
pacities of the chief playhouses in all these coun-
tries; about copyright laws, censorship regula-
tions, methods of payment and emplo5-ment in its
member countries. Again it will try to remove the
various obstacles that prevent the successful ex-
change of theatrical companies, to improve trans-
port arrangements for companies touring abroad,
to break through the walls of currency regulations
and customs dues.
"Then, when the Institute is firmly established
and has linked the theatre folk of all nations, it
can proceed to organize festivals and exhibitions,
produce a journal in several languages, create the-
atrical scholarships and fellowships, advise the
newer coimtries on the organization of good the-
atres, and do everything possible (without acting
as financial manager) to assist distinguished the-
atrical comiDanies to cross frontiers, and, if neces-
sary, tour the wide world itself. Finally, the
annual Congi'ess of the Institute will enable the-
atrical workers in all countries to meet and ex-
change ideas and plan joint action."
In all of this it is quite evident that the Ameri-
can theater has much both to give and to receive.
Ocfofaer ?7, 1948
808865 — 18 2
489
The United States in tlie United Nations
Atomic Energy
The atomic issue Tvas referred last week to an
11-nation subcommittee of Committee 1 with in-
structions to study and report on all resolutions
on the question.^ On October 12 the subcommit-
tee, the Soviet Union and the Ukraine dissent-
ing, adopted and sent to the full Committee an
amended Canadian resolution accepting as the
basis for future work the control plan of the U. N.
Atomic Commission but leaving further detailed
work in suspension until the Soviet opposition is
modified.
On October 15 Mr. Osborn during a meeting of
the disarmament subcommittee of Committee 1
called upon the Soviet Delegation to show by an-
swering four specific questions whether or not its
proposal for major power disarmament is sincere.
He asked Jacob Malik, the Soviet Delegate, the
following questions:
Fii-st, whether Soviet leaders would disavow ex-
jiansionism by disbanding their Communist fifth
columns in countries all over the world.
Second, whether the U.S.S.R. would disavow
the use of the veto in implementing inspection and
control of armaments by an international agency.
Third, whether the iron curtain would be with-
drawn so that the world could know what is going
on in the Soviet Union and thus be relieved of
fears glowing out of Soviet secretiveness.
Finally, "Is there not a certain effrontery in the
Soviet Union presenting to this body such a resolu-
tion in the name of a dictatorship which Premier
Stalin himself has described as one based on vio-
lence and not on law?"
The Berlin Situation
On October 15 the Security Council resumed its
consideration of the Berlin question, which the
Western powers charge is threatening world peace
and security.
Acting Council President Juan A. Bramuglia of
Argentina, on behalf of the six neutral nations of
the Council that are attempting to compose the
differences between the Western powers and the
Soviet Union, asked the four powers concerned for
additional information regarding the Bei'lin
blockade.
"Firstly", he said, "we request the representa-
tives of the United States, the United Kingdom,
France, and the U.S.S.R. to explain the initial
imposition of restrictions upon communications,
transport, or commerce between Western Germany
and the Soviet zones, the details of and the present
' Including those of Canada, the Soviet Union, Syria, and
Australia. See V. N. doc. A/C.1/317, Oct. 7, 1948.
490
status of the restrictions. Secondly, we request
them to kindly explain the agreement involved in
tlie instructions given to the military governors of
the four powers in Berlin, and to give the detailed
reasons that prevented their implementation."
The three Western powers promised to submit
careful and comprehensive answers. Mr. Vyshin-
sky refused to coojierate.
Support of ERP
The Norwegian and Netherlands Delegates to
the United Nations on October 13 defended the
European Recovery Program against Soviet at-
tacks. Speaking before the Economic and Finan-
cial Committee, Finn Moe, of Norway, credited the
program with having staved off a European de-
pression and started Europe on its way to recovery.
C. L. Patijn, of the Netherlands, said that the
])rogram "has given us firm ground under our feet
for the first time in Europe's history." He also
noted that the Polish Delegate had spoken of
economic degradation instead of the promised
prosperity. "The truth", he said, "is that the pro-
duction of the 16 countries is showing a marked
increase both in agriculture and industry." Dr.
Patijn stated that the Soviet Union should "hear
liow the vast masses of our workers speak with
deep understanding of the Marshall Plan objec-
tives and awareness of leaders that without it the
standard of living of the workers would decline 25
percent."
Mr. Moe said that it was interesting that the
critics of the Recovei-y Program had no other solu-
tion for Europe's economic ills.
On October 15 the French and British Delegates,
Paul Ramadier and W. Glenville Hall, defended
the European Recovery Program against Soviet
charges. Mr. Ramadier said that Erp is not "a
form of economic slavery but an invitation to knit
the ties that bind together all of Europe."
Genocide
The United States on October 14 called for the
inclusion of political groups among those to be
protected under the proposed United Nations con-
vention on genocide. It asked the Soviet Delegate
for a "complete and frank explanation" for the
Soviet reversal in the matter.
Ernest Gross, of the U. S. Delegation, told the
Legal Committee that the United States sees no
valid reasons for disregarding the Assembly's
resolution of November 11, 1946, and that "pro-
vision for protecting political groups from exter-
mination should be retained in the convention."
The Legal Committee on October 15 voted 20 to
13 to include protection for political groups in the
draft convention.
DeparlmeM of State Bulletin
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
Second Meeting of Wool Study Group
From October 4 to October 6, representatives
from Argentina, Australia, Belgium, Canada,
Cuba, Czechoslovakia, Dominican Republic,
Egypt, Eire, Finland, France, Iceland, India,
Italy, Netherlands, New Zealand, Pakistan, Po-
land, Switzerland, Turkey, Union of South Af-
rica, United States, United Kingdom, Yugoslavia,
together with observers from the United Nations,
the Food and Agriculture Organization, and the
United Kingdom Dominion Wool Disposals, Lim-
ited, have participated in the second meeting of the
Wool Study Group.
The study group have reviewed changes which
have taken place in the world apparel wool situa-
tion, since the first meeting in April 1947 which
continued a survey begun by the International
Wool Conference in November 1946. They have
heard statements from different delegations about
the position in their respective countries, with spe-
cial reference to any problems arising therein and
to anj- matters of international interest.
The group have noted with satisfaction that esti-
mated world stocks of apparel wool at Jmie 30,
1949 (about 2,750 million pounds greasy weight),
will be no more than two thirds of June 1947;
and that about 75 percent of tliese stocks will be
held commercially, as compared with 55 percent
in June 1947. Stocks of wool in governmental
ownership at June 30, 1949, are expected to be no
more than 660 million pounds or about 22 percent
of the current annual rate of production. The
gi-oup estimated the world stocks of apparel wool
June 30, 1948, at 3,551 million pounds greasy
weight, of which 1,172 million pounds are held
by governments and 2,379 held commercially.
Stocks held by joint oi'ganization have dropped
from about 1,350 million pounds at June 30, 1947,
to 1,029 million pounds at June 30, 1948. Stocks
held by the Commodity Credit Corporation have
dropped from 541 million pounds at October 1,
1946, to less than 100 million pounds by the end of
August 1948.
While the group noted that there will be an esti-
mated excess consumption (3,755 million pounds)
over production (2,965 million pounds) in 1948-
49 of 27 percent (790 million pounds), it was re-
marked that current excess visible consumption
over production was jiartly due to filling up pipe-
lines, esj^ecially in Eurojje, which might be re-
garded as practically completed now. Several pro-
ducing countries indicated that their production
had declined, but the group were reassured by in-
dications from others (and from Australia in par-
ticular) of probable upward trend of production
in future. It was estimated that the total world
wool production in 1948-49 was likely to be be-
tween 2 and 3 percent better than in the preced-
ing year, while numbers of sheep in Australia,
which were 102 million in 1947, were estimated at
104-105 million in 1948.
The group considered there was no immediate
problem in the solution of which international
governmental action was at present necessary or
desirable.
The group also commented on the rise of prices
in wool since April 1947 and on the difference be-
tween considerable rise in price of fine wools as
opposed to the less significant rise in price of lower
grades. It was noticed, however, that there was
already a tendency to reduce the call on supjDlies
of high grade merino wools by an increase in con-
sumption of lower grades. This is already having
effects on prices.
Finally the group agi-eed to continue to meet
from time to time in the present form in order to
review the world wool position.
THE CONGRESS
Providing for Membership and Participation by the
United States in the World Health Organization. H. Kept.
1999, to accompany H. J. Res. 409, 80th Ctong., 2d sess.
10 pp.
World Health Organization. H. Kept 2197, to accom-
pany S. J. Res. 98, 80th Cong., 2d sess. 5 pp.
Foreign Aid Appropriation Bill, 1949. H. Kept. 2173, to
accompany H. R. 6801, 80th Cong., 2d sess. 11 pp.
Making Appropriations for Foreign Aid. H. Kept. 2440,
to accompany H. R. 6-801, 80th Cong.. 2d sess. 10 pp.
Fuel Investigation. Current Petroleum Outlook. Prog-
ress Report of the Committee on Interstate and Foreign
Commerce. H. Rept. 24G0, 80th Cong., 2d sess. ii, 60 pp.
Report on Audit of Export-Import Bank of Washington.
Letter from Comptroller General of the United States
transmitting a report on the audit of Export-Import Bank
October 17, 1948
of Washington for the fiscal year ended June 30, 1947.
H. Doc. 641, 80th Cong., 2d sess. v, 19 pp., with 5 schedules.
Twelftli Report to Congress on Operations of Unkba.
Message from the President of the United States trans-
mitting the Twelfth Quarterly Report of Expenditures
and Operations Under the United Nations Relief and Re-
habilitation Administration covering the period from Apr.
1, 1947, to June 30, 1947. H. Doc. 686, 80th Cong., 2d sess.
iii, 56 pp.
Urgent Needs of the American People. Address of the
President of the United States delivered before a joint
session of the Senate and the House of Representatives,
recommending legislation to check inflation and the rising
cost of living and to meet the acute housing shortage. H.
Doc. 734, 80th Cong., 2d sess. 6 pp. [July 27, 1948.]
491
THE RECORD OF THE WEEK
Asia Today'
BY W. WALTON BUTTERWORTH
Director, Office of Far Eastern Affairs
Asia today presents a radically different picture
from that vrluch we knew only a few years ago.
In addition to the economic dislocations and dam-
age brought about by the war in the Pacihc. that
war unleashed strong forces, the eventual work-
ings of which it is exti-emely difficult to foresee.
The most readily discernible force at work today
in Asia is nationalism. Its expression has :icen
marked h\ such milestones as the ending of extra-
territoriality in China, the establishment of inde-
pendence for the Philippines and Burma and.
within the British Commonwealth, for India and
Pakistan and Ceylon, and the Linggadjati and
Eenville agreements for the establishment of a
United Statts of Indonesia. The peoples of Asia
are moving, sometimes rapidly, sometimes slowly,
towards a position of full and mature responsibU-
itv for tlieir own affairs. The political emergence
of the countries of Asia has and will continue to
make them increasingly important to the rest of
the world. The picture is complicated, however,
by other forces which have arisen in the wake of
nationalism, taking advantage of the political
cross currents and vacuums which often accom-
pany its initial expression. These forces, out-
standing among which is the Conununist move-
ment, often identify themselves with nationalism
or cloak themselves by exploiting, sometimes with
great effectiveness, the deep-seated economic and
political maladjustments of Asia.
The working of these forces make for a highly
fluid and largely unpredictable situation in Asia
today. However, there are several important fac-
tors in the present situation that should be borne
in mind in any consideration of present and future
economic relations between Asia and the rest of
the world, ily references to these basic factors
will necessarily be greatly oversimplified.
The fijst factor, to which I have already drawn
attention, is that political imrest is a natural conse-
quence of rapid transition from colonial depend-
ency, or partial domination, to independence.
This political unrest r^ults either from the sharp
' Address delivered at the Far East and India Trade
Conference of the Far East-America Council of Com-
merce and Industry, Inc.. in Xew York. N. T., on Oct 6,
1948. and released to the press on October 8, 194S.
' BmiETur of Sept. 28, 1948, p. 410.
492
conflicts of interest between colonial powers and
nationalist forces, or from the exploitation of cul-
tural differences or economic ills for purposes of
aggrandizement. Such exploitation has within it
the seeds of political and economic calamity if the
new nationalist govermnent does not possess suffi-
cient vitality, popular support, and admhiistrative
efficiency to ride out the storm. Organized exploi-
tation of political imrest by Communism is the
greatest single menace in the Asiatic situation.
Just prior to the recent Commtmist-iastigated up-
risings in Java, the Department issued a statement
relating to southeast Asia ^ which read, in part, as
follows :
"To win support and allies in their drive for I
power. Communist leaders have consistently pre- I
tended to champion the cause of local nationalists T
and have attempted to identify communism with
nationalism in the minds of the people of the area.
This scheme worked well, at least untU the Comin-
form's denunciation of the Yugoslav Commimist
leaders as being, among other things, guilty of
nationalism. There is some evidence that sincere
nationalist leaders in southeast Asia, originally
deceived by this device, have now awakened to the
fact that, in Commimist -controlled states outside
the Soviet Union, the nationalism to which they
aspire is regarded as a high crime and grounds for
ruthless interference in the internal affairs of such
states by international Communist organizations."
A second "factor" is a logical corollary of the i
first. It is simply that economic recovery and I
development in most Asiatic countries has been and
may for some time be impeded by continuing poHt-
ical unrest and conflict. The serious balance-of-
payments deficits which confront many Asiatic
countries could be improved somewhat by economic
remedies, but prewar levels of economic activity
cannot be approached until the more immediate
political conflicts which are stifling production
and trade are resolved. In Indonesia, for ex-
ample, there is little incentive for the investment
of capital in productive enterprise or for the re-
lease of inventories for consumption or export until
it is evident that the principal factors of produc-
tion may be estimated with a reasonable degree
of accuracy. This cannot be expected imtil a
Department of State BuUefin
viable arrangement between tlie natiomilist forces
of Indonesia and the Netherlands has been
achieved.
My tliird observation relates more to the long-
range future. The countries of Asia desire sub-
stantial exjjansion of tlieir industrial, transporta-
tion, power, and agricultural facilities. There
are obvious advantages to both Asia and the rest
of the world in a sound development of Asia's
human and natural resources, and in a significantly
increased standard of living for Asiatic peoples.
However, in viewing the possibilities for such
progress, we should not ignore a basic economic
and social characteristic of important areas of
Asia. This characteristic is Asia's serious over-
population in relation to its existing resources and
productivity and the natural tendency of the popu-
lation, with a high birth rate, to increase whenever
economic gains permit it to do so. If this tend-
enc}- continues, there will be great difficulty for
many Asiatic countries in producing more than is
needed for current consumption and the accumu-
lation of domestic capital will be, at best, a slow
process. Since foreign capital usually can be i:>ut
to use only if supplemented by a substantial quan-
tity of domestic capital, it is thus apparent that
there are certain limitations on the extentto which
foreign capital can be expected to assist effectively
in the economic development of Asiatic countries.
One may conclude that, in so far as political in-
stability in Asia results from low standards of
living, such instability will not be easily and
quickly overcome by the progress of industrializa-
tion. Perhaps it can be kept within bounds over
the long run if the governments of Asiatic coun-
tries place at least as much emphasis on social and
political reform in the interest of the agricultural
population as they do on technical progress.
The importance of Asia today is not minimized
by a frank recognition of the difficulties inherent in
the situation. Indeed, the first step in meeting
these difficulties is in understanding them. While
it is true that we cannot expect business as usual
in Asia over the next few, predictable years,
there is hope, I feel, that in the long run the basic
economic needs of the various Asiatic countries
will increasingly assert themselves, and that this
factor may result in the restoration and expansion
of trading relations among the countries of Asia
and between Asia and the rest of the world.
Because of the general absence of large-scale
industrial development in Asia, wartime damage
to capital equipment was minor relative to that in
Europe. Consequently, economic recovery to
prewar levels of activity could be attained rapidly
by most Asiatic countries largely through their
own efforts and with relatively little capital ex-
penditure if present political obstacles were over-
come and if the rest of the world continues to
provide an effective demand for Asia's products.
Ocfober 17, 1948
THB RECORD OF THB WBBK
Importance must be attached, of course, to the
revival of such natural trade relations as exist
among' Asiatic countries and to the possibilities for
a graaual expansion of this trade. The major
long-run economic task of Asia, however, is the
new development of its agricultural and industrial
resources at a rate consistent with the availability
of domestic and foreign capital and with the level
of technical and administrative skills in the area.
^ In this connection, the position of the United
States as the leading exporting and creditor na-
tion of the world should lead to increasingly sig-
iiificant economic relations between the United
States and Asiatic countries. iVnierican commerce
and industry will, of course, continue to have an
active interest in Asia as a source of supply and as
a market. But the growing importance of eco-
nomic recovery and of the development of agri-
cultural and industrial resources of Asiatic
countries ^yill confront the United States with the
problem of how its resources can be made available
to those countries in the required volume.
As Ambassador Grady explained so lucidly be-
fore the Economic Commission for Asia and the
Far East in India last June, even if conditions were
favorable to large government loans, such loans
would fall far short of the magnitude of Asia's
capital requirements. Consequently, he pointed
out, it is necessary that Asiatic count:ries maximize
the use of private foreign capital. I recommend
Ambassador Gi-ady's statement as a persuasive ex-
position of the importance of direct foreign invest-
ment, with particular reference to the important
historical role of foreign capital, chiefly British
and American, in the industrial development of the
United States and Canada without infringement of
national sovereignty. I am sure that private
American capital is available for investment in
Asia, but only if the countries of that area desire
it. Such a desire, if it is to be realized, must of
course be expressed by the creation of conditions
which give prospect of reasonable treatment and
return for foreign capital.
The stringent economic conditions under which
Asiatic countries must continue their efforts
towards recovery and development also make it a
vital necessity that trade and investment be con-
ducted with the greatest possible economy. Im-
porters should be free to purchase in the readiest
and cheapest market; exports should be pushed in
whatever market can offer the best price in terms
of real value; investment should be directed into
industries which over the long run can compete
successfully in the world market without costly
subsidy. This is merely a restatement in plain
language of certain basic economic principles, es-
sentially those embodied in the draft charter for
an International Trade Organization.
The EcA is attempting to give expression to
those principles in the administration of its China
493
THE RECORD OF THE WEEK
program. It has arranged that the "project en-
gineer" for each enterprise scheduled to receive
United States aid for replacement or reconstruc-
tion goods represent its client in seeking out the
best prices and deliveries obtainable in today's
world markets. Mr. Stillman of the Eca Mission
in China, and his Chinese associates, should be
commended for the formulation of this procedure,
for it not only should insure the greatest return
for Eca funds in China, but also should encourage
the reestablishment of multilateral trade.
It would seem self-evident from the foregoing
that the economic reconstruction of the countries
of Asia can proceed at a significant pace only with
the progressive resolution of the political problems
besetting the area. Unless these problems be re-
solved, the requisite stability cannot evolve. The
Department of State, without undertaking the role
of a political Atlas for all the world, has tried and
is trying to make its full contribution to the reso-
lution of the essential political conflicts through-
out Asia. The extent to which those efforts have
met with success and failure are, I believe, known
to you all. Necessarily related to the political
efforts of the United States is the substantial eco-
nomic assistance which this Government has ex-
tended to certain Asiatic countries. Such assist-
ance is being supplemented by allocations for
Asia from the funds appropriated by Congress for
European economic recovery. The contribution
which the United States Government economic
aid can make will depend in part on the role of
American business in carrying out expeditiously
the procurement and distribution aspects of our
aid programs. Over the long run, economic re-
covery and development in Asia will depend in
substantial measure upon the contribution which
American industry and finance can make as po-
litical conditions permit. Basically, however,
United States assistance, both public and private,
can, at best, be small in relation to the effort which
must be made by the governments and peoples of
the countries of Asia to help themselves if they
are to attain the success that all of us wish for
them.
Information on improper Treatment off
Americans Detained in Hungary
[Beleased to the press October 7]
Paul Kuedemann and George Bannantine,
American officials of Maort whose release from
custody by the Hungarian authorities was the
subject of an announcement by the Department
of State on September 27, 1948,^ have now returned
to this country. Supplementary information,
which they have already made known to the press,
is available concerning the circumstances of their
recent detention.
494
N Of Oct. 10, 1948, p. 469.
With regard to the so-called "confessions"
which have been attributed to them by the Hun-
garian authorities, Mr. Ruedemann and Mr. Ban-
nantine have affirmed that these statements were,
in fact, prepared by the Hungarian police, that
the contents of the documents are wholly false
and that they copied and signed these "confes-
sions" only under duress. The two men were
placed separately in solitary confinement in under-
gi'ound cells for the first four days and were sub-
jected to long periods of questioning at all hours
of the day and night. On various occasions they
were required to stand with their faces against
the wall and arms upraised until they collapsed.
During this time, they were permitted very little
food and sleep.
The arbitrary detention of these American citi-
zens, the unfoinided allegations made against
them, and the improper treatment which they
received while in custody are characteristic of the
methods employed by police states, where the
rights and dignity of the individual are, in prac-
tice, ignored.
Military Mission Agreement With Argentina
[Released to the press October 6]
There was signed on October 6, 1948, by Robert
A. Lovett, Acting Secretary of State, and Dr.
Jeronimo Remorino, Argentine Ambassador to
the United States, an agi-eement providing for the
detail of officers and enlisted men of the United
States Army as an advisory mission to serve in
Argentina. The agreement is to continue in force
for four years from the date of signature, but may
be extended beyond that period at the request of
the Government of Argentina.
The provisions of the agreement are similar to
those contained in numerous other agreements be-
tween the United States and certain other Amer-
ican republics providing for the detail of officers
and enlisted men of the United States Army,
Navy, Air Force, or Marine Corps to advise the
armed forces of those countries. The provisions
relate to the duties, rank, and precedence of the
personnel of the mission, the travel accommoda-
tions to be provided for the members of the mission
and their families, and other related matters.
THE CONGRESS
Aid to China. Message from the President of the United
States transmitting a proposed program of aid to China.
S. Doc. 120, 80th Cong., 2d sess. 4 pp. [Feb. 18, 1&48.]
Summary of Legislation Enacted by tiie Eightieth Con-
gress, Together With a Preliminary Statement Relative
Thereto Pursuant to the Request of the Honorable Ken-
neth S. Wherry, United States Senator From Nebraska.
S. Doc. 198, 80th Cong., 2d sess. ill, 52 pp.
Department of State Bulletin
The Spotlight of the International Scene ^
BY CHARLES E. SALTZMAN
Assistant Secretary for Occupied Areas
It was suggested that I talk to you about some
of the focal points of trouble in the world today.
This affords me a wide range of topics — much too
wide for treatment in a single talk. It is an un-
happy commentary on human atfairs today that
the trouble spots appear to be more numerous than
those left untroubled. Therefore I shall limit my-
self primarily to a discussion of the Berlin situa-
tion, within the larger context of American foreign
policy. AVhat I shall say is merely a review of
policy statements and background that have al-
ready been made public. The State Department
issued the Wliite Paper last week which reviewed
in considerable detail the course of events with re-
spect to the Berlin situation, and representatives
at the United Nations have made the American
position plain in their statements before the Gen-
eral Assembly and the Security Council. Wliat
I am saying, therefore, is merely a review and a
paraphrase of what has been said.
• ■ ■ • •
In appraising our present situation, it may be
instructive to recall our foreign policy course dur-
ing the past few years. The familiar Von Clause-
witz dictum was that war is an instrument for
carrying out political policy by other than political
means. We might define American foreign policy
since 194.5 as being in a sense the reveree : an effort
to achieve by peaceful means the same objectives
for which we fought the war. Every nation's for-
eign policy is necessarily based on its fundamental
national interest. We fought Germany and Japan
because they threatened our national security —
our right to live and govern oui-selves as we see fit
and to enjoy equal rights with other nations in
world trade and other international relationships.
The paramount aim of our foreign policy today
is still the preservation of our freedom and inde-
pendence, our right to develop and order our own
affairs without domination or interference from
abroad. We can best maintain our independence
and integrity, and develop our own resources in
the best interest of our people, in a peaceful world
community composed of other free and independ-
ent nations, each engaged in pi-oviding the best
life possible for its own people. Therefore, as a
means of achieving our number one objective, we
October 17, 1948
have as a secondary objective the establishment
of a world order conducive to peace and construc-
tive human progi'ess.
Thus we find that the United States and most of
the other countries of the world today are in fun-
damental agreement on the essential objects of
international relationships. We have a common
purpose and a community of interest with the
great majority of the other nations. There are
minor differences, of course, but these are all sus-
ceptible of adjustment by the ordinary processes of
negotiation. The supremely important thing is
that the United States and the majority of other
nations agree on fundamental principles and are
cooperating on hundreds of practical details that
make up the world's business.
International cooperation in overcoming the
suffering and devastation caused by the war and
in constructing a healthy, peaceful world order has
been the keynote of United States policy. Even
while the war was being fought, we took the lead
in the international conferences that resulted in
the creation of Unpra, the Food and Agriculture
Organization, the World Bank, the International
Monetary Fund, and the United Nations itself.
These plans for cooperative action were based
on the assumption, or at least the hope, that the
wartime collaboration of the Allied nations would
continue in the postwar period ; that all the Allies
had a common, constructive, postwar objective and
meant what they said in professing such an objec-
tive. The United States and the other major
Allied powers made every effort to assure the
Soviet Union that we sincerely desired to work
in close cooperation with them after the war. We
went to great lengths to convince the Russians that
our postwar plans did not threaten them in any
way and that the postwar settlements would take
into account the damage suffered by Russia in the
war and its legitimate security requirements.
After the fighting ended, we continued to hope
that the Soviet Union would reciprocate the
friendship and cooperatioii which the United
States and the other Western nations extended in
concrete form and on many occasions. However,
' Address delivered at the University of New Hampshire,
Durham, N. H., on Oct. 7, 1948, and released to the press
on the same date.
495
THE RCCORO OF THE WEEK
it became increasingly evident that Soviet policy
was animated by a spirit of rivalry and antago-
nism and that its primary aim was territorial ex-
pansion and the extension of Communism by
every possible means, regardless of the rights and
wishes of other peoples. It is now perfectly plain
that the policy of the Soviet Union is not based on
a genuine spirit of reciprocity and cooperation,
but on the dogmatic doctrine that conflict between
Communism and the rest of the world is inevitable
and must continue until one of the two rival sy-
stems utterly destroys the other. No matter what
the Communists may say on the cynical grounds
that the end justifies the means, all their acts con-
firm the conclusion that they are determined to
dominate the world and impose their will on all
other peoples.
This is the real and fundamental cause of the
differences that now dangerously divide the world
and imperil peace. It is not merely a struggle for
power between the Soviet Union and the United
States, as some even in this country would have
us believe. It is a contest of wills between the
group of police states directed from the Kremlin
and the free peoples of the world, whom the Soviet
dictators are trying, for whatever reason, to
dominate and control through the instrumentality
of international Communism.
The struggle is now world-wide and intense. It
is a conflict which the United States does not
desire and which we sought by all honorable means
to avoid. But the threat exists, and it jeopardizes
our national security and the fundamental rights
of our people as surely as Hitler did. We have no
recourse but to recognize the challenge and to take
bold measures to meet it successfully.
The record of the past three years shows that
this Government has recognized the threat and
has met it with measures that have achieved a
considerable degree of success. "Various well-
known examples can be cited, such as our support
of Iran, Greece, Turkey, Korea, Austria and, of
course the most outstanding, the Marshall Plan
itself. Our Government has consistently sought
to further the objectives of the United Nations
and to make the Charter the guiding principle
in the conduct of international affairs. It has
initiated steps to help Germany regain the status
of a worthy member of the family of nations, and
has stood firm in Berlin, the most critical point of
contact between the Soviet Union and the Western
powers.
As a result of our efforts, combined with those
of the other Western powers, direct Soviet control
has extended no further than, roughly, the line
reached by the Russian armies in 1945. The free
"BuiiETiN of Oct. 10, 1948, p. 455.
' Bulletin of Dec. 15, 1046, p. 1102.
nations outside the area occupied or dominated
by Soviet troops remain free and are substantially
stronger today than they were a year ago. The
boasted monolithic solidarity of the Communist
regimes of Eastern Europe shows unmistakable
cracks that bear witness to internal stresses that
even the secret police have been unable to elimi-
nate or gloss over.
This, in brief, has been our reaction to the world-
wide storm of which Berlin is the vortex. A more
detailed appraisal of the situation at Berlin and
the events that led to the submission of tliis ques-
tion to the United Nations may be instructive.^
We have been told by some Americans, for ex-
ample, that we could settle all our differences with
the Soviets if only we would sit down around the
conference table and enter into open-minded nego-
tiations. This advice has been reiterated, in spite
of earlier disillusioning experiences around the
conference table. We have found from experi-
ence that it is impossible to deal with the Russians,
like other nations, on a quid fro quo basis. They
take the quid and try to keep the quo.
This observation is substantiated by the record
of our dealiiigs with the Soviet Union in regard to
Germany. The plans for the Four Power occu-
pation of Germany were worked out by the major
Allied powers before V-E Day and were confirmed
and elaborated in the Potsdam agreement of
August 2, 1945. The right of free access of
American personnel and supplies to Berlin was a
requirement of the Four Power agreements and
was sanctioned by usage for three years.
One of the key provisions of the Potsdam agree-
ment stipulated that Germany was to be treated as
an economic unit. It is obvious that unless it were
so treated, no permanent rehabilitation of Ger-
many along sound and peaceful lines would be
possible. The Western powers tried repeatedly
in the Allied Control Council and in the Council of
Foreign Ministers to have this requirement put
into effect, but without success. Instead, it ig
obvious that the economy of the Soviet zone of
Germany has been systematically Sovietized and
that the Soviet zone has become in effect an eco-
nomic appendage of the Soviet Union. These uni-
lateral actions of the Soviet Union have kept Ger-
many divided economically and have placed ser-
ious obstacles in the way of the recovery of Ger-
many to even a subsistence level, not to mention
the laandicap this has imposed on European re-
covery as a whole.
Two years ago, when attempts to accomplish
German economic unity had been made in the Con-
trol Council for more than a year with no success,
the American and British Governments deter-
mined to unify as much of Germany as they could
in the interest of revising the prostrate economy.
So in December 1946 the American and British
zones were merged for economic purposes.^
496
Department of State Bulletin
The United States and Britain also felt that the
Germans must be given progressively greater
responsibility in political affairs to prepare Ger-
many for eventual return to self-govermnent as a
democratic and peaceful nation. Early this year
the United States and Britain consulted in London
with the French, Belgian, Netherlands, and
Luxembourg Governments. Agreement was
reached that, in view of the seeming impossibility
of reaching Four Power agreement on German
imity within any foreseeable future, the western
zones of Germany collectively should be allowed to
establish their own governmental organization,
with which the remainder of Gei-many could sub-
sequently join.*
While tlie London talks were in progress, the
Soviet Delegation left the Allied Control Council
and did not return. This wrecked the Four Power
administration of Germany. Subsequently, the
Soviet Representative withdrew from the Berlin
Kommandatura.
The Western powers, having failed in repeated
efforts to obtain Soviet agi-eement on a Four Power
plan for currency reform for Germany, introduced
a new currency in their zones last June 18. The
Soviets then introduced a new currency in their
zone and tried to apply it to all of Berlin. The
Western powers therefore found it necessary to
introduce their own currency in their sectors of
Berlin."
As early as last March 30, the Soviet authorities
began to apply restrictions to communications and
transportation between the Western zones and
Berlin. These reached a climax on June 23, when
the Soviet authorities halted all rail, highway, and
water transportation. This amounted to a block-
ade of the two and half million Germans and the
Allied personnel in the western sectors of Berlin.
The pretext first given by the Soviets was "tech-
nical difficulties", but they later made it clear that
their real motive was retaliation for the decisions
of the Western powers at the London conference.
The American and British authorities began to
supply their sectors of Berlin by air and have con-
tinued to do so with increasing success. The air-
lift operation has saved the Western sectors of
Berlin from being starved into submission and is
an achievement in which the American and British
peoples can take great pride. But it is an ex-
pensive substitute for normal supply methods.
The Western powers have used the time bought by
the American and British air forces to enter ne-
gotiations for lifting the totally unwarranted
blockade and permitting a resumption of normal
supply by land and water routes.
Efforts of the Military Governors of the
Western powers in Berlin to accomplish this
proved ineffective and the representatives of the
three Western powers in Moscow began a series of
Ocfober 17, 1948
THE RECORD OF THE WEEK
conferences with Foreign Minister Molotov and
Generalissimo Stalin in an attempt to effect a
settlement.
The Western powers repeatedly stated that they
were standing firmly on their rights in Berlin —
rights derived from participation in the military
defeat and unconditional surrender of Germany
and confirmed by formal agreements among the
Four Powers. They emphasized that their right
to be in Berlin is "unquestionable and absolute,"
and that "they do not intend to be coerced by any
means whatsoever into abandoning this right."
They made it clear that they regarded the situa-
tion created by the Soviet blockade as extremely
serious but capable of settlement.
The record of the negotiations has been made
public in the White Paper issued recently by this
Government." Mention shall be made only of the
main points. In the meeting with American Am-
bassador Smith and the British and French Eep-
resentatives on August 2, Stalin proposed a settle-
ment based on the simultaneous replacement of
the Western currency with Soviet currency for all
Berlin and the removal of all transport restric-
tions. He also expressed the insistent wish that
the decisions of the London conference on Western
Germany not be carried out, but he did not make
this a condition for settlement of the Berlin situa-
tion. Ambassador Smith made it clear that the
Western powers always were willing to discuss
with the Soviets any problem concerning Ger-
many, pi'ovided we were not doing so under duress,
as in the case of the blockade.
When these proposals were submitted to the
Western governments, they accepted the Soviet
mark as the sole currency for Berlin in principle,
with the proviso that its issue and use be subject
to Four Power control. They also insisted on
Four Power arrangements to cover trade between
Berlin and the Western zones. Otherwise the So-
viets would have practical control of the economic
life of Berlin and might have us at their mercy
there.
The Western representatives in Moscow then
engaged in protracted negotiations with Molotov
on the wording of the draft of a Four Power com-
munique on the proposals. Molotov tried to limit
the transport restrictions to be removed only to
those imposed after June 18. He also tried to
reintroduce the question of the London agreement
on Western Germany, and to leave the proposed
Soviet curi-ency for Berlin and the trade of Berlin
under Soviet control. All these conditions were
contrary to the previous proposals. The discus-
' Bulletin of Mar. 21, 1948, p. 380.
' Bulletin of June 2T, 1948, p. 385.
° See The Berlin Crisis, a Report on the Moscoio Discus-
sions, 1948, Department of State publication 3298.
497
THE RECORD OF THE WEEK
sions reached an impasse and the Western rep-
resentatives obtained another meeting with Stalin.
At this meeting, on August 23, the discussion
centered on a directive which the four governments
would send to their military governors in Berlin
for working out the technical details of the prin-
ciples already agreed upon. On this occasion. Am-
bassador Smith obtained confirmation from Stalin
that the transport restrictions to be lifted included
those imposed before as well as after June 18.
Stalin also confirmed the understanding of the
Western powers that the Soviet currency for Ber-
lin would be controlled and supervised by the Four
Powers jointly.
Following another meeting with Molotov on
August 27, in which he again tried vmsuccessfully
to tie the hands of the Western powers with respect
to the London decisions, an agreed directive was
dispatched to the four military governors in
Berlin.
Beginning August 31, the military governors
met daily in Berlin during the week given them to
complete their task. In the words of the Wliite
Paper, "It soon became apparent that Marshal
Sokolovsky (the Soviet Military Governor) was
not ready to honor the understandings reached in
Moscow." He went outside the terms of the agreed
directive and sought to impose restrictions on air
traffic. Despite Stalin's agreement, Sokolovsky
declared he would agree to remove only those
transport restrictions imposed after June 18. He
also sought to subject the currency and trade of
Berlin to exclusive Soviet control. The discus-
sions in Berlin ended in futility and frustration.
The Western powers then delivered an aide-
memoire to Stalin and Molotov in which they cited
the principles agreed upon and the assurances
given during the previous discussions in Moscow,
and contrasted the divergences from them appar-
ent in Marshal Sokolovsky's position. The three
Western Governments asked pointedly if the So-
viet Government was prepared to carry out the
understandings previously reached and to instruct
the Soviet Military Governor to be bound by them.
Molotov's reply upheld the position taken by Mar-
shal Sokolovsky and blamed the Western powers
for the failure of the Berlin discussions. Another
exchange of notes left the matter substantially
unchanged.
On September 26 the three Western Govern-
ments addressed identical notes to the Soviet Gov-
ernment in whicli they reviewed the course of the
negotiations and concluded that the issue between
the Soviet Government and the Western powers
was not difficulties in communication or in cur-
rency regulation.'' "The issue," they declared, "is
that the Soviet Government ... is attempt-
' Bulletin of Oct. 3, 1948, p. 423.
' Bulletin of Oct. 10, 1048, p. 455.
498
ing by illegal and coercive measures in disregard
of its obligations to secure political objectives to
which it is not entitled and which it could not
achieve by peaceful means."
The Western Governments asserted that the
Soviet Government was solely responsible for cre-
ating a situation which rendered impossible fur-
ther recourse to the processes of peaceful settle-
ment specified in article 33 of the United Nations
Charter. They further declared that the situation
created by the Soviet Union constitutes a threat to
international peace and security. The three Gov-
ernments stated that, while reserving full rights
to take any necessary measures to maintain their
position in Berlin, they would refer the action of
the Soviet Government to the Security Council of
the United Nations.
The three Governments on September 29 re-
ferred the matter to the United Nations as a threat
to the peace within the meaning of chapter 7 of the
Charter.^ Article 39, the first article of that chap-
ter, states that:
"The Security Council shall determine the ex-
istence of any threat to the peace, breach of the
peace, or act of aggression and shall make recom-
mendations, or decide what measures shall be
taken in accordance with Articles 41 and 42, to
maintain or restore international peace and
security."
The case presented by the Three Powers lies . |
squarely within the province of the United Na- f
tions, because the issue is whether coercion may be
used by one Member against others in pursuance of
its political objectives in such a way that peace is
threatened. The three Western powers, therefore,
have submitted to the United Nations a matter that
is within its general responsibility. They have
laid their full case before the proper forum, the
Security Council, for its judgment on the merits.
It is well known, of coui-se, that a permanent mem-
ber of the Security Comicil can frustrate the Coun-
cil's action by exercise of the veto power. How-
ever, the three Western Governments have made . >
it clear that they will exhaust every possibility |
and collaborate in every way through United Na-
tions procedures to remove the threat to peace.
The present case places on the Soviet Union a clear
responsibility for demonstrating before the eyes
of the world the extent to which it will honor its
obligations under the Charter.
The painstaking effort of the Western powers to
find a satisfactory solution of the critical Berlin
situation through direct negotiation with the high-
est authorities of the Soviet Union yielded only
bitter disappointment and did not remove the most i
dangerous threat to world peace that now exists. '
But this experience, though exasperating and frus-
trating, confirmed the earnestness of the Western
Department of State Bulletin
powers in seekincr to compose their differences with
the Soviet Union by negotiation, as long as there
is tlie least hope of success. It also emphasized
their unalterable determination not to compromise
on vital principles, nor yield to coercion, nor take
the easy but fatal way of appeasement.
The Moscow-Berlin discussions should clarify
for the American people the nature of the para-
mount problem which this country faces in world
affairs. The record provides a case history of the
enormous difficulties encountered by a peaceful,
democratic government in dealing with an aggres-
sive dictatorship-type government with wholly
different objectives and a wholly different concept
of international relations.
This is a new kind of test for the American
people. "We have responded to the terrible ordeal
of war with a singleness of purpose and a con-
centration of effort that have always brought vic-
tory. But we are engaged now in a struggle that
cannot be settled properly by some quick and de-
cisive action. We are exerting our utmost effort
to avoid war. We hope to win this conflict this
side of war, by patience, calmness, and spiritual
fortitude. Perhaps this will not be possible, but
we shall proceed on the assumption that it is
possible.
The primary lesson of our postwar experience
and particularly of the past few months is that
there is no short cut to the kind of world we want.
We dare not seek the easy way out through wishful
thinking, escapism, or appeasement, lest we drop
through the trap door to oblivion. There is no
magic formula, no man-made miracle, that will
quickly free us of the ever present danger inherent
in the machinations of a ruthless and unrestrained
group who wield great power.
The eyes of the American people should now be
fully opened. We have completed a painful proc-
ess of disillusionment. We know now that the
Soviet rulers have no intention of cooperating in
establishing peace and order in the world. They
have made this abundantly clear by their postwar
behavior. The Soviet Union is the only major
power that has annexed territory as a result of
the war. It has used its special position in eastern
Europe to dominate and exploit smaller countries
and reduce them to the status of satellites. It has
flouted the will of the majority in the United Na-
tions by excessive use of the veto and by boycotting
the Interim Committee of the General Assembly
and the special Commissions for Korea and the
Balkans. It has blocked the majority plan for
the international control of atomic energy, with-
out offering a satisfactory substitute. It used its
dominant role in the recent Danubian conference
to dictate terms that ostensibl}- assure freedom of
navigation but actually give the Soviets absolute
October 17, 1948
THE RECORD OF THE WEEK
control over all commerce on the lower Danube.
It delayed and impeded the peace treaties with
the lesser former enemy states and has obstructed
the negotiation of peace settlements with
Austria, Japan and, most conspicuously, Germany.
It rejected an invitation to participate in the Euro-
pean Recovery Program and proclaimed its deter-
mination to defeat that gi-eat* cooperative
enterprise.
The Soviet rulers have thus made it plain that
their real aim is world domination through the
instrumentality of Communism and that they will
stoop to any stratagem of coercion, subterfuge,
duplicity, or double-dealing that serves their pur-
pose. Their aims and their methods are a direct
threat to the national security of the United States.
Forewarned by this knowledge, we must be fore-
armed by an alertness to danger and a readiness to
preserve our security and freedom at all cost. If
we do so, the prospects of peace will be much
greater, since it would then be less likely that any
foreign power would attempt to coerce this and
other countries by force.
This is the ordeal which we and the other free
peoples of our time must endure and survive. It
is a reality which we must face and grapple with —
from which we cannot turn away. The first re-
quirement is that we clearly recognize the danger
and meet it energetically and courageously. We
have what it takes to win if we understand our
problem.
In view of the implications of the problem,
surely nothing is more important today to every
American citizen than to know and understand
what has happened in the world since the end of
World War II and what these events mean to the
United States. It is of utmost importance that
every citizen understand what has happened and
follow as carefully as possible the development of
events from now on in order that we and our
neighboi-s may be in a position to judge for our-
selves whatever may be necessary in our national
interest and to protect our national security. It is
supremely important that we understand, support,
and, if necessary, urge those actions, both domestic
and foreign, which may, as time goes on, best pro-
tect our national security and the world's peace.
I wish some assurance could be given that the
critical situation in Berlin will be resolved peace-
fully and soon. Such assurance cannot be given.
All that the American Government and the other
governments with which it is associated can do is
to assure their citizens that they will do their
utmost to keep the peace by all means consistent
with justice and honor.
I think that is all the American people will ask
of them.
499
Franco-American Negotiations on Motion Pictures
ANNOUNCEMENT OF JOINT DECLARATION
French Foreign Minister Robert Schuman,
Minister of Industry and Commerce Robert La-
coste, and Ambassador Jefferson Caffery signed
on September 16 in Paris a Joint Declaration of
the Government of the United States of America
and the Government of the French Republic on
Motion Pictures.
The French Government in January 1948 re-
quested negotiations looking toward modification
of the Franco- American (Blum-Byrnes) motion-
picture understanding of May 28, 1946, in accord-
ance with its provisions. ^ The negotiations not
having reached a conclusion satisfactory to both
Governments within six months from the request
for negotiations, the Blum-Byrnes understanding,
as provided therein, has expired. Further nego-
tiations resulted in the Joint Declaration of Sep-
tember 16, 1948, the text of which is attached.
The Department of State considers that the
screen quota decided upon by the French Govern-
ment (nve weeks a quarter reserved for the show-
ing of French films) is not inconsistent with the
provisions of article IV of the General Agi-eement
on Tariffs and Trade. The Department also con-
siders that the French Government's decision to
, institute a distribution quota system limiting the
number of foreign feature films dubbed into
French which will be authorized for distribution
annually in the French Union is not inconsistent
with the provisions of articles XII and XIII of
the general agreement in view of the current
French balance-of -payments diflSculties.
JOINT DECLARATION OF THE GOVERNMENT OF THE UNITED STATES OF AMERICA
AND THE GOVERNMENT OF THE FRENCH REPUBLIC ON MOTION PICTURES
The Government of the United States of
America and the Government of the French Re-
public have, at the request of the latter, re-ex-
amined certain questions relating to the distri-
bution and exhibition in the French Union of
American motion picture films, and, in particular,
the Franco-American motion picture understand-
ing of May 28, 1946. During these conversations,
the specific problems relating to the distribution
and exhibition of American films in the French
Union have been discussed in the light of the spe-
cial conditions facing the French Government
resulting from its external financial position and
balance of payments and other postwar problems
of economic adjustment. These conversations
have taken place with due regard for the relevant
provisions of the international conventions and
agreements to which both Governments are par-
ties.
I. The French Government has informed the
Government of the United States of America that
in view of the current situation in the French film
industry it is necessary to increase the screen time
' Bulletin of June 9, 1946, p. 999.
' Annexes not printed. For complete text, see Depart-
ment of State press release 746 of Sept. 16, 1948.
500
reserved to films of national origin. The Franco-
American motion picture understanding of May
28, 1946 having exijired in accordance with the
provisions therein, the French Govermnent has
decided, consistent with Article IV of the General
Agreement on Tariffs and Trade of October 30,
1947, to reserve five weeks per quarter for the
exhibition of French films, except as otherwise
noted (Annex A).^
II. The French Government has decided to
make certain modifications in its administrative
regulations regarding the two-year rule, fifteen
situations restriction, and allocation of raw stock
(Annexes B, C and D).
III. In view of the current French external
financial situation and balance of payments, the
French Government has decided to institute a
distribution quota system ( applicable to imported
films which are dubbed in France for distribution
in the French Union) which it considers to be
within the provisions of Articles XII and XIII of
the General Agreement on Tariffs and Trade.
Recognizing its obligations under the above-men-
tioned articles of the General Agi'eement, the
French Government undertakes to relax progres-
sively the restriction referred to in this paragraph
as its balance of payments situation improves and
Department of State Bulletin
to eliminate the restriction when conditions no
longer justify its maintenance (Annex E).
Tlie Government of the United States of
America takes note of this decision of the French
Government without prejudice to any rights which
the United States Government may have under
the General Agreement with respect to any action
which the French Government may take to im-
plement this decision.
IV. The two Governments have reached a mu-
tually satisfactory understanding with respect to
the financial problems arising from the distribu-
tion and exhibition in the French Union of Amer-
ican films (Annex F).
V. The arrangements outlined above shall enter
into force retroactively on July 1, 1948, and
shall remain in effect for four years from that
date. Either party may request, within two
months of the expiration of each annual period, a
review of the provisions contained in any of the
annexed documents, except as otherwise provided.
This agreement, however, shall continue in full
force and effect for four years except to the extent
that both parties agree to modifications thereof.
Done at Paris, in duplicate, in the English and
French languages, this sixteenth day of Septem-
ber, 1948.
For the Government of the United States of
America :
Jefferson Caffert
Ambassador Extraordinary and Plenipotentiary
of the United States of America
For the Government of the Kepublic of France :
Robert Schtjman
Minister of Foreign Affairs
of the Rejnthlic of France
Robert Lacoste
Minister of Inditstry and Commerce
of the Republic of France
THE RECORD OF THE WEEK
Between 500,000 and 600,000 displaced persons
are now concentrated in more than 200 camps
maintained throughout Germany and Austria and
in parts of Italy by the International Refugee Or-
ganization, a unit of the United Nations. In ad-
dition, up to 400,000 others who are homeless out-
side of the camps in Central Europe are also po-
tential applicants for admission into the United
States.
From this group of about a million left homeless
by the ravages of World War II in Europe, 205,000
are to be permitted by law to enter the United
States during the next two years, provided they
can meet qualifications as to skills, ethnic origins,
and time of arrival at their present abodes, and
provided also satisfactory assurances in their be-
half have been provided for employment, housing,
or against their becoming public charges.
The 72 Foreign Service personnel now to pro-
ceed into Germany, Austria, and Italy, evenly di-
vided between visa officers and clerks, are the fore-
runners of a very much larger group which will
be required to implement the displaced-persons
program. A preliminary sum of $250,000 has al-
ready been allocated for the purpose, mostly to
the Foreign Service, by the Displaced Persons
Commission. The rate of spending, it is esti-
mated, will exceed the approjoriation made avail-
able to the Displaced Persons Commission, and
therefore it is expected that a deficiency appro-
priation will be requested of Congress in March of
1949.
The work of providing transportation of dis-
placed persons from Europe into the United States
IS being expedited by a staff of some 20 selectors
and analysts of the Displaced Persons Commis-
sion in the various camps, who have been screen-
ing eligibles fi"om the thousands of cases already
processed by already over-worked American con-
sular staffs.
THE FOREIGN SERVICE
Foreign Service To Assist Displaced Persons
Commission
[Released to the press October 8]
A group of 72 members of the Foreign Service
experienced in visa work are being rushed into
Germany, Austria, and Italy as the result of budg-
etary clearance obtained on October 8 at a meet-
ing of Budget Bureau officials with representatives
of the Department of State and the Displaced
Persons Commission. The arrival of this group
at their new posts in Central Europe is expected
to break the log jam which has been holding up
the displaced-persons program passed by Congress
at the last session.
Ocfofaer 17, 1948
Richard C. Patterson, Jr., Appointed
Ambassador to Guatemala
Appointment of Richard C. Patterson, Jr., of
New York City, as United States Ambassador
to Guatemala was announced on September 29 by
the White House.
Resignation of Dwight Griswold
On September 15 the White House announced the resig-
nation of Dwight Griswold as Chief of the American Mis-
sion for Aid to Greece, effective September 15, 1948. For
the texts of Mr. Griswold's letter to the President and
the President's reply, see White House press release of
September 15, 1948.
Consular Offices
The American Consulate at Plymouth, England, was
closed to the public on September 30, 1948.
501
Executive Order Issued for Administration of
Trade-Agreements Program
On October 5, 1948, the President signed Execu-
tive Order 10004/ prescribing revised procedures
for the administration of the reciprocal trade-
agreements program in accordance with the Trade
Agreements Act of 1934, as amended, and the
Trade Agreements Extension Act of 1948.^ The
new Executive order inchides subject matter here-
tofore covered by three earlier orders which are
revoked.
The new order, in general, continues in effect
earlier practice under the trade-agreements pro-
gram with modifications made necessary by the
Trade Agreements Extension Act of 1948. The
order prescribes procedures to be followed by the
Trade Agreements Committee in concluding trade
agreements; by the Committee for Keciprocity
Information in obtaining the views of interested
persons on agreements ; and by the Tariff Commis-
sion in the event of serious injury or threat of
serious injury to domestic industry.
The Interdepartmental Committee on Trade
Agreements will continue to function as the cen-
tral operating committee, giving effect to the re-
quirement of the Trade Agi-eements Act that the
President seek information and advice from cer-
tain named government agencies before conclud-
ing a trade agreement. Membership in the Com-
mittee will consist of persons appointed by the
Secretaries of State, Treasury, Defense, Agricul-
ture, Commerce, and Labor and by the Adminis-
trator for Economic Cooperation, under the chair-
manship of the representative from the Depart-
ment of State. In accordance with the Trade
Agreements Extension Act of 1948, the Tariff
Commission no longer has a representative as a
member of this Committee, but arrangements have
been made for an observer from the Tariff Com-
mission to attend the meetings of the committee
for the purpose of supplying the information
hereinafter referred to.
The Committee for Reciprocity Information,
which will continue to receive, digest, and circu-
late to the entire trade-agreements organization
the views of interested persons regarding any
phase of proposed or existing trade agi-eements, is
to consist of the same persons as those who are
members of the Committee on Trade Agreements.
The Committee for Reciprocity Information will
' 13 Fed. Reg. 5851.
* Bdixetin of Mar. 14, 1948, p. 351.
502
function under the chairmanship of the represent-
ative of the Department of (Jommerce, and its
offices are being moved to the Department of
Commerce.
The order provides that, as before, the Trade
Agreements Coimnittee shall submit to the Presi-
dent for his approval a list of articles on which
possible United States tariff concessions may be
considered in the negotiation of proposed trade
agreements. Upon approval of the list by the
President, the Trade Agreements Committee pub-
lishes the list and a notice of intention to nego-
tiate. At the same time the Committee for Rec-
iprocity Information announces opportunity for
the submission of written testimony and for sub-
sequent oral testimony concerning concessions to
be offered and granted.
In accordance with the 1948 act, the list is also
to be transmitted to the Tariff Commission upon
being approved by the President, for confidential
report by the Commission as to the minimum
United States duties which are required, in its
judgment, to avoid threat of serious injury to
domestic industry, and as to any United States
import restrictions in addition to those already in
effect, necessary to prevent such injury. In the
course of its investigations, the Commission is to
hold public hearings. Reports of the Commission
are to be completed within 120 days and trans-
mitted to the President for his guidance in ap-
proving concessions to be offered in proposed trade
agreements.
The Tariff Commission is also to furnish to the
interdepartmental trade-agreements organization
factual data relative to production, trade, and con-
sumption of articles under consideration for con-
cession by the United States, and is to supply facts
on probable effects of granting concessions and on
the competitive factors involved.
Similarly, the Department of Commerce is to
submit to the Trade Agreements Coimnittee studies
of the trade and other facts regarding each article
exported from the United States on which the
United States may consider seeking a foreign con-
cession in a trade agreement.
On the basis of all the data available, the Trade
Agreements Committee recommends to the Presi-
dent concessions to be sought or offered. A full
report must also be made by the dissenting mem-
ber or members on any dissent from the Commit-
tee's recommendations.
Department of State Bulletin
In conformity with past practice, each agree-
ment is to contain a niost-favored-nation commit-
ment, and as required in an earlier order, all trade
agreements are to include the comprehensive
escape clause providing that future concessions
may be modified or withdrawn if, as a result of
unforeseen developments and of a concession in
the trade agreement, any article on which a con-
cession has been granted is being imported in such
increased quantities and under such conditions as
to cause or threaten serious injury to domestic
industry. Procedure is also provided, as in an
earlier order, for Tariff Commission investigations
to determine and recommend to the President for
his consideration in the light of the public interest
whether concessions are causing or threatening in-
jurv under this clause.
Both the Trade Agreements Committee and the
Tariff Commission are to keep mformed at all
times of the operation and effect of agreements in
force. At least once a year the Commission is to
submit to the President and to Congress a factual
report on operation of the program.
THE RECORD OF THE WEEK
and those countries. A treaty was negotiated with
Haiti for the further Haitianization of the treaty
services, but it was rejected by the Haitian Con-
gress. In Nicaragua assistance was given in the
supervision of an election, following which the
Guardia Nacional was transferred to Nicaraguan
officers and the United States Marines were with-
drawn from the country.
Other subjects treated include an Argentine pro-
posal for an antiwar treaty, trade relations with
Argentina, and claims conventions with Mexico
and Panama.
Foreign Relations of the United States, volume
V, The American Republics, was compiled by
Victor J. Farrar of the Division of Historical
Policy Eesearch, under the direction of E. R. Per-
kins, Editor of Foreign. Relations. Copies of this
volume (979 pages) may be purchased from the
Superintendent of Documents, Government Print-
ing Office, Washington, D. C, for $3.25 each.
THE DEPARTMENT
Volume V of Foreign Relations of the
U.S., 1932, Released
[Released to the press October 9]
The Department of State released on October 6
Foreign Relations of the United States, 1932,
volume V, The American Republics. This volume
completes the Foreign Relations series for 1932.
Diplomatic attention of the United States with
respect to its neighbors to the south in 1932 was
centered in efforts to assist in the adjustment of
conflicts between sister republics. Fighting was
renewed in the Chaco dispute between Bolivia and
Paraguay, with the Commission of Neutrals
headed by Francis White endeavoring to secure
peace through its own good offices and by the co-
operation of the ABCP Republics (Argentina,
Brazil, Chile, and Peru) and the League of Na-
tions. The controversy between Colombia and
Peru concerning Leticia threatened to bring open
warfare. There were also boundary disputes be-
tween Ecuador and Peru and between Guatemala
and Honduras.
To add to the international conflicts there was
political unrest, insurrection, or successful revolu-
tion in Brazil, Chile, Costa Rica, Cuba, El Salva-
dor, Honduras, and Peru. In some of such
disorders Communism played a part. The United
States followed a policy of nonintervention in
these domestic conflicts but was concerned with the
* protection of American rights and the question of
the recognition of new governments.
Documents in the sections on Haiti and Nica-
ragua deal with problems concerning the special
relations then existing between the United States
Ocfofaer 17, J 948
Appointment of Officers
Benjamin M. Hiilley as Chief of the Division of Northern
European Affairs, effective July 25, 1948.
Willard F. Barber as Chief of the Division of Central
America and Panama Affairs, effective September 5, 1948.
G. Fredericli Keinhardt as Chief of the Division of
Eastern European Affairs, effective August 30, 1948.
Jack C. McDermott as Chief of the Division of Inter-
national Press and Publications, effective September 5,
1948.
Richard M. Scammon as Chief of the Division of Re-
search for Europe, effective August 27, 1948.
Walter Wilds as Deputy Assistant Secretary for Occu-
pied Areas, effective October 6, 1948.
PUBLICATIONS
Department of State
For sale by the Superintendent of Documents, Govern-
ment Printing Office, Washington 25, D. 0. Address re-
guests direct to the Superintendent of Documents, except
in the case of free publications, which may be obtained
from the Department of State.
Fourth Report to Congress on Assistance to Greece and
Turkey for the period ended June 30, 1948. Economic
Cooperation Series 12. Pub. 3278. 71 pp. 250.
Fourth quarterly report of expenditures and activities
in conjunction with the program for aid to Greece
and Turkey. Appraises the military and economic
.situation in Greece and Turkey at the close of one
year of U. S. aid.
Diplomatic List, September 1948. Pub. 3281. 190 pp.
30(f a copy ; $3.25 a year domestic, $1.50 a year foreign.
Monthly list of foreign diplomatic representatives in
Washington, with their addresses.
503
^jCe^rU^
The U.N. and Specialized Agencies Page
Third Regular Session of the General Assem-
bly:
Discussions on Progress of TJ.N. in Paris:
Statement by the President 483
Statement by Secretary Marshall .... 483
Discussion in the Security Council of the
Berlin Crisis. Statement by Philip C.
Jessup 484
The U.S. in the U.N 490
General Policy
Asia Today. By W. Walton Butterworth . . 492
Information on Improper Treatment of
Americans Detained in Hungary .... 494
The Spotlight of the International Scene.
By Charles E. Saltzman 495
International information and
Cultural Affairs
First Congress of the International Theatre
Institute. Article by Rosamond Gilder . 488
Economic Affairs
Second Meeting of Wool Study Group .... 491
Treaty Information
Military Mission Agreement With Argen-
tina 494
Treaty Information — Continued F«g*
Franco-American Negotiations on Motion
Pictures:
Announcement of Joint Declaration .... 500
Joint Declaration of the Government of
the United States and the Govern-
ment of the French Republic on Mo-
tion Pictures 600
Executive Order Issued for Administration
of Trade-Agreements Program 502
Tlie Foreign Service
Foreign Service To Assist Displaced Per-
sons Commission 501
Richard C. Patterson, Jr., Appointed Am-
bassador to Guatemala 601
Resignation of Dwight Griswold 501
Consular Offices 501
The Department
Appointment of Officers 608
Publications
Volume V of Foreign Relations of the U.S.,
1932, Released 503
Department of State 503
The Congress 491, 494
t
wm^Mmotovi
Rosamond Oilder, author of the article on the First Congress of the
International Theatre Institute, is Secretary of the American National
Theatre and Academy and Secretary General of the United States
Center of the International Theater Institute, and was a member of the
United States Observer Delegation to the theater meeting at Praha,
Czechoslovakia.
V. i. aovuHHiiir nmrm orricii i>4i
tJrie/ ^eha^tmeni/ aw tnai&
DISCUSSION OF THE PALESTINE SITUATION IN
COMMITTEE I • Statement hy Ralph Bunche . . 517
WORLD CONFIDENCE AND THE REDUCTION OF
ARMED FORCES: THE AMERICAN OBJECTIVE •
Remarks by Ambassador Warren R. Austin 511
NORTH PACIFIC REGIONAL AIR NAVIGATION
MEETING OF THE ICAO • Article by Clifford
p. Burton 523
CONSTITUTION-MAKING AT BONN • An Article . . 507
For complete contents see back cover
Vol. XIX, No. 486
October 24, 1948
-*TB»
^»"T O,
•'vr ^,^j,j
I
U.
^^ 2
1348
'eha/yime/nt
y^.^ bulletin
Vol. XIX, No. 486 • Publication 3320
October 24, 1948
For sale by the Superintendent of Docnments
U.S. Govemment Printing Office
Washington 26, D.O.
Peici:
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Director of the Bureau of the Budget
Note: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Department
Of State BtJLLETm as the source will be
ftppreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
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 De-
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by the White House and the Depart-
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made by the President and by the
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wiational affairs and the functions of
the Department. Information is in-
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United States is or may become a
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Publications of the Department, as
well as legislative material in the field
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currently.
CONSTITUTION-MAKING AT BONN
An Article^
Overshadowed by the more dramatic develop-
ments that are taking place in Berlin, a conclave
of G5 German political leaders is sitting these days
at Bonn on the Khine— a meeting that may rank
in the perspective of history as a much more sig-
nificant event. This "Parliamentary Council", as
it is officially called, is engaged in the task of draw-
ing up a constitution for the government of West-
ern Germany.
These 65 men are the representatives of the 46,-
000,000 Germans who live in the states of the
Western zones of Germany. Assembled in this
gathering are the delegates from Bavaria, Wiirt-
temberg-Baden, Hesse, and the city of Biemen in
the United States zone; North Ehine Westphalia,
Lower Saxony, Schleswig-Holstein, and tlie city
of Hamburg in the British zone; and the Khine
Palatinate, South Baden, and Wiirttemberg-Ho-
henzollern in the French zone. Furthermore, Ber-
lin, the former German capital, is represented by
a delegation of five which may take part in the
discussions but may not vote.
This constitutional convention was solemnly
opened in the presence of leading Allied Military
Government officials and the German ministers
president in the Western zones on September 1,
and is expected to sit at least until the end of Oc-
tober. Its debates are being held in the quarters
of the Pedagogical Academy, a teachers' training
college. It is an ultramodern building located on
the banks of the Rhine, so that the delegates, look-
ing through the window of the main hall, can see
the ships passing up and down on this storied
river.
The significance of the assembly lies in the fact
that it represents the first attempt to reconstruct
Germany- politically since Count Schwerin-Krosig
announced the capitulation of Xazi Germany at
Flensburg on May 7, 1945. It is a coincidence that
this gathering should be held exactly 100 years
October 24, 7948
after the Frankfort Parliament in 1848 had finally
attempted to bestow a democratic constitution on
the people of Germany. And almost 30 years had
elapsed since the Weimar convention drafted the
constitution of the first German republic.
While both Frankfort on the Main and Weimar
are closely associated with the name of Goethe,
the present constitution-makers of German}^ are
meeting in the pleasant Rhine town that is known
throughout the world as the birthplace of Bee-
thoven as well as the seat of an ancient and famous
university. But there is one vital difference be-
tween the Frankfort and Weimar congresses and
the gathering at Bonn. While the earlier conven-
tions represented all of Germany, no delegates
from tlie Soviet zone are permitted by the Russian
authorities to attend the sessions of the Parliamen-
tary Council. Bomi is therefore no German Na-
tional Assembly. Arid although it is the most
important step that has been taken since the war
to obtain the political unity of Germany, the Rus-
sians and their Communist supporters are shouting
from the housetops that the Bonn convention is
"splitting Germany."
The political leaders at Bonn are very sensitive
about this accusation — so sensitive that they are
careful to emphasize the fact that what they are
doing now is laying the foundation of what they
call "a provisional government of a state-frag-
ment" and not the definitive constitution of a
united Germany. This all-German constitution,
they contend, can only be written when the repre-
sentatives from all over the Reich can convene and
when Germany's political sovereignty has been re-
stored. And this constitution, they assert, cannot
' Prepared by John Elliot, Chief, Political Activities
Branch, Civil Administration Division, Omgus. This ar-
ticle is reprinted from the Information Bulletin, of Oct. 5,
1948. of the U.S. Military Government in Germany.
507
be drafted while Germany is under Allied occu-
pation.
This German point of view was aptly expressed
by Dr. Carlo Schmid, eminent professor of polit-
ical science from the University of Tiibingen, in
his address before the Social Democratic Congress
in Dusseldorf early in September. Said Schmid :
"No definitive solution will be sought in Bomi.
All who work there, at least all Social Democrats,
know that only a provisional government can be
created. We will be able to create a state in the
true sense of the word only when an agi'eement of
the four occupying 2:)0wers has been reached con-
cerning an all-German policy. Every other solu-
tion would be bought at the risk of a world
catastrophe."
This fear of leaving themselves open to the
charge of being guilty of "splitting" Germany was
the cause of the protracted debate on nomencla-
ture between the three Allied Military Gover-
nors of Western Germany and the ministers
president of the 11 states. The Germans objected
to calling the document whicli they were sum-
moned to draw up a "constitution" as stipulated
in the London agreement concluded by the United
States, British, and French Governments, which
constitutes the legal basis of the Bonn meeting.
The Germans succeeded in getting the name
changed to "Fundamental Law of a Provisional
Constitution" {Grwidgesetz VorlMwfige V erf as-
sung). Likewise, instead of labeling itself a Con-
stitutional Convention, the Bonn gathering styles
itself a Parliamentary Council.
Finally, the German ministers president ob-
jected to the proposal to have their constitution
ratified at a referendum. They feared that this
would give a binding character to a document — a
distinction which they felt sliould be reserved for
the definitive constitution of Germany. They
pleaded that this charter should be ratified by the
parliaments of the states. The Allied Military
Governors in the end agreed to pass on the German
objections to their respective governments, but no
decision lias as yet been taken on this point.
The delegates to the Bonn convention were
named by the state parliaments according to the
political strength of the political parties repre-
sented in them, in the ratio of one delegate to every
375,000 inhabitants. Hence, the Bonn convention
508
reflects the political division of Germany as re-
corded by the last state parliamentary elections
(these were held in the United States zone in
November and December 1946) , and do not neces-
sarily indicate existing German political thought.
Tlie Bonn convention is made up as follows :
CDU/CSU 27
SPD 27
Liberals 5
Communists 2
Center Party 2
German Party 2
Total 65
It will be seen that the Parliamentary Council
is dominated by tlie two big parties, Christian
Democratic Union bloc (including its sister party,
the Christian Social Union of Bavaria and the
French zone) and the Social Democratic Party.
The Bavarian Party, whicli is today rivaling the
CSU in that state, is not represented at all in the
convention because it did not exist at the time of
the Bavarian elections. It is a party composed
of dissidents from the CSU. It represents extreme
Bavarian home rule, if not separatist elements, and
its failure to have a voice in the convention weak-
ens the federalistic faction.
The Bonn convention has been organized by
these two big parties. Konrad Adenauer, long
time mayor of Cologne and leader of the CDU in
the Britisli zone, was unanimously elected presi-
dent of the Assembly. Its deputy chairman is
Adolph Schonfelder, Social Democratic president
of the Hamburg Biirgerscliaft.
Some of the ablest political figures of contem-
porary Germany are sitting in the Bonn Parlia-
ment. Besides Adenauer, the CDU is represented
by Anton Pfeiffer from Bavaria, who dominated
the Chiemsee meeting which drew up a list of
proposals for the Bonn gathering.
The Social Democratic delegation includes Dr.
Walter Menzel, tlie Minister of the Interior in
North Rhine Westphalia, who has drawn up the
Social Democratic paper on what the new constitu-
tion ought to be; Professor Bergstriisser, an au-
thority on international law who comes from
Hesse; and Carlo Schmid, who next to Dr. Kurt
Scliumacher is probably the dominating figure in
his party.
The Democrats have sent Theodor Heuss, a vet-
[iepat\mQn\ of Sfafe Bulletin
eran German liberal who was formerly Minister
of Education in Wiir(tonibcri>-Baden.
Although tlie Communists have onl}^ two dele-
gates at the convention, one of them is their leader
in Western Germany — Max Reimami. He is an
able and aggressive debater.
Berlin is represented by a delegation consisting
of Paul Liibe, the former Reichstag president;
Ernst Renter, Otto Suhr, speaker of the Berlin
City Council ; Jakob Kaiser, the former CDU lead-
er in the Eastern zone who was deposed from his
office by the Russians; and Dr. Reiff of the Liberal
Democratic Party.
The Communists' attitude toward the conven-
tion was laid down by Reimann in the opening
meeting. They deny that the Bonn convention has
any authority to draft a constitution for Western
Germany. Reimami submitted a motion to the
eifect that the "Parliamentary Council was insti-
tuting discussions on a separate West German
constitution," and warned that the Bonn meeting
■would have disastrous consequences on the Moscow
and Berlin negotiations. After rowdy scenes that
recalled the debates in the prewar German Reichs-
tag, his motion was defeated with only the two
Communists supporting it.
As in the Philadeli^hia Convention of 1787 that
drew up the American Constitution, the principal
issue at stake in the Bonn gathering revolved
around the distribution of power between the cen-
tral government and the states. The London
agreement stipulates that the Western German
government shall be federal in character, but then
what is federalism? The United States Constitu-
tion, as it is interpreted and applied today, would
seem perilously like an Einheits-Staat (unified
state) to James Madison and most of the Philadel-
phia delegates.
The Social Democrats are the champions of a
strong central government. They would like to
see the Western German government have powers
closely analogous to those of the Weimar Republic.
Their views on the subject have been embodied in
a report bearing the name of Walter Menzel, the
SPD minister of the interior in the Government
of North Rhine Westphalia.
The Christian Democratic-Christian Socialist
bloc, on the other hand, wants a central govern-
ment of limited powers with all rights not ex-
pressly given to it reserved to the states. The
Bavarians, in particular, are the exponents of the
states-rights school of thought, and their ideas
have found expression in the so-called "EUwangen
Document" named after the town in AViirttemberg
where this paper was drafted by a group of Ba-
varian politicians last spring.
Generally speaking, it may be said that the
Social Democrats represent the ideas of Alexander
Hamilton so far as central government is con-
cerned, whereas the Christian Democrats embody
the Jeffei-sonian ideas of states' rights.
As the SPD and CDU/CSU are equally bal-
anced in the Bonn convention, the struggle between
the unionists and the federalists is likely to prove
close and tense, with the issue perhaps being de-
cided ultimately by the 11 voters of the minor
parties.
The principal point at issue will probably center
around what body is to raise and distribute the
taxes — the central government or the states.
In the Bismarckian Reich the central govern-
ment could indeed raise revenue from custom du-
ties, but for most of its funds it was dependent
upon the states. But under the Weimar Republic,
the central government levied practically all the
taxes, including income taxes, and distributed part
of these revenues to the states, which were there-
fore rendered financially dependent on Berlin.
This reform, the work of the able Center Party
financial expert, Matthias Erzberger, constituted
what is probably the most important distinction
between imperial Germany and the Weimar Re-
public. Bonn may witness a bitter controversy as
to whether the future Western German government
will adhere to the Erzberger reform or set the
clock back to Bismarck's day.
Some idea of what the future constitution of
Western Germany may contain, or what the chief
issues are that will be fought out before the Bonn
convention, may be gleaned from the majoi-ity
report submitted by the Chiemsee conference.
This was a body of 22 men — two from each state —
appointed by the ministers president to work out
a draft to be laid before the Bonn convention as a
basis for its debates. These delegates met from
August 10-22 in the gorgeous jialace built by King
Louis II of Bavaria upon an island in the middle
of the idyllic Chiemsee.
The Chiemsee experts recommended that the
Western German state should constitute a "state-
Ocfober 24, 1948
509
fragment" {Stoats-Fragment) , not a "full state"
(Vollstaat). This' was done to stress the provi-
sional character of the Western German constitu-
tion.
This solution was chosen as the best of three al-
ternatives. The other two ijossibilities were (1)
creation of a Western State which it was feared
would be tantamount to separation; (2) a forma-
tion of a "German federal republic" with claims
to exerting its authority over all Germany, even
though it was obvious that it could not make its
laws effective in the Russian zone. This alterna-
tive was regarded as being too aggressive in char-
acter and was not seriously considered.
The Chiemsee majority report recommends that
the states shall have control over educational and
cultural affairs but that the central government
shall have far-reaching powers in the matter of
financial legislation. It specifies that the central
government shall have exclusive legislative au-
thority to impose custom duties and shall have pri-
ority in regard to legislation concerning income
and i^roperty taxes as well as sales and consump-
tion taxes.
It is proposed that the union shall have a bi-
cameral parliament. The lower chamber shall be
a Bundestag representing the people, like the
American House of Representatives; while the
Upper House, the Bundesrat, shall consist of rep-
resentatives of the states. Unlike the American
Congress, however, the delegates of the Bimdesrat
shall not be elected by the people, but shall be ap-
pointed by the state governments, as in the Weimar
Republic.
The majority report further recommends that
the executive branch of the government should be
headed by a Bundesjirdsident. He is to be elected
by the joint votes of the two houses of parliament
just as the French president is elected by the Na-
tional Assembly.
The Chiemsee experts propose that the Western
German state should have the cabinet system of
government as is common in Europe, in i^reference
to the American presidential system in which the
chief executive remains in power for a fixed period
of time.
The Chiemsee majority report also suggests that
the West German state should be called the
"League of German States."
The struggle in the Bonn convention between the
510
unionists and the federalists is foreshadowed by
two proposals concerning the text of the preamble
to the constitution. According to one version, all
constitutional jsower emanates from the German
peoiDle, while according to the federalist school of
thought, the source of power resides in the individ-
luxl states. !
Social Democratic headquarters have made it
clear, however, that they did not consider the
Chiemsee report as a document that had to be ac-
cepted or rejected in toto. Fritz Heine, the party's
secretary at Hannover, said that the Chiemsee
paper might well "be thrown in the wastebasket"
although he conceded that some points from it
might be incorporated in the future German con-
stitution. But he declared that the SPD would
never consent to the proposal that the West Ger-
man state should be called a "League of German
States" — a name that doubtless suggested to him
a Confederation rather than a Union.
Coincident with the drafting and ratification
of a constitution for Western Germany, two other
important papers in accordance with the London
agreement will be promulgated. One is the Occu-
pation Statute, which will be decreed by the three
Western jiowers. This document will serve as the
Magna Carta of the people of Western Germany,
defining their rights vis-a-vis the occupying
powers.
The second will be alteration of German state
boundaries which the German leaders had been
authorized to make. It seems likely at present
that only one such change will be made, namely the
amalgamation of Baden and Wiirttemberg. This
merger would be a territorial reform all to the
good, since it would correspond to the claims of
both history and tradition and would create a well
balanced state in southern Germany approximately
equal to Lower Saxony in respect to population.
The work of the Bonn convention bids fair to
be an historic milestone in Germany history. The
creation of a political government for Western
Germany will be an important step towards the
ultimate unification of all Germany. The West-
ern German state will be a magnetic force that will
tend to attract into its orbit the part of Germany
now under Russian rule. In this sense, the West-
ern German state may v.ell i^laj- the same role for
(Continued on page 526)
Department of Sfafe Bulletin
THIRD REGULAR SESSION OF THE GENERAL ASSEMBLY
World Confidence and the Reduction of Armed Forces: The American Objective
REMARKS BY AMBASSADOR WARREN R. AUSTIN'
U.S. Delegate to the General Assembly
I discuss the proposal of the Soviet. Union for a
one-third reduction in the armed forces of the per-
manent members of the Security Council. The
question of the prohibition of atomic weapons,
which is provided for in the plan of the United
Nations Atomic Energy Commission, is now being
considered by a subcommittee of this committee.
Two years ago the General Assembly of the
United Nations recommended that the Security
Council formulate practical measures to provide
for the general regulation and reduction of arma-
ments and armed forces. On February 13, 1947,
the Security Council established for this purpose
the Commission for Conventional Armaments.
It is significant that, in the year and a half of
the Commission's operations, the Soviet Union
found no occasion to introduce this proposal which
we have before us. Furthermore, I call to the at-
tention of this Committee the fact that nine of the
eleven members of the Commission for Conven-
tional Armaments have agreed upon what they
consider the essential principles which should
govern the formulation of proposals for the regu-
lation and reduction of armaments and armed
forces. The Soviet Union has not accepted these
principles. Let us examine these principles in an
effort to determine whether or not the proposal
brought forward by the Soviet Delegate today
meets the standards set by the great majority of
the members of the Conventional Armaments
Commission. They determined that a system of
regulation and reduction of armaments and armed
forces can only be put into effect in an atmosphere
of international confidence and security. Nine out
of eleven report that one example of conditions
essential to security is the establishment of an
adecjuate system of agi'eements under article 43
of the Charter. This position was not limited to
the United Kingdom and the United States as as-
serted by B\-elorussia.
Is the Soviet Union prepared to permit the
United Nations to have effective armed forces on
the basis of the principles considered essential by
the other permanent members of the Security
' Coxmcil ? The actions of its representatives in the
Military Staff Connnittee and the Security Coun-
cil do not indicate this to be the case.
Ocfofaer 24, 1948
Another condition considered essential by the
majority is the establishment of effective, enforce-
able international control of atomic energy. I
hope that the Soviet Union will find it possible to
accept the only system of international control and
I^rohibition which the majority have found ade-
quate.
Another condition essential to world confidence
and security is the conclusion of the peace settle-
ments with Japan and Germany. It is impossible
for any nation to determine its military require-
ments for self-preservation until these conditions
have been accomplished. But can conditions of
confidence and security be created as long as one
of the permanent members of the Security Coun-
cil blocks the formulation of a lasting peace?
Can there be confidence and security when one
of the permanent members of the Security Coun-
cil creates a threat to peace by imposing a land
blockade of Berlin?
Can there be confidence and security when one
of them refuses to participate in the efforts of the
Security Council to remove this threat to world
peace ?
Can there be confidence and security when one
of them frustrates the effoiis of all the other oc-
cupying powers for a pacific settlement of the
dispute ?
I call your attention also to the fact that the
principles considered essential by nine of the
eleven members of the Commission for Conven-
tional Armaments also call for a system of ade-
quate safeguards which, by including an agreed
system of international supervision, would insure
the observance of the provisions of the resolution
or convention by all parties. These, too, must
precede the initiation of any disarmament.
The crucial aspect of this question is the stead-
fast refusal of the Soviet Union, in the study of
atomic-energy control and in the field of conven-
tional armaments, to agree in common with other
members to the opening of its territory to repre-
sentatives of the United Nations so that they might
'Made before Committee I (Political and Security) in
Paris on Oct. 12, 1948, and released to the press on the
same date. Printed also as Department of State publi-
cation 331!).
511
THE UNITBD NATIONS AND SPECIALIZED AGENCIES
determine whether the agreements are being
carried out.
Does any member of this committee think for a
moment that the Members of the United Nations
shoukl disarm while the Soviet Union gives no
evidence whatsoever that it is willing to partici-
pate in the world community to the extent re-
quired for the control of atomic energy and the
regulation of armaments?
In its resolution the Soviet Union proposes a
system of supervision and control "within the
framework of the Security Council." The ob-
jective in steering this proposal into the Security
Council, with the veto as the trap door, is too
obvious to permit serious consideration. Such
attitude is an ancient one; the Soviet proposals
for disarmament made in 1927 at Geneva were
really aimed at another objective than disarma-
ment, as shown in a resolution of the sixth congress
of the Communist International :
"The aim of the Soviet proposal was not to
spread pacifist illusions, but to destroy them ; not
to support capitalism by ignoring or toning clown
its shady sides, but to propagate the fundamental
Marxian postulate, that disarmament and the
abolition of war are possible only with the fall
of capitalism. . . ."
I ask again — Why has Mr. Vyshinsky presented
his proposal to this body instead of to the Com-
mission for Conventional Armaments? Could it
possibly be for propaganda effect?
The world situation is too grave to permit any
further play with words. I say this deliberately
after listening to hour after hour of Soviet ora-
tory. In a most revealing manner our Soviet col-
leagues have, during the past two weeks, exposed
to us }iot only the vanity of such word structures
but also their emptiness.
Mr. Vyshinsky has mentioned his aversion to
war. He has, in particular, depicted at great
length the horrors of atomic warfare. He has
freely — very freely — in quoting from one of his
favorite American magazines translated the ex-
pression "technical improvement" into the word
"progress" on the part of the United States in
manufacturing even deadlier atomic bombs than
that used at Hiroshima. He has then proceeded
to wave this distorted example of American in-
ventiveness in the face of dismayed and already
overwrought mankind.
Is it not strange that in this "paean of peace"
he has placed the accent on atomic warfare?
Consistently he has dwelt on the frightful effects
of the ever bigger and better atomic bombs which
he generously attributes to American resourceful-
ness and efficiency. Is it not strange that except
for a word here and a sentence there he has not
placed the accent on war, just plain war? Is it
not curious that, instead of concentrating his ire
512
on that desperately out-of-date ultimate instru-
ment of the policy of nations, he has confined his
highest flights of oratory purely to atomic war-
fare?
I accept the recent challenge of my Soviet col-
league to study Marxian teaching as currently ex-
pounded today in the Soviet Union for the answer.
Aggressive warfare in the Soviet Socialist of-
ficialdom has not yet fallen into disrepute. For
the time being only atomic warfare is to be
dreaded and avoided at all costs. Indeed war it-
self is still a recognized means of achieving a
Comminiist world society.
The Soviet Union for more than a year has
pretended to devote itself to a so-called "peace
offensive". Mr. Vyshinsky has spoken much of
the peaceful intentions of the Soviet Union as con-
trasted to the alleged warlike and aggressive in-
tentions of the United States. Yet by what
evidence are we to judge the peaceful intentions
of the Soviet Union?
In the first place there is a vast Communist
literature which reveals much concerning the in-
tentions of the Soviet Union. If these writings
are outdated, not valid, or do not reiDresent the
policy of the Soviet Union, assurance of that fact,
followed by concrete action, would begin to re-
move the apprehensions felt by many seated about
this table. But until that time we have no re-
course other than to accept as valid the statements
which have been made repeatedly by authoritative
representatives of the Soviet Union.
We hope it is not ti'ue that the Soviet Union
believes and acts on the premise that a conflict
between Russia and the Western World is inevi-
table, and we hope that Mr. Vyshinsky can assure
us that such is not the case.
Yet the History of the Communist Party of the
Soviet Union, a book whose tenth anniversary of
publication was celebrated last month in Moscow,
which has been printed in 62 languages and dis-
tributed in more than 33 million copies, states that
"Lenin has pointed out that war is an inevitable
concomitant of capitalism." This history, which
is taught the length and breadth of the Soviet
Union, teaches that there are just wars, wars
which are waged, for example, "to liberate the
I^eople from capitalist slavery."
In a book jniblished in 1947 entitled The Econ-
omy of the U.S.S.R. During World War II, the
Deputy Premier of the U.S.S.R. and Chief of the
State Planning Commission states as follows :
"Lenin and Stalin warned the Socialist home-
land again of the inevitability of historical battles
between imperialism and socialism and prepared
the peoples of the U.S.S.R. for these battles. Lenin
and Stalin explained that wars which a working
class, having defeated its own bourgeoisie, wages
in the interests of its socialist homeland and
in the interests of strengthening and developing
socialism, are lawful and holy wars. . . .
Department of State Bulletin
'"To proYont the possibility of appeai-ance
within a I'utui'i' period of new imperialist aggres-
sion against the Socialist homeland, and the be-
ginning of a third world war, it is necessary that
the aggressor imperialist eonntries be disarmed
militarily and economically, and that the anti-
imperialist democratic countries rally together.
It should not be forgotten that the capitalist eco-
nomic system abroatl of itself produces aggressive
wars and the leaders of such wars. . . ."
Finally. Mr. Chairman, as recently as Septem-
ber '22, li'-lS, the Soviet newspaper Isvestia stated :
"The capitalist system is doomed to destruction.
However, the downfall of cai)italism will not
come of itself. Capitalism can only be destroyed
in a fierce class struggle."
If the Soviet Union regards those governments
which do not subscribe to Communism as the rep-
resentatives of the "capitalism" it seeks to destroy,
then how can we avoid feeling apprehensive?
When we hear Soviet representatives talk about
the peace offensive, we recall that in April 1948
a Communist Party publication in Paris defined
"final victory over war'' as "victory over capital-
ism". Is this not a ghastly definition of peace?
It is clear that in the Soviet Union war is not
only regarded as inevitable but is actually glori-
fied by its cultural leaders.
Issue no. 44 of the Literary Gazette, which, like
all Soviet publications, carries official sanction,
only two years ago stated the following :
"We do not intend to abandon the war theme.
. . . We must write about war in such a way that
the generation of young Soviet people which come
after us will love arms and be ready for battles
and victories."
Perhaps Mr. Vyshinsky can show us that offi-
cial utterances, some of them made less than a
month ago, were not intended to mean what they
say. Perhaps Mr. Vyshinsky can withdraw the
thesis that a war between the Soviet Union and
the capitalist countries is inevitable and that Com-
munism teaches that our system must be destroyed.
Until he does, however, we cannot ignore the
warnings in the writings of Soviet authorities.
So much for Soviet philosophy and the peace
of mind which it may inspire in their non-Marxist
neighbors.
Xow let us briefly consider whether peace of
mind can be assured by the past actions of the
U.S.S.R.
The aggrandizement of Soviet territory has al-
ready been referred to. Indignantly the Soviet
Delegation has asserted that these annexations had
been effected with democratic consultations of the
populations according to the enlightened standards
of the Soviet Constitution. Does this statement
Ocfofaer 24, 7948
THE UN/rED NATIONS AND SPECIALIZBD ACBNCIBS
stand analysis? Even nioi'c, does it stand the test
of Mr. Vyshinsky's beloved "critique"? Let us
consider eastern Poland. Somehow I seem to
remember that the democratic processes of annex-
ation started in September 19;5i) by a sudden over-
night military offensive against an already
defeated foe. This conquest was conducted in full
harmony and technical cooperation with the
Nazis. The Soviet Union approved by the stroke
of a pen on August 23 of that year the alliance, and
suddenly became a working partner with the oft-
denounced Nazis. And did not Generalissimo
Stalin, after the Nazi-Soviet partition of Poland,
telegraph to Ribbentrop, the Nazi Foreign Minis-
ter: "The friendship of the people of Germany
and the Soviet Union, cemented by blood, has every
reason to be lasting and firm." As to the "demo-
cratic" ratification of the inclusion of this large
part of prewar Poland in the Soviet Union by the
populations themselves, we learn little (and I
think we all would keenly be interested to hear)
about details thereof from the Soviet Delegation.
However, it really should not be necessary to seek
far for enlightenment. Any nation, any individ-
ual with any kind of experience of universal
suffrage does not have to be told a great deal about
the democratic character of elections and plebi-
scites which yield 99-percent results.
The Baltic States also began on their "volun-
tary" road to incorporation by the arrival of the
Red Anny in the fall of 19o9, followed by their
comi^lete takeover after the French campaign of
1940, at a time when there was no question of lib-
erating these small countries from an enemy yoke.
We recall that the entrance of the Latvian Repub-
lic into the Soviet Union was presided over by no
less a person than my distinguished colleague, Mr.
Vyshinsky.
Let us pass on down the years. First, we en-
counter the "great hope", the hope generated in
the bosom of every generous human being when
the embattled Russian people played such a great
part in defeating Nazi German}', when hope was
kindled that the relentless doctrines of Marx and
of Lenin, doctrines of hatred between classes and
also of inevitable strife, had made way for a more
enlightened concept of relations between men and
states.
For a long while most people clung tenaciously
to this hope, unwilling to yield and abandon their
vision that a new Morld, at last better, with un-
limited possibilities for the future, had dawned.
They insisted on disbelieving the evidence. Grad-
ually the realization developed that, indeed, noth-
ing was changed.
Is it really necessai*y to go into details regarding
the domination of Rumania, Poland, Hungaiy,
Albania, Bulgaria, Czechoslovakia, and Yugo-
slavia? Recent events in truly impressive detail
have disclosed that the price of Soviet friendship
is complete subservience to Soviet policy.
513
THE UNITED NATIONS AND SPBCIAIIZBD ACBNCIES
The satellites of the U.S.S.R. were not alone
to feel the heavy hand of its constant drive for
world power, a drive camouflaged by words ap-
propriated from liberty's lexicon, words of vital
meaning to those who enjoy freedom, but decep-
tive and ineaningless in the Russian policy toward
her satellites.
Cause for disillusionment and alarm also exists
in the Orient, as the distinguished representative
of China gave testimony yesterday. There, too,
Communist directives preach war and bloodshed,
which facts confirm. In a lengthy resolution
adojjted by the sixth world congress of Commu-
nist International at Moscow on September 1, 1928,
the following directive concerning China is f oimd :
"The Communist Party (in China) must every-
where propagate among the masses the idea of
Soviets, the idea of the dictatorship of the prole-
tariat and peasantry, and the inevitability of the
coming revolutionary mass armed uprising."
That "mass armed uprising" preached from
Moscow in 1928 is now in full swing. The people
of Manchuria after long years under Japanese
domination and after having their factories de-
spoiled of equipment by the Soviet Army are now
suffering untold hardships from armed Chinese
Communist forces who are seeking by force to
destroy the constituted authority of China, whose
representatives sit here among us today as fellow
members. These Communist forces have also
penetrated into the heart of China seeking to de-
stroy and despoil. Another dangerous develop-
ment has occurred. The U.S.S.R. obtained as
part of its price for entering the war against
Japan special positions at Port Arthur and Dairen,
Chinese territory, which have been so utilized
effectively to bar China from exercising its legal
authority.
In Korea, where a people of 30,000,000 held high
hopes for complete independence at the end of the
war in the Orient in September 1945, those hopes
have been and are being betraj'ed through Soviet
opposition to any rational solution. That opposi-
tion moreover has been maintained in complete
disregard of a resolution adopted by the General
Assembly on November 14, 1947, providing a fair
and honorable solution of the Korean problem.
Can the Korean people look forward with equa-
nimity to any solution when a large Soviet-trained
armed force awaits in North Korea an oppor-
tunity to march southward ?
The states of western Europe have also been the
victims of this new form of aggression. The Com-
inform was formed so as better to correlate the
work of destruction to be accomplished. At all
costs western Europe nuist not regain its feet, for
should it do so it would successfully resist Com-
munist penetration. At all costs the homeland of
Western civilization must be kept in a constant
514
state of tui'moil and economic chaos. It must be
kept in a state of fear and worry, so as to be unable
to concentrate on the great task of reconstruction.
The economic blood transfusion from the United
States must at all costs be nullified by recurring
strikes and curtailed production. The Commu-
nist Parties of France, Italy, the United Kingdom,
Belgium, the Netherlands, and Luxembourg re-
ceived tlieir orders accordinglj', and with the un-
reasoning discipline which is one of the many ter-
rifying aspects of modern Communism the vari-
ous Communist Parties proceeded to execute this
deliberate plan of sabotage.
Overnight the Communist slogan was no longer
"woi'k and produce" as it had been in the first
post-liberation period. As soon as it became ob-
vious that returning health would protect these
bodies politically against the Communist views
the new slogan became "destroy and wreck."
Perhaps most surprising of all is the complete
brazenness with which these so-called national
parties admit their allegiance to a foreign jjower.
We have had a striking illustration right here
in Paris since this General Assembly convened.
The official Communist organ, Humaniie, on Oc-
tober 1 i^ublished the following statement by the
Politburo : "The people of France will never fight
the Soviet Union." Let us ponder exactly what
this means. A French political party declares
openly that it will never participate in a war
against another nation and this regardless of the
circumstances under which a conflict might de-
velop. For "my country right or wrong" the
Communists of all lands now substitute "the
U.S.S.R. right or wrong."
Are we dreaming? Can such tactics, such ac-
tions, such a record be those of one of the founders
of the United Nations? Harking back to that
day of hope, June 26, 1945, when the Union of
Soviet Socialist Republics signed the Charter,
what a crashing discord in the world's hymn of
peace. Perhaps this apparent contradiction can
best be explained by a quotation from Lenin with
reference to Communist penetration of trade-
unions (Left-wing Communism, an infantile dis-
order) : "It is necessary to be able to withstand
all this, to agree to any and every sacrifice, and
even — if need be — to resort to all sorts of strata-
gems, maneuvers and illegal methods, to evasion
and subterfuges in order to penetrate the trade
unions, to remain in them and to carry on Com-
munist work in them at all costs."
Let us for a few moments refresh our memories
so as better to judge the record against the lofty
purposes so well set forth in the Charter's pre-
amble and first two articles :
WE THE PEOPLES OF THE UNITED NATIONS
DETERMINED
to save succeeding generaticms from the scov/rge of
Department of Sfafe Bulletin
tear, lohich fivice in our lifetime has brought vm-
told sorrow to mankind, and
to reaffirm, faith in fundamental human rights, hi
the dignity and loorth of the human perxon, in the
equal rights of men and women and of nations
large and small, and
to establish conditions under xohich justice and re-
spect for the obligations arising from treaties and
other sources of intertiational law can be main-
tained, and
to promote social progress and better standards of
life in larger freedom,
AND FOR THESE EXDS
to practice tolerance and live together in peace
with one another as good neighbors, and
to unite our strength to maintain international
peace and security, and
to ensure, by the acceptance of principles and the
institution of methods, that armed force shall not
he used, save in the common interest, and
to employ international machinery for the proino-
tion of the economic and social advancement of all
peoples,
HAVE RESOL^'ED TO COMBINE CUB EFFORTS TO ACCOM-
PLISH THESE AIMS.
Accordingly, our respective Governments, through
representatives assemhled in the city of San Fran-
cisco, ioho have exhibited their full powers fownd
to be in good and due form, have agreed to the
present Charter of the United Nations and do
hereby establish an international organization to
he known as the United Nations.
Article 1
The Purposes of the United Nations are :
1. To maintain international peace and security,
and to that end: to take effective collective meas-
ures for the prevention and removal of threats
to the peace, and for the suppression of acts of
aggression or other breaches of the peace, and to
bring about by peaceful means, and in conformity
with the principles of justice and international
law, adjustment or settlement of international dis-
putes or situations which might lead to a breach
of the peace;
2. To develop friendly relations among nations
based on respect for the principle of equal rights
and self-determination of peoples, and to take
other appropriate measures to strengthen univer-
sal peace;
3. To achieve international cooperation in solv-
ing intematianal problems of an economic, social,
cultural, or humanitarian character, and in pro-
moting and encouraging respect for human rights
and for fundamental freedoms for all without dis-
tinction as to race, sex, language, or religion; and
October 24, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
4- To be a center for harmonising the actions
of nations in the attainment of these common ends.
Article 2
The rganization and its Members, in pursuit
of the Purposes stated in Article 1, shall act in Oic-
cordance with the following Principles.
1. The Organization is based on the principle
of the sovereign equality of all its Members.
2. All Members, in order to ensure to all of them
the rights and benefits resulting from jnembership,
shall fulfil in good, faith the obligations assumed
by them in accordance with the present Charter.
3. All Meinbers shall settle their inter national
disputes by peaceful means in such a manner that
international peace and security, and justice, are
not endangered.
4- All Members shall refrain in their interna-
tional relations from the threat or use of force
against the terntoi'ial integrity or political inde-
pendence of any state, or ^V^ any other manner in-
consistent with the Purposes of the United
Nations.
5. All Members shall give the United Nations
every assistance in any action it takes in accord-
ance with the present Charter, and shall refrain
from giving assistance to any state against which
the United Nations is taking preventive or en-
forcement action.
6. The Organization shall ensure that states
which are not Members of the United Nations act
in accordance with these Principles so far as may
be necessary for the maintencmce of international
peace and security.
7. Nothing contained in the present Charter
shall authorize the United Nations to intervene in
matters which are essentially within the domestic
jurisdiction of any state or shall require the Mem-
bers to Submit such matters to settlement under
the present Charter; but this principle shall not
prejudice the a/pplication of enforcement measures
wider Chapter VII.
With complete candor, I shall now speak about
the security situation in which we must consider
the proposal of the Soviet Union for a one-third
reduction of armed forces. In doing so, I quote
from a statement that Secretary of State Marshall
made before the Foreign Affairs Committee of the
House of Representatives of the United States on
May 5, 1948. He said that—
"When universal agreement to the Charter was
achieved, the strength of the major powers in rela-
tion to one another was such that no one of them
could safely break the peace if the others stood
united in defense of the Charter. Under existing
world circumstances the maintenance of a com-
parable power relationship is fundamental to
world security."
To what extent did the United States demobi-
515
THE UNITED NATIONS AND SPECIALIZED AGENCIES
lize? Let me cite the statement made by Secre-
tary Marshall before the Women's National Press
Club in Washington on July 1, 1947 :
". . . At the end of the war our government
demobilized the greatest concentration of military
power that the world has ever seen. Our ai-med
strength was deployed from the Elbe in Germany
to the Islands of Jai^an. This great array was
demobilized with amazing rapidity until only com-
paratively small garrisons of troops were left on
the necessary occupation duty in tlie principal
enemy countries. No conditions were attached to
this withdrawal. . . . No political parties sub-
servient to United States interests have been left
behind in European countries to attempt conquest
of governments from within. No American
agents have sought to dominate the police estab-
lishment of European countries. No 'joint Amer-
ican-European companies' have been forced upon
reluctant governments. I do not cite this record
as evidence of our peaceful intentions by way of
indulging in national boasting, but merely because
it is true. . . ."
During this period it has become progressively
clearer that serious misconceptions prevail in the
minds of the leaders of the Soviet Union. It is
a misconception to suppose that differing systems
cannot live side by side in peace under the basic
rules of international conduct prescribed by the
Charter of the United Nations. These rules are
obligatory upon all Members.
The United Nations must dispel these miscon-
ceptions of the Soviet leaders. It must bring
about a more realistic view of what is possible and
what is impossible in the relationship between the
Soviet Union and the world at large. This will
restore to international society the equilibrium
necessary to permit the United Nations to function
as contemplated at San Francisco,
The United States realized the need for this
equilibrium. The first necessary step was to in-
sure the freedom and independence of the Mem-
bers of the United Nations. The ability of demo-
cratic peoples to preserve their independence in
the face of totalitarian threats depends upon their
determination to do so. That determination in
turn depends upon the development of a healthy
economic and political life and a genuine sense of
security.
The United States Government, therefore, is
responding to requests to provide economic as-
sistance to various countries in Europe and else-
where. The United States is cooperating with
16 European countries in a recovery program pro-
viding for self-help and mutual aid.
In addition the United States Government is
now considering the steps necessary to bring the
national military establishment to the minimum
level required for international security.
= A/C.l/319of Oct. 10, 1948, and A/C.1/309 of Oct. 1, 1948.
516
Action necessary on the part of the United
States to lestore this balance-of-power relation-
ship may be less onerous than for some other
nations which are already spending a very large
percentage of their national income on arma-
ments. The United States for the fiscal year 1948-
49 is spending only 5.9 percent of its national in-
come for military purposes, despite the fact that
this represents some increase over the low point
since the war. This is to be compared with the
figure of 17 percent for the Soviet Union men-
tioned by Mr. MacNeil the other day.
Gentlemen, I repeat that, until present con-
ditions of world fear and insecurity are rej)laced
by an atmosphere of international confidence and
security, not only will it be impossible to institute
effective systems of control and reduction of arma-
ments but the whole field of international relations
will be subject to continuous discord.
The people of the United States are deeply
interested in the reduction of national armaments
and are prepared to consider most carefully any
io7ia fide proposal for lightening the burden of
armaments. As a matter of fact, however, the
United States disarmed too far and too fast after
the last war. The overriding consideration is the
maintenance of international peace and security.
We know that maintenance of this international
peace and security dejDends upon strength and
resolution of those states who in the final analysis
are prepared to act in support of the world com-
munity against aggression.
Indeed, the security of many nations seated at
this table dejiends upon this fundamental fact.
The world learned from Germany and Japan what
can happen when leading memfjers of the inter-
national community are or are thought to be lack-
ing in strength or resolution. I call upon the So-
viet Union to work with us to reduce world ten-
sion and to dispel the dread and suspicion which
are filling the lives of so many of our peoples and
making our efforts for world organization so dif-
ficult.
Before closing I wish to state that the Delega-
tion of the United States has considered care-
fully and will vote for the resolutions which have
been submitted to this committee by the Dele-
gations of the United Kingdom and Syria.-
Taken together these resolutions are entirely con-
sistent with the ])osition of the United States.
Article 26 of the Charter provides "that — . . . the
Security Council shall be responsible for formu-
lating . . . plans to be submitted to the Mem-
bers of the United Nations for the establishment
of a system for the regulation of armaments."
Despite the fact that the work of this Commis-
sion has continued to be hampered by the dema-
gogic appeals and irresponsible propaganda of
the Soviet Union, the United States believes that
the Commission must proceed with its work.
Department of Stale Bulletin
Discussion of the Palestine Situation in Committee I
STATEMENT BY RALPH BUNCHEi
Acting U.N. Mediator in Palestine
It is with heavy heart that I make this statement
to the Committee today. But for that crime in
Jerusalem committed by a band of despicable gang-
sters it would be Count Bernadotte himself who
would be speaking to you now. The late mediator
was not only my chief but a treasured friend. In
these months since the end of May, I had come to
know him well. He was an utterly honest and
fearless man, completely independent in his think-
ing, and thoroughly devoted to the effort to bring
peace to Palestine. He had no axe to grind, no
vested interest to serve. The views which I wiU
briefly express to you today will, I think, be very
close to the views which Count Bei'nadotte himself
would have expressed had he lived to enjoy the
privilege of sitting with you, a privilege which he
would have greatly appreciated.
The progress report of the late mediator which
is before you as document A/648, sets forth quite
clearly in part one the views of Count Bernadotte
on the mam issues in the Palestine conflict today. -
I need not repeat these views, and the more so since
I am in full accord with them. If I may take the
liberty of doing so, however, I would like briefly
to give some emphasis to what appears to me to be
the inescapable logic of the situation in Palestine
with which this Assembly is now confi'onted.
Since the termination of the mandate on May 15
of this year, there have been three signal develop-
ments in Palestine : — The proclamation of a Jew-
ish state, resort to forceful measures by the Arab
states, and the intervention of the Security
Council.
1. A Jewish state was proclaimed in that part
of Palestine envisaged for the Jewish state in the
resolution of the General Assembly of last Novem-
ber 29. That Jewish state did not come about in
accordance with the processes and procedures fore-
seen in the Assembly's resolution. But it was no
less real because of that and it could confidently
base its right to exist on the fact that the majority
of the Members of the United Nations had en-
dorsed the idea of a Jewish state in Palestine, a
mandated territory and therefore an international
responsibility, moreover, this was no nominal or
paper state. From the very day of its proclama-
tion it had a vibrant reality. It boasted an active
and vigorous government, a national esprit and
cohesion, and a well organized and well trained, if
poorly equipped, army. It was a going concern
Ocfober 24, 1948
from the day of its birth. It was readily apparent
to even the casual observer that the nationalist
spirit of the Jewish inhabitants of this state was
so strong and deeply rooted as to render entirely
illusory any suggestion that a Jewish state in Pal-
estine could be prevented by any means other than
force of sufficient strength to completely crush the
Jewish community. In the five months since its
inception, this Jewish state has consolidated and
strengthened its position, both nationally and in-
ternationally.
2. On the other hand, Arab opposition to the
new Jewish state was so intense as to induce the
Ai'ub states to resort to violent measures. Open
warfare between the newly proclaimed Jewish
state and the states members of the Arab League
broke out coincidentally with the termination of
the mandate and the proclamation of the Jewish
state. This, of course, had not been envisaged by
the resolution of November 29. Until halted by
the two truces achieved through the intervention
of the Security Council, it was warfare as deadly
as it could be made with the limited weapons and
supplies available to the contestants. It was war-
fare brought on by the fact that the Jews had
taken the political offensive on the termination of
the mandate and proclaimed a state, while the
Arab states, in retaliation, took the military of-
fensive and moved their troops into Palestine with
the avowed purpose of protecting the Arab inhabi-
tants of Palestine by crushing the infant Jewish
state. This military effort was exerted not by the
Arabs of Palestine but primarily by the armies of
the Arab states witii the objective of protecting the
Arabs of Palestine from an alleged danger of Jew-
ish domination. It cannot be said that the Arabs
had not given ample warning of their firm inten-
tions in this regard. Their willingness to resort to
this extreme action is an accurate gauge of the in-
tensity of Arab feelings as regards the injustice to
them of a Jewish state in Palestine.
3. By the intervention of the Security Council
the warfare in Palestine has been twice stopped
and at present remains stopped. In fact, the reso-
lution of the Security Council of July 15, 1948,
which ordered both parties to cease fighting, al-
' Made on Oct. 15, 1948, and printed from telegraphic
text.
' For conclusions of the report, see Bulletin of Oct. 3,
1948, p. 436.
517
THE UNITED NATIONS AND SPECIALIZED AGENCIES
though it makes reference to a truce of undefined
duration, also prohibits any further recourse to
military action as a means of settling the dispute.
The imposed "truce" of July 18 is really a per-
manent cease-fire order. The opposing armies
have now been confronting each other since July
18, but they are forbidden to resume fighting. If
either side should provoke a resumption of hostili-
ties it would have to do so in open defiance of the
order of the Security Council and thereby run the
risk of invoking the threat of sanctions embodied
in the July 15 resolution. The Security Council
order stands and it cannot be assumed that either
side will wish to run the risk of shouldering re-
si^onsibility for open defiance of this order by a
deliberate resumption of hostilities. On the other
hand, this permanent cease-fire order, which is also
described in the resolution as a truce, has been re-
garded by both parties as a truce, and therefore of
temjjorary ratlier than permanent duration.
Moreover, it has been administered and supervised
as a truce. The armies have not been withdrawn
or demobilized. On the contrary, they have been
confronting each other in full battle array, and
alerted for battle, for almost five months now, ex-
cept for the intense fighting during the nine day
interval between the two truces. The strain and
tension are very great, and it is most assuredly not
a situation which can be maintained indefinitely.
The existing truce clearly must be superseded by
something more durable and secure — either a
formal peace or an armistice, either of which would
be more consistent with the Security Council order
than the present precarious truce.
It is unthinkable that Arabs and Jews should be
permitted to resume hostilities in Palestine. The
threat to the peace of the Middle East generally
and even to the world from conflict in Palestine, is
far too great.
There have already been some danger signals
of outside interests in the conflict, which might
render doubtful any assumption that a renewed
conflict could be confined to Palestinians and the
Arab states.
The role of mediator was defined in resolution
186 (S-2) of the General Assembly of May 14,
1948. Among other functions that resolution di-
rected the mediator to "use his good offices to pro-
mote a peaceful adjustment of the future situation
of Palestine". This was the function to which
Count Bemadotte devoted major concentration
from the beginning of his effort in Cairo on May
28, although the supervision of the truce under the
resolution of the Security Council, and more re-
cently, the tragic refugee problem, consumed much
of his time and energy.
In directing his attention towards achieving a
peaceful adjustment of the Palestine situation, the
mediator was confronted with the necessity of
defining the premises upon which his efforts would
518
be based. His decision in this regard was a prac- |
tical one, dictated in large measure by circum- *
stances entirely beyond his control.
Arab repi'esentatives, for example, with whom
he consulted frequently and at great length, con-
stantly emphasized what they would describe as
the historic injustice of the Balfour Declaration,
the terms of the mandate, the mandate itself, the
Jewish nationalist aspirations, and the resolution
of the General Assembly of 29 November on the
one hand, and the fundamental equality and de-
mocracy of an Arab state in the whole of Palestine
on the other. Count Bernadotte, however, quite
rightly in my view, did not regard it as within his
purview to pass judgment upon the validity and
the justice of decisions previously taken by the
international community. On the same grounds,
and, in view of the nature of his terms of reference,
for instance, he did not consider himself to be
rigidly bound by the details of the resolution of
the General Assembly of 29 November but recog-
nized, nevertheless, that its basic conclusions rep-
resented the expressed will of more than two thirds
of the members of the United Nations, and could
not, therefore, be ignored.
It is undeniable, therefore, that in his approach
to the problem. Count Bernadotte was inevitably
influenced by the fact that, Arab opposition not-
withstanding, there had been, especially during
the past 30 years, a progressive recognition by the
international community of a special position for
the Jewish community in Palestine, culminating
in the resolution of 29 November and the procla- ■
mation by the Jews themselves of a state of their f
own in a part of Palestine.
On the other hand, the mediator was not in-
fluenced by that part of the claims of the Jews to
a historic right to Palestine based upon their an-
cient residence in that country and their religious
association with it, rather than formal interna-
tional sanctions. He did not accept, therefore, the
Jewish contention that it was they who were al-
ways called upon to compromise. Since he could
not accept their alleged historical claims to the
whole of Palestine, including Transjordan, he
could not admit the contention that acceptance of
the 29 November resolution constituted a compro-
mise on their part, and that any alteration in the
terms of that resolution not favorable to them
would compound a compromise previously made.*
It was within this milieu that the mediator,
through four months of negotiation of unprece-
dented intensity, strove, by trial and error, through
reason and persuasion and every other honorable
means, to find a common ground upon which the
conflicting parties might meet. This common
ground was never found. That it was not found
was due entirely to the intransigence of the par-
ties. On the fundamental issues, each side re-
mained adamant.
Department of State Bulletin
In view of tliis fact, the mediator was forced to
the conchision that it Mas not now possible, by
means of an intermediary, to bring the two parties
towther and achieve agreement between them.
The Arab representatives steadfastly refused to
meet the Jewish representatives, either in the pres-
ence of the mediator or otherwise, since they con-
sidered any such step as a tacit admission on their
part of the right of the Jewish state to exist.
The mediator, however, did not conclude from
these facts that the problem of Palestine cannot be
solved by peaceful means, or that a basis for agree-
ment between the parties can never be found.
Failure to bring the parties together would, it is
true, preclude any immediate possibility of a tidy,
definitive solution, which is very much to be de-
sired. But there was an alternative which derived
precisely from the very rigidity of the parties who
were at the same time in the predicament of having
to defy the Security Council in order to resort to
the simple expedient of trial by force of arms.
It was with this in mind that the mediator
pointed out in paragraph 10 on page 4 of his re-
port that :
"Although it cannot be said that neither side will
fight again under any circumstances, I am strongly
of the view that the time is ripe for a settlement.
I am reasonably confident that given the perma-
nent injunction against military action issued by
the Security Council, and firm political decisions
by the General Assembly, both sides will acquiesce,
however reluctantly, in any reasonable settlement
on which is placed the stamp of approval of the
United Nations. I do not mean to imply that there
is at the moment bright prospect for formal agree-
ment between the two parties. But, in my opinion,
although such formal agi'eement would be highly
desirable, it is not indispensable to a peaceful set-
tlement at this stage. Wliat is indispensable is
that the General Assembly take a firm position on
the political aspects of the problem in the light of
all the circumstances since its last session, and that
its resolution be so reasonable as to discourage any
attempt to thwart it and to defy the Security
Council order by the employment of armed force."
It was on the basis of this assumption also that
the mediator considered it highly essential that
the question of Palestine come before the General
Assembly at this time and that the political aspects
of the problem be reviewed and unequivocally
pronounced upon in the light of all the relevant
factors.
In my opinion, in the present circumstances, two
needs are uppermost in the most imperative sense.
The first of these needs is a reasonable basis for the
assumption that neither party will again resort to
force in order to make its views prevail and as a
means of gaining its objectives. In this regard,
reason for hope is to be found in the fact that
Ocfofcer 24, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
settlement by force has been tried and has been
checked. I do not find it possible to believe that
either side wishes to resume hostilities or that
either side has found settlement by force of arms a
profitable expedient. Despite the conflict which
has raged in Palestine and despite the gidf which
still divides the antagonists, there is on both sides
a desire and a need for peace arising from the fact
that war is a costly, even disastrous, interruption
in the normal course of development of both Arab
and Jewish communities in the Middle East.
The second of these needs is for the General
Assembly, as the representative body of the inter-
national community, to set forth its position on the
following fundamental political issues affecting
this former mandated territory with regard to
which its responsibility continues :
A. Permanent peace in Palestine.
B. The Jewish state in Palestine.
C. The general configurations of the boundaries
of sucn a state.
D. International guarantee for such boundaries.
E. The future status of Jerusalem.
F. The disposition of the Arab-controlled area
of Palestine.
G. Guarantees for the rights of all inhabitants
of Palestine.
H. The repatriation and resettlement of Arab
refugees.
I. The nature of the machinery to be employed
as a vehicle for continuing United Nations in-
tervention in the problem imtil all of its major
aspects are finally disposed of.
It would not appear essential in this regard that
a detailed plan, a blueprint, be devised for this
purpose. Indeed, any such detailed scheme, in
view of all the developments since last November,
and the present situation in Palestine, might well
be undesirable. Assuming always that the parties
do not again resort to force, it would seem that a
somewhat general treatment of the subject, which
while making clear the position of the United
Nations on major issues woidd leave to the parties
the burden of peaceful adjustment, might have
great merit.
The conclusions set forth in part one of the
mediator's report might well provide a basis for a
general treatment of this kind. These conclusions
represent the constructive deductions which Count
Bernadotte had arrived at on the basis of his ex-
tensive and fruitful consultation on the problem
over a period of four months. He did not presume
to present them as recommendations to any organ
of the United Nations. As the mediator's report
points out in paragi-aph 13 on page 5, these con-
clusions were designed of settlement and concilia-
tion of the differences between the two parties. It
was, indeed, his intention to renew in Paris his
consultations with the representatives of the par-
ties in pursuance of the elusive objective of mutual
519
THE UNITED NATIONS AND SPECIALIZED AGENCIES
agreement between them. It was his thought that
if the conclusions set forth in the report could not
be accepted by Arabs and Jews as a basis for dis-
cussion they still would be available to the General
Assembly for such use as it might see fit to make of
them. Count Bernadotte harbored no illusions,
that either Arabs or Jews would embrace the con-
clusions in their entirety, nor did he deem it essen-
tial for them to do so, however desirable that might
be. He was convinced, as I am convinced, that the
voice of the United Nations speaks with consider-
able authority in Palestine; this voice, in truth,
was the sole foundation of his effort and his un-
challengeable achievements.
At the appropriate time, should the Committee
desire it, I would be pleased to present a statement
dealing exclusively with the conclusions in the re-
port and giving an explanation and elaboration of
each of them, and also the answer to any question
regarding the report.
The United States in the United Nations
[October 15-22]
The Roll of the United States
George F. Kennan, in his address before the
Herald-Tribune Forum on October 20,' stated that
if we mean business in our determination to make
the United Nations work, we must remember that
we have before us a task "as difficult and as arduous
as any that this country has ever tackled in peace
or in war". If that is our purpose, he said, then
we must shape and align the realities of interna-
tional life so that they "speak for themselves with
an eloquence greater than words — that they con-
vince the skeptical as words have thus far failed to
do, that the road of international collaboration is
after all the fastest, the most practical, and the
safest of the paths of national policy. And where
people are not open to argument on considerations
of the connnon good, then they must be shown that
this same conclusion flows even from the narrowest
and most embittered sense of self-interest, which
it does.
"This is the job we have to do.
"It is not, in reality, a new task, or one that lies
only before us. We have already been deeply en-
gaged in it for a long time.
"And it is not our task alone. It is a responsi-
bility which we share with the other peace-loving
nations of the world. It is entirely fallacious to
regard the differences which now separate the
United States and the Soviet Union merely as a
struggle between those two powers. The conflict
which exists inside the United Nations is not a
conflict between the United States and the
U.S.S.R. It is a conflict between the majority of
the U.N. members, acting in support of the Charter,
and a group of governments who refuse to abide
' For the complete text of Mr. Kennan's address, see
Department of State press release 853 of Oct. 20, 1948.
520
by its provisions or to recognize the over-riding
international obligation which the Charter consti-
tutes.
"We have now reached one of the most compli-
cated and delicate phases of this long and difficult
effort. We have been compelled to place before
the United Nations a matter of great seriousness
which it had proven impossible to compose by
peaceful means outside of the United Nations. We
were aware that this would constitute a severe test
of the organization, and one which we would have
preferred to have spared it. But we had no alter-
natives other than to meet the threat of force with
action in order to break the blockade of Berlin, or
to do nothing at all and thus permit this threaten-
ing situation to develop in an ominous silence and
uncertainty, conducive to every sort of alarmist
speculation and hysteria.
"This is a situation which is easy neither for us
nor for our friends. It is going to take all we
can bring to it in the way of steadiness and under-
standing and mutual confidence. But we must
always understand that on the successful resolu-
tion of it there hangs more than the removal of
restrictions on the supply of a single city; there
hangs the removal of one more great obstacle on
the road to a world in which international organi-
zation can really function."
The Berlin Crisis
A resolution aimed at peaceful solution of the
Berlin crisis was presented to the Security Coun-
cil in Paris on October 22 by six neutral nations
(Argentina, Belgium, Canada, China, Colombia,
and Syria) which have been striving to solve the
problem since it was posed by the United States,
Great Britain, and France.
The text of the resolution follows :
The Security Council having carefully considered the
series of events which have led to the present grave situa-
Department of Sfafe Bulletin
tion in Borlin, coMscioiis of the council's primary respon-
sibility for the maintenance of international peace and
security, and acting in accordance with Article 40 of the
Charter in order to prevent an aKKravation of the situation
in lierlin. in particular, by preparing the way to its settle-
ment, calls upon the four governments who have respon-
sibilities in Germany and in Berlin as the occupying
powers — France, the United Kingdom, the United States
of America and the Union of Soviet Socialist Republics.
1. To prevent any incident which would be of a nature
such as to aggravate the present situation in Berlin,
2. To put into effect, simultaneously, namely on the day
of notification of this resolution to the four governments
concerned, tlie steps required for the fulfilment of points
(a) and (b), which are set forth hereunder;
(a) Immediate removal by all parties of all restrictions
on communications, transport, and commerce between
Berlin and the Western zones of Germany, and the re-
strictions on transport and commerce to and from the
Soviet zones of Germany, it being understood that said
restrictions are the ones applied by the parties after the
first day of March 1948.
(b) An immediate meeting of the four military gov-
ernors to arrange for the unification of currency in Berlin
on the basis of the German mark of the Soviet zone. The
four military governors will fix the conditions for the
introduction, cireulaticm and continued use of the German
mark of the Soviet zone, as sole currency for the whole of
Berlin, and to arrange for the withdrawal of the Western
mark.
All the foregoing to be in accordance ■with the terms and
conditions defined in the joint directive delivered to the
four military governors in Berlin, agreed upon by the four
governments in Moscow, and issued on 30 August, 1948,
and to be carried out under the control of the quad-
ripartite financial commission, whose organization, power*
and responsibilities are therein described.
This measure must be totally fulfilled by the date in-
dicated in Paragraph (c).
(c) The date referred to in the last part of paragraph
(b) .shall be the 20th November 1948.
3. Within 10 days following the fulfillment of the meas-
ures provided for in Section Two, or on such date as is
mutually agreed between the four governments, to reopen
the negotiations in the Council of Foreign Ministers on
all outstanding problems concerning Germany as a whole.
Palestine
The Security Council on October 19 ordered a
halt to the fighting between Israeli and Egyptian
forces over supply routes to the Negev area in
southern Palestine. The Council also reminded
the parties in the Palestine dispute of their obli-
gations under the Council's blanket cease-fire
orders. The last such order, dated August 19, was
unconditional and had no time limit.
Tlie Council met at the request of Acting U.N.
Mediator Ralph Bundle after U.N. truce officials
failed through their own efforts to halt the Negev
clashes.
The resolution adopted by the Council on the
Negev fighting was submitted by Syria and em-
bodied Dr. Bunche's recommendations. The first
part of the resolution, ordering the immediate
cease-fire, was adopted unanimously. The rest of
the resolution was adopted by a 9-0 vote, the
Soviet Union and the Ukraine abstaining.
The resolution calls on both Israeli and Egyp-
tian forces to withdraw from any positions not
October 24, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
occupied at the time of the Negev outbreak, which
began on October 15. Conditions governing the
passage of supply convoys to the Jewish settle-
ments in the Negev are to be set by U.N. truce offi-
cials and both sides are required to negotiate, either
directly or through U,N. truce machinery, any
outstanding problems.
The Council reaffirmed its previous all-Pales-
tine cease-fire orders by adopting unanimously the
joint Chinese-British resolution submitted last
week. It calls on the Palestine parties to enstu-e
the safety of U.N. personnel and their ready access
to all places where their duties require them to go,
including airfields and ports. It also calls on the
parties to do their utmost to bring to justice all
l^ersons assaulting U.N. personnel. A Soviet
amendment accepted by the Council adds that U.N.
observers should not go beyond objective reports
to the Council.
On October 21 Dr. Bunche set Friday noon
(GMT) as the deadline for Israeli and Egyptian
forces fighting in the Negev, Palestine's southern
desert, to cease fire. The Security Council had
previously issued the cease-fire order.
Dr. Bunche transmitted the deadline by cable
simultaneously to the Israeli and Egyptian Gov-
ernments through U.N. Representatives in Tel
Aviv and Cairo.
Atomic Energy Resolution Adopted
Committee I completed its work on the atomic
energy question on October 20 by approving, 41
to 6, with 10 absentions, a four-point Canadian
proposals, as amended, to continue consultations
aimed at establishing an effective system of inter-
national control and outlawing atomic weapons.
This proposal will go to the General Assembly,
where a two-thirds majority is required for
adoption.
The General Assembly
Having examined the first, second and third reports of
the .\tomic Energy Commission which have been trans-
mitted to it by the Security Council in accordance with
the terms of the General Assembly resolution of 24 Janu-
ary 1946:
1. Approves the general findings (part II C) and rec-
ommendations (part III) of the first report and the spe-
cific proposals of part II of the second report of the com-
mission as constituting the necessary basis for establish-
ing an effective system of international control of atomic
energy to ensure its use only for peaceful purposes and
for the elimination from national armaments of weapons
in accordance with the terms of reference of the Aec.
2. Expresses its deep concern at the impasse which has
been reached in the work of the Aec as shown in its third
report and regrets that unanimous agreement has not yet
been reached.
3. Requests the six sponsors of the General Assembly
resolution of the 24th of January. 194G, who are perma-
nent members of the Atomic Energy Commission, to meet
together and consult in order to determine if there exists
a basis for agreement on international control of atomic
energy to en.sure its use only for peaceful purposes and
for the elimination from national armaments of atomic
weapons and to report to the General Assembly results of
their consultation not later than its next regular session.
521
THE UN/TED NATIONS AND SPBCIAUZBD AGENCIES
4. Meanwhile the General Assembly calls upon the Aec
to resume its sessions, to survey its program of work, and
to proceed to the further study of such of the subjects
remaining in the program of work as it considers to be
practicable and useful.
The effect of the resolution is to turn the stale-
mated issue of atomic energy control over to the
United States, U.S.S.K., the United Kingdom,
France, China, and Canada to see whether they can
find a basis for agreement between now and the
time when the General Assembly meets for its next
regular session.
The resolution as adopted is a revision of the
proposal originally submitted by Canada and re-
ported out by a special subcommittee. The orig-
inal draft would have left the issue to the five
major powers and Canada to solve the impasse
created by the Soviet Union, and would have di-
rected them to report at the next regular session.
Meanwhile, the Atomic Energy Commission itself
would have been inactive.
In announcing the United States' acceptance of
the wishes of the other nations, Ambassador Austin
emphasized that in agreeing to the revision, the
United States was not retreating from its oft-
stated view that the solution to the control impasse
is outside the Aec's competence and "that other
means of establishing cooperation must be ex-
plored".
Non-Self-Governing Territories
At a meeting of the Trusteeship Council in Paris
on October 18 the United States supported an
Indian resolution calling on states administering
non-self-governing territories to notify the Gen-
eral Assembly of changes in territorial constitu-
tional position or status resulting in discontinuance
of transmission of information called for under
provisions of the Charter.
The resolution was adopted by a vote of 29 to 0,
with 17 abstentions, after a Polish attempt to
broaden the resolution and Belgian efforts to limit
it were rejected.
Terming the resolution "logical and proper."
Francis B. Sayre, U. S. Delegate said:
"The United States now transmits vohmtarily
information regarding the development of institu-
tions of self-government within its territories.
Even in the absence of such a resolution, the United
States would expect to inform the United Nations
of any change in constitutional position and status
of any of its territories as a result of which it be-
lieved it unnecessary in resjject to such territory
to transmit further information under the Charter,
and in so doing to give such accompanying infor-
mation as might be appropriate. In voting for
this resolution, it is the understanding of my Gov-
ernment that transmission of the information re-
quested does not alter the right of each admin-
istering state to determine constitutional position
and status of any particular territory under its
sovereignty".
Cooperation Resolution
The five major powers found themselves in
agreement on October 21 as each expressed support
for a Mexican resolution appealing to the great
powers to "redouble their efforts, in a spirit of
solidarity and mutual understanding, to achieve
in the briefest possible time final settlement of the
war and the conclusion of all peace treaties".
Unqualified support for the resolution was
voiced by the United States, the United Kingdom,
and China. The Soviet Union and France also
endorsed the resolution but suggested rewording.
In addition, seven other nations spoke for adoption
of the Mexican appeal.
The United States was the first of the great
powers to speak out in favor of the Mexican resolu-
tion, the speaker being John Foster Dulles, of the
U.S. Delegation. The statement was Mr. Dulles'
first at a formal meeting of the current General
Assembly.
Mr. Dulles emphasized that although the major
powers have the right of initiative regarding the
peace treaties, this right must be used "affirma-
tively and constructively, and if not so used, the
consequences are of concern to all members of the
United Nations".
522
Department of Stale Bulletin
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
North Pacific Regional Air Navigation Meeting of ICAO
BY CLIFFORD P. BURTON
The North Pacific Regional Air Navigation
Meeting lield at Seattle, Washington, July 13-29,
19-18, under the auspices of tlie International Civil
Aviation Organization (Icao) was the eighth
in the original series of ten regional meetings
scheduled by Icao to survey aviation facilities
throughout the world. Upon the completion of
the series Icao will have an index of facilities
needed by international civil aviation on all the
important air routes of the world. The remain-
inw regional meetings projected by Icao are the
African - Indian Ocean Meeting and the South-
east Asia Meeting.
The worlt of the regional air-navigation meet-
ings, namely, the provision of safe and adequate
transportation to intei-national travelers, is basic
to all Icao programs in tlie technical field. The
United States as host government provided tlie
international secretariat for the Seattle meeting
with assistance from the technical staff of Icao
at Montreal.
Nine voting countries were present: Australia,
Canada, China, the Netherlands. New Zealand, the
Philil^pines, Siam, tlie United Kingdom, and the
United States. In addition, Chile, tlie Dominican
Republic, Poland, and the Union of Soviet Social-
ist Republics sent observers. International or-
ganizations represented were the International Air
Transport Association, the International Meteor-
ological Organization, and the United Nations.
The main meeting was preceded by a meeting
of a fact-finding group which convened the week
prior to the regional meeting in order to examine
and document operational data for the convenience
and use of the main meeting. The Seattle meet-
ing was the first time such a gi-oup was convened.
Since it proved its usefulness, the pattern will be
made use of at subsequent regional meetings.
Tlie organization employed at the North Pacific
Regional Air Navigation Meeting was similar to
tliat used at previous regional meetings. It con-
sisted of the General Committee, Subcommittee 1
of the General Committee, and technical commit-
tees in the fields of telecommunications and radio
aids, meteorology, search and rescue, air-traffic
control, aerodromes, air routes, and ground aids.
The Creneral Committee did not liandle any sub-
stantive material as all technical matters were
handled by its No. 1 Subcommittee or in the other
technical committees. Clifford P. Burton, Chair-
Ocfofaer 24, 1948
man of the United States Delegation, was elected
Chairman of the meeting, with Colonel Cheng-Fu
Wang of China and Colonel Sphrang Devahdstin
of Siam elected First Vice Chairman and Second
Vice Chairman respectively.
The results of the meeting were quite satis-
factory to the United States as the United States
position, as approved by the interdepartmental
Air Coordinating Committee, was upheld to a high
degree. Specific accomplishments in the technical
fields are given in the brief summary that follows.
Flight Operations. — Problems in connection
with this subject were handled by the No. 1 Sub-
committee of the General Committee. The Com-
mittee recommended slight alterations in the
boundaries of the Icao regions to exclude the
northern portion of Alaska and to extend the
southwestern boundary southward to include the
Philippines and the eastern coast of China (and
Hong Kong). A standard altimeter setting of
29.92 inches of mercury was recommended for the
ocean areas excluding the area approximately 100
miles from the shore line. In these latter areas a
QNH value for altimeter settings will be utilized
for both terrain clearance and altitude separation.
In the field of dimensional units it was agreed that
the yellow table published by Icao would be used
over the land areas of the United States and Can-
ada with an exception thereto in the ocean areas
and the Aleutian chain wherein nautical miles and
knots would be substituted for statute miles per
hour. The subject of publications and manuals
was handled in connection with NOTAM pro-
cedures, and the position of the United States was
upheld in its entirety.
Aerodromes, Air Routes, and Ground Aids. —
The Committee selected regular, alternate, and
supplementary aerodromes required for North
Pacific air routes. Also, certain aerodromes by
class Avere selected for improvements. It recom-
mended that all aerodrome improvements be com-
pleted as rapidly as possible but in no case later
tlian July 1, 1953. The Committee agreed that
obstruction marldng and ground markers should
exist on air routes, that night ligliting should be
provided at all regular and alteinate aerodromes,
and that approach lights should be visible where
instrument landing systems are installed and where
practical at all other regular and alternate
aerodromes.
523
ACTIVITIES AND DEVBIOPMENTS
Ah' Traffic ContruJ. — The Committee recom-
mended the establishment of flight information
regions over most of tlie \yater areas of tlie North
Pacific. Approach and aerodrome control service
■was recommended for those aerodromes where the
traffic density justified their establishment. Dur-
ing the development of supplementary procedures
for this region, the Committee recommended that
action be taken to amend the Soutli Pacific supple-
mentary procedures so as to be consistent with the
North Pacific supplementary procedures.
Telecommunications and Radio Aids to Air
Navigation. — The Committee recommended addi-
tional point-to-point and air-ground aeronautical
communication circuits to take care of meteor-
ology, air-traffic control, and search-and-rescue
requirements. In addition, reconnnendations
were made for additions to the aeronautical radio-
navigation aids to meet the needs of the present
and proposed routes and aeronautical services
operating within the region.
Aeronautical Meteorology. — The Committee re-
viewed the existing system of meteorological tele-
communications and pi'epared detailed recjuire-
ments for the exchange of meteorological informa-
tion between the various meteorological offices
as well as for broadcast to aircraft in flight. The
Committee recommended the establishment of
eight ocean weather ships, the exact location to be
determined in general by the implementing state,
taking into consideration the requirements of the
other technical services such as search and rescue,
telecommunications, and air-traffic control.
'Search and Rescue. — The Committee reviewed
and tabulated the search-and-rescue facilities pro-
vided in the region and recommendations for cer-
tain additions were made to meet the minimum
requirements for the I'egion.
U.S. Delegation to International
Tin Study Group
The Department of State announced on October
13 the composition of the United States Delegation
to the Third Meeting of the International Tin
Study Group, scheduled to open at The Hague on
October 25, 1948. The Delegation is as follows :
Chairman
Donald D. Kennedy, Chief, International Resources Divi-
sion, Department of State
Advisers
Glion Curtis, Jr., American Embassy, The Hague
Carl Ilgenfritz, Vice President, United States Steel
Corporation
Charles W. Merrill, Chief, Metal Economics Brancli, Bu-
reau of Mines, Department of the Interior
Erwin Vogelsang, Chief, Tin and Antimony Section, Non-
ferrous Metals and Minerals Division, Department of
Commerce
524
W. F. McKinnon, Associate Director, Office of Metals Re-
serve, Reconstruction Finance Corporation
Evan Just, Director, Division of Strategic Materials, Eco-
nomic Cooperation Administration
The International Tin Study Group will review
the report of its working party which met at The
Hague in June. It will also review the world
statistical position of tin and discuss common
problems in connection with production, consump-
tion, and trade in tin.
The International Tin Study Group was estab-
lished upon a recommendation of the World Tin
Conference, held at London in October 191G, to
which the principal tin-producing and -consum-
ing countries of the world sent representatives.
The last meeting of the Group — the second — was i
held at Washington, D.C., April 19-24, 1948. |
U.S.-Mexican Fisheries Conference
[Released to the press October 15]
Fisheries problems of mutual interest to the
United States and Mexico will be the subject for
discussion between the two Governments at a con-
ference to be held in Mexico City beginning on
October 25.
In line with its program of advancing measures
designed to conserve fisheries resources of the high
seas the United States is interested in entering into
a joint fisheries-conservation agreement with
Mexico. However, tlie present talks are primarily
of an exploratory nature, it was emphasized, and
delegates are expected to make recommendations fi
for later consideration by the various federal agen- T
cies, interested state governments, and representa-
tives of industry.
The United States and Mexico have several bi-
lateral agreements by which tlie two countries have
harmoniously achieved the solution of specialized
problems in a spirit of friendly cooperation. The
equally outstanding success of the bilateral fish-
eries conventions between Canada and the United
States, by means of which the valuable halibut and
sockeye-salmon fisheries have been conserved and
developed, makes it appear that cooperation in the
sphere of fisheries with our southern neighbor
would also be mutually beneficial.
THE CONGRESS
Report of Activities of National Advisory Council on
International Monetary and Financial Problems. Mes-
sage from the President of the United States transmitting
report of the National Advisory Council on International
Monetarv and Financial Problems covering its operations
from Oct. 1, 1947, to Mar. 31, 1948. H. Doc. T37, 80th Cong.,
2d sess. vi, 56 pp.
Calling on the President for Information Concerning
the Potsdam Agreements and Violations Thereof by So-
viet Russia. S. Rept. 1440, 80th Cong., 2d sess., to accom-
pany S. Res. 213. 11 pp.
Amending the Trading with the Enemy Act. S. Rept.
1619, SOth Cong., 2d sess., to accompany S. 2764. 3 pp.
Department of State Bulletin
THE RECORD OF THE WEEK
U.S.S.R. Travel Restrictions for Diplomatic Personnel
SUPPLEMENT TO 1941 LIST
Tlio American Embassy at Moscow has received
a circular note from the Foreign Office, of the
U.S.S.K. The note, dated September 30, 1948,
refers to the Foreign Office note of May 16, 1941,
in terms indicating that the restrictions of that
date are still considered in effect and in supplement
thereto transmits a new and greatly expanded list
on points and localities in or to which travel is
lirohibitfd for members of the staffs of foreign
missions and consulates. For all practical pur-
jposes the list covers the entire territory of the
IJ.S.S.R. Certain omissions, such as points in the
Georgian Kepnblic and Yakutsk, U.S.S.R., are
notable; the principal additions are the newly
acquired territories, such as Sakhalin.
In theory, travel is permitted through certain
areas, but one cannot reach those areas without
crossing forbidden zones.
The restriction to 50 kilometers radius of Mos-
cow is entirely new, not having been included in
the 1941 note. Travel even in this small radius
is subject to so many exceptions — i.e., raiorhs (dis-
tricts) where travel is forbidden even though less
than 50 kilometers distant — that to all intents and
purposes members of the foreign missions are re-
stricted to Moscow city limits.
American correspondents have written stories
about the new restrictions, but their stories have
been held up b}' the Soviet censor.
NOTES OF MAY 16, 1941, AND SEPTEMBER 30, 1948
[Translation]
PEOPLES COMMISS.\RIiT
FOR FOREIGN AFFAIRS
Pr/140
NOTE VERBALE
The People's Commissariat for Foreign Affairs
has the honor to bring to the attention of the
[ . . . Mission] the information that, beginning
with this date, the Government of the U.S.S.R.
has established a procedure whereby the travel on
the territory of the U.S.S.R. of diplomatic and
consular representatives in the U.S.S.R. of foreign
states, as well as of employees of foreign embassies,
legations and consulates, may take place only on
condition that such persons previously inform the
appropriate organs of the People's Commissariat
for Foreign Affairs, the People's Commissariat for
Defense and the People's Commissariat for the
Navy, with regard to trips planned, indicating
the itinerary, the points of stop-over and the
length of travel, so that such trips may be regis-
tered by the above-mentioned organs.
At the same time, the same Decree of the Soviet
Government has declared as prohibited (for
travel) the points and localities in the U.S.S.R.
A note attached to the list reads
' Not here printed.
' List not here printed,
as follows :
Members and employees of embassies, missions and con-
sulates are allowed to travel without notifying in advance
the approjiriate organs of tlie Ministry of Foreign .\ffairs
of the rssu or the Ministry of Armed Forces of the USSR
within a radius of 'iO km. from Moscow, with the exception
of the following raions of Moscow oblast: Dmitrov,
Oc/ober 24, 1948
enumerated in the list which is attached hereto.^
Moscow, May 16, 19-'il.
[To all Embassies and Missions]
Moscow
[Tr.inslation]
MINISTRY OF FOREIGN AFFAIRS
OF THE USSR
No. 1130/Pr.
The Ministry of Foreign Affairs of the USSR
presents its compliments to Embassies and Mis-
sions and has the honor to communicate that after
revision of the list of forbidden points and locali-
ties of the USSR transmitted with note no. 140/Pr.
of the People's Commissariat for Foreign Affairs
of the USSR, dated May 16, 1941, the Government
of the USSR has approved a new list of forbidden
points and localities of the USSR, which is at-
tached hereto.^
Moscow, September 30, 1948
Seal no. 1 of the
Ministry of Foreign Affairs of the USSR.
[To all Embassies and Missions]
Moscow
Zvenigorod, Kuntsevo, Krasnogorsk, Kra-snopolyansk,
Podolsk, Ramensk, Tushiuo, Khimki and Shchelkovo,
where travelling is forl)idden.
As an exception, it is permitted to go to the cities of
Klin and Zagorsk as well as to Yasnaya Polyana (Tula
ohlust), providing the travellers proceed along the main
automobile highway and have notified in advance the
Ministry of Foreign Affairs of tlie USSR or the Ministry
of Armed Forces of the USSR about the trip.
525
THE RECORD OF THE WBBK
Relaxing of Visa Restrictions by
U.S. and Belgium
[Released to the press October 15]
The Belgian Government, as of October 15,
1948, will waive visa requirements, but not pass-
port requirements, for American citizens proceed-
ing to continental Belgium for transit or for a
period of stay not exceeding two months.
The United States, because of existing laws, may
not reciprocate in identical terms. However, the
United States will grant passport visas without
fees and valid for a period of 24 months, instead
of the present 12 months' period of validity of such
visas, to Belgian nationals who are proceeding
to the United States and its possessions for busi-
ness or pleasure purposes, and who are bona fide
nonimmigrants within tlie meaning of the immi-
gration laws, provided the Belgian passport of
each bearer remains valid during the period of
validity of the visa.
and it is now hoped by the two Governments that
it will be possible to reach final agreement within
the near future.
This is the most comprehensive treaty of its kind
that Ireland has undertaken to negotiate with any
country. The provisions of the text now being
put in shape by representatives of the two Gov-
ernments will lay a broad, long-term, contractual
basis for the economic relationships between Ire-
land and the United States and for the fundamen-
tal rights and privileges that the nationals of each
country enjoy in the other. Currently, these are
lai'gely based on treaties concluded between Bri-
tain and the United States during the nineteenth
centuiy. The new agreement is expected to
modernize pertinent features of these old treaties
and to contain also many new clauses that reflect
present-day needs and developments.
The discussions are being pursued in a spirit of
mutual appreciation of the common ideals and out-
look of tlie two nations.
Visas Not Required for Italy
[Released to the press October 5]
The Department of State has been advised that
at the present time the Italian Government does
not require visas of American tourists for travel
to Italy. It has also been advised that as of
November 1, 1948, visas will not be required of
American citizens for visits to Italy either for
business or pleasure.
Since the Registration Act of 1940 requires that
all persons other than American citizens entering
this country must have United States visas, it is
not possible to disjiense with visa requirements in
the case of Italian citizens coming here. However,
as of November 1, the United States will recipro-
cate to the extent of issuing visas gratis for those
Italians coming to this country temporarily for
business or pleasure. These visas will be valid for
a period of 24 months. In the case of Italians
wishing to immigrate to the United States, immi-
gration visas costing $10 will continue to be
required.
Negotiations on Treaty of Friendship
Between U.S. and Ireland Resumed
[Released to the press October 15]
The Department of External Affairs of Ireland
and the American Legation in Dublin announced
on October 15 that negotiations have been resumed
at Dublin for the purpose of concluding a compre-
hensive treaty of friendship, commerce, and navi-
gation between Ireland and the United States.
Exploratory discussions were initiated last May,
526
Constitution-Making at Bonn-
from page 610
-Continued
Germany that the kingdom of Piedmont did in
unifying Italy in the nineteenth century.
It may be regarded as a striking coincidence that
the Bonn convention is meeting on the one hun-
dredth anniversary of the German Revolution of
1848. The Frankfort Parliament that met that
year tried to establish German unity on the basis of
liberty and democracy but failed because of the
political dilettantism of many of the delegates and
because of the lack of vision of the King of Prussia.
German unity was, instead, effected on the basis of
autocracy by the methods of militarism with dis-
astrous consequences not only to the Reich but to
the whole world.
Today the Bonn Parliamentary Council is at-
tempting to make good where Frankfort failed
in establishing German political union on a demo-
cratic foundation. The combined German- Amer-
ican Carl Schurz Memorial Celebration, which was
held in Frankfort just two days after the opening
of the Bonn convention to do honor to the Forty-
Eighters who emigrated to America, was a signi-
ficant reminder of the close and sympathetic in-
terest with which not only United States Military
Government but the American people are follow-
ing the efforts of the men of Bonn to carry this
mission to a successful conclusion.
Department of Stale Bulletin
Double Taxation: Discussions With Greece
[ReleaBed to the press October 14]
Discussions between Ainei"ican and Greek tech-
nical experts looking to the conclusion of treaties
for the avoidance of double taxation and for ad-
ministrative cooperation in prevention of tax eva-
sion with respect to income taxes and to taxes on
estates of deceased persons will be held at Athens
in the latter part of November.
If the discussions are successful and a basis for
agreement is found, they will result in the prepa-
ration of draft treaties which will be submitted by
the negotiators to their respective governments
for consideration with a view to signing.
In preparation for the discussions, the Ameri-
can delegation will welcome conferences with in-
terested parties or statements and suggestions f I'oni
them concerning problems in tax relations with
Greece. Comnumications in this connection should
be addressed to Eldon P. King, Special Deputy
'Commissioner of Internal Revenue, Bureau of
Internal Revenue, Washington 25, D.C.
THE RECORD OF THE WEEK
be of the most value if submitted within the next
30 daj-s. All connnunications on these matters
should be addressed to The Secretary, Committee
for Reciprocity Information, Department of Com-
merce, Washington 25, D.C.
The items which will be the subject of rene-
gotiation are given in Department of State press
release 825 of October 11, 1948. The negotiations
may also include consideration of new concessions
on products not now in the respective schedules of
any of the four countries or additional concessions
on products already in such schedules.
Austria Extended Time for Renewing
Trade-Marif Registrations
The extension of time until and including Feb-
ruary 28, 1949, for renewing trade-mark registra-
tions wnth respect to Austria was granted by the
President in proclamation 2816 (13 Fed. Reg.
5927) on October 9, 1948.
Renegotiations of Certain Tariff Concessions
Granted by Brazil, Ceylon, Cuba, and Pakistan
As was indicated in the Department of State
BtTLLETix of October 3, 1948, page 445, it was de-
cided at the second session of the contracting par-
ties to the General Agreement on Tariffs and Trade
held at Geneva from August 16 to September 14
that, because of special problems facing Brazil,
Ceylon, Cuba, and Pakistan, certain tariff conces-
sions granted by these countries to the other con-
tracting parties would be the subject of renegotia-
tions.
The purpose of these i-enegotiations is to reach
agreement upon adjustments in the rates of duty
on the items which are listed below for each
country. The renegotiations are to be carried out
initially between the pairs of countries chiefly in-
terested in the particular concessions involved.
However, any modifications in the schedules of
tariff concessions of these four countries agreed
upon during such bilateral negotiations must re-
ceive final approval by all of the contracting
parties.
Any views of interested persons with regard to
these renegotiations should be submitted to the
Committee for Reciprocity Information, which is
the committee established to receive views on
trade-agreement matters. Since it is proposed to
begin initial discussions between each of these
four countries and the United States on products
of primary interest to the United States as soon
as possible, it is suggested that any such views will
Ocfofaer 24, 1948
China Makes Lend-Lease Payment
[Released to the press October 13]
The Department of State announced on October
13 that the Government of China has paid to the
Treasury of the United States $2,824,930.75, repre-
senting the second annual installment on principal
and interest of the lend-lease pipeline agreement
with China.
This agreement, concluded in June 1946, repre-
sented lend-lease material on order by the Chinese
Government at the end of the war, totaling ap-
proximately $51,000,000. The agreement provides
for repayment over a SO-j'ear period at 2% percent
interest.
Appointment of U.S. Member to International
Joint Commission
The Department of State announced on October
11 the appointment by President Truman of Eu-
gene W. Weber, Special Assistant to the Assistant
Chief of Engineers for Civil Works, Department
of the Army, as a member of the United States
Section of the International Joint Commission,
United States and Canada. This appointment
fills the vacancy on the United States Section of
the Commission which has existed since the death
of R. Walton Moore, Counselor of the Department
of State, on February 8, 1941. The Commission
will hold its semiannual meeting in Ottawa, Can-
ada, beginning October 12, 1948.
527
THE RECORD OF THE WEEK
Belgium and Luxembourg Join in U.S.
Fulbright Plan
[Released to the press October 8]
Belgium, Luxembourg, and the United States
signed on October 8 an agreement under the Ful-
bright act, putting into operation the pi'ogram
of educational exchanges authorized by -Public
Law 584, 79th Congress. The signing took place
in Brussels, with Education Minister Camille
Huysmans rej^resenting the Belgian Government,
the Charge d'Affaires for Luxembourg represent-
ing that country, and Ambassador Alan G. Kirk
representing the United States. It was the seventh
agreement signed under the act, jjrevious agree-
ments having been made with the Governments of
China, Burma, the Philippines, Greece, New Zea-
land, and the United Kingdom.
The agreement provides for a United States
Educational Foundation in Belgium to assist in
the administration of the educational program
financed from certain funds resulting from the
sale of United States surplus property to these
countries. The present agreement provides for
an annual program of the equivalent of $150,000
in Belgian francs for educational purposes. The
program will include the financing of "studies,
research, instruction, and other educational activi-
ties of or for citizens of the United States of
America in schools and institutions of higher
learning located in Belgium, the Belgian Congo,
and Luxembourg, or of the nationals of Belgium,
Belgian Congo, and Luxembourg in the United
States schools and institutions of higher learning
located outside the continental United States . . .
including payment for transportation, tuition,
maintenance, and other expenses incident to
scholastic activities ; or furnishing transportation
for nationals of Belgium, tlie Belgian Congo, and
Luxembourg who desire to attend United States
schools and institutions of higher learning in the
continental United States . . . whose attendance
will not deprive citizens of the United States of
America of an opportunity to attend such schools
and institutions."
Tlie Foundation in Belgium will have an eight-
man Board of Directors, the lionorary chairman of
which will be the United States Ambassador to
Belgium. Members of the Board will consist of
five United States citizens resident in Belgium in-
cluding a representation from the United States
Embassy in Brussels, two citizens of Belgium, and
one citizen of Luxembourg.
In discussing the jirogram in Brussels, Ambas-
sador Kirk said :
"I am very happy about the agreement, because
I believe it will continue the tradition of exchange
'For an account of tlie Commission's first meeting, see
Department of State iiul)lication 3.313.
528
of students between our universities which has re-
sulted in producing many leaders of thought, edu-
cation, and government in Belgium and Luxem-
bourg. Also there has been created an outstand-
ing body of Americans who know and love the
culture of your country. Even more, with the
great interest now being taken by our universities
and private foundations in the United States in
providing fellowships for foreign students, I look
forward to an increasing number of the young men
and women of Belgium and Luxembourg finding
such opportunities in our country. Although the
development of such a program necessarily re-
quires time, its importance is well understood in
educational circles in the United States. This is
definitely not a one-way street, along which only
American traffic will pass.
"During the past year, ten fellowship students
went to the United States for advanced study
under the auspices of the Belgian-American Edu-
cational Foundation. Others were sent by Amer-
ican Rotary, and the American Association of
University Women provided for several students.
There are even cases where the American students
themselves, at some of our universities, have con-
tributed the funds or the expenses of selected
foreign students. This, I sincerely believe, is
only a beginning. The cordial regard which our
countries have for each other will assure that the
two-way street will be well traveled."
Information about specific opportunities for
American citizens to study, teach, or undertake
research in Belgium, Luxembourg, or the Belgian
Congo will be made public in the near future. In-
quiries about these opportunities and requests for
application forms should be addressed to the fol-
lowing three agencies : Institute of International
Education, 2 West 45th Street, New York 19, N.Y.
(for graduate study) ; United States Office of
Education, Federal Security Agency, Washington
25, D.C. (for teaching in Belgian elementary and
secondary schools) ; and tlie Conference Board of
Associated Research Councils, 2101 Constitution
Avenue NW., Washington 25, D.C. (for teaching
at the college level and for post-doctoral research) .
Second Meeting of Educational Exchange
Advisory Commission
Consideration of the basic principles of United
States educational exchanges witli specific refer-
ence to the problems of Eastern Europe and the
Iron Curtain countries was undertaken at the sec-
ond meeting of the United States Advisory Com-
mission on Educational Exchange in a two-day
session, October 18 and 19.^
In addition, the Commission discussed problems
presented to it by George V. Allen, Assistant Secre-
tary of State for public affairs, concerning the dis-
posal of art objects now in this country from oc-
cu^jied countries.
Department of State Bulletin
Sales and Transfers of Nondemilitarized Combat Materiel
[Ueleased to the press October 1-]
List of consimmiated sales of surplus combat
materiel, effected by the Department of State in
its capacity as foreign-surplus disposal agent, dur-
ing the months of February, April, May, July, and
August, 1948, and December 1947, as reported to
the Munitions Division of tlie Department through
October 11, 1948, and not previously announced
is as follows:
Country
Description of mat6riel
Procurement cost
Sales price
Date of
transfer
Brazil . .
China . .
Denmark .
Finland .
Italy . . .
Mexico . .
Netherlands
Norway . . . .
United Kingdom .
Venezuela . . .
Spare parts for aircraft engines
Miscellaneous spare parts for machine guns, armored cars,
and cleaning and preserving materials.
Miscellaneous parts and equipment for aircraft
42 P-47-D Aircraft (militarized)
255 Aircraft engines (for C-46s and C-47s)
Torpedo boat T-19 (non-demilitarized)
5 Minesweepers to Finnish Purchasing Mission (demilitar-
ized).
1 Minesweeper to Italian national (demilitarized) . . . .
Helmets and liners
66 Tank engines — to be demilitarized for scrap
Miscellaneous ordnance equipment
Ammunition
Ex-German freighter, Drau
1 LST for scrap (demilitarized)
Miscellaneous gas masks and repair kit, bayonets, binocu-
lars, carbines, clinometers, machine guns, truck mounts,
helmets and liners.
$22, 648. 70
22, 236. 01
5,093,273. 15
6,781,451.00
3, 798, 547. 50
(')
2, 911,250. 00
582, 250. 00
74, 500. 00
192, 030. 00
1, 877. 00
1, 560. 00
(')
2, 171, 280. 00
63, 507. 91
$1, 132. 44
9, 609. 1 1
891, 322. 80
544, 500. 00
393, 500. 00
5, 000. 00
175,000.00
25, 050. 00
7, 450. 00
60, 000. 00
303. 10
80. 00
422, 500. 00
1,800. 00
7, 206. 01
8/7/48
8/27/48
7/29/48
8/7/48
8/16/48
Feb. 48
5/5/48
4/10/48
8/19/48
8/3/48
8/13/48
8/13/48
7/26/48
12/17/47
8/16/48
I Captured enemy materiel.
« Korea, 1945 to 1948" Released
[Released to the press October 15]
The Depai'tment of State announced on October
15 the issuance of its newest publication, Korea,
IDJfO to lOJfS. This pamphlet reviews the political
developments within Korea from the time of entry
of the U.S. Army forces into that country to the
present, with special emphasis on the period after
March 1947 not covered by the Department's pre-
vious publication, Korea's Imdependence. It con-
tains also a survey of Korean economic conditions
and a supplementary selection of documents.
The pamphlet. Department of State publication
3305, will be sold by the Superintendent of Docu-
ments, Government Printing Office, Washington
25, D.C., for -25 cents a copy with a 25 percent
discount to purchasers of 100 copies or more.
PUBLICATIONS
Department of State
For iulv hii tile tiuiJcriiitendcnt of Documents, (lovcniinciit
Printing Office, Washington 25, D.C. Address requests
direct to tlie Huperintendcnt of Documents, except in the
case of free publications, which may he obtained from the
Department of State.
October 24. J 948
Education: Cooperative Program in Peru. Treaties and
Other International Acts Series 1740. Pub. 3166. 25
pp. 100.
Arrangement Between the United States and Peru —
effected by exchange of notes signed at Lima April 1
and 15, 1944; entered into force April 15, 1944; And
Memorandum of Agreement — Signed at Lima April 4,
1944; effective April 4, 1944: Supplementary Agree-
ment No. 1 — Signed at Lima January 30, 1945 ; en-
tered into force January 30, 1945; Supplement to
Memorandum of Agreement — Signed April 30, 1945;
entered into force April 30, 1045.
Economic Cooperation with Iceland Under Public Law
472 — SOth Congress. Treaties and Other International
Acts Series 1787. Pub. 3252. 69 pp. 20^.
Agreement Between the United States and Iceland —
Signed at Reykjavik July 3, 1948; entered into force
July 3, 1948. "
Economic Cooperation with Italy Under Public Law 472 —
SOth Congress. Treaties and Other International Acts
Series 1789. Pub. 3253. 55 pp. 15^.
Agreement Between the United States and Italy — •
Signed at Rome June 28, 1948; entered into force
June 28, 1948.
National Commission News, October 1948. Pub. 3292.
10 pp. 10«; a copy ; $1 a year domestic, $1.35 a year foreign.
Prepared monthly for the United States National Com-
mission for UNESCO.
529
Departmental Regulations
THE DEPARTMENT
270.1 Departmental Responsibilities in the Programs
for Acquisition and Use of Foreign Currency and Credit
Assets: (Effective 8-&-4S) Experience with and re-
sponsibility for the use of foreign currency and credit
assets within the Department have crystallized to the
point where the existing arrangements can now be formal-
ized in this regulation.
I General.
A Acquisition and U.se. As a result of the sale of
surplus property abroad and the making of lend-lease set-
tlements, the United States has acquired foreign currencies
and credits amounting to several millions of dollars and is
in a position to acquire substantially more. These foreign
currencies and credits can be and are being employed to
provide funds for the acquisition or improvement of real
property for the Foreign Service ; to promote educational
activities contemplated by the Fulbright Act ; and, in some
instances, to meet current Governmental exi)enses abroad.
B Specific Use. Except for expenses for an adminis-
trative staff, the Fulbright Program is being financed solely
through the use of foreign currency and credit assets
arising from the sale of surplus properties abroad and does
not depend upon current appropriations. For the foreign
buildings program and for Departmental administrative
expenses abroad, foreign currency and credit assets, ob-
tained either from surplus property sales or other sources,
are purchased from the Treasury Department or from such
other Government agency or corporation as may have such
currencies or credits, with funds obtained from current
appropriations specified for these purposes.
II Office and Division Responsibilities. Subject to
the policy determinations and general supervision of the
appropriate Assistant Secretaries and Office Directors, re-
.sponsibilities under these programs are delegated as fol-
lows :
A
will:
Division of Organization and Budget (OB). OB
1 Coordinate Departmental planning for the use
of foreign currencies and credits for the various pro-
grams and allocate available currencies and credits in
accordance with approved plans. The coordinating re-
siKinsibility includes clearance of proiiosals of the Divi-
sion of Foreign Buildings Operations (FBO) and the
Division of Exchange of I'ersons (lEP) for foreign cur-
rencies and credits to be drawn down from foreign
governments and for reservation of foreign currencies
on deposit in the Treasury ; clearance of FBO and lEP
requests for requisitions to foreign governments for cur-
rency draw-downs ; and clearance of FBO requests for
purchases of unreserved currencies from United States
Government agencies.
2 Develop plans and recommendations for use of
foreign currency and credit assets to pay Departmental
administrative expenses abroad.
3 Maintain necessary liaison with and obtain re-
quired clearances from the Bureau of the Budget.
Ascertain through the Bureau of the Budget that pro-
posed plans for use of foreign currency and credit assets
are in accord with the President's over-all program.
4 Review and approve necessary reports to the
Congress or Bureau of the Budget on foreign-currency
and credit-usage programs. lEP will be responsible
for educational-program reports ; FBO for buildings-
program reports ; OB for reports on general administra-
tive expenses.
5 Prepare other consolidated reports as may be I
required ; FBO, lEP, and other olfices concerned supply-
ing OB with any additional information required for
this purpose.
6 Maintain a central record, by country and pro-
gram, showing source, allocation, and utilization of
foreign currencies and credits. As required, OB will
issue reports, based upon this record, for the use of all
interested offices, such as FBO, lEP, Office of the Foreign
Liquidation Comnjissloner (OFLC ). and Office of Finan-
cial and Development Policy (OFD).
7 On request, provide technical advice on budget,
organization, and management matters relating to edu-
cational-foundation operations.
B
Division of Finance (DP). DF will :
530
1 Act as the central drafting and transmitting
point for all requests to draw down foreign currencies as
payments under surjilus property, executive, and lend-
lease agreements.
2 Conduct necessary liaison with the Treasury
Department and other Government agencies and cor-
porations from which foreign currencies may be pur-
chased, regarding specific foreign-currency jmrchase
transactions including liaison with respect to reimburse-
ment from FBO and general administrative appropria-
tions for foreign currencies purchased from whatever
source.
3 Designate dejKisitories for foundation funds.
4 Upon request provide technical advice and assist-
ance in fiscal and accounting matters relating to the
acquisition and use of foreign currency and credit assets.
5 Prepare certification for Fulbright purposes un-
der Treasury Regulation 799.
C Division of Exchange of Persons (lEP). lEP
will:
1 Develop educational programs under the Ful-
bright Amendment to the Surplus Proiierty Act.
2 Draft and negotiate through appropriate Depart-
mental channels, executive agreements with other gov-
ernments establishing educational programs.
3 Initiate requests, through OB, for concurrence
of the Bureau of the Budget for the reservation of for-
eign currencies for the Fulbright Program.
4 Initiate requests, thi'ough OB, for reservation of
foreign currencies by the Treasury Department.
5 Initiate requests, through OB for draw-downs or
transfers of foreign currencies.
6 Initiate requisitions, through DF, for foreign
currencies to be transferred to particular foundations
from Treasury holdings.
7 Supervise, review, and issue regulations govern-
ing educational-foundation operations (including organ-
ization, budget, and fiscal operations).
8 Estatjlish a basis for each foundation to main-
tain adequate current records of its operations.
9 Prepare reports on educational-program activi-
ties for transmission to the Congress, as required by pub-
lic law (60 Stat. 755), and provide information on the
Fulbright Program for inclusion in other Departmental
reports.
D Division of Foreign Buildings Operations (FBO).
FBO will :
1 Develop foreign-buildings programs utilizing
available foreign currencies and credits under public law
(60 Stat. 663).
Departmenf of Slafe Bulletin
ACTIVITIES AND DEPARTMENTS
2 Negotiate, through appropriate Di'purtniental
cliannels, agreements with foreign governmeuts for tlie
acquisition of property.
3 Initiate requests, through OB for reservatious of
foreign currencies by the Treasury Department.
4 Initiate requests, througli OB and DF, for draw-
downs or purchases of unreserved foreign currencies.
5 Initiate requests, through DF, for purchases of
reserved foreign currencies.
G Initiate, through OFLC, instructions authorizing
acceptance of specitic properties as payments in kind
under the provisions of surplus-property and lend-lease
agreements authorizing acceptance of property. FBO
will furnish OFLC with tlie customary Certiticate of
Valuation, stated in terms of United States dollars,
which will he used by OFLC as a basis for acknowledg-
ing the payment by the foreign government and for trans-
fer of funds from the Foreign Service Buildings Fund to
Miscellaneous Receipts (Proceeds of Surplus Property or
proceeds from Lend-Lease Settlements).
7 Prepare reports on utilization of foreign cur-
rency and credit assets in the buildings program as
required.
E Division of Financial Affairs (FN).
1 While the surplus property and lend-lease pro-
grams involve several divisions of OFD, FN is primarily
responsible for the foreign-currency aspects of those
programs. FN will :
a Make the basic economic- and financial-policy
judgments regarding the acceptance of foreign cur-
rencies in lieu of dollar obligations. In those cases in
which economic conditions do not warrant the accept-
ance by the United States of foreign currencies in lieu
of dollars, the office responsible for the program for
which the foreign currency is to be used, may forward
a recommendation to the Under Secretary to accept
the foreign currencies on other grounds.
b Determine whether foreign-currency provisions
will be incorporated in new lend-lease agreements.
c Determine, in applicable cases, the policy with
respect to the drawings of foreign currencies in lieu of
United States dollars under the foreign-currency op-
tion authority.
d Amend, for countries whose economic and
financial prospects warrant it, lend-lease agreements
in order to authorize acceptance of local currency
or payment in kind in lieu of payment in dollar
obligations.
e Conduct necessary liaison with the Treasury
Department and other interested United States Gov-
ernment agencies with respect to foreign financial-
policy aspects of the programs including exchange
rates, convertibility of foreign currencies and ap-
plicability of foreign-exchange control regulations.
f Review and clear proposed FuUiright executive
agreements, certifications for Fulhright purposes un-
der Treasury Regulation 700, proposed reservations
for foreign currencies and credits for Departmental
programs, and draw-downs of foreign currency and
credit assets under surplus-property and lend-lease
agreements for conformance to appropriate aspects
of United States foreign financial policy including
those relating to exchange rates, convertibility of
foreign currencies, and applicability of foreign-ex-
change control regulations.
g Advice OFLC and the War Assets Administra-
tion (WAA) (or its successors) regarding the ac-
ceptance of foreign currency in connection with cash
and credit sales of surplus pioperty which cannot
be made for dollars. Also advise OFLC and WAA (or
its successors) in the formulation of agreement clauses
granting the United States Government the option of
drawing foreign currency in lieu of dollars.
2 The foreign buildings program, with respect to
United States foreign financial-policy aspects, will be
cleared between FBO and FN at the beginning of each
fiscal year. Should it become necessary to make sub-
stantial variations in the original proposal, FBO will
clear the changes in advance with FN.
F Legal Adviser (L). L will review Fulbright
executive agreements for conformance with enabling legis-
lation ; draft and review proposed legislation affecting the
use of foreign currencies and credits ; and furnish neces-
sary legal opinions regarding the use of foreign currencies
and credits under existing legislation.
G Oflice of the Foreign Service (OFS). OFS will
provide advice and assistant to the Office of Educational
Exchange (OEX) on the administrative relationships be-
tween the Foreign Service establishments and educational
foundations.
H Office of the Foreign Liquidation Commissioner
(OFLC). OFLC will:
1 Review and clear instructions pertaining to the
acquisition of foreign currencies and properties as pay-
ments under the provisions of surplus-property agree-
ments, as well as under joint surplus-property and lend-
lease agreements, except that routine acquisitions of
foreign currency made in accordance with agreed pro-
cedures and within established allocations need not be
individually cleared.
2 Maintain accounts necessary to establish records
of pa.vments received and balances due from foreign
governments under surplus-property agreements.
3 Determine the terms of payment, including those
relating to the acquisition of foreign currency and prop-
erty, which will be incorporated in new surplus-property
agreements and in appropriate amendments to existing
agreements. With regard to the acquisition of foreign
currency, OFLC will consult with FN.
Ocfober 24, J 948
531
The United Nations and Page
Specialized Agencies
Third Regular Session of the General As-
sembly:
World Confidence and the Reduction of
Armed Forces: The American Objec-
tive. Remarks by Ambassador War-
ren R. Austin 511
Discussion of the Palestine Situation in
Committee I. Statement by Ralph
Bunche 517
The U.S. in the U.N 520
North Pacific Regional Air Navigation Meet-
ing of IcAO. Article by Clifford P.
Burton 523
Occupation Matters
Constitution- Making at Bonn. An Article .
507
Economic Affairs
U.S. Delegation to International Tin Study
Group 524
U.S.-Mexican Fisheries Conference .... 524
Relaxing of Visa Restrictions by U.S. and
Belgium 526
Visas Not Required for Italy 526
Renegotiations of Certain Tariff Concessions
Granted by Brazil, Ceylon, Cuba, and
Pakistan 527
Austria Extended Time for Renewing Trade-
Mark Registration 527
Appointment of U.S. Member to Inter-
tional Joint Commission 527
Economic Affairs — Continued Page
Sales and Transfers of Nondemilitarized
Combat Materiel 529
General Policy
U.S.S.R. Travel Restrictions for Diplomatic
Personnel:
Supplement to 1941 List 525
Notes of May 16, 1941, and September 30,
1948 525
Treaty Information
Negotiations on Treaty of Friendship Between
U.S. and Ireland Resumed 526
Double Taxation: Discussions W ith Greece . 527
Renegotiations of Certain Tariff Concessions
Granted by Brazil, Ceylon, Cuba, and
Pakistan 527
China Makes Lend-Lease Payment 527
International Information and
Educational Affairs
Belgium and Luxembourg Join in U.S.
Fulbright Plan 528
Second Meeting of Educational Exchange
Advisory Commission 528
Publications
"Korea, 1945 to 1948" Released 529
Department of State 529
The Department
Departmental Regulations 530
The Congress 524
wm^nmdo/M
Clifford P. Burton, Chairman of the United States Delegation
to the North Pacific Regional Air Navigation Meeting, is Chief
of Technical Mission, Civil Aeronautics Administration, Depart-
ment of Commerce.
U. S. GOVERNMENT PRINTIN6 OFFICE: Il4t
^"fsr^ /'//3
iJAe/ z^eha^y^t^itent/ /(w t/taie^
WHY WE SUPPORT THE U.N. • Address by Amhassador
Warren R. Austin •• 551
U.S. PROPOSES SIX SPONSORING POWERS DIS-
CUSS ATO.AHC ENERGY ISSUES
U.S. ACCEPTS ATOMIC ENERGY RESOLUTION
Statements by Ambassador Warren R. Austin . . • . 535, 539
REVIEW OF ALLIED ACTION ON BERLIN BLOCK-
ADE • Statement by Philip C. Jessup 541
RECOMMEIVDATIONS ON PROBLEMS OF EDUCA-
TIONAL EXCHANGE WITH EASTERN EURO-
PEAN COUNTRIES • Report of the U.S. Advisory
Commission •• 560
For complete contents see back cover
Vol. XIX, No. 487
October 31, 1948
1
^ei«» ci»
U. S. SUPERKOENDENT OF DOCUMtKIf
DEC 2 1948
■*T«» O*
^,%wwy*. bulletin
Vol. XIX, No. 487 • Publication 3322
October 31, 1948
For sale by the Superintendent of Documents
U.S. Government Printing Office
Washington 25, DC.
Pkice:
62 Issues, domestic $6, foreign $7.26
Single copy, 16 cents
Published with the approval of the
Director of the Bureau of the Budget
Note: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Department
or State Bdlletik as the source will be
appreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
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 De-
partment of State and the Foreign
Service. The BULLETIN includes
press releases on foreign policy issued
by the White House and the Depart-
ment, 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 inter-
natiorutl affairs and the functions of
the Department. Information is in-
cluded concerning treaties and in-
ternational agreements to which the
United States is or may become a
party and treaties of general inter'
national interest.
Publications of the Department, as
well as legislative material in the field
of international relations, are listed
currently.
THE UNITED NATIONS AND SPECIALIZED AGENCIES
U.S. Proposes Six Sponsoring Powers Discuss Atomic Energy Issues
STATEMENT BY AMBASSADOR WARREN R. AUSTIN IN COMMITEE P
U.S. Delegate to the General Assembly
The resolution of Canada now before the Com-
mittee, provides in paragraph 1 for approval by
the General Assembly of the Atomic Energy Com-
mission's plan of control and prohibition as set
forth in the general findings (part II C) and
recommendations (part III) of the first report,
and the specific proposals of part II of the second
report of the Commission. The plan was de-
veloped by, and we believe has the support of,
all the nations who have at any time served on the
Atomic Energy Commission, with the exception
of the Soviet Union, Poland, and the Ultraine ; in
other words, a majority of 14 states and a minority
of 3.
The Soviets have recently announced that they
would be willing to negotiate simultaneously two
treaties which, as many speakers have already
pointed out, would have to be closely interlocked.
But the Soviet proposal does not alter the condi-
tions necessary for effective control. These condi-
tions remain the same. They are laid down in the
two reports. They have been developed by the
serious work of the delegates of 14 nations. They
have been discussed with the Delegatesof theSoviet
Union for over two years. It would do no good
to repudiate this work and start all over again, if
indeed that were possible. The same facts, the
same necessities, would require the same control.
The facts of the problem, the nature of the fission
process, indeed, the dual nature of U-235 and
plutonium, which may be used either as fuels or
as explosives, remains the same. The United
States believes that the plan and present proposals
of the United Nations Atomic Energy Commis-
sion constitute the necessary basis for establishing
October 31, 1948
effective control of atomic energy and prohibition
of atomic weapons and will vote accordingly for
paragraph 2 of the Canadian resolution, which is
a simple expression of fact. Paragraph 3 of the
Canadian resolution deals with the problem of how
to get negotiations started again, so as to complete
the treaty or convention on which certain work
remains to be done. The Canadian resolution pro-
poses a solution.
A number of other solutions have been suggested
to solve the problem. One proposed solution is
that of the Soviet Union. The Soviets have pro-
posed in their resolution that we repudiate the
work of the past two and a half years and start
all over again under the terms of reference laid
down by the General Assembly in 1946. But the
Soviets interpret these terms of reference in a man-
ner different from the interpretation given by the
majority of the Commission. The Soviets inter-
pret these terms of reference to mean that pro-
hibition and control must be put into effect, si-
multaneously, and that control be simultaneous
on all control activities. Their position was made
perfectly clear in the statements which the Soviet
Delegate, Mr. Malik, made before the Subcommit-
tee. He desired that other nations should agree to
the simultaneous conclusion and bringing into
force of two conventions, one for control and one
for prohibition, and ". . . that the Atomic En-
ergy Commission should resume its work on the
basis of the resolution of the General Assembly of
January 1946". He then said, concerning the sys-
" Made on Oct. 18, 1948, and released to the press on the
same date.
535
THE UNITED NATIONS AND SPCCIAIIZED AGENCIES
tern of stages contained in the General Assembly's
resolutions of January 24, 1946, and I quote from
the summary record of his remarks, "that system
of stages had been intended to facilitate the studies
of the Atomic Energy Commission but now the
United Kingdom and the United States had given
the system of stages another meaning: They ex-
tended it to the putting into effect of the system
of control."
Putting together these two statements made by
the Eei^resentatives of the Soviet Union during the
meetings of the Subcommittee, we see that the so-
called concession proposed by the Soviet Union
had attached to it new conditions which were de-
signed to commit the General Assembly to a sys-
tem of control which would prevent the treaty
going into effect by stages as required by the Com-
mission. Such a proposal is not a concession. It is
simply a maneuver designed to provide for the
destruction of atomic weapons in one country be-
fore, and probably a long while before, there had
been any determination of whether or not atomic
weapons existed in another country. By demand-
ing that prohibition be simultaneous with control,
without any gradual steps or stages by which both
prohibition and control would go into effect, the
Soviet proposal would eliminate atomic weapons
and explosives in one country many months, or
perhaps years, before the system of control and
inspection had been able to locate and determine
the existence of atomic weapons and explosives
in certain other countries. Such an arrangement
would, of course, be wholly unacceptable. The
majority of the Atomic Energy Commission have
an entirely different view of the problem.
The majority believe that the terms of reference
of the General Assembly clearly provide and make
possible that the treaty should go into effect by
stages. Moreover, the practical realities in put-
ting controls into effect require time. In the words
of the first report, which is part of the plan of the
Commission: "The treaty or convention should
embrace the entire program for putting the inter-
national system of control and inspection into
effect, and should provide a schedule for the com-
pletion of the transition process over a period of
time, step by step, in an orderly and agreed se-
quence leading to the full and effective establish-
ment of international control of atomic energy".
These stages would, of course, include the step-
by-step elimination of atomic arms coincident with
the step-by-step establishment of control, leading
to the final result of complete control, known
elimination and enforceable prohibition. These
steps or stages have not yet been laid down.
According to the Commission's third report no
useful purpose would be served by trying to deter-
mine the form and timing of stages until the Soviet
Union is ready to take a sincere part in the nego-
tiations on the basis of accepted principles. We
have been through this debate over and over again
in the Atomic Energy Commission in the past two
and a half years. It would not be possible nor
reasonable to go back and start this debate all
over agam.
The Soviet resolution would commit the General
Assembly to a course under which no majority of
sincere men in the Atomic Energy Commission
could develop an effective plan. It is wholly un-
acceptable. Another proposed solution to the
problem of renewing negotiations is that proposed
in the Indian resolution. That resolution pro-
vides that the Atomic Energy Conmiission would
go back to work and complete the drafting of a
treaty on the basis of the work already done.
Those who drafted the Indian resolution hoped at
first that the Soviet Union would cooperate in the
work of the Commission on this basis and included
such a clause in the resolution. But in the Sub-
committee Mr. Malik said on October 11: "The
U.S.S.E. do not agree with the provisions which
is included in the Indian resolution, that there are
indications that the situation which led to the
closing of the work of the Atomic Energy Commis-
sion no longer exists". This clause had therefore
to be omitted. The Indian resolution now means
that the work should go on without the Soviet
Union, but we do not agree that this would be a
solution. Indeed, we believe that in the long run
it would gravely set back the hope of agreement.
In the matters which now remain for discussion,
the political aspects are so important that it would
be impractical and, we believe, harmful to discuss
them except in full and open cooperation among
all the major countries involved, and against the
background of unanimous agreement on the
majority jjlan as thus far developed.
536
Department of Slate Bulletin
Let us consider some of these matters which still
remain to be agreed upon in detail in order to
complete a treaty. There is the matter of sanc-
tions. Under the plan proposed by the Soviet
Union sanctions would be terribly important. The
Soviet plan proposes the operation of nuclear
plants by nations, with an international agency
carrying out periodic inspections to see whether
they are opei'ating within the rules of techno-
logical exploitation agreed upon in the treaty, or
set out by the agency. If these rules were violated,
that is, if a nation made more nuclear fuel than
the rules provided, the international agency would
tlien make a recommendation to the Security
Council. To set the matter right, the Security
Council might have to employ sanctions. Such
infractions by national plants would probably
come up quite often, and sanctions would be con-
tinually and terribly important. Failure of the
Security Council to act because of the veto, which
is probable in certain cases, would create a most
serious situation. Under the plan proposed by
the United Nations Atomic Energy Commission
all plants would be owned and operated by the in-
ternational agency. The quota of nuclear fuels
to be used for peaceful purposes would be defined
in the treaty and the international agency would
be required to carry out these treaty provisions.
Under the Commission plan, major sanctions
would only be required in the case of violations,
such as seizure or refusal of inspection, which
might be expected to occur only at rare intervals.
In an atmosphere of cooperation in the basic ele-
ments of conti'ol, tlie matter of the veto could
probably be worked out quite easily. Further
elaboration of the veto matter by the majority
without Soviet agreement and presented apart
from consideration of the plan as a whole would
tend to confirm present frictions.
Let us examine the matter of stages. Contrary
to what seems to be the impression of the Soviet
Delegates, judging from their remarks before this
Committee, neither the first nor the second report
of the Commission lays down the order of stages.
The order of stages is one of the matters still to be
agreed upon before a treaty can be completed. It
surely is evident that the order of the stages will
be greatly affected by tlie conditions of world secu-
THE UNITED NATIONS AND SPECIALIZED AGENCIES
rity existing at the time tlie treaty is to go into
effect. For instance, the time at which disposal
of atomic weapons would take place would depend
upon the rapidity with which effective control
could go into effect. This in turn would depend
upon the openness existing between nations at the
time the treaty was signed. If the Communist
states were still a closed system, it would take time
to open them up so that control could become effec-
tive. And make no mistake about it, such opening
up is fundamental to effective control. But if the
Communist states had already opened their borders
to the extent now prevalent in other states, it would
take much less time to establish controls, and dis-
posal of weapons could take place much sooner.
To attempt to lay down stages now when agree-
ment on other matters is so distant would only
increase the suspicions and differences which now
exist.
In the matter of staffing the organization, some
discussions were held in the Commission just prior
to the drafting of the third report. It was quickly
appai'ent that no agreement could be reached on
staffing, until the functions of the international
agency were agreed upon. The Soviet Delegates
themselves stated that further discussions of staff-
ing were useless until agreement was reached on
the functions of the proposed agency. Such dis-
cussions might indeed be harmful, since they would
point up the differences and make later agreement
more difficult.
For these and other reasons we were compelled
to disagree with the point of view advanced in the
Syrian resolution that work in the Commission
might usefully go on, even though the Soviet were
not taking part.
The United States holds firmly to the views so
cogently expressed in the third report that no
further progress can be made at the level of the
Atomic Energy Commission until all the members
of the Conmaission agree to accept, as constituting
the necessary basis for further work, the reports
as approved by the General Assembly. The
United States further believes that since such ac-
ceptance is not now forthcoming, the best, and
probably the only hope of obtaining it is by
consultation among the sponsoring powers. This
is the solution proposed in paragraph 3 of the
Canadian resolution.
Ocfofaer 31, 1948
537
THB UNITBD NATIONS AND SPECMUZED ACENCIBS
It is because we so earnestly seek agreement, be-
cause we still hope for ultimate agreement, how-
ever dim the present prospects, that we strongly
urge this course which would follow from the ac-
ceptance of the resolution now before us in its
entirety.
In taking this position we will no doubt further
increase the suspicions of the Soviet powers as to
our motives. Other nations have said that the
offer of the United States under certain condi-
tions was a generous oifer. But the Soviet Union
have sought other motives to account for our
strange action. The motive they seem unable to
understand is our deep concern for the kind of
world the American people desire to live in. The
American people desire to live in a world where
individual human beings, as well as independent
nations, great and small, have the greatest possible
liberty and freedom consonant with the liberty
and freedom of othei'S. They desire to live in a
world where all men are equal under the law. As
a means to these ends and as an end in itself, they
seek a world in which there is openness among all
nations, freedom to move easily across national
borders, freedom of information, and a free ex-
change of scientific and cultural ideas among the
nations.
That is the kind of world the people of the
United States desire. It is towards that kind of
world that United States foreign policy is oriented
and towards which we are earnestly striving. We
envisage such a world in the field of atomic energy.
It is envisaged by the United Nations Atomic
Energy Commission in the plan which is now pre-
sented to the General Assembly. In the field of
atomic energy no effective control is possible ex-
cept in such a world. Unless we all consider this
matter on the basis of these realities, we are only
laying up dangers for the future.
Over two yeai's ago the United States made an
offer to give up its atomic weapons, its great
plants for making the explosives which are used
in atomic weapons, and for making the nuclear
fuels which may at some later date provide power
for industry, and offered to give up its knowledge
derived at such great expense and from such long
years of study, so that there would no longer be
any secrets in this field, and all its knowledge
would be open to all the world. The United States
made one condition to this offer. It is a serious
condition.
That condition is that there should be set up an
effective, enforceable, international system of con-
trol and prohibition. This is consistent within the
policy by which the Atomic Energy Commission of
the United States is governed. The Atomic
Energy Act of 1946 provides in Section 10 (a) (1)
"That until Congress declares by joint resolution
that effective and enforceable international safe-
guards against the use of atomic energy for de-
structive purposes have been established, there
shall be no exchange of information with other na-
tions with respect to the use of atomic energy for
industrial purposes". In practice the condition
would mean that the world would be thrown open
to a broad exchange of information, to a consider-
able free movement of persons, so that effective,
enforceable control of atomic energy would be
made possible.
These conditions must be fulfilled. Therefore,
the second subparagraph of Section 10 (a) of the
Atomic Energy Act of 1946, would go into effect:
"(2) That the dissemination of scientific and tech-
nical information relating to atomic energy should
be permitted and encouraged so as to provide that
free interchange of ideas and criticisms which is
essential to scientific progress". The United States
does not intend to give up its atomic weapons ex-
cept under a system of control sufficiently effective
to guarantee that other nations do not have, and
cannot secure, these weapons. We believe that the
majority of the nations of the world support us in
this position. We believe that the majority of the
nations want this same kind of open world which
is desired by the United States.
In the light of what I have just said, the situa-
tion in which the Atomic Energy Commission now
finds itself is much more diiiicult than mere dis-
agreement on the details of negotiations. The
situation which has led to the impasse in the
Atomic Energy Commission has been clearly an-
alyzed in the third report of the Atomic Energy
Commission. This analysis is based on the firm
conclusions of the Commission after over 30
months of negotiation. It is an analysis which
honesty and forthrightness require us all to ap-
preciate. It brings us down to the plain realities
538
Deparfment of State Bvlletin
of the situation with which we are faced. This is
not a temporary breakdown in negotiations which
can be remedied b\' further discussions at the level
of the Atomic Energy Commission. This situa-
tion is caused by the refusal of the Soviet Union
to participate in the world community on a co-
operative basis.
Tlio Communist states have set up a closed sys-
tem and over a large area of the world have drawn
an Iron Curtain behind which things go on in
secret, things of which the rest of the world is
properly suspicious. So long as the Communist
states continue this position, effective international
control of atomic energy will be impossible. So
long as tlie Communist states continue this system
of secrecy, the safeguards which other nations
deem indispensable cannot be made effective. So
long as this situation continues, all the world will
be suspicious of Soviet motives and will, of neces-
sity, arm against unlmown dangers.
The Communist states desire to live in a secret
world of their own, behind which, for all we know,
they may arm and prepare their people for war.
We do not desire to live in such a world. That is
the impasse in which the United Nations Atomic
Energy Commission finds itself. This is the im-
TH£ UNITED NATIONS AND SPECIALIZED AGENCIES
passe which cannot be overcome by the Atomic
Energy Commission. It can be overcome only by
the aroused, the insistent consecution, the moral —
not mechanical — majority of free men who have a
right to insist that they remain free.
The basis on which the M'ork of the Atomic En-
ergy Commission might be resumed should be dis-
cussed, so it seems to us, not in a technical body
such as the Atomic Energy Commission, but in
consultation among the six sponsoring powers
who fii-st proposed to the General Assembly that
this matter be undertaken by the United Nations
and who should now find a means for its continu-
ance. If they find this means, the Atomic Energy
Commission would be immediately reconvened.
But if the sponsoring powers should not be success-
ful, they must report to the General Assembly,
which will then decide what steps should next be
taken.
We believe that this would be the best means of
bringing about that for which we all so devoutly
hope, the reconvening of the Atomic Energy Com-
mission under conditions which will result m the
completion of a treaty acceptable to all nations.
The United States will vote for the Canadian reso-
lution in its entirety.
U.S. Accepts Atomic Energy Resolution
STATEMENT BY AMBASSADOR WARREN R. AUSTIN IN COMMITTEE i>
Mr. President, The United States will acquiesce
in the amended resolution which has now been ac-
cepted by Australia. That is to say, the Canadian
resolution as it shows on A/C.1/340. However, I
want it clear that we adhere to the principles and
policies that we have advocated throughout this
debate. We are not retracing our steps or retreat-
ing from the position that we have stated here
several times. We are fii-mly persuaded that the
report of the Atomic Energy Commission, the
third report, represents the fact when it says:
'Tn this situation the Commission concludes that
no useful purpose can be served by carrying on
negotiations at the Commission level".
Wliy is that so? Well, the Commission states
why it is so, namely, and I am quoting:
"The failure to achieve agreement on the inter-
national conti'ol of atomic energy arises from a
situation that is beyond the competence of this
Commission".
In other words, it is the same deep-seated po-
litical division separating East from West and
the Commission found, after long experience, that
was a constant barrier to accomplishments of
agreement, of cooperation, and collaboration upon
this vital question in the Atomic Energy Commis-
sion. Therefore, it recommended a suspension —
not the kind of suspension which my friend Colo-
' Made on Oct. 19, 1948, and released to the press on the
same date.
October 31, 1948
539
THE UNITED NATIONS AND SPECIALIZED AGENCIES
nel Hodgson speaks of — that is, indefinitely sus-
pended. On the contrary, it expressly recom-
mended a limitation and it used the word "until".
That is probably why the word "when" was used
in this resolution as it was originally drafted. It
was the appropriate word and referred to the rec-
ommendation of the Commission. Now, this is
what they recommended :
"The Atomic Energy Commission therefore rec-
ommends that until such time as the General As-
sembly finds that this situation no longer exists or
until such time as tlie sponsors of the General
Assembly resolution of 24 January, 1946, who are
the permanent members of the Atomic Energy
Commission, find, through prior consultation that
there exists a basis for agi'eement on the interna-
tional control of atomic energy, negotiations in the
Atomic Energy Commission be suspended."
Now, that is plain English and anybody that in-
terprets that to mean an indefinite suspension is
straining the English language. That is a suspen-
sion only until certain events occur and it contem-
plates something constructive being done. The
resolution offered here and under consideration up
to this point recommended what had the most
promise of accomplishment in it. That is, con-
sideration of those factors which were in the way
of agreement in the place where they have to be
considered, that is, on a higher level entirely.
Now, it developed here that this little undercur-
rent ran through this great Conmiittee — anxiety
that the project of international control was being
given up — indefinitely suspended — and so many
amendments reached toward something that would
give hope and assurance to the world that that was
not going to take place.
Now, believe me, the United States respects the
opinion of its colleagues on this Committee and
when it sees a movement of opinion like that
around this table, it gives attention to it. And,
notwithstanding the fact that we still believe
firmly that the only place where we can unravel
this tangle — the tangled threads — is on a higher
level, nevertheless, we are going to acquiesce in the
obvious feelings of this Committee. "We are going
with you. Don't let anj-body assert that the United
States tries to coerce or force its opinion. I can
give you evidence now, this minute, to the contrary.
We are going to vote for this although we still ad-
here to the opinion expressed in that report of the
Atomic Energy Commission and supported by our
endeavors here with all the strength we have.
Mr. President, I think it would be the gravest
error to slip back to February 1947 and merge con-
trol of atomic-energy studies with conventional
armaments. This is an old fight which was fin-
ished, we thought, in the Security Council in Feb-
ruary 1947, and yet we see it raising its head from
time to time. Just why should we mix this work
all up? Wliy should we set back what has been
gained ? It is a great study that has been carried
forward for thirty months with a definite report of
progress. Now, are we going to give it strength?
Are we going to have it carried on with the moral
approbation of the largest number of coimtries in
the United Nations, or are we going to weaken it in
every way that we can ? For example, put in here
proof of it — the words "in substance" or the words
'"in principle". Weasel words to tear down that
which we are reaching for? We cannot get any-
thing more out of the General Assembly than its
moral power. We must reach for all the moral
strength that we can have to support this very in-
telligent accomplislunent of the Atomic Energy
Commission — for it is the accomplislmient of the
Commission, you understand. The majorit}' rule
obtained there and it is only by the strangest atti-
tude towards democratic principles that we find a
small minority persistently resisting the decision
of the Atomic Energy Commission.
So, we now give our allegiance to this amend-
ment — this amended resolution of Canada here —
pro^aded it is not mangled by amendments or by
some conduct of this Committee that would rob it
of the only thing that there is in it, and, that is,
the moral power of the General Assembly.
540
Department of State Bulletin
Review of Allied Action on Berlin Blockade
STATEMENT BY PHILIP C. JESSUP'
Deputy U.S. Representative in the Security Council
The distinguished representative of the United
Kingdom has given the Council a complete review
of the facts of the complex blockade measures im-
posed by the Soviet Union over a period of months.
These are actions which were designed to deprive
the Western powers of their legal rights in Berlin
and force the German capital into the Soviet eco-
nomic and political system. These are acts which
taken as a whole constitute duress and threat of
force, such as are wholly inconsistent with the obli-
gations imposed on members of the United Nations
by the Charter.
At the very moment in which the Security Coun-
cil is considering the blockade, Soviet authorities
have taken additional steps to tighten it. They
announced in Berlin yesterday that, effective as of
yesterday, all vehicles coming from the Soviet zone
into Berlin must enter thi-ough the Soviet sector.
In other words, as regards vehicular traffic into the
Western sectors of Berlin, a watertight blockade
has now been clamped about the perimeter of the
city. The manner in which these measures have
been taken provides a striking illustration of the
Soviet blockade methods. Suddenly, without
prior warning, a police cordon is thrown around an
area comprising two thirds of Berlin. Instead of
a simple reasonable system of inspection at the
point of entry, a vehicle must detour 40 or 50 miles
in order to enter the city from the east. Instead
of the use of an agreed-upon documentation for the
entry of this vehicle, it must possess unspecified
and unilaterally decreed papers. Its ultimate fate,
should it persist in wishing to enter the West sec-
tors from the Soviet sector, is seizure of the vehicle
and its cargo, including food. We are informed,
indeed, that yesterday patrols of police in the
Soviet sector began inspecting all vehicles trying
to enter the West sectors. One thing emerges
clearly from these announcements and actions : the
blockade not only exists, but is being intensified.
The duress of which we complained and which is a
bar to negotiations is being increased even as the
Security Council deliberates.
There is an aspect of the blockade measures
which I particularly wish to be re-emphasized to
members of the Coimcil. As I pointed out before,
under a series of international agreements the four
occupying powers undertook responsibilities for
the population of the sectors of Berlin committed
to their charge. The blockade is a method used
by the Soviet Union for the expansion of its power
in utter disregard of these joint responsibilities
and with callous indifference to the effect of their
measures upon the population of the Western sec-
tors. I would also remind the Council that it was
not until a month after the blockade was imposed
that the Soviet Union made their offer to supply
food and coal to the Western sector. It was thus
clear that they originally contemplated putting
this pressure on the population in an attempt to
break their spirit, and it was only after the success
of the air lift was demonstrated that the attempt
was made to counter the air lift with the offer of
Soviet supplies.
This is the blockade which Vyshinsky says is
entirely mythical. ,
His contention that there is no blockade has
been amply disproved by facts. The Soviet in-
terpretation will in any event be somewhat dis-
puted by two and one-half million people who are
the direct object of Soviet power politics, who are
faced with a choice between accepting the real and
potential hardships of the blockade or accepting
Soviet political food and political coal and hence
' Made before the Security Council on Oct. 19, 1948, and
released to the press on the same date.
Ocfofaer 37, 1948
541
THB UNITED NATIONS AND SPECIALIZED AGENCIES
Soviet and Communist political domination.
Tlieir choice has been clear and unmistakable from
the beginning. They have chosen hardship and
freedom. This is a hopeful sign for the future
peace and security of Europe, for the sake of which
the Four Powers undertook the occupation of Ger-
many. Let us not forget that at Potsdam it was
declared that the Allies will take in agreement
together, now and in the future, the other measures
necessary to assure that Germany never again will
threaten her neighbors or the peace of the world.
It is not the intention of the Allies to destroy or
enslave the German people. It is the intention of
the Allies that the German people be given the
opportunity to prepare for the eventual reconstruc-
tion of their life on a democratic and peaceful
basis. That was agreed at Potsdam. The Soviet
Government, using the harsh instrument of the
blockade, has indeed chosen a strange way in Ber-
lin to live up to its agreement to democratize Ger-
man political life. Thanks to the air bridge and
the support given it by Berliners, the Soviet Gov-
ernment has not succeeded in its purpose.
Let us get down to the bare bones of the matter.
There is Berlin, an island in the midst of the Soviet
zone. By international agreement Berlin is a city
under the administration of four countries —
France, the Union of Soviet Socialist Republics,
the United Kingdom, and the United States. It
is not a Russian city. Officials and troops of four
countries are in that city carrying out their duties
in the several sectors assigned to them by interna-
tional agreement. Questions affecting the city as
a whole, under those same agreements, are sup-
posed to be controlled by the four countries acting
together in the Control Council and Kommanda-
tura — two bodies which they set up for that pur-
pose. In 1945 all four agreed that all four should
share in bringing essential supplies of food, fuel,
etc., to Berlin and in distributing those suppUes in
Berlin.
For about three years this island city of Berlin
was administered under these agreements. Then
in 1948, for one reason or another (I shall not now
pause to review the evidence which shows what the
reason was; the varying and inconsistent reasons
advanced by the Soviet command for these re-
strictions have already been revealed) , the Soviet
Union, one of the Four Powers, walked out of
the Control Council and Kommandatura and be-
gan to close the routes to Berlin. All these routes,
by rail, road, and canal, cross the Soviet zone terri-
tory to reach Berlin. The Soviet Army is sta-
tioned all through that territory and therefore is
in the physical position to prevent traffic from
crossing it. They have not the right to prevent
this traffic because they agreed that France, and
the Union of Soviet Socialist Republics, the U. K.
and the U. S. should all share in administering
Berlin, and Premier Stalin himself in 1945 agreed
that they had a right to go in and out of Berlin to
and from their own zones. But the Soviet Union
has the physical power and has threatened to use
it. It does not have the same physical power of
control over the air and therefore the three West-
ern Governments are using air lanes. The air lift
has imposed tremendous additional burdens upon
the three Western powers who have exactly the
same right as the Soviet Union to be in Berlin.
But if we three Western countries had been un-
willing to make that effort, we would be default-
ing on our recognized responsibilities for the eco-
nomic and political welfare of the Berlin popula-
tion. It is not unreasonable to assume that the
objective of the Soviet Union is to place the West-
ern powers in a position where they cannot carry
out those responsibilities. It is absurd for the
Soviet Union to argue that there is no blockade
merely because we can still reach our own sectors
of Berlin by air or because they belatedly offered
to supply food in exchange for political control.
One does not need to be an expert on the Charter
to realize that the use of physical power backed by
armed force in an attempt to prevent us from go-
ing where we have a right to be and where we have
international duties to perform, is a violation of
the purposes and principles of the United Na-
tions. If the Soviet Union had complaints against
the three Western countries, the whole system of
the Charter clearly requires them to try to settle
these differences by peaceful means. Did they try
to do so ? They did not.
From the beginning of 1948 until their surface
blockade became complete, they never suggested
that we have a meeting of the Council of Foreign
Ministers to discuss the broad questions of the
542
Department of State Bulletin
future of Germany. From the time they with-
drew from the Control Council in March 1948, they
never suggested negotiations by any other body.
Instead they used the extreme measure of the
blockade.
Some people may think there was no real threat
of force because they did not actually open up on
our trains and trucks and barges with machine
guns and artillery. But let me give you a picture
as presented by an actual case. On June 21, 1948,
United States military train no. 20, under com-
mand of an American officer and carrying one
warrant officer and an interpreter and six train
guards, left Helmstedt en route to Berlin.
Despite the fact that it had complied with all
agreed regulations, the train was stopped at the
Eussian control point. There were three days of
argument during whicli Eussian demands were
frequently altered. Finally the Eussian com-
mandant ordered all U. S. personnel off the rail
property, which he claimed was under Soviet con-
trol and onto guard cars. Two American guards
were forced off the U. S. engine by a Eussian
colonel and two armed Eussian guards. Other
Eussian guards with automatic guns were placed
beside the train in various spots. Soviet guards
rode the train to the border point where they
alighted and the train proceeded back to
Helmstedt.
Now as I pointed out to the Security Council
before, we could have used armed force against
this Soviet threat or we could have meekly sub-
mitted and surrendered our rights and duties in
Berlin, subjecting nearly two and one-half million
Germans to Soviet rule with all that that implies.
Wliat we actually did and are still doing is live
up to our obligations under the Charter of the
United Nations and to try to settle the question
by peaceful discussions while continuing to dis-
charge our obligations in Berlin.
This leads me to the second question which has
been put to us. I quote it :
"We request the repi'esentatives of the U. S. A.,
the U. K., France, and the Soviet Union to explain
circumstantially the agreement involved in the
instructions given to the Military Governors of the
Powers in Berlin and to give the detailed reasons
THE UNtTBD NATIONS AND SPBCIAUZBD ACBNCIES
that prevented the implementation of those
instructions."
The Soviet Government will, however, appre-
ciate that the thiee Governments are unable to
negotiate in a situation which the Soviet Govern-
ment has taken the initiative in creating. Free
negotiations can only take place in an atmosphere
relieved of pressure. This is the issue ; the present
restrictions upon communications between Berlin
and the Western zones offend against this prin-
ciple. "Wlien this issue is resolved, such difficulties
as stand in the way of a resumption of conversa-
tions on lines set out should be removed.
I have already given the Council on October 6 an
outline of the discussions which followed.^ I shall
repeat the essential points.
At the close of the meeting on August 2, Stalin
seemed to meet our point of view. He proposed
that lifting restrictions on transport and commerce
should be carried out simultaneously with the in-
troduction in Berlin of the German mark of the
Soviet zone and the withdrawal from Berlin of
the Western mark "B".
The three Western Governments assumed that
Stalin's proposal was based on the establishment
of Four Power control over currency in Berlin and
therefore could be accepted. Accordingly, in the
next meeting with Molotov on August 6 the three
Western Eepresentatives suggested that a com-
munique should be agi'eed upon by the Four Gov-
ernments which would announce the lifting of the
blockade, the introduction into Berlin of the Ger-
man mark of the Soviet zone as tlie sole currency
of the city, under adequate Four Power control,
and an agreement to hold a Four Power meeting
to consider outstanding questions with respect to
Berlin and Germany. This document will be
found in our White Paper.^ You will note that
it was a simple proposal and, in addition to the
points I have just mentioned, spelled out Four
Power safeguards with respect to currency which
we considered essential.
The Soviets did not accept immediately the
draft communique. Instead, protracted discus-
' Bulletin of Oct. 17, 1948, p. 884.
' Department of State publication 3298.
October 31, 1948
543
THE UNITED NATIONS AND SPECIALIZED AGENCIES
sions were held between the Four Powers over a
three-week period until the directive was agreed
to on August 30. I think it unnecessai-y to give
here a detailed chronological account of those dis-
cussions. That account is given in the Wliite
Papers which have been published by the United
States Government and by the British Govern-
ment. If you will compare the proposals made by
the Three Powers on August 6 with the agreed
directive, differences between them will be clear.
When agreement was reached on August 30 as
to the terms of the directive, the U.S. Govern-
ment believed that no more than administrative
acts by technical expei-ts in Berlin were required
to carry out the directive. There had been an ex-
haustive discussion on all issues of principle in
the directive. So far as we knew full accord had
been reached. The only thing that remained was
to put into effect the principles agreed upon which
we assumed could be done by the four Military
Governors.
The directive met the points made by the Soviet
Government in Moscow and at the same time was
consistent with the maintenance of our rights in
Berlin.
Stalin gave specific assurances on the question
of Four Power control over currency in the August
23 meeting with Representatives of the three
Western Governments.
As reported by Smith :
"Stalin stated that the German bank of emission
controlled the flow of currency throughout the
whole Soviet zone, and it was impossible to exclude
Berlin from the Soviet zone. However, if the ques-
tion were asked whether it did so without being
controlled itself, the answer was 'no'. Such con-
trol would be provided by the Financial Commis-
sion and by the four Commanders in Berlin, who
would work out arrangements connected with the
exchange of currency and with the control pro-
vision of currency, and would supervise what the
bank was doing."
No unresolved issues of substance appeared to
be involved on August 30 when the directive was
sent to the four Military Governors in Berlin.
But what was our experience in Berlin ?
In answering this question, one needs remember
what the situation was when the discussions be-
gan. The beginning was on July 6 when the three
Governments sent the first notes to the Soviets.
By that time, the Soviet interruption of highway,
railroad, and canal traffic was complete and the
three Western powers had been forced to resort
to the air lift to cany out their acknowledged
duties in Berlin. This was the situation creating
a threat to the peace which still exists, and which
will continue to exist until the restrictions of sur-
face travel are removed. For over three months
we have been trying to remove this threat to the
peace by peaceful means. When direct discus-
sions failed, we tui'ned to the Security Council,
which by the Charter has been given the primary
responsibility for tlie maintenance of interna-
tional peace and security.
We turned to the Security Council on September
29 for exactly the same reason that we entered into
the discussions with the Soviet Government in
July, namely, to remove the threat to the peace.
We did not come to the Security Council in July,
because article 33 of the Charter required us "first
of all" to exhaust the possibility of direct discus-
sion. But the threat to the peace existed in July as
it exists now in October.
In July we wondered whether there were some
detail, some misunderstanding, which caused the
Soviet Government, however improperly and il-
legally, to use force instead of conference. If that
were the case, the diflBculty could be removed. If,
however, as all signs seemed to indicate, the Soviet
Union was using the threat of force to get us out
of Berlin, that was a different matter. So we put
the question to Stalin on August 2 in Moscow.
Smith, of the U. S., spoke for the three Govern-
ments. I want to quote his words which you will
find printed in full in the U. S. White Paper :
"The United States, the United Kingdom and
France do not wish the situation to deteriorate
further and assume that the Soviet Government
shares this desire. The Three Governments have
in mind restrictive measures which have been
placed by Soviet authorities on communication be-
tween the Western zones of Germany and Western
sectors of Berlin. It was the feeling of our Grov-
ernments that if these measures arose from tech-
nical difficulties, such difficulties can be easily
remedied. The Three Governments renew their
544
Departmenf of State Bulletin
offer of assistance to this end. If in any way re-
lated to the currency problem, such measures are
obviously uncalled for, since this problem could
have been, and can now be, adjusted by representa-
tives of the four jDOwers in Berlin. If, on the
other hand, these measures are designed to bring
about negotiations among the four occupying
powers they are equally unnecessary, since the
Governments of the United Kingdom, the United
States and France have never at any time declined
to meet representatives of the Soviet Union to dis-
cuss questions relating to Germany. However, if
the purpose of these measures is to attempt to
compel the three Governments to abandon their
rights as occupying powers in Berlin, the Soviet
Government will understand from what has been
stated previously that such an attempt could not be
allowed to succeed."
Smith went on to say :
"In spite of recent occurrences, the three powers
are unwilling to believe that this last reason is the
real one. Rather they assume that the Soviet Gov-
ernment shares their view that it is in the interest
of all four occupying powers, of the German peo-
ple and of the world in general to prevent any
further deterioration of the position and to find a
way bj- mutual agreement to bring to an end the
extremely dangerous situation that has developed
in Berlin."
The record shows that the Soviet Military Gov-
ernor departed from the directive on three funda-
mental matters of principle. First, he asserted
that the use of the air corridors to Berlin from
the west would be limited to supplying the needs
of the occupation forces; but the directive called
for the lifting of restrictions, not the imposition
of new ones. Second, he maintained that the trade
of Berlin with the Western occupation zones and'
third countries should be controlled exclusively by
the Soviet Military Command, but the directive
provided that a "satisfactory basis" of trade should
be worked out rather than unilateral control.
Third, the Soviet Commander insisted that the
Four Power Financial Commission would not have
the necessary authority with respect to the activ-
ities in Berlin of the German bank of emission
THE UNITED NATIONS AND SPECIALIZED AGENCIES
despite the explicit understanding to the contrary
reached with Stalin August 23 on this point.
The three Western Governments decided to take
these issues back to Moscow to determine whether
tlie Soviet Government itself was also going to dis-
regard the agreements which had been reached.
However, in going back to Moscow, we did be-
lieve that it was essential to obtain an unequivocal
affirmation by the Soviet Government of the prin-
ciples of the August 30 directive. We were not
prepared to embark on another round of long dis-
cussion which would simply reproduce what had
gone before and which would open for f urtlier dis-
cussion principles previously settled. We wanted
unequivocal answers to the three questions. We
then wanted performance on those answers in Ber-
lin. "Wliat happened when we went back to
Moscow ?
The three Western Governments requested m
their aide-memoire of September 14 that the So-
viet Government affirm the understanding reached
in Moscow concerning those three issues and in-
struct the Soviet Military Governor to carry out
these undertakings. A reply was received by the
three Western Representatives in Moscow on Sep-
tember 18. In that reply the Soviet Government
upheld the jjosition of the Soviet Military Gov-
ernor to the effect that the use of the air corridors
in the future be limited to supplying the require-
ments of the occupation forces in Berlin contrary
to the Control Council decision of November 30,
1945. "Wliile admitting that the trade of Berlin
should be under Four Power control, the Soviet
Government maintained that actual issuance of
export-import licenses should be controlled by the
Soviet military administration. This would have
vitiated Four Power control over trade. The reply
seemed to go back to acceptance of the principle
that the Financial Commission would have author-
ity only over certain activities in Berlin of the
German bank of emission.
It is evident that we did not obtain the simple
affirmation we sought of the agreed principles of
the August 30 directive. Nor did we obtain any
assurance that the Soviet Government would in-
struct the Soviet Military Governor to follow the
directive. In short, we obtained an unsatisfactory
reply. In view of all that had happened before,
Ocfofaer 31, 7948
545
THE UNITED NATIONS AND SPECIALIZED AGENCIES
we came to the considered opinion that the Soviet
Government was attempting to secure political ob-
jectives to which it was not entitled and which it
could not achieve by peaceful means. We dis-
covered that the talks we were holding were serv-
ing as an excuse to prolong the blockade rather
than as a means of removing it.
Therefore, on September 22, the three Western
Governments sent identic notes to the Soviet Gov-
ernment in which they restated their positions on
the three principal issues and in which they also
asked the Soviet Government to lift the blockade
and specify the date on which it would be done.*
The Soviet reply to this note was received on
September 25.^ It still did not explicitly clarify
all of the points which we had taken back to Mos-
cow. It did not state that the Soviet Government
agreed that commercial freight and passengers
could move to Berlin by air. It did, perhaps,
imply that the air corridors might be used for this
purpose. However, it stated that there must be
control by the Soviet High Command over the
transport of commercial cargoes and passengers.
Tlie Soviet reply thus raised a new question. We
could not agree that the Soviet Command should
exercise such control. We had stated repeat-
edly in Berlin that insi)ection for protection of
currency would be necessary but that it must be
exercised on the basis of agreed quadripartite
regulations.
I want to point out that in the circumstances
existing in Berlin, protection of the currency of
the Soviet zone is wholly unrelated to the volume
of freight or the mmiber of passengers moving by
land, water, or air between the Western zones and
Berlin. Pi-otection for currency of the Soviet
zone, as a practical matter, can be had through
adequate exchange and currency controls as be-
tween the two areas, not through control of tiaffic.
The Governments of France, the U.K., and the
U.S. have always been prepared to agree to reason-
able safeguards for the protection of the Soviet
zone German mark. They have always been and
still are prepared to agree to reasonable regula-
' Bulletin of Oct. 3, 1948, p. 423.
' ma.
' U.N. doc. S/1020, Sept. 29, 1948. -See also Buixetin of
Oct. 10, 1948, p. 455.
tions over traffic. Limitation of and control over
the volume of traffic that moves between the West-
ern zones and Berlin should not be confused with
the wholly separate and unielated question of
currency and exchange control. The Soviets have
used this as one of their excuses for establishing
the blockade and as reason for claiming the right
to impose restrictions on the use of air corridors
for transpoi'tation of freight and passengers. This
is a subterfuge on the part of the Soviets to place
air traffic and Berlin under control of the Soviet
Command.
Because further talks had become manifestly
futile, we informed the Soviet Government that
we were referring the matter to the Security Coun-
cil in our identic notes of September 26-27. We
sent our notification to the Secretary-General of
the United Nations on September 29.^
As you are aware, the Soviet Government sent
a note to the three Western Governments on Oc-
tober 3, even after we had referred the case to the
United Nations. That note is a further illustra-
tion of the tactics which have been pursued by the
Soviet Government throughout these talks. It
suggests for example that the matter of air-traffic
control to prevent illegal currency and smuggling
operations should be capable of mutually satisfac-
tory negotiation but it carefully refrains from
making a definite commitment. It is another ex-
ample of the evasions, and apparent unwillingness
to affirm understandings already reached.
Now we are asked why was it that the whole
matter was not settled on the basis of the directive
of August 30. Stated in another way, the question
is, "Why did the threat to jjeace continue after Sep-
tember 7 when conversations of the four Military
Governors were concluded, or after the 14th of
September when the three Western Governments
wrote the Soviet Government explaining in what
respects Sokolov.sky had refused to live up to the
understanding reached in Moscow?"
A simple and direct answer to the question is
that the threat to peace did not end then because
it was the Soviet blockade measures which caused
the threat to peace and the Soviet Government
refused to lift the blockade. The Soviet Govern-
ment created the threat to peace and the Soviet
Government can remove it.
546
Department of State Bulletin
To sum up, the three Western powers were pre-
pared to discuss practical arrangements to deal
with the currency problem in Berlin or other prob-
lems as long as there was the slightest reason to
believe that the restrictions imjjosed by the Soviet
Government were in any way related to such prob-
lems. But when it became apparent as tlie conver-
sations jjrogressed and particularly after the
Soviet repudiation of the agreed interpretation
of the August 30th directive, that the real Soviet
intention was to force the abandonment of our
rights in Berlin, which Stalin had been informed
was totally unacceptable to the Western powers,
it was obvious that the discussions were doomed
to failure. In our view these discussions prove
conclusively and we so stated in our notes of
THE UNITED NATIONS AND SPECIAUZBD AGENCIES
September 2G-27 that the Soviet Government was
and is attempting by illegal and coercive measures
in disregard of its obligations to secure political
objectives to which it is not entitled and which it
could not achieve by peaceful means. We could
not continue to discuss even on the currency ques-
tion under a clearly established attempt to attain
such objectives by coercion and duress.
In demanding the immediate lifting of the
blockade which constitutes a threat to peace, we
in no way seek to be released from our commit-
ment to carry out the directive of August 30. We
are asking the Security Council to remove the
threat to the peace, not to avoid a discussion with
the Soviet Government, but to make it possible to
engage in discussions free from duress.
Current United Nations Documents: A Selected Bibliography
General Assembly
Non-Self-Governing Territories. Information Transmit-
ted Under article 73e of the Charter. Report of the
Special Committee. A/593, October 1, 194S. 51 pp.
mimeo.
Privileges and Immunities of the United Nations. Report
of the Secretary-General. A/626, September 7, 1948.
9 pp. mimeo.
Headquarters of the United Nations. Report of the Sec-
retary-General. A/627, September 8, 1948. 7 pp.
mimeo.
Report of the Committee on Contributions. A/628, Sep-
tember 7, 1948. 8 pp. mimeo.
Transfer to the United Nations of the Functions Exercised
by the Government of the French Republic Under the
International Agreement of 18 May 1004 and the In-
ternational Convention of 4 May 1910 for the Sup-
pression of the White Slave Traffic, and the Agree-
ment of 4 May 1910 for the Suppression of Obscene
Publications. A/639, September 9, 1948. 35 pp.
mimeo. (Also, A/639/Rev. 1, October 8, 1948.)
Composition of the Secretariat and the Principle of Geo-
graphical Distribution. Report of the Secretary-Gen-
eral. A/652, September 2, 1948. 21 pp. mimeo.
Adoption of the Agenda of the Third Regular Session and
Allocation of Items to Committees. A/653, September
23, 1948. 14 pp. mimeo.
United Nations Guard. Report of the Secretary-General.
A/65G, September 28, 1948. 13 pp. mimeo.
Transfer to the United Nations of the Residual Assets and
Activities of the United Nations Relief and Rehabilita-
tion Administration. Report by the Secretary-Gen-
eral. A/66o, October 4, 1948. 28 pp. mimeo.
Draft Protocol Bringing Under International Control
Drugs Outside the Scojie of the Convention of 13 July
1931 for Limiting the Manufacture and Regulating
the Distribution of Narcotic Drugs, As Amended by
the Protocol Signed at Lake Success on 11 July 1946.
Report of the Third Committee. A/666, October 5,
1948. 7 pp. mimeo.
Reparation for Injuries Incurred in the Service of the
United Nations. Memorandum by the Secretary-
General. A/674, October 7, 1948. 7 pp. mimeo.
OfBcial Records of the Second Special Session of the Gen-
eral Assembly. Volume I. Plenai-y Meetings of the
General A.ssembly. Summary Records of Meetings.
10 April-14 May 1948. sxvi, 47 pp. printed. 750.
Economic and Social Counci
Official Records. Second Year. Fifth Session. From the
S5th meeting (19 July 1947) to the 121st meeting (16
Augu.st 1947). xvi, 4S0 pp. printed. $5.00.
Security Council
Official Records, Third Year. 333rd and 334th Meetings.
13 July 1948. No. 95. 56 pp. printed. 600. 339th
and 340th Meetings. 27 July 1948. No. 98. 50 pp.
printed. 50«;. 343rd Meeting. 2 August 1948. No.
100. 22 pp. printed. 250.
' Printed materials may be secured in the United States
from the International Documents Service, Columbia
University Press, 2060 Broadway, New Y'ork City. Other
materials (mimeographed or processed documents) may
be consulted at certain designated libraries in the United
States.
October 31, 1948
547
United Nations Day
STATEMENTS BY SECRETARY MARSHALL'
With the other members of tlie United States
Delegation, I am attending in Paris the third reg-
ular session of the General Assembly of the United
Nations. For five weeks this has been a period of
extraordinary activity, as we have been dealing
daily with matters of utmost world concern. Make
no mistake about it, what is being done here has a
profound meaning for every American.
It is fortunate, I think, that United Nations Day
is being observed while the General Assembly is in
session. The critical nature of issues we are debat-
ing should cause the people of the world to think
both seriously and realistically about what the
United Nations really is and what people may
rightfully expect it to accomplish in their behalf —
that is, in behalf of world peace.
The most vivid impression I have received in
the past few weeks is the new appreciation of the
indispensable part the organization of the United
Nations has come to play in the affairs of the world
community. I wish I could convey to all of you
at home the stirring sense of reality and vitality
we feel from participating in these meetings.
Certainly no one here doubts that they are part
of an organization engaged in the most important
business in the world today — that is, an intense
effort to save this and succeeding generations from
the scourge of war.
But we realize that the United Nations cannot
hope to succeed unless it boldly comes to grips
with the realities of the world situation. It can-
not exist merely as a symbol above and apart from
human struggle. If the organization is to justify
the hopes of mankind, it must gather strength to
surmount the difficulties, the crises of the world,
and bring about peaceful solutions for them.
The most important fact of international life
today which every country must take into account
is the fact that the United Nations is a living, dy-
namic institution. This does not mean that we
' The first statement was made over the CBS network
on the occasion of the observance of United Nations Day,
Oct. 24, 1948, and released to the press on the same date.
The second statement was made to American students
on the occasion of United Nations Week over the NBC net-
work on Oct. 22, 194S, and released to the press on the same
date.
548
can find solutions for all our complicated inter-
national problems easily and automatically by
referring them to the United Nations, nor does it
mean that we should lose our perspective — or fear
that doomsday is just around the corner if the
United Nations does not ^jrovide quick and satis-
factory solutions. Some of these problems have
already defied the ingenuity of Member Nations
that make up the United Nations, and because the
United Nations is inseparably a part of the real
imperfect world in which it exists it is subject to
the same disabilities and frustrations that beset
the negotiations of its individual members. We
would make a fundamental error if we disregarded
these realities and considered the United Nations
as some short cut to Utopia. There is neither a
short cut nor a Utopia. We live in a human world
with all man's frailties and failings, which I have
come to think are more jironounced in nations
than in individuals.
The United Nations Charter recites specific
limitations which were passed on by the fifty na-
tions that created the organization. The United
Nations is in no sense a supergovernment. It
does not have complete authority over sovereign
nations which compose its membership. They did
voluntarily agree to cooperate within the provi-
sions of the limited authority conferred upon it
by the Charter, but the achievements of the United
Nations are limited to the willingness of various
nations to cooperate. The difficulties, successes,
and failures of the United Nations directly reflect
existing relationships among nations.
The attention of our people has been focused on
political disputes debated in the Security Council
and the excessive use of the veto in that organiza-
tion. This has led to an impatient desire to force
hasty revision or even complete overhauling of
the whole United Nations machinery. Many of
these proposals are unrealistic in that they confuse
cause with effect. They propose cures for symp-
tom instead of for disease. The truth is that the
means for cooperation jDrovided by the United
Nations are not, I repeat, are not inadequate — it
is a lack of genuine desire for cooperation on the
part of certain nations that brings about the pres-
ent feeling of futility and frustration.
Department of State Bulletin
This obstructive attitude or procedure is the
most serious liuiitiition of all, it is the jjreatest
blight on the ellectiveiiess of the United Nations.
It has boon imposed contrary to the wishes of the
majorit_y of the Member nations, and contrary to
understandings reached in San Francisco. Yet
tlie Uiiited Nations unquestionably represents the
maxinium degree of intei'national cooperation
tliat is possible at this time.
The way to increase the cooperative spirit is not
by deliberately destroying the inadequate unity
that now exists, but rather by careful and patient
cultivation of greater unity through the processes
of the United Nations.
Always keep in mind that the United Nations
today provides the forum in which world opin-
ion can be brought to bear on the niost critical
world disputes. In time the cumulative effect of
moral judgments of the large majority of mankind
expressed through the organization will inevitably
exert a powerful influence upon even the most re-
calcitrant government.
THE UNITBD NATIONS AND SPBCIAUZeO ACENCWS
The United States will associate itself with as
much of the world as will sincerely devote its
efforts to the realization of the aims proclaimed in
the Charter of the United Nations. Our govern-
ment is resolved to seek peace and understanding
m accordance with the Charter both inside and
outside the United Nations. We will not allow
misuse of United Nations procedures or obstruc-
tion of our efforts, singly or in concert with other
nations, to dismay or defeat us.
I urge all Americans to observe United Nations
Day in a practical manner by increasing their
knowledge and understanding of the organization,
particularly the Charter. The United Nations
was born out of world disaster and has had to be
nurtured during continuing crises. Given a
reasonable opportunity the United Nations will
grow and develop through other crises to its ma-
turity. That is the way of civilization. There is
no better road — no shorter — in fact, there is no
other road — to lasting peace.
I am addressing you from Paris, where the
United States is taking an active part in the de-
liberations of the United Nations. This meeting
is dealing with serious problems in world affairs,
some of which will affect your personal lives for
years to come.
I wish it were possible for me to meet you per-
sonally, in your gatherings at schools throughout
our country, to impress on j'ou the great impor-
tance of the organization of the United Nations
and the duty you owe to yourself and your country
to help strengthen the United Nations and make of
it a tremendous influence for peace in the world.
The people of our country have just passed
through a terrible war in defense of our right to
live in freedom and to govern ourselves as we see
fit. Great sacrifices were made, hundreds of thou-
sands of lives of our young men given to keep for
us and for future Americans the kind of libeily
and ways of life that have been so wonderfully
developed in America.
Now we are engaged in a great effort to save
succeeding generations from the scourge and hor-
rors of war and to bring progress and prosperity
to the world. Our efforts are centered on the
United Nations, the world's best hope for peace.
We only began this great enterprise three years
ago. We must look to you to carry it forward to
strength and power. You are young. You have
a fresh viewpoint and vigor. Make the United
Nations your own organization by learning all you
can about it, what it is, what its purposes are,
how it operates. Read the Charter and re-read it,
until you understand it as thoroughly as you do
our own Constitution. Identify yourself with the
United Nations and work unceasingly to make it
the means by which you and the young people of
other lands can live together in peace and happi-
ness in the years ahead.
ADDRESS BY GEORGE V. ALLEN'
Assistant Secretary for Public Affairs
I am glad to talk with you tonight about the
United Nations because many people who read the
daily headlines, reporting disputes in the General
Assembly in Paris, are inclined to overlook the
really significant developments now taking place.
Many people are skeptical that any progress can
be made, under present world conditions, towards
the creation of an effective world organization,
Ocfober 37, 7948
but progress is being made toward that end every
day.
Today, in Paris, the spokesmen of the world
are debating ways and means by which nations
can work creatively toward building an effective
' Address broadcast over WRC in Washington on Oct.
22, 1948, and released to the press on the same date.
549
THE UNITED NATIONS AND SPECIALIZED AGENCIES
peace. A large majority of the hundreds of dele-
gates present are showing more and more clearly,
when the chips are down, that they appreciate the
necessity for preserving the dignity and worth of
the individual, and are aware that an eifective
world organization can only be built on democratic
principles.
In each debate in Paris, this issue is becoming
more clear cut. We are getting down to rock bot-
tom. The question of the control of Berlin is
incidental to the basic question whether anti-
democratic methods of force and coercion shall be
permitted to continue as a means of conducting
international relations. As the various individual
cases are discussed, this basic issue underlying
them all emerges more clearly.
The fact that more and more people of the world
are steadily realizing the fundamental question in-
volved is more important to me than the political
disagreements which are hitting the headlines.
The quarrel is not between the United States and
Russia ; it is between democracy and totalitarian-
ism, between aggression and nonaggression, be-
tween moral and immoral international conduct.
But the political debates in Paris by no means
tell the whole United Nations story. Tlie Security
Council, as "trouble shooter" for the United Na-
tions, receives most of the headlines, but the less
spectacular day-to-day advancements made by the
United Nations and by its specialized agencies in
social and economic fields are perhaps equally
important.
A vast new machinery of international coopera-
tion has come into being since 194:5. A study of
the United Nations organization chart will re-
veal commissions, coimcils, and special agencies
which offer Member Nations a meeting ground to
attack almost every type of common problem,
such as the control of contagious diseases, edu-
cational reconstruction, and many others of equal
importance. Some people think there are too many
such agencies and bureaus, but each is important,
and their constant if quiet endeavors and achieve-
ments add up to a significant total. In §ome of
these agencies, delegates of widely divergent polit-
ical views work in close technical cooperation and
harmony.
This, very briefly to be sure, rounds out the story
I wish to share with you tonight. Let me repeat.
I find strength in the fact that the aims and prin-
ci^jles embodied in the Charter of the United Na-
tions are identical with those of the American
people, and that they express accurately the hopes
of all other democratic peoples. The basic fault is
not in the Charter, but in the fact that some of
its Members continue to employ undemocratic
methods of force and coercion to achieve their
international goals. But the longer the issues are
debated, the more clear it becomes to all the world,
including increasing numbers of people behind the
Iron Curtain, that the basic issue involved is
morality in international conduct against im-
morality, national independence against subservi-
ence to an alien rule, and human liberty against
the subjection of this individual to the dictates of
a ruling clique.
Progress is being made, and with a steadfast
conviction in the superiority of democratic prin-
ciples over any other system of conduct yet de-
vised, we shall succeed in building a world order
which will stand in the noonday sun, strong and
firm on its solid support— the people of the United
Nations.
550
Department of State Bulletin
WHY WE SUPPORT THE UNITED NATIONS
By Ambassador Warren R. Austin '
Today marks the first oflScial, world-wide ob-
servance of United Nations Day, designated by
unanimous reconnnendation of the General Assem-
bly in 1947. On this day people are gathered in
all parts of the world to discuss problems before
the United Nations and to express their determina-
tion, in the words of the Charter, "to save succeed-
ing generations from the scourge of war".
It is fitting that this world-wide testimony to
humanity's greatest hope for peace, the United
Nations Charter, should occur on the day dedicated
to the one Father of all mankind ; it is fitting that
this observance should fall on the day of prayer,
and that mankind's prayers for peace and justice
are rising in unison around the earth.
I feel greatly honored to have a part in Britain's
observance of this universal holiday in Central
Hall, Westminster, in which the organization be-
gan its life. It was the people of this island whose
valor and determination in the darkest hours made
possible the victory from which emerged the
United Nations. Faced, as we now are, with the
certainty that the development of the United Na-
tions will require from all of us much of the same
spirit, I feel especially privileged to observe this
day with people who, in our time, have so dis-
tinctly identified their country with qualities of
faith and courage.
The people of my country cherish the partner-
ship with you that helped create the United Na-
tions. We are united in our desire to see that
partnership grow in collective effort to strengthen
the United Nations.
Today, in the United States, our national elec-
tion campaign is suspended so that people may join
in rallies in every state to manifest support for the
United Nations. It provides us with another op-
portunity to demonstrate that our participation in
the United Nations is based on the national will,
and not on the platform of any one political party.
Both major parties have published pledges to sup-
port the United Nations.
The Democratic platform states: "We support
the United Nations fully and we pledge whole-
hearted aid toward its growth and development."
The Kepublican platform provides : "We believe
in collective security against aggression and in be-
half of justice and freedom. We shall support the
United Nations — the world's best hope in this
direction, striving to strengthen it and promote
its effective evolution and use."
Ocfober 31, 1948
The United States Delegation in Paris is a bi-
partisan delegation and the policies of that dele-
gation have not become the subject of partisan
debate in the election campaign now nearing its
end. Our people are able to observe at close range
the growth of the organization from its beginnings
in the Dumbarton Oaks conversations through the
writing of the Charter, on our Pacific Coast, to
the establishment of its home on our Atlantic
Coast. Our students, editors, political leadere,
and public visit sessions of the. General Assembly,
Security Council, Trusteeship Council, Economic
and Social Council, and other agencies of the
United Nations. They return to their communi-
ties with firsthand reports of how representatives
of 58 nations are progressing with their work.
This all makes the United Nations very real to our
people.
One reason we are glad that the General Assem-
bly is being held in Paris this year is that it is
giving the people of Europe a better opportunity
to visit its sessions, and to feel their intimate rela-
tion to it. There is an inherent basis for the Amer-
ican support of the United Nations. During most
of our history, we have been receiving the sons and
daughters of all nations, and especially from
Europe. We have become a United Nations coun-
try, exemplifying that men of every nationality,
religion, color, and race can live together in peace,
and cooperate for the welfare of all. I would not
imply that we have achieved our ideal. Our ef-
forts to insure the fulfillment of the guaranties of
equal rights must be pursued endlessly, and with
enlightened vigilance. Our own difficulties make
us keenly sensitive to the tremendous task faced
by nations in building the envisioned world com-
munity, and they give us the patience necessary to
reach that goal. Many of these people who came
to the United States were bitter over the wars and
quarrels of Europe. They had turned their backs
on the old world and dreamed of building a new
world in splendid isolation.
Through hard experience the American people
came to realize that in an interdependent world no
nation can escape the consequences of war, and
every nation depends to some extent on world order
for its own social and economic well-being. Once
having reached this conviction, the overwhelming
majority of the American people demanded full
' Address made at Central Hall, Westminster, London,
Oct. 24, 1948, and released to the press on the same date.
551
THE UN/TED NATIONS AND SPECIAUZBD ACENCIB5
United States participation in the United Nations,
and they have supported every measure for
collective security and international economic
cooperation.
I realize what the experience of Europeans has
been. They had high hopes of outlawing war and
building collective security through the League.
They gave support to that first effort to build a
world organization. They were disappointed and
disillusioned when the Senate of the United States
held aloof from the League. Their hopes were
dashed as the League failed to stand by the cove-
nant when Mussolini attacked Ethiopia, when
Japan moved into Manchuria, when the Nazis
seized the Rhineland, then Austria and Czecho-
slovakia.
To my mind the great difference between the
1930's and the present is that then the majority of
the League members were falling apart to become,
one by one, victims of aggression ; while today the
majority of the members of the United Nations are
closing ranks to create a united front against ag-
gression. That difference is so important as to
justify a real hope for the efforts in which we are
now engaged to avoid war.
Our difficulties are so obvious and complex as to
provoke skepticism in some, but they challenge the
great interest and effort of an increasing majority.
Just two days ago, we were greatly strengthened
by the achievements of one day :
The Security Council elected five judges to the
International Court of Justice, the General Assem-
bly did likewise, revealing a high degree of accord
between East and West.
The Political and Security Committee, after
thorough debate, agreed upon the Mexican reso-
lution with unanimity of the 58 members. (The
conference broke into animated applause at this
heart-warming accomplishment.) The resolution
recalled faith in the principles of the Atlantic
Charter; the pledge of the members in the United
Nations and proclaimed that only with continuing
and growing cooperation and understanding
among the three countries which made the Yalta
Declaration, and among all the peace-loving na-
tions, could the higher aspirations of humanity
be realized.
One of the contributions to wider cooperation
was made by the Soviet Union in the Subconmiit-
tee. It initiated paragraph 4 of the Mexican draft
recommending that the powers signatory to the
agreement of December 1945, and the powers
which subsequently acceded thereto, "associate
with them in the performance of such a noble task
(the settlement of the war and the conclusion of
all the peace settlements) the states which sub-
scribed and adhered to the Washington Declara-
tion of January 1, 1942."
552
The Security Council, considering the Berlin
question, by unanimous consent, tabled a reso-
lution winch was proposed by the six neutral mem-
bers. We prayerfully look forward to the con-
sideration of that resolution next week.
As I left Paris for this meeting, I received official
notification, as President of the Security Council,
that its resolution for an immediate and effective
cease-fire in the Negeb, has been obeyed by both
Jews and Arabs.
We do not serve our cause by overestimating
short-run gains, nor by underestimating the long-
range difficulties. But, as we advance toward col-
lective security, step by step we grow more effi-
cient with each succeeding accomplishment.
We created and set in motion the most ambitious
organization for peace ever conceived. We built
up an efficient Secretariat, introduced novel meth-
ods of breaking down barriers of language, de-
veloped fact-finding facilities, and arsenals of in-
formation for combating such ancient causes of
was as disease, hunger, and ignorance. We created
commissions and specialized agencies to deal witli
the whole range of vital problems through inter-
national consultation; the problems of control of
atomic and other weapons of mass destruction ; of
reduction and regulation of armaments ; of human
rights; of finance and trade; of health and nar-
cotics; of food and agriculture; of economics and
emplo3'ment; of education, science, and culture;
of labor standards ; of displaced and stateless per-
sons.
The fact that we have a vast international or-
ganization, this year holding more than 5,000
meetings in various places throughout the world,
enables us to see in bold relief the differences and
tensions between nations as they appear.
I should like to discuss with you frankly these
tensions, to suggest action to relieve them, and thus
hasten the realization of collective security as en-
visaged in the United Nations Charter.
A great part of the tension in the United Na-
tions grows out of the fact that economic and social
instability in the wake of the war has favored the
growth of Communist parties in many countries.
Communist leaders in these countries try to exploit
chaotic conditions to seize power. In those coun-
tries where Commmiists have been able to call
upon the Red Army either for direct help or as an
imminent threat, they have succeeded. It is sig-
nificant that they have succeeded nowhere else.
But, as country after country has fallen under
Soviet domination, and as Communist parties in
other countries have demonstrated their role as
Moscow-directed fifth columns, the black cloud of
fear has spread over all of Western Europe and
has darkened the horizon of the United Nations.
These fears and their causes wei'e laid before the
General Assembly with directness and candor in
Department of State Bulletin
two brilliant speeches: one by Mr. Spaak. Prime
Minister of Belgium ; the other by Mr. Bevin, your
Foreign Minister.
Our failure to support the balance of power
existing at the time the Charter was signed has
been a contributing factor. The rapid demobil-
ization of our armies enabled the Kremlin to ex-
tend its domination, to encourage paralysis rather
than productivity, to spread fear where there
should liave been hope.
We expected, when the Charter was signed at
San Francisco, that force would cease to be the
dominant factor in relations between nations.
This hope sprang from the heart of a nation which
then possessed the gi'eatest concentration of mili-
tary power the world has ever seen. We hoped
and believed that in seeking solutions for postwar
problems, our war-born unity would be main-
tained. And so, our country, like jours, demobil-
ized with reckless velocity. It has been a bitter
and. in many respects, costly lesson.
I believe there will be peace, because this time we
are making perfectly clear, in advance, that we
are not willing to suiamit to extortion as the price
of peace. I believe there will be peace, because of
the firm and determined unity which exists be-
tween our two countries and with France; and
because this unity is receiving sujiport from an
overwhelming majority in the United Nations.
I perceive a new hope arising in the General
Assembly now meeting in Paris. It grows from
the increasing readiness of the many to unite
against the threats and crude tactics of the
few ....
The Member states, and particularly the states
of Western Europe, are speaking plainly and per-
suasively. The kind of tension which results from
knowing the truth and being fearful of the resiUts
of expressing it, has been broken in Paris.
I am persuaded that once the unity of the many
has been demonstrated persuasively to the few,
they will seek constructive solution through col-
laboration. The Second World War might have
been prevented if the aggressors had been con-
vinced at the outset of the eventual unity of the
many defenders. Real unity of the majority and
expression of it in the United Nations, in the pres-
ence of the minority, offers our best hope of even-
tual peaceful settlement.
The United States does not seek to promote uni-
formity in the United Nations. We do not seek
to promote anv' particular political or economic
system in individual Member states. But we do
seek to make it possible for free nations to plan a
peaceful future, in association with others if they
wish, but without fear or coercion. We do seek
the creation of conditions in which nations are able
to safeguard their freedom against aggression. We
do seek the creation of conditions in which the re-
Ocfofaer 31, 1948
THE UNITED NATIONS AND SPBCIAUZED AGENCIES
sources, skills, and tools of the twentieth century
may freely be employed for the greater benefit of
mankind.
Each nation has the right to choose the method
by which it shall work toward the common objec-
tive. No nation has the right to insist that its
method is the only method. No nation has the
right to undermine the common objective of a
peaceful world providing better life and larger
freedoms for all.
The spirit of hope which I perceive in the Gen-
eral Assembly is based also on the fact that West-
ern Europe in which we meet is now headed to-
ward economic reconstruction and self-reliance.
The European Recovery Program is just begin-
ning to be felt, but signs are unmistakable that the
common effort is succeeding.
You know of the success that is flowing from
your own efforts here in Britain. It is important
to realize that collective effort is producing col-
lective results in steel production. A good yard-
stick of this is provided by Sweden and the Bi-
zonal area of Germany which have exceeded, as
you have, the quotas set for the first six months
of this year. They have surpassed their goals by
18 percent ; Belgium has done the same by 4 per-
cent ; Italy by 2 percent ; Austria by 34 percent.
The Economic Committee for Europe estimated
that steel production for all of Europe this year
will exceed 1947 by 11 million tons, and will ex-
ceed the production cjuota by 4 million tons.
You have cut your trade deficit by over half for
the first six months of this year. Greece reports
great progress in rebuilding its transportation
system. Petroleum refining is on the increase in
France. Harvests are promising, and the in-
creased amount of farm machinery is helpuig to
insure the full realization of crop possibilities.
This is your handiwork. This is the product of
your skills, your management, your patience and
hard work. "We in the United States have assisted
financially and technically in great measure, and
the labor of our workers and our farmers has come
to your support. Nevertheless, it is primarily
your accomplishment. We cannot today predict
the full results, but of this we can be sure : rising
internal strength for the European Members of the
United Nations not only strengthens collective se-
curity, but reduces chaos and misery exploited for
totalitarian aggrandizement.
We have great cause to be encouraged, but we
have little cause to be satisfied. The unity that has
brought us thus far must be strengthened and ex-
tended. I hope the economic and political coopera-
tion now under way in Western Europe can be re-
garded as only the beginning of a movement to-
ward European solidarity.
Plans for collective self-defense contained in the
Brussels pact should be carried forward. The
553
THE UNITED NATIONS AND SPECIAIIZBD AGENCIES
principle of progressively developing regional and
other collective efforts for self-defense, as defined
in the so-called Vandenberg resolution, approved
by our Senate with only three dissenting votes,
should be implemented.
The efforts to strengthen the United Nations
must be continued on many fronts, among them the
inter-American front. It means, also, unrelaxed
effort to restrict the application of the veto, to pro-
vide contingents of armed forces available on call
of the Security Coimcil, to obtain agreement on
an effective, enforcible system for the interna-
tional control of atomic energy. And it means un-
relenting support of economic and social projects
sponsored by the United Nations through special-
ized agencies.
We can do no less if we are to fulfill the solemn
pledges made in signing the Charter at San Fran-
cisco. Nothing has occuri-ed in the intervening
years to change the principles we there espoused.
Nothing can ever occur to change the eternal prin-
ciples animating the Charter. The principle of
the Fatherhood of the Most High and the brother-
hood of man, regardless of race, creed, or religion,
is eternal. The changes which will occur will be
the result of mankind's spiritual progress in his
struggles toward that goal — for perfection alone is
invulnerable.
May the prayers of this day, rising from the
hearts of all mankind, be felt in the United Na-
tions. May we receive from this day's rededica-
tion to the Charter new courage and inspiration
for the long task of building a just, abundant, and
peaceful world.
554
Department of State Bulletin
The United States in tlie United Nations
Palestine
[October 23-29]
The Security Council on October 26 opened de-
bate on Egrypt's charges that Israel was "con-
stantly and increasingly "violating the recent
Negev cease-fire order, but adjourned until Oc-
tober 28 without taking action.
Tlie Palestine situation was taken up at an
emergency session called to weigh Egypt's alle-
gations. Lebanon and Syria also demanded that
the Council order Israel to give up territory gained
in the desert fighting since the most recent out-
break on October 14. Egypt agreed to withdraw
its troops to positions occupied on October 14,
as the embattled contestants were asked to do
bj^ Ralph Bunche, acting U.N. mediator for
Palestine.
Great Britain and China proposed on October
28 that the Security Council consider sanctions
against Israel or Egypt, or both, if they fail to
withdraw their military forces in Palestine's
Negev area to positions occupied before the recent
outbreak of fighting.
The Security Council agreed without objection
to postpone until October 29 a vote on the proposal,
which calls for appointment of a seven-nation
committee to study application of sanctions as
permitted under article 41 of the Charter.
In submitting the sanction proposal. Dr. Tingfu
Tsiang (China) and Sir Alexander Cadogan
(U.K.) stressed the fundamental principle of the
Palestine truce that no military advantage should
accrue to either side. They said the aim was to
stabilize tlie Palestine situation until a final so-
lution could be found.
Ralph Bunche told the Security Council tliat
each side of the Palestine controversy was guilty
of what he termed an effort to "win the war under
the enforced truce". The acting mediator reported
that as a result of the recent outbreak of fighting
tlie dispositions of the opposing troops were such
that an early reopening of hostilities was likely
unless truce lines wei-e reestablished quickly.
Dr. Bundle maintained that what is desperately
needed now is a means of transition fi-om what he
described as a tenuous truce to permanent peace.
The parties themselves do not seem to be able to
accomplish tliis, he asserted. He added :
"The truce in Palestine has now endured almost
five months. During this period, the war has been
held in abeyance by the firm intervention of the
United Nations. But it cannot be reasonably ex-
pected that this phase can endure indefinitely".
He expressed belief that "the critical stage has
now been reached where bolder, broader action is
October 31, 1948
required. Such action should take the form of a
clear and forceful declaration by the Security
Council that the parties be required to negotiate,
either directlv or through truce supervision,
organized settlement of all outstanding problems
of the truce in all sectors of Palestine with a view
to achieving a permanent condition of peace in
place of the existing truce.
"Such negotiation would necessarily aim at
formal peace or, at the minimum, an armistice
would involve either complete withdrawal and de-
mobilization of armed forces, or their wide separa-
tion by the creation of broad demilitarized zones
under U.N. supervision."
On October 29 a five-nation subcommittee of
the Security Council in Paris was set up to con-
sider several amendments to the joint British-
Chinese proposal calling for a study of the pos-
sibility of imposing sanctions in the Palestine
situation.
The subgroup, consisting of the United King-
dom, China, France, Belgium, and the Ukraine,
is not expected to be able to consider all the amend-
ments and prepare a revised resolution before No-
vember 2. After creation of the subcommittee,
the council rejected a Syrian effort to force further
discussion on October 30 and adjourned indefi-
nitely. It will be recalled on the Palestine issue
when the subcommittee notifies the Council presi-
dent that the revised draft is ready. Canada sug-
gested establishment of the subcommittee.
The Berlin Crisis
The Foreign Ministers of the United States,
Great Britain, and France on October 27 re-
affirmed their countries' willingness to carry out
the jiroposals embodied in the resolution by which
the Security Council sought to settle the Berlin
crisis but which the Soviet Union vetoed.
After conferring for an hour, the Western
powers' Foreign Ministers issued tlie following
statement :
"The three Foreign Ministers of the United
States, the United Kingdom, and France con-
sidered the situation produced by the Soviet veto
of the Security Council resolution regarding the
Berlin question.
"As is known, the three Governments accepted
that resolution and declared their readiness to
carry it out loyally, and they stand by their ex-
pressed willingness to be guided by the principles
embodied therein.
"The question is still on the agenda of the Se-
curity Council. The three Governments are ready
to continue to fulfil their obligations and to dis-
charge their responsibilities as members of that
555
THE UNITED NATIONS AND SPECIALIZED AGENCIES
body, which is still in a position to consider any
development in the situation."
The six neutral nations of the Security Council,
which had been trying for weeks to find an answer
to tlie perplexing Berlin question, submitted on
October 25 a four-point resolution aimed at ami-
cable settlement of the controversy between the
Western powers and the U.S.S..K.1
Nine of the Security Council's 11 members, in-
cluding the Western powers, voted in favor of the
proposal; the Soviet Union and the Ukraine op-
posed the resolution.
The vetoed resolution called on tlie Four Pow-
ers to avoid acts which might aggravate the Ber-
lin situation; lift immediately all restrictions on
commerce, transportation, and communications
between Berlin and the four zones of occupation;
call an immediate meeting of the four Military
Governors in Berlin to arrange for unification of
the city's currency by November 20 ; and convene
the Council of Foreign Ministers to consider the
entire German question within 10 days of fulfil-
ment of the measures called for in connection with
the Berlm issue.
Reduction of Arms
An 11-nation U.N. Subcommittee on October
25 adopted a Belgian resolution which would have
the Security Council direct its Conventional Arm-
aments Commission to continue the study of world
arms reduction, emphasizing the need for an in-
ternational control system for atomic energy use
and for a close check on conventional armaments
of all nations.
The Subcommittee of the Assembly's Political
and Security Committee also rejected a Soviet pro-
posal for one-third arms cut by permanent Mem-
bers of the Security Council and the proliibition
of atomic weapons. The vote was 6 to 2: the
United States, Great Britain, France, Brazil, Bel-
gium, and China voting affirmatively, the Soviet
Union and Poland opposing; Lebanon and Aus-
tralia abstaining.
The Belgian plan was approved paragraph by
paragraph, with the Soviet Union and Poland op-
posing on every vote.
Immediately after the balloting on the two draft
resolutions, the Polish Representative submitted
another proposal which he said would meet gen-
eral agreement. It was a combination of the de-
feated Soviet resolution and a Lebanese plan,
which had earlier been withdrawn. It will be
submitted in writing on Tuesday and acted upon
by the Subcommittee on Wednesday.
The United States was among the nations sup-
porting the Belgian proposal, which in effect re-
placed a French draft previously under considera-
tion, which the United States had sought to amend
to emphasize the need for world control of atomic
energy along with conventional arms regulation.
556
On that score, the Belgian draft accepted today
reads that :
. . . the aim of tlie reduction of conventioual armaments
and armed forces can only be attained in an atmosphere
of real and lasting improvement in international relations,
wliicli implies in particular the application of control
of atomic energy involving the prohibition of the atomic
weapon.
The resolution continues:
But noting on the other hand that this renewal of con-
fidence would be greatly encouraged if states were placed
in possession of precise and verified data as to the level
of their respective armaments ;
The General Assembly
Recommends the Security Council to pursue the study
of the regulation and reduction of conventional armaments
in order to obtain concrete results in Implementing
Article 26 of the Charter as soon as the improvement in
the international atmosphere permits;
Trusts that the Commission for Conventional Arma-
ments, in carrying out its program, will devote its main
attention to formulating proposals for the receipt, check-
ing and publication by an international organ of control
endowed with universally accepted powers, of full in-
formation to be supplied by member states with regard
to their effectives and their conventional armaments;
Invites the Security Council to report to it no later
than its next regular session on the effect given to the
present recommendation with a view to enabling it to
continue its activity with regard to the regulation of
armaments in accordance with the purposes and principles
defined in the Charter.
The Conventional Armaments Commission has
reported that it considered it futile to continue
discussions, since the Soviet Union has refused to
accept the majority wishes on any arms-reduction
plan.
The Polish resolution, hastily offered, calls upon
permanent Security Council Members to take the
initiative by reducing in the course of one year all
land, naval, and air forces, and to implement
measures for arms cuts and for prohibition of
atomic weapons. It would also establish within
the Security Council an international control body
to which full official data on arms and armed forces
of the five major powers would be submitted.
United Nations
The Polish proposal for a reduction in arma-
ments and prohibition of atomic weapons was re-
jected on October 27 by the Subcommittee on Dis-
armament Proposals set up by the U. N. Assembly
Political Committee.
The Polish proposal, backed by the Soviet
Union, was along the lines of the Soviet proposal
turned down earlier during the week by the sub-
committee. The vote was 6 to 2 with France,
Lebanon, and Australia abstaining.
' Bulletin of Oct. 24, 1948, p. 520.
Department of State Bulletin
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
U.S. Delegations to International Conferences
High Frequency Broadcasting
President Truman approved on October 19 the
nominations of R. Henry Norweb, Special Ambas-
sador, as chairman and George E. Sterling, Com-
missioner, Federal Communications Commission,
as vice chairman of the United States Delegation
to the second session of the International Confer-
ence on High Frequency Broadcasting called by
the International Telecommunication Union. The
Conference is scheduled to open at Mexico City
on October 22. Named by the President to serve
as delegates are :
Francis Colt de Wolf, Chief, Telecommunications Divi-
sion, Department of State
Ernest W. McFarlanti, United States Senator
A. Gael Sinison, Consultant, Communications Liaison
Branch, Department of the Army
Charles W. Tobey, United State Senator
Fred H. Trimmer, Chief, Facilities Planning Branch,
Division of International Broadcasting, Department
of State
The other members of the United States Delega-
tion are as follows:
Advisers
Edward Cooper, Secretary, Senate Committee on Inter-
state and Foreicn Commerce
Louis E. DeLaFIeur, Assistant Chief, Frequency Alloca-
tion and Treaty Division, Federal Communications
Commission
Mucio Delgado, Chief, Radio Prosram Branch, Division of
International Broadcasting, Department of State
Raymond L. Harrell, Telecommunications Attach^, Amer-
ican Embassy. Habana, Cuba
Perry Harten, Chief, Stndio Operation, Division of Inter-
national Broadcasting, Department of State
Jack W. Herbstreit, Assistant Chief, Frequency Utiliza-
tion Research Section, Central Radio Propagation
Laboratories, National Bureau of Standards
Howard Hotchner, Assistant Chief, Broadcast Division,
Division of International Broadcasting, Department
of State
Joseph M. Kittner, Assistant to the General Counsel, Fed-
eral Communications Commission
Roger C. Legge, Jr., Propagation Anal.vst, Division of
International Broadcasting, Department of State
Curtis B. I'lummer, Chief. Television Broadcast Division,
Federal Communications Commission
Dudley G. Singer, Attach^, American Embassy, Mexico,
D.F.
A. Prose Walker, Chief, Allocations Section, Television
Broadcast Division, Federal Communications Com-
mission
October 31, 1948
Industry Advisers
Walter E. Benoit, Jlember of the Board of Directors, West-
ingliouse Radio Stations, Inc.
Charles B. Denny. Executive Vice President, National
Broadcasting Company, Inc.
Royal V. Howard, Director of Engineering, National As-
sociation of Broadcasters
George Edward Hughes, Vice President, Director of Inter-
national Broadcasting, Associated Broadcasters Inc.
Walter S. Lemmon, President, World Wide Broadcasting
Foundation
Louis Henry MacDonald, Chief Engineer, World Wide
Broadcasting Foundation
Justin Miller, President, National Association of Broad-
casters.
Don E. Petty, General Counsel, National Association of
Broadcasters
Forney A. Rankin, Executive Assistant to the President,
National Association of Broadcasters
James P. Veatch, Manager, Washington Office of the Fre-
quency Bureau, Laboratories Division, Radio Corpora-
tion of America
Press Liaison Officer
Dorsey Fisher, First Secretary and Public Affairs Officer,
American Embassy, Mexico, D.F.
Secretary of the Delegation
Ellis K. Allison, Division of International Conferences,
Department of State
Special Assistant to the Chairman
Vivian N. Cartwright, Special Assistant to the Chief, Inter-
national Radio Frequencies Section, Division of Inter-
national Broadcasting, Department of State
The first session of the International Conference
on High Frequency Broadcasting held at Atlantic
City, August-October 1947, voted to hold the sec-
ond session of the Conference at Mexico City. It
also established a Planning Committee for the
Conference. The Planning Committee held meet-
ings at Geneva in the spring of this year and at
Mexico City beginning on September 13.
The aim of the forthcoming Conference is two-
fold : the first is to work out a plan of frequency
allocations within the bands of the radio spectrum
set aside for high-frequency broadcasting by the
International Radio Conference at Atlantic City
in 1947, and the second is to agree upon a conven-
tion which would establish an international organ-
ization to have cognizance of high-frequency
broadcasting. The plan drawn up by the Confer-
ence will be forwarded to the Provisional Fre-
quency Board of the International Telecommuni-
cation Union for inclusion in a report to a special
administrative conference which will consider
557
ACTIVITIES AND DEVELOPMENTS
these i-ecommendations to complete the realloca-
tion of the entire radio-frequency spectrum.
The high-frequency (short-wave) broadcasting
is greatly used by many nations for broadcasting
to other countries. It is within these bands that
the Voice of America conducts its broadcasting.
MeteoroSogical
The designation of Norman R. Hagen, meteor-
ological attache, American Embassy, London, as
United States Delegate to the meeting of the
Regional Commission for Asia of the International
Meteorological Organization (Imo) was an-
nounced by the Department of State on October
30. This meeting is scheduled to be held at New
Delhi, India, November 10-17, 1948.
The purpose of the meeting is to promote the
maximum degree of coordination and standardiza-
tion among the meteorological services on the
Continent of Asia. The Asian meeting is of par-
ticular interest to the United States since the U.S.
Weather Bureau operates meteorological stations
and offices in the Pacific which depend upon
weather reports from the Asian area.
Included on the agenda are these topics: (1)
network of stations ; (2) meteorological reconnais-
sance flights over sea areas; (3) times of observa-
tion to be adopted in the region with reference to
the Imo recommendations; (4) marine meteor-
ology; (5) telecommunications; and (6) broad-
casts.
Invitations to attend the forthcoming meeting
have been extended by the Government of India to
those governments "that are members of the
Regional Commission for Asia, and to those bor-
der countries which have expressed their desire to
be represented at the meetings of the Commission.
The Regional Commission for Asia is one of six
such commissions established by the Imo to deal
with meteorological problems on a regional basis.
Semiannual Meeting of International
Joint Commission Held
[Released to the press October 18]
The International Joint Commission met in ex-
ecutive session in the Victoria Building, Ottawa,
Ontario, on October 12 and 13. George Spence of
Regina, Saskatchewan, was acting chairman for
Canada. A. O. Stanley, of Washington, was chair-
man of the United States Section. Commission-
ers Roger B. McWhorter and Eugene Weber, both
of Washington, were also present.
Mr. Weber, who has been recently appointed,
took the oath of office.
Members of the International Columbia River
Engineering Board, composed of members acting
558
for the United States and Canada, were present,
as follows :
Victor Meek, Department of Mines and Resources, Ottawa
F. G. Goodspeed, Department of Public Works, Ottawa
M:ij- Gen. K. C. Crawford, Corps of Engineers, U.S. De-
partment of the Army, Washington
C. G. I'aulsen, Geological Survey, Department of tlie In-
terior, Washington
Victor Meek, chairman of the Canadian Section
of the Board, summarized its progress report for
the preceding six months. He called attention to
the work that has been carried on in British Co-
lumbia, Idaho, and Montana in respect to flood
control on the Kootenay River, drilling operations
for dams, and surveys of potential dam sites. The
report stated that the Corps of Engineers' report
(Seattle District) on the Libby Dam site has been
forwarded to Washington and is under study there
by the Department of the Army.
A report was submitted by the International
Souris-Red Rivers Engineering Board, the mem-
bers of which are as follows :
J. W. Dixon, Bureau of Reclamation, Department of the
Interior, Washington
Maj. Gen. R. 0. Crawford, Corps of Engineers, U.S. De-
partment of the Army, Washington
C. G. Paulsen, Geological Survey, Department of the In-
terior, Washington
Victor Meek, Department of Mines and Resources, Ottawa
A. L. Stevenson, Department of Agriculture, Ottawa
T. M. Patterson, Department of Mines and Resources,
Ottawa
The progress report, which covered the period
Ajiril-September, set forth the studies that are
to be made in connection with the Red River of JL
the North, with a view to flood control. This work ■
will include studies to prevent floods such as those
which have recently done so much damage in the
City of Winnipeg. It was decided that the investi-
gations should cover measures for the elimination
of pollution.
A progress report was also submitted from the
International Waterton-Belly Rivers Engineer-
ing Board, composed of the same members as the
International Souris-Red Rivers Engineering
Board. The report outlined the investigations
that had been conducted in the basins of these
rivers in the United States and Canada, covering
the installation of gauging stations, the activities
of the engineers of both Governments during the
preceding six months, and the collection of data
respecting the present and future uses of the
waters of these streams.
The Commission decided to have further hear-
ings at Detroit, Michigan, on November 15 and 16,
and at Windsor, Ontario, on November 17, 18, 19,
and 20, on the references of the Governments of the
United States and Canada in the matter of the
pollution of St. Clair River, Lake St. Clair, and
Detroit River. A hearing will also be held at Sault
Deparfment of State Bulletin
Ste. Marie, Ontario, on November 22, in regard to
the pollution of St. Mary's River.
The report of the International Souris River
Board of Control in re<!:ard to a number of small
applications from the Province of Saskatchewan
for the use of waters of the Sonris River was dis-
cussed, and the applications were approved by
the Commission.
H. van Zile Hyde Appointed U.S. Repre-
sentative to WHO Executive Board
[Released to the press October 18]
The recess appointment by the President of Dr.
H. van Zile Hyde as United States Representative
to the executive board. World Health Organiza-
tion, was announced on October IS by the White
House.
The President also approved the appointment of
Dr. Wilton L. Halverson, Director of Health of
the State of California, as alternate United States
representative to the second session of the execu-
tive board, which is scheduled to meet at Geneva
beginning October 25. Dr. Hyde, Senior Surgeon
of the United States Public 'Health Service and
Assistant Chief of the Health Branch, Office of
United Nations Affairs, Department of State, and
Dr. Halverson will be accompanied by Howard B.
Calderwood of the Department of State, who will
serve as adviser on the United States Delegation.
All three were members of the United States Dele-
gation to the First World Health Assembly, which
met at Geneva last June.
Informal Participation in Bolivian
international Fair
[Released to the press October 21]
The United States Government will participate
informally through the American Embassy at
La Paz, in the Bolivian International Fair (La
Paz Quatro-Centenary Exposition) and has sent
a number of technical documentary fihns and his-
torical pictures of the United States to La Paz
for display. This exposition, which opened Oc-
tober 20, 1948, and will probably continue until
the end of the year, commemorates the 400th anni-
versary of the founding of the city of La Paz in
October 1548 by Alonso de Mendoza, an officer in
the Spanish A^rmy. Most of the nations with
which Bolivia maintains diplomatic relations have
been invited to exhibit the products of their
industries.
Several American business firms at La Paz have
leased a pavilion at the site of the fair. These
firms with other industrial corporations will ex-
hibit their products in this building known as the
"American Pavilion". A room has been set aside
in this building for the picture display and the
showing of the American Government fihns.
THE RECORD OF THE WEEK
U.S.-U.K. Zone of Trieste Admitted to OEEC Membership and
ECA Bilateral Agreement Concluded
[Keleased to the press October 18]
The Council of the Organization for European
Economic Co-operation on October 14 admitted
the U.S.-U.K. zone, Free Territory of Trieste, to
membership in that organization. In addition, an
economic cooperation agreement was concluded
October 17 in Trieste between the U.S. Govern-
ment and the conmiander of the zone. This agree-
ment follows closely the pattern of agi'eements
already concluded between the U.S. Government
and other participating countries, with appropri-
ate modifications to take into account the special
status of Trieste as provided in the treaty of peace
with Italy.
Assistance to the U.S.-U.K. zone of Trieste from
the United States has until now been on a relief
basis, limited to the goods required to assure the
population the necessaries of life and prevent eco-
Ocfober 37, T948
nomic retrogression. Now the zone is embarking
upon a recovery program which will encourage the
rehalDilitation of its economic life. By joining in
cooperative efforts with the other participating
countries the zone will also benefit from the
strengthening of economic relations which were
of such importance to it in the past, and it will be
enabled to make its contribution to European
recovery.
Participation of the U.S.-U.K. zone in the re-
covery program will call for close and continual
consultation between the zone and the Italian
Government to assure that their programs take
into account their common interests and that the
terms of the economic agi-eements concluded be-
tween the zone and Italy under the provisional
regime of the Free Territory are followed.
559
Recommendations on Problems of Educational Exchange
With Eastern European Countries
REPORT OF THE U.S. ADVISORY COMMISSION ON EDUCATIONAL EXCHANGE
Mt dear Mr. Secretary :
The United States Advisory Commission on
Educational Exchange has given consideration, at
the request of the Department of State, to prob-
lems of educational exchange as regards the coun-
tries of eastern Europe. We submit herewith our
recommendations.'
The educational exchange program is based upon
the conviction long held ancl amply demonstrated
by civilized nations that free interchange of per-
sons and ideas between nations is a source of un-
derstanding, enrichment, and progress. Since the
effectiveness of such a program will depend not
only upon its range or extent but also upon the
voluntary and unprejudiced spirit in which it is
conducted, it is obvious that its greatest useful-
ness will be in relation to the free and democratic
countries of the world which are glad to avail
themselves of its reciprocal advantages.
Although this memorandum deals with the
countries of eastern Europe, the Commission
wishes to emphasize that, for reasons which will
be cited, the program of educational exchange will
be more limited in scope and immediate effective-
ness in these barricaded regions of the world than
is the case where normal and friendly contacts
obtain.
The obstacles which have been placed in the way
of educational and cultural exchanges by a number
of the countries of eastern Europe are well known
and need not be detailed. Many efforts have been
made by official and voluntary agencies in this
country to establish exchanges with these countries
but with very few results. In authorizing this
program, the Congress of the United States laid
down in the Smith-Mundt Act the principle that
all official exchanges should be upon a reciprocal
basis. Since for the present most of the eastern
European governments are unwilling to recipro-
' The Commission met for a two-day session on Oct. 18
and 19, 1948. The next meeting is to he held in Wash-
ington on Nov. 1.5, 1948. For a review of the first meeting
of the Commission on Sept. 10, 1948, see Department of
State publication 3313. This report was released on Oct.
19, 1948.
The Commission by resolution recommended that the
Department of State u.se the Library of Congress and the
National Gallery of Art as repositories for recovered cul-
tural ob.iects and works of art looted from the occupied
areas, until these objects can be returned to their rightful
owners at a time to be determined by the Department.
560
cate, it is not recommended that the United States
sponsor government-supported exchanges with
them until their governments give evidence of co-
operation in the mutually helpful and friendly
spirit of the Act. This unwillingness to recipro-
cate will also currently exclude exchange with
these countries under the Fulbright Act which re-
quires negotiations by the governments involved
with assurances that acceptable exchange projects
in both directions can be initiated and carried out.
We have, however, many unofficial opportunities
for contacts and exchange of persons with these
countries. Not only students, scholars, and scien-
tists are involved, but also representatives of the
professions, such as journalism and medicine.
While these exchanges are initiated and sponsored
by voluntary agencies, the Department of State
must make available the necessary travel papers,
and it is often called upon to facilitate the ex-
changes in other ways. Should it do this?
The Advisory Commission, after a full study of
the problem and of the difficulties involved is
convinced that the United States Government
should not close the door to these unofficial ex-
changes, and we so advise the Department of State.
Our reasons for this are several.
lu the first place, it is clear from the evidence
submitted to us, that our experience in these ex-
changes, on the whole, has been a good one. While
some difficulties have been encountered, the ex-
changes with eastern Europe have brought about
the correction of erroneous beliefs about this coun-
try, and a greater appreciation of its institutions,
and a more critical outlook toward totalitarian
regimes.
This practical experience is strongly supported
by certain general considerations. For the United
States to close its doors to all contacts with those
nations with whose philosophy it disagrees would
be to pull down an iron curtain on our own side of
the Atlantic, to adopt a policy which we condemn,
and to lose in world opinion much of the moral
leadership which this country has enjoyed. Many
of our own nationals, furthermore, need upon occa-
sion to visit the countries of eastern and south-
eastern Europe for business, journalistic, schol-
arly or other purposes. We cannot well request
privileges which we in turn deny. These consider-
ations, together with the positive gains which fol-
low from such interchange in the correction of
Department of State Bulletin
THE RECORD Of THE WBEK
misinformation and the removal of prejudices
seem to us to justify the maintenance of a broad
policy of interchange. To cut off contacts with
the totalitarian nations of the world because of
fears as to what niipht happen to democratic insti-
tutions through such contacts would imply a weak-
ness which has no justification in fact. No army
ever burned its bridges except in retreat. The
democratic way of life is not now in retreat.
Such an interchange of persons between the
United States and the countries of eastern Europe
obviously will requii'e careful control.
American officers, responsible for issuing visas
and permission to enter the United States should
satisfy themselves, as far as possible, that indi-
viduals desiring to come to this country have no
subversive intentions, but serious and bona fide
academic, professional, or vocational purposes.
Permits should be for not more than one year,
though subject to renewal.
We do not recommend that the Department en-
courage immature and inexperienced American
students to undertake study under present condi-
tions in eastern Europe. Maturity of judgment
and experience is desirable in order to appraise
critically the instruction received, to profit most
from the total experience, and to avoid personal
episodes. In all cases of Americans permitted to
travel in any of these countries, it is desirable that
they be informed before departure as to condi-
tions that they will encounter. We recommend
tliat the State Department accept the responsibil-
itj' for seeing that this is done. We believe that
restriction of the travel of individuals entering
the country or of Americans going abroad under
the sponsorship of organizations recognized as
subversive is desirable.
A special problem exists with reference to the
holding of international conferences, congresses,
and institutes. Many such meetings are held by
reputable organizations which include as partici-
pants persons with conflicting political views.
Present United States statutes and regulations
governing the entrance of foreign nationals make
it difficult for some of these persons to attend these
meetings. This eliminates the United States as
one of the meeting places for organizations of a
widely international character. This is undesir-
able from many standpoints. We recommend that
a more liberal policy be followed in granting per-
mission to enter for individuals desiring to attend
the reputable meetings of this kind.
Letters of Credence
Sweden
The newly appointed Ambassador of Sweden,
Erik C. Boheman, presented his credentials to the
Ocfober 37, 1948
President on October 20. For texts of the Am-
bassador's remarks and the President's reply, see
Department of State press release 854 of October
20, 1948.
Claims Settlement Agreement Between U.S.,
France, and Australia
[Released to the press October 19]
An agreement was entered into on October 19 by
the United States, France, and Australia setting
forth a procedure for settlement of cargo claims
arising out of the requisitioning by the United
States of the S. S. Marechal Joff?-e, a French vessel
whicli was loading general conunercial cargo in
the Philippines at the time of the Japanese attack
in December 1941. The vessel was taken by the
United States Navy to Australia, where its cargo
was unloaded, and it was then pressed into service
m the interest of the war effort.
Under the agreement which implements a gen-
eral agreement forming part of the lend-lease and
claims settlement with France of May 28, 1946, the
French Government will settle claims of all owners
of cargo landed in Australia and will pay United
States citizens in dollars.^ Australia will turn
over to the French Government the proceeds, in
Australian pounds, of sales of items in the cargo
which they effected after unloading in Australia.
The agreement was signed on behalf of the
United States by Under Secretary Kobert A.
Lovett; by Henri Bonnet, the French Ambassa-
dor, on behalf of France; and by Norman J. O.
Makin, the Australian Ambassador, on behalf of
Australia.
Visit of Secretary Marshall to Greece
Secretary Marshall arrived in Athens on Octo-
ber 16 and was greeted at the airport by Prime
Minister Sophoulis. The Secretary told a press
conference on October 18 that "we are deej^ly con-
cerned in the desire to be of assistance to the re-
habilitation of Greece".
In connection with Secretary Marshall's visit
the following statement was released to the press
in Athens on October 18 :
"The Secretary has been trying to get to Greece
for some time. The United States has assumed
heavy commitments and heavy responsibilities in
this area in which he is officially much involved.
He had planned the trip for last week end but he
left for Washington last Friday.
' Rltixetin of June 9, 1946, p. 994, and June 30, 1946,
p. 1127.
561
THE RECORD Of THE WEEK
"This is a difficult time to leave Paris with Berlin
and the atomic questions being actively discussed
and Palestine coming up shortly.
"It did not appear that a longer wait would offer
a more propitious time for a visit so he decided to
come this week end.
"He is very happy to have even this very brief
visit to Greece."
The Greek Prime Minister accompanied Secre-
tary Marshall to the airport when he departed on
October 18.
Uprising in Korea Reported
[Released to the press October 21]
The Department of State has received a report
from the United States Special Representative to
Korea, John Muccio, that on the morning of Octo-
ber 20 Seoul received reports through Korean
channels of an uprising in the port town of Yosu
in the Cholla Namdo Province.
Mr. Muccio said that exact information was lack-
ing but that it was fairly well established that
while a battalion of the Fourteenth Korean Con-
stabulary Regiment was being mustered for trans-
fer to Cheju-do (an island off the coast) some 40
men mutinied. They were joined by an undeter-
mined number of civilians. A group reportedly
numbering 500 commandeered a train and headed
for Sunchon.
No Americans, military or civilians, have been
in any way involved.
U.S. To investigate IVIexican Cliarges of
Illegal Entry of IVIexican Workers
[ Released to the prees October 19 ]
The Charge d'Affaires of Mexico in Washington
called at the Department on October 18 to express
the concern of the Mexican Government at the
actions which he said were recently taken on the
Mexican border near El Paso by United States
immigration authorities in permitting and facili-
tating the illegal entry of Mexican farm workers
into Texas. The Charge pointed out that this
action was in violation of the agreement entered
into by the Governments of Mexico and the United
States last February 21 ' and had not only caused
surprise in Mexican official circles but was already
creating widespread popular reaction. He pointed
out further that the uncontrolled exodus of so
many workers from northern Mexico represented
serious economic loss to the agricultural produc-
tion of that area and expressed the hope that
' Bulletin of Mar. 7, 1948, p. 317.
" Proclamation 2819, 13 Fed. Reg. 6193.
562
prompt and effective action would be taken by the
United States Government to rectify the matter, j
The Charge said that his Government felt it had I
no other recourse than to consider the agreement of
February 21 as abrogated because of tlie unilateral
action on the part of this Government by certain
United States officials.
Assurances were given to the Mexican Charge
d'Affaires that the matter would be immediately
investigated by the Department in the hope of
either making satisfactory explanations to the
Mexican Government or taking such corrective
measures as seemed necessary. The hope was ex-
pressed to the Mexican Charge that, considering
the traditional and deep feelings of cooperation
and friendship between the two neighboring
countries, everything should be done by both Gov-
ernments to minimize the adverse effects of this
incident. The Department is taking the matter
up officially with other interested agencies of the
Government.
Reciprocal Copyright Relations Between
U.S. and the Philippine Republic
In an exchange of notes dated October 21, 1948,
between Joaquin M. Elizalde, Philipj^ine Am-
bassador at Washington, and Robert A. Lovett,
Acting Secretary of State, there are set forth the
conditions upon which the benefits of the copyright
law of each country will be extended to authors
and copyright proprietors who are citizens of the
other country.
The note from the Philippine Ambassador is ac-
companied by a copy of a proclamation issued on
October 21, 1948, by Elpidio Quirino, Presidem
of the Republic of the Philippines, according copy-
right privileges to authors and copyright proprie-
tors of the United States. The note from the
Acting Seci'etary of State to the Philippine Am-
bassador is accompanied by a copy of a proclama-
tion issued on October 21, 1948, by the President
of the United States pursuant to Public Law 281,
80th Congress (61 Stat. 652), extending to Philip-
pine authors and copyright proprietors the benefits
of the copyright law of the United States."
For texts of the above-mentioned notes and ac-
companying proclamations see Department of
State press release 865 of Oct. 21, 1948.
I
THE FOREIGN SERVICE
Closing of Consular Offices and Reopening of
Office at Martinique
[Released to the press October 18]
A further realigmnent of posts in the Foreign
Service was disclosed on October 18 with the re-
opening of one United States Consulate and the
closing of two others. The one ordered reopened
Department of State Bulletin
is on tlie Fronch-owiied island of Martinique, in
the West Indies. The two scheduled to close down
are in Limerick, Ireland, and Bristol, England.
The decision to abandon the Consulate on Mar-
tinique was based primarilj^ on efforts to effect
budgetary savings, as announced less than a month
ago; but since then I'epresentation made to the
Department of State has brought about a change
in plans. Martinique, it will be recalled, played an
interesting role in the early part of World War II,
when it was the outpost nearest to the United
States of the Vichy government.
While the Consulate at Limerick is being closed,
a small Foreign Service staff is to be retained at
the nearby Shannon Airport, so that services regu-
larly performed for Americans traveling overseas
by air will not be curtailed. Normal business for
Americans at Limerick has gone down since the
end of the war and there are now less than 200 U.S.
citizens residing in the Limerick area.
The Consulate at Bristol is being closed because
a slackening in routine business there seems to
make this an advisable place to cut Foreign Service
exi:)enses at a time of budgetary stringency.
THE DEPARTMENT
Appointment of Officers
William C. Johnstone, Jr., as Director of the Office of
Educational Exchanse, effective AufOist 10, 1048.
Rus.sell L. Riley as Executive Officer of the Office of
Educational Exchange, effective June 23, 1948.
PUBLICATIONS
Department of State
For sale by the Superinteyidcnt of Documents, Oovernment
Printinfj Office, Washington 2.5, D. C. Address requests
direct to the Superintendent of Documents, except in the
case of free piihlieations, which may 6e obtained from the
Department of State.
Report of the United States Library Mission To Advise
on the Establishment of the National Diet Library of
Japan. Far Eastern Series 27. Pub. 3200. 41 pp. 150.
Report submitted to the Supreme Commander for the
Allied Powers, February 8, 1948, ou the services which
an adequate national library may be expected to
render to Japan ; a summary of tlie proposals sub-
mitted by the Mission to the Diet Committees ; and
the text of the National Diet Library laws as enacted
on February 4, 1948.
International Office of Public Health. Treaties and Other
International Acts Series 1754. Pub. 3212. 54 pp. 150.
Protocol Between the United States and Other Gov-
ernments — Sisfned at New York July 22, 1946; rati-
fication advi.sed by the Senate of the United States
July 19, 1947; ratified by the President of the United
States July 28, 1947 ; ratification of the United States
dep<isited with the United Nations at Lake Success
August 7, 1947; proclaimed by the President of the
United States May 19, 1948; entered into force Oc-
tober 20, 1947.
Ocfober 31, 7948
Exchange of Official Publications. Treaties and Other
International Acts Series 1767. Pub. 3235. 3 pp. 50.
Agreement Between the United States and the Re-
public of the Philippines— Effected by exchange of
notes signed at Manila April 12 and June 7, 1948;
entered into force June 7, 1948.
Cooperative Rubber Plantation Investigations. Treaties
and Other International Acts Series 1771. Pub. 3245.
4 pp. 50.
Agreement Between the United States and Haiti
Amending Letter Agreement of January 24, 1941 —
Effected by exchange of notes, signed at Port-au-
Prince February 3 and 11, 1948; entered into force
February 11, 1948.
Economic Cooperation with Norway Under Public Law
472— SOth Congress. Treaties and Other International
Acts Series 1792. Pub. 3254. 53 pp. 150.
Agi-eement Between the United States and Norway —
Signed at Oslo July 3, 1948 ; entered into force July
3, 1948.
Economic Cooperation with the Netherlands Under Public
Law 472— SOth Congress. Treaties and Other International
Acts Series 1791. Pub. 3266. 63 pp. 20(t.
Agreement Between the United States and the Nether-
lands—Signed at The Hague July 2, 1948; entered
into force July 2, 1948.
Selected Publications and Materials Relating to Ameri-
can Foreign Policy. October 1948. Pub. 3304. 25 pp.
Free.
List of Department of State publications relating to
U. S. participation in the United Nations and its
.specialized agencies, to the making of the peace, the
occupation of Germany and Japan, and economic
reconstruction.
Korea, 1945 to 1948. Far Eastern Series 28. Pub. 3305.
124 pp. 250.
A report on political developments and economic re-
sources, with selected documents.
International Educational Exchange; LTnited States Ad-
visory Commission and the Program of the Department
of State. International Information and Cultural Series 3.
Pub. 3313. 10 pp. Free.
Report of the 1st meeting of the U.S. Advisory Com-
mission on Educational Exchange and a brief r^sumfi
of the international exchange program of the Depart-
ment of State.
THE CONGRESS
Foreijrn Aid Appropriation Act, 1949. S. Rept. 1626,
SOth Cong., 2d sess., to accompany H. B. 6801. 17 pp.
Authorizing the Secretary of State To Perform Certain
Consular-Type Fimctions. S. Rept. 1759, SOth Cong., 2d
sess., to accompany H. R. 4330. 2 pp.
Investigation of Federal Employees Loyalty Program.
Interim Report of the Investigations Subcommittee of the
Committee on Expenditures in the Executive Depart-
ments, pursuant to S. Res. 189 (SOth Cong.), a resolution
authorizing the Committee on Expenditures in the Execu-
tive Departments to carry out certain duties. S. Rept.
1775, SOth Cong., 2d sess. lii, 29 pp.
Summary of the Legislative Record of the Eightieth
Congress, Second Session, Together With a Statement
Relative Thereto Pursuant to a Request of the Honorable
Alben W. Barkley, United States Senator From Ken-
tucky. S. Doc. 203, SOth Cong., 2d sess. ii, 38 pp.
563
^<yyvCe^yU6/
The U.N. and Specialized Agencies page
U.S. Proposes Six Sponsoring Powers Discuss
Atomic Energy Issues. Statement by
Ambassador Warren R. Austin in Com-
mittee I 535
U.S. Accepts Atomic Energy Resolution State-
ment by Ambassador Warren R. Austin . 539
Review of Allied Action on Berlin Bloclsade.
Statement by Philip C. Jessup 541
U.N. Documents: A Selected Bibliography . 547
United Nations Day:
Statements by Secretary Marshall- . . . . 548
Address by George V. Allen 549
Why We Support the U.N. By Ambassador
Warren R. Austin 551
The U.S. in the U.N 555
H. van Zile Hyde Appointed U.S. Representa-
tative to Who Executive Board .... 559
Treaty Information
U.S.-U.K. Zone of Trieste to Oeec Member-
ship and EcA Bilateral Agreement Con-
cluded 559
Claims Settlement Agreement Between U.S.,
France, and Australia 561
U.S. To Investigate Mexican Charges of
Illegal Entry of Mexican Workers . . . 562
Reciprocal Copyright Relations Between U.S.
and the Philippine Republic 562
Economic Affairs page
U.S. Delegations to International Con-
ferences:
High Frequency Broadcasting 557
Meteorological 558
Semiannual Meeting of International Joint
Commission Held 558
Informal Participation in Bolivian Interna-
tional Fair 559
international Information and Cultural
Affairs
Recommendations on Problems of Educa-
tional Exchange With Eastern European
Countries. Report of U.S. Advisory
Commission 560
General Policy
Visit of Secretary Marshall to Greece .... 561
Letters of Credence: Sweden 561
Uprising in Korea Reported 562
The Foreign Service
Closing of Consular Offices and Reopening of
Office at Martinique , . . . 562
The Department
Appointment of Officers 563
Publications
Department of State 563
The Congress 563
1
U. S. GOVERNMENT PPINTINS CFFICEi 1948
-K
u/i€/ ^eha'i^tmeni/ .(w t/tate/
SOUND INTERNATIONAL TRADE PROGRAM • By
PaulU.Mtse 578
THE VOICE OF AMERICA • Article by Assistant Secretary
George V. Allen 567
Vol. XIX, No. 488
November 7, 1948
^,«T o.
DEC % ^^
••^^x.. o« •■
«>%e -U^efici/ittme^ ^^ C/ia^ VJf W ± J. \D L x i X
Vol. XIX, No. 488 • Publication 3336
November 7, 1948
For sale by the Superintendent of Documents
U.S. Government Printing Office
Washington 25, D.C.
Peice:
C2 issues, domestic $5, foreign $7J25
Single copy, 15 cents
Published with the approval of the
Director of the Bureau of the Budget
Note: Contents of this publication are not
copyrighted and Items contained herein may
be reprinted. Citation of the Department
OF State Bolletin as the source will be
appreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
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 De-
partment of State and the Foreign
Service. The BULLETIN includes
press releases on foreign policy issued
by the White House and the Depart-
ment, 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 inter-
national affairs and the functions of
the Department. Information is in-
cluded concerning treaties and in-
ternational agreements to which the
United States is or may become a
party and treaties of general inter-
national interest.
Publications of the Department, as
well as legislative material in the field
of international relations, are listed
currently.
THE VOICE OF AMERICA
by Assistant Secretary George V, Allen
At the time of tl\e debates in Congress a year
ajro as to whether there shouhl be a Government
program of foreign information, many people
felt that America was being vilified abroad from
every angle and that we should make some answer
on the short-wave radio. We could not send out
vast quantities of American newspapers and maga-
zines, and American visitors could not go in and
talk with people of many foreign lands. Any
possibility of penetrating certain areas would have
to be by radio through the Voice of America.
The real Voice of America is the voice of the
thousands of newspapers, periodicals, public
speakei-s, public officials, private groups, or indi-
viduals — anyone and everything which, if fused
together by some magic process, would make up
the articulate and composite voice of the 147 mil-
lion people of the United States. If our short-
wave program is to be the true Voice of America,
it will reflect their views, not so much as ex-
pressed in quadrennial elections but in their day-
to-day lives.
Nobody seems to be certain about the origin
of the term "Voice of America", although a man
who runs a short-wave broadcasting station in
Boston claims that he first used it about 1938 in
a private short-wave broadcast to Europe. He
says he just tagged his broadcast the Voice of
America, and it caught on. It is one of those
slogans tliat, by continued use, gets more and
more currency and builds around itself a connota-
tion that makes it hard to discontinue. Many
phrases and terms in the English language are
created, nobody knows quite why or how. When
a phrase achieves currency and is firmly established
it is sometimes beyond changing. The Ameri-
can public has developed the term "Voice of
America".
The purpose of the information program of
the Department of State, of which the Voice of
America is a part, is to assist in achieving the aims
of American foreign policy. The chief aim of
this policy today is the preservation of the demo-
cratic way of life, including notably the preser-
vation of the freedom of the press and the Ameri-
can system of private enterprise and initiative.
The achievement of this goal is the concern of
every American.
Our information service is therefore fighting
every day to preserve and extend the very prin-
ciples which the American press so excellently
exemplifies. We shall continue to fight with every
means in our power.
American journalism and American radio are
far ahead of journalism and radio anywhere else
in the world. They achieved that outstanding
position through the American system of private
enterprise. If that system breaks down, our pre-
eminent position in the world will deteriorate.
The entry of Government into the information
field should not threaten private activities. We
hope we can pool our resources, both of Govern-
ment and of private industry, for the very pur-
pose of preserving private enterprise.
Even though the Government will always have
a responsibility to make its policies known to the
public, its entry into the general-information field
is temporary, dictated by the world situation.
With the triumph of democracy on a broad scale,
it is hoped that private enterprise will in time be
able to perform the general-information functions
entirely and that the activity of all governments
in the field of information will reduce finally to
the vanishing point.
We are awaiting for the day to come when no
air waves of the world are taken up with the
November 7, 1948
567
efforts on the part of one people to propagandize
another. But we live in a realistic world. For
the moment, therefore, since private industry will
not understake this job, Government must send
out American information by radio. This is the
only feasible means for us to reach the people be-
hind the Curtain. Let us be certain that the Voice
of America represents genuine American prin-
ciples — American democracy and liberty and
freedom.
The United States Government did not get into
broadcasting before 1942. Most countries out-
side the United States — certainly most of those
in Europe — have always maintained a govern-
ment monopoly of radio broadcasting, both for
domestic and foreign programs. In Great Brit-
ain, for example, only one organization, the Brit-
ish Broadcasting Company (BBC), broadcasts
both to people inside Britain and to other people
all over the world.
Tlie greatest safeguards to the freedom of in-
formation as agreed to in principle by 35 nations
at a recent meeting in Geneva on freedom of in-
formation is a multiplicity of sources. The radio
listener can hear only one man's view of the truth
or the news if there is only one voice on the air.
Full liberty to tune all over the radio dial is mean-
ingless if only a single program is broadcast. It
takes a multiplicity of ideas and views on a prob-
lem to give the people who are listening the back-
ground necessary for them to form their own
judgments.
But most European countries — all of them with
only one or two minor exceptions — have had gov-
ernment-controlled programs since the beginning
of radio, both for their medium (standard) wave
inside their country and their short-wave pro-
grams going abroad.
Governments which control their broadcasting
systems soon began to use them in the short-wave
bands to project their policies outside their own
territor}', trying to leach into the minds of the
other people and convince them through methods
of propaganda. The first time any government
began to trj', on a larger scale, to convince another
people of its ideas and thoughts was in 1936, when
the Nazi Govenmient of Germany put on a
Russian-language program designed, purely and
simply, to speak in the Russian language to the
Russian people — to reach over the heads of the
Soviet Government and get down to the people
to try to tell them the Nazi story.
Very shortly after that, the Nazis put on pro-
grams in English and French. In 1938 the Brit-
ish and the French systems also began official,
government-sponsored programs in foreign lan-
guages, reaching into the hearts of other countries.
The United States didn't start such an operation
before Pearl Harbor. In 1942 the United States
Government began broadcasting in foreign lan-
guages to foreign peoples. Since 1929, NBC and
CBS had done some short-wave broadcasting from
the United States as a commei'cial venture, but '
they had beamed those programs only to Latin :
America, in Spanish, and had had no government '
support. When the war started, the private com- |
panies could no longer sell advertising on their ]
foreign-language programs, and United States )
stations were about to go off the air. The private |
companies suggested that the Government take :
over the operation for the duration of the war, |
mainly as a war effort but partly as a method to
keep the programs going.
Two separate Government agencies were set up
to do that operation. One, the Office of War In-
formation, under Elmer Davis, was given the re-
sponsibility for broadcasting to the Far East, Eu-
rope, and Africa. An Office of Inter- American !
Affairs, set up under Nelson Rockefeller, was given
charge of the information work in Latin America.
Both organizations — the Owi and the Oiaa —
had many activities in addition to short-wave '
radio programs.
At the end of the war, in the fall of 1945, many
wartime agencies which had been set up for the
prosecution of the war, including 0\\t and Oiaa,
were discontinued. Certain pertinent functions,
however, were lumped temporarily into the De-
partment of State under an Assistant Secretary :
for Public Affairs.
Nobody knew whether the Government was go-
ing to continue to engage in radio broadcasting.
Many people thought that the Government's in-
formation work, a wartime activity, ought to be
cut off at the end of the war. They felt very
genuinely that tliis was a field that should be
reserved for private industry — that American
newspapers and magazines and radio stations
could tell foreigners about the United States a
gi'eat deal better than a Government bureau could.
568
Department of State Bulletin
If private broadcasting companies had been will-
ing, at the time, to broadcast on short wave to
foreign countries, the Government, using the tax-
payers' money, would possibly have been taken
out of the operation immediately. But no private
broadcasting company was willing to engage in
this activity. They couldn't sell nearly enough
advertising to make it pay. During 1941, which
was the last year the private companies under-
took to broadcast programs to Latin America,
each of the two networks, NBC and CBS, lost
about 600 or 800 thousand dollars. Consequently,
we were faced with the fact — shall we have a
Government program or shall we have no short-
wave program at all ?
Many people thought that perhaps it would
be better to have no program at all. They hoped
that some day the private companies would again
resume short-wave broadcasting, when the world
trade situation would be such that people could
sell sufficient goods abroad to justify corporations
in spending money to advertise their goods.
During the war close relations existed among all
the Allies, and there was a natural hope that this
collaboration would continue in peacetime. The
hope was short-lived. Even before last summer,
the air waves coming out of Eastern Europe were
already filled with falsehoods about the United
States. For example, when I was Ambassador to
Iran I listened to vilification and misrepresenta-
tion of American motives day after day after day.
We could have taken the point of view that the
Soviet lies would fall by the wayside ; truth would
out eventually, and we should not even bother to
answer.
However, most of the members of Congress con-
cluded that the time had come Avhen we should
start answering back, giving the truth. They
learned, for example, that the American taxpayer,
since the war, had contributed about 560 million
dollars for the relief and recovery of Poland alone,
in connection with various efforts to put the war-
torn countries of Europe on their feet.
Yet, in "Warsaw the people were being told
every day that the purposes of our effort were im-
perialistic, that Wall Street wanted to get its
tentacles on the economy of this country, and
that the United States was out to expand its con-
trol and domination throughout the world.
Americans began to ask, "Shall we continue to
pour out our money in an effort to bring about
honest reconstruction and the preservation of
democracy and liberty without telling people what
our purposes are? Shouldn't there be some
agency responsible for the job of telling foreigners
what American policy is?" That view prevailed,
and Congress passed Public Law 402 of the 80th
Congress, Iniown as the Smith-Mundt Act, provid-
ing for both an information program and a longer
range educational exchange or cultural-relations
program, to be considered integral parts of the
permanent conduct of the foreign relations of the
United States. The purpose was to let the peoples
of the world know the true aims of the United
States Government and what the American peo-
ple are.
Eight or ten transmitters daily broadcast the
Voice of America Russian program. We have
already identified 18 Soviet transmitters which
the Soviet Government is using in an effort to
"jam" us. The Soviets use more power and effort
and time of their transmitters in trying to jam
us than we use iji sending out the programs.
Their jamming robs them of the use of trans-
mitters that are so much needed for their own
internal and foreign-propaganda woi'k. They
certainly would not devote valuable time of their
transmitters if our progi-ams did not "sting".
One naturally wonders whether our programs
still get through in spite of all their jamming.
There are various proofs, particularly in Eastern
Europe, but also in the U. S. S. R. itself, that they
do get through : Radio ^Moscow, in its own pro-
grams, consistently analyzes the programs of the
Voice of America and tries to refute them; and
if it cannot find arguments, it starts calling
names. The Soviet press and radio, despite the
great amount of jamming, also pay constant at-
tention to our programs.
No law in the Soviet Union at present makes
it illegal for a Russian to listen to a foreign broad-
cast. One reason is that although Radio Moscow
and Pmvda, Izvestia, and all other Soviet news-
papers spend most of their time screaming against
our programs, the Soviet Government tries to pre-
tend that we are having no effect at all — that the
Soviet people are solid and that they cast at every
election 99 percent of their votes for the Govern-
ment. They pretend that our broadcasts would
not convince anybody; thus it would be incon-
Novemfaer 7, 1948
569
sistent if they made it illegal for a person to listen
to us. Furthermore, all sorts of foreign broad-
casts go into Russia. If they banned all listening
to short wave, Russians could not listen to Radio
Warsaw, or Bucharest, or Praha, or even to Radio
Moscow itself, since many Soviet programs are
sent out on short wave to reach all parts of the
Soviet Union.
The Smith-Mundt Act is often referred to as
a turning point in the conduct of our foreign
relations, but this type of activity has always been
carried on by American Government representa-
tives abroad as a normal part of their activities.
The work of an American Consul or Minister or
Ambassador abroad has always been that of ex-
plaining what the United States is trying to do
and what America is like. They meet with the
local press, make public addresses on American
foreign policy, and talk to individuals, and have
done so since the beginning of our history. The
Smith-Mundt Act recognizes in legislation the
fact that information about the United States
and explanations of our policy are an integral part
of the conduct of foreign relations. The act is
the guidebook for our activities at the present time.
The act was signed in January of this year.
Almost immediately thereafter, several com^^
mittees of the Congress began a series of investi-
gations of our oi^eration. Members of the House
Committee on Appropriations discovered the fact
that certain broadcasts in the Spanish language
were being beamed to South America, giving al-
leged background of a very curious sort about
the United States. The broadcasts were a series
of programs, 15 minutes every Wednesday, called
"Know North America".
That series happened to come to light by pure
chance. An investigator of the House Appropria-
tions Committee, acting for Representative Taber,
asked to have a look at some sample scripts which
the Voice of America was sending out. He picked
up a calendar and said, "You can choose your
date— send over scripts for either the 15th, 16th.
or l7th of February". The person who had
handled the request selected entirely by chance the
15th of February. He could have selected the
16th or the I7th. The Know North America
series, which goes out only once a week, happened
to go out on that 15th. If the 16th or the l7th
had been chosen, the series which led to the in-
vestigation might never have come to light.
The subject of the February 15 script was Wy-
oming. It referred to Indian maidens running
foot races "undressed and unf eathered". This led
to prompt demands for scripts on other States.
The one on Texas included a I'emark by a South
American tourist, quoting a passage from John
Gunther's Inside U.S.A. to the effect that Texas
had been born in sin and New England conceived
in hypocrisy.
Both Houses of Congi-ess made an immediate
demand for investigation of why this type of
program was going out, particularly to find out
whether the persons who were sending out this
kind of misrepresentation of the United States
were merely careless, whether they thought they
were amusing, or whether there was a deeper sub-
versive significance in it. Several committees
vied with each other for the privilege of holding
the hearings. Both the House Committee on Ex-
ecutive Expenditures and a joint committee of the
Senate Committee on Foreign Relations and on
Executive Expenditui"es held investigations. Re-
ports issued at the close of those investigations
pointed the finger quite properly at the Depart-
ment of State for not having adequately super-
vised the programs.
The truth of the matter was that the programs
were written in Spanish, and nobody in the De-
partment of State had translated them or, in fact,
even Imew what was in them. One might ask,
"How in the world did a situation of that sort
come about?"
During the evolution of the legislation it was
thought that private industry would not under-
take an extensive short-wave information pro-
gram because it was not commercially feasible.
Government money, therefore, had to be voted for
it to be done. Congress stated clearly that private
industry could do a better job than Goverimient
and could do it more efficiently and more effec-
tively. The State Department, therefore, was put 1
mider strict instructions to use private industry
for short-wave broadcasting to the maximum ex-
tent feasible.
The legislation made provision for contracts to
be made with private broadcasting agencies (NBC
and CBS) that would carry on about 70 percent
of the broadcasting, including all the broadcast-
ing to Latin America. The State Department un-
dertook to do about 30 f»ercent itself, including all
the broadcasts beamed to the Iron Curtain coun-
570
Departmenf of Slate Bulletin
tries of Central and Eastern Europe. Those were
the more delicate areas, and the script writer had
to be in immediate contact with the policy of the
Government and liad to have inside information
in order to be able to do the job. The private com-
panies recosrnized the heavy responsibility of
broadcasting into that area. If they said some-
thing that was not in accord with policy or with
facts, they might cause great mischief. They
were happy to have the State Department un-
dertake the responsibility for Iron Curtain
broadcasting.
The Know North America series was one of
the broadcasts being done by NBC under contract
with the Department of State. Taxpayers' money
was being used to pay for it, but considerable
honest difference of opinion arose between the
private broadcasting companies and the represent-
atives of the Department of State regarding the
extent of the Department's responsibility for su-
pervising those programs.
Some officials of the commercial companies said,
in all honest}', whenever the question of State De-
partment supervision arose during the past year,
that the Govermnent did not know how to run a
broadcast, that private companies had had great
experience in broadcasting and had built up
thi'ough private initiative and energy the gi"eat
American broadcasting systems and Imew a lot
more about this than the Government. They
pointed out that Congress had shown its recogni-
tion of this fact when it had required by law that
private industry be used to the greatest extent
possible.
The chief advantage of the investigations which
Senator Ferguson and his committee held was to
clarify the question of responsibility beyond any
doubt. The Senator indicated that if taxpayers'
money was involved, the State Department had
full responsibility for supervision. But when-
ever we went to the National Broadcasting Com-
pany or the Columbia Broadcasting Company and
said their scripts were not telling the proper story
about the United States and that we felt we should
blue-pencil this or that, they were naturally in-
clined to cry "censorship". They pointed out that
the U.S. Government spends taxpayers' money to
buy the New York Times every day for our offi-
cial United States libraries abroad, but we do not
tell the Times what to say in its columns or edi-
torial page. Most of our libraries have John
Gunther's book, from which the objectional pas-
sages were quoted. Should they tear out the
offending pages?
As a result of the investigations, the private
companies are now telling us :
"All right, you win. We recognize now that
tlie Congress considers the State Department to
have full responsibility for every word that is
said over Voice of America programs, whether
those programs are written by the State Depart-
ment or by a private agency. Congress says that
since taxpayers' money is involved, we can't hide
behind the skirts of any provision of the law stat-
ing that private companies can broadcast more
effectively than the Government. We now recog-
nize what Congress wants you to do about it. But
if that is the way it is, we don't want to have
anything more to do with it."
So they came to us on July the first and said :
"Please take this program back. We don't want
to have it any more. You do 100 percent of the
broadcasting."
Many people have asked the Department
whether it plans to increase the Voice of America
jirogram in the light of the world crisis. In
reality, the Department has more interest in im-
proving the programs that it has, in making them
good, hard-hitting, solid, effective progi-ams, than
in using, for example, more languages such as
Vietnamese. Siamese, Indonesian, Malayan,
Pushtu, and Hindustani.
It has been pointed out that the Department
of State could get ten times more listeners to the
Voice of Ameria broadcasts if entertainment were
featured. The Congress of the United States,
however, did not appropriate money for the pur-
pose of entertainment. The Department would
have an endless job if it undertook the task of
entertaining the two billion peoples of the world.
The Voice of America, therefore, does not include
programs of dance re.coi-ds and other forms of
entertainments. Its principal job is one of in-
formation.
November 7, 1948
571
THE UNITED NATIONS AND SPECIALIZED AGENCIES
U.S. Urges Acceptance of Draft Resolution on Berlin Crisis
STATEMENT BY PHILIP C. JESSUPi
Deputy U.S. Representative in tlie Security Council
Mr. President, I should also like to pay tribute
to the statesmanship which has produced this draft
resolution which is now before us. Members of
the Security Council who have worked with you,
Mr. President, have themselves borne witness to
the fact that the achievement of this result in the
course of their deliberations was the result of
your leadership in the discussions which have
been going on. We recognize this draft resolu-
tion as the result of an imaginative and a sincere
effort to find a solution to a difficult problem.
The effort has been made in accordance with the
best traditions of the international principles
typified in the Charter of the United Nations.
Since we so regard this resolution, we have re-
ceived it with respect and we have given it careful
study.
j\Ir. President, as I listened also to the views
which were expressed here on Friday by those
who joined in submitting this resolution, I felt
reassured that the intent and purpose of this res-
olution are the same as those which we understand
from studying its text. The resolution is char-
acterized by the spirit of reciprocity and the de-
velopment of a logical progression of ideas. As
we understand the resolution, it contemplates the
following program.
On the clay of the notification of the resolution
to the four Governments concerned, two events
will take place, or in the words of paragraph 2
of the resolution, two steps will be put into effect.
The first step which is mentioned and which is
to be put into effect on the day of the notification
is the reciprocal removal of the restrictions im-
posed since March 1, 1948, by the Soviet Union
and by the three Western Goverimients on com-
munications, transport, and commerce between
Berlin and the Western zones of Germany and to
and from the Soviet zone. Immediately upon the
adoption of this resolution and even before its
'Made in the Security Council at Paris Oct. 25, 1948,
and released to the press by the U. S. Delegation on the
same day.
572
formal notification, the Government of the United
States would be prepared to take steps to assure
compliance on our part with the provisions rel-
ative to the lifting of the restrictions and the
meeting of the Military Governors. We assume
that the brief interval which will elapse between
the adoption of the resolution and its formal
notification will be sufficient to enable all of the
four Governments concerned to issue the necessary
orders.
The second step which is mentioned and which
is to be put into effect on the same day, that is,
the day of notification, is a meeting of the four
Military Governors in Berlin. The purpose of
this meeting is to aiTange for the unification of
currency in Berlin on the basis of the German
mark of the Soviet zone under adequate Four
Power control. The principles which will guide
the four Military Governors in making these ar-
rangements are those agreed upon in Moscow and
embodied in the directive of August 30, 1948.
These meetings are to be concluded not later than
the 20th of November. Under the program out-
lined in the resolution, the Council of Foreign
Ministers will meet on November 30 unless the
arrangements to be made by the four Military
Governors are concluded before November 20, in
which case the Council of Foreign Ministers will
meet at an earlier date, namely, ten days from
the conclusion of the work of the Military Gov-
ernors. However, the Four Powers jointly agree
the meeting of the Council of Foreign Ministers
can be held at any other day.
Mr. President, the United States in a spirit of
accommodation is ready to accept this resolution.
We accept the principles stated in it and would be
prepared to carry it out in full good faith. I
hope, Mr. President, that there is no member of
the Council who will not similarly find in this
i-esolution a reasonable and fruitful program for
the solution of a grave problem.
Lat«r Mr. Jessup said:
Department of State Bulletin
Mr. President, the United States has taken note
of the declaration of the Representative of the
Soviet Union that it proposes to veto the resohition
which has been proposed by six members of the
Security Council.- In the judgment of tlie world,
Mr. President, this was a just and reasonable res-
olution drafted by fair-minded statesmen of six
countries from regions scattered widely all over
the globe. It was proposed by them in the dis-
charge of their responsibilities as members of the
Security Council and in an honest attempt to set-
tle this difficult problem.
The Representatives of France, of the United
Kingdom, and of the United States accepted this
resolution. If the Berlin question is not settled
on the basis of the pro])osition stated in this res-
olution, the responsibility will rest squai'ely and
unavoidably on the Government of the Soviet
Union.
Mr. President, the Representative of the Soviet
Union referred at some length to the so-called di-
rective of August 30. Perhaps he did not bring
out as clearly as might well be done the language
of the preliminary paragraph of that directive
which reads as follows :
"The Governments of France, the United King-
dom, the United States and the USSR have de-
cided that subject to agreement being reached
among the four military governors in Berlin for
their practical implementation the following steps
shall be taken simultaneously."
The directive was thus a decision to proceed to
two simultaneous steps on the basis of an agree-
ment to be reached by the Military Governors.
That agreement was never reached. It was never
reached for reasons which have been amply ex-
plained to the Security Council by the Repre-
sentatives of France, the United Kingdom, and
by myself, and the record has been made fully
available to the Security Council.
But, Mr. President, the question of the direc-
tive is not the i.ssue which is before the Security
Council. Since that point has again been raised,
I feel it is incumbent upon me to refer again to
the communication of the three Governments sub-
mitting this issue to the Security Council and to
quote again two sentences from that communica-
tion of September 29. The communication says :
"The issue between the Soviet Government and
the Western Occupying Powers is, therefore, not
that of technical difficulties of communications nor
that ... of currency for Berlin. The issue is that
the Soviet Government has clearly shown by its
actions that it is attempting b}' illegal and coercive
measures in disregard of its obligations to secure
political objectives to which it is not entitled and
which it could not achieve by peaceful means."
The three Governments lay before the Secui'ity
Council the threat to peace which was created
November 7, 1948
THE UNITED NATIONS AND SPECIAUZBD AGENCIES
by the blockade measures imposed by the Soviet
Union.
The argument which we have just heard by the
distinguished Representative of the Soviet Union
is an admission that blockade measures which his
Government has imposed are being used as a
measure of duress.
I listened in vain as he was speaking to any
suggestions in his remarks that he, too, like the
Representatives of the three Western Governments
was approaching this draft resolution in a spirit
of accommodation, in an endeavor to settle the
problem of Berlin. On the contrary, Mr. Presi-
dent, he flat-footedly asserted that they would
continue the threat of their blockade measures
until the Soviet mark was established as the sole
currency, not by free agreement, but under Soviet
dictation.
Mr. President, the main issues which are before
the Security Council have been made very clear
in the proceedings we have had. The resolution
has been laid before us, which was eminently fair
in the effort of six governments which led to its
formulation. It seems to me, Mr. President, that
we must now ask, "Wliat does the Soviet Union
want?"
Does it want a meeting of the Coimcil of For-
eign Ministers to discuss Berlin or the unification
of Germany, which always has been and still is the
aim of the three Western Governments, or to dis-
cuss questions of Germany as a whole ? The Soviet
Government can have such a meeting without the
threat to peace. We told them that before. We
rejjeat that promise. We have indicated our ac-
ceptance of that principle iii our approval of the
draft resolution which was before us.
Does the Soviet Union want the Soviet zone
mark to be establi.shed as the sole currency of Ber-
lin under Four Power control, as Premier Stalin
himself suggested? They can have that without
maintaining the blockade. We have told them so
before and we tell them so again.
Does the Soviet Union want assurances that we
do not want to use Four Power control of the cur-
rency in Berlin to damage or to control the general
economy of the Soviet zone outside of Berlin?
They can have such assurances without threat or
violence. We have made that clear already. We
make it clear again.
Does the Soviet Union want guaranties to pre-
vent the use of transport facilities for black-
market operations in currency in Berlin? They
can have such guaranties without resorting to
duress. Again, it is a matter which we have told
them before we would do, and we are ready to
say so again.
If the Soviet Government will remove all re-
strictions imposed on transportation, communica-
tions, and commerce subsequent to March 30, 1948,
' Bulletin of Oct. 24, 1948, p. 520. See also U. N. doc.
S/1048, Oct. 22, 1948.
573
THE UNITED NATIONS AND SPECIALIZED AGENCIES
between the Western zones and Berlin, the United
States Government will undertake to provide safe-
guards for the Western mark B and the Eastern
mark of the Soviet zone as presented by the United
States Representative during the course of the
Berlin discussions.
Mr. President, as I understood the distinguished
Representative of the Soviet Union in his remarks
a few moments ago, he argued that blockade meas-
ures which have been imposed by the Soviet Union
were imposed to protect the economy of the Soviet
zone against the Western mark. However, Mr.
President, as I have had occasion to point out to
the Council before, these blockade measures began
in January, reached their fullness in March and
the Western mark was not introduced until June
24. I think it necessary to point out again that
the matter of restrictions on traffic has nothing to
do with the question of safeguards to prevent the
movement of currency. Removal of blockade re-
strictions imposed upon land communications,
land and water communications by the Soviet
Union would restore the normal traffic channels
of supply and transport which are now confined
to the air lift. In effect this would merely substi-
tute the normal ground means of transport for
present air transport.
The United States has never intended to use
currency as a means of adversely affecting the
economy of the Soviet zone. The objective of cur-
rency reform is to improve economic life and not
to destroy it.
Mr. President, if on the other hand the Soviet
Union wants to drive us out of Berlin, where we
have an acknowledged right to be, that result they
cannot get by maintaining their threat to peace.
We have stated that position over and over again,
and that simple fact should now be clear. If the
Soviet Union wants us to work out technical details
of the first four questions I put, under duress of
maintenance of blockade measures, instead of
through the process of free negotiation, again the
answer to that question is "No." In short, Mr.
President, the Soviet Government can get all it
says that it wants without maintaining the block-
ade. With the blockade it can get neither what it
says it wants nor what its actions seem to suggest
it actually does want. It is the blockade which is
the barrier and it is the Soviet Union which can
lift the blockade.
Mr. President, even now in spite of the fact that
the Soviet Union has seen fit to indicate that it
intends to block the efforts of the Security Council
of the United Nations, if it wishes to end the threat
to peace which it created, the Berlin question can
be settled on the basis of the program suggested in
the draft resolution which is now before the Se-
curity Council. Tlie three Western Governments
have indicated their acceptance of the principles
contained in that resolution. If the Government
of the Soviet Union would give reciprocal assur-
ances that that program suggested in that resolu-
tion would be carried out, it can be done.
Current United Nations Documents: A Selected Bibliography^
Security Council
Letter from the Representatives of the United Kingdom
and the United States Dated 6 August 1948 Addressed
to the President of the Security Council Transmitting
the Report of the Administration of the Britisli-
American Zone of the Free Territory of Trieste for
the Period 1 April to 30 June 1048. S/953, August 6,
1948. 36 pp. mimeo.
Committee of Good Offices on tlie Indonesian Question.
Second Report on Political Developments in West-
ern Java. S/9C0, May 10, 1948. 39 pp. mimeo.
Resolution for a Cease-fire Order and Truce Agreement
Adopted by the United Nations Commission for India
and Pakistan on 13 August 1948 and the Commission's
Correspondence witli the Indian and Pakistani Gov-
ernments in Relation to the Resolution. S/995,
September 13, 1948. 33 pp. mimeo.
Documents relating to the Palestine Situation
Cablegram from the United Nations Mediator Addressed
to the Secretary-General Dated 7 August 1948. S/955,
August 7, 1948. 3 pp. mimeo.
Cablegram Dated 12 August 1948 from the United Nations
Mediator to the Secretary-General Concerning the
- Observance of the Truce in Jerusalem. S/9()l, Au-
gust 12, 1948. 4 pp. mimeo.
' Printed materials may he secured in the United States
from the International Documents Service, Columbia
University Press, 29G0 Broadway, New York City. Other
materials (mimeographed or processed documents) may
be consulted at certain designated libraries in the United
States.
574
Telegram Dated 6 September from United Nations Medi-
ator Addressed to the Secretary-General Transmit-
ting Report on Death of French Observers Lt. Colonel
Joseph Queru and Captain Pierre Jeannel. S/994,
September 8, 1948. 6 pp. mimeo.
Cablegram Dated 12 September 1948 from the United
Nations Mediator Addressed to the Secretary-General.
S/909, September 13, 1948. 2 pp mimeo.
Cablegram Dated 27 September 1948 from Ralph Bunehe
to the Secretary-General Transmitting Report Re-
garding the Assassination of the United Nations
Mediator. S/1018, September 28, 1948. 6 pp. mimeo.
Cablegram Dated 30 September 1948 from Ralph Bunehe
to the Secretary-General Concerning Truce Super-
vision. S/1022 October 1, 1948. 3 pp. mimeo.
Cablegram From Chairman of Truce Commission Dated
30 September 1948 Addressed to President of Security
Council. S/1023, October 2, 1948. 2 pp. mimeo.
Cablegram Dated 3 October 1048 from Ralph Bunehe to
the Secretary-General Concerning Truce Arrange-
ments in Jerusalem. S/1024, October 4, 1948. 2 pp.
mimeo.
Report Dated l(i September 19-18 by the United Nations
Mediator on the Observation of the Truce in Pales-
tine During the Period from 11 June to 9 July 1948.
S/102.5, October 5, 1948. 38 pp. mimeo.
Cablegram Dated 14 October 1948 from the Chairman of
the Truce Commission Addressed to the President of
the Security Council Concerning Violations of the
Truce by Arab Forces in Jerusalem. S/1034, Octo-
ber 15, 1948. 1 p. mimeo.
Department of State Bulletin
The United States in the United Nations
Palestine: Security Council orders Negev withdrawal
The Security Council adopted on November -4
an iunended Britisli-Chinese resolution calling- for
withdrawal of Israeli and Egyptian forces from
any positions gained in the Xegev since October 14,
wiien recent hostilities in that area of Palestine
began.
The resolution was approved by a nine-to-one
vote, with the Soviet Union abstaining, after
revisions embodied in a U.S. amendment were
accepted. The Ukraine cast the opposing vote.
The U.S. amendment eliminated from the origi-
nal resolution specific mention of article 41 of the
U.N. Charter, under which noncompliance could
be met by economic sanctions. The amended reso-
lution instead provides that in the event of non-
compliance a seven-nation council committee will
study the situation "as a matter of urgency" and
report to the council "on further measures it could
be appropriate to take under Chapter VII of the
Charter."
Chapter VII includes article 41 and other en-
forcement provisions but the resolution, as now
worded, does not specify what measures would be
considered in the event of the noncompliance. The
original British-Chinese resolution specified meas-
ures under article 41 — the economic sanctions
section.
Israeli Representative Aubrey Eban objected to
both the original and the amended version, claim-
ing that the Negev, awarded to Israel under the
partition resolution adopted by the Assembly last
year, is an integral part of Israel.
The advances in the Negev fighting have been
Israeli advances and the called for withdrawal
would be from positions taken from Egyptian
forces.
Jacob Malik, Soviet Delegate, called for direct
negotiations between Israeli and Egyptian Repre-
sentatives. Representative Eban said this was
acceptable. Egypt, however, supported the
adopted resolution with the comment that it could
be stronger and again asserted that it could not
recognize the Jews as a negotiating party.
In presenting the U.S. amendment, Philip
Jessup pointed out that the council's main task is
to keep the jDeace in Palestine and not to lay down
a settlement and that positions taken by the coun-
cil members on the truce question do not prejudice
positions they may take in the Assembly on the
political settlement problem.
The U.S. amendment si^ecifies that the Negev
withdrawal is being called for without jirejudice to
the rights, claim, or position of the two parties
"or to the position which the members of the
United Nations maj- wish to take in the General
Assembly" on political settlement.
Mr. Jessup, in stressing the truce aspect, said
that the truce mu.st be maintained "until arrange-
November 7, 1948
ments can be made to replace the truce by a more
permanent peaceful settlement".
He characterized council action to maintain the
ti'uce as "a necessary prerequisite to General As-
sembly consideration" whicli "does not prejudice
the result of such consideration in any way".
The resolution calls for establishment of truce
lines in the Negev by Israeli and Egyptian Repre-
sentatives. Failing establishment of these lines
by the two parties, "permanent lines and neutral
zones shall be established by decision of the acting
mediator".
Refugee Aid. The 26-nation Executive Board
of the International Children's Emergency Fund
has allocated $6,000,000 for supplementary relief
of 250,000 child and mother refugees from combat
areas in Palestine. The Program Committee had
recently recommended that $2,200,000 be added to
the $411,000 ])reviously allocated for relief in that
area. However, the Executive Board approved
the larger figure of $6,000,000 on November 5, after
hearing a report on needs of the refugees.
Maurice Pate, Unicef executive director,
pointed out that the organization can help only
children and pregnant and nursing mothers among
the half-million homeless Palestinians. The need
for basic relief, such as the $30,000,000 program
suggested by acting mediator Ralph Bunche, he
pointed out, remains unchanged.
A summary of Unicef activities to date shows
that 155,625 Arab mothers and children up to 15
years old have received aid. No figures are yet
available on the number of Jewish mothers and
children assisted. Relief supplies are being dis-
tributed in camps in Palestine, Syria, Lebanon,
and Trans-Jordan.
Meanwhile, the Assembly's Social, Humanitar-
ian and Cultural Committee, on October 30,
named a 15-member subcommittee to examine all
the proposals regarding Palestine refugees that
have been made so far and to work out a draft
resolution.
Subcommittee members were instructed to con-
sult Secretary-General Lie on the question of ad-
ministering a proposed Palestine refugee relief
fund. The Legal Committee will be asked to give
urgent consideration to the legality of the fund
idea.
In the Social Committee on October 29, Mrs.
Franklin D. Roosevelt introduced a joint Anglo-
American resolution calling for a Palestine refu-
gee aid program budgeted at $29,500,000.
In presenting the resolution, Mrs. Roosevelt
said, "We believe that the acting mediator's esti-
mate of the number of persons for whom relief
should be supplied and the period of time for the
j^rogram both repi'esent a sound basis for action
by the General Assembly. . . .
"It has not been determined whether the
refugee movement has reached its peak nor in
575
-il
THE UNITED NATIONS AND SPBCIAUZBD AGENCIES
what degree some of the refugees may be absorbed
during the period of tlie program in the areas in
which they have found refuge. On the basis of
information available it would appear reasonable
to assume that 500,000 persons will require assist-
ance for the period of the program. The period
of time proposed will carry through the next har-
vest. We anticipate that the ^jrogram of relief
will be launched as soon as funds are available
and the necessary organization can be established.
For this purpose December 1, 1948 represents a
realistic date. ... It will be recognized,
however, that this problem lequires an operation
of a character different from normal United Na-
tions activities and that it requires a different
budgetary treatment. Consequently we believe
that the cost of this program should not be made a
part of the United Nations budget. We endorse,
thei'efore, the proposal in the resolution submitted
by the United Kingdom and the United States
that the General Assembly ui'ge all Members of
the United Nations to make as soon as possible
voluntary contributions in kind or in funds suffi-
cient to ensure that the amount of supplies and
^ilnds required are obtained."
Every effort should be made to use all available
volunteer international and local organizations,
Mrs. Roosevelt stated, and recommended that "the
International Committee of the Red Cross, the
League of Red Cioss Societies, and the Interna-
tional Children's Emergency Fund can be particu-
larly helpful because they can readily bring into
service the experienced disaster and I'elief per-
sonnel known to them."
Korea: Commission's Report
The continued concern of the General Assembly
for the attainment of national independence and
unity in Korea is called for in the report of the
Korean Commission, made public on October 30.
The commission's report to the Assembly noted
with regret "the grim reality of a divided Korea,"
with a government in the south set. up as a result of
U.N.-observed elections in May and another in the
north set up "arbitrarily by steps which were not
under international observation". The northern
zone has been under Soviet occupation and the
south occupied by the United States.
In its report, the conuuission stressed the urgent
need for establishing procedures for peaceful
negotiation between the two regimes in Korea,
adding that this "must take place before military
evacuation of the occupying forces abandons
Korea to the arbitrary rule of rival political
regimes wliose military forces might find them-
selves driven to internecine warfare."
The Soviets have unilaterally announced the
beginning of withdrawal of their troops, leaving
their zone in the hands of a Communist-dominated
regime. The United States is turning over admin-
• Documents and State Papers, September 1948.
576
istration of its zone to the newly elected govern-
ment at Seoul.
The re]Dort stressed that the conmiission, follow-
ing the will of the Assembly, has always concerned
itself with Korea as a whole. But this has been
thwarted, tlie report said, by the refusal of Soviet
authorities to allow the commisssion to visit the
Soviet zone or conduct U.N.-observed elections
there — in contrast to the cooperation given by
U.S. authorities in the south.
Immediate unification of Korea is essential if
that country's social, political, and economic well-
being is to be served, the commission held.
Efforts of Korean leaders to achieve this end have
failed largely because of "the tension prevailing
in the international situation", the commission
found.
Atomic Energy: Resolution Adopted
The General Assembly on November 4 over-
whelmingly voted its approval of the atomic con-
trol plan developed over the past two years by the
Atomic Energy Commission.
The vote, on the revised Canadian resolution
previou.sly approved in committee, was 40 to six,
Soviet group opposing. The Soviet proposal was
defeated by the same vote.
Spain: Economic Statistics
The Legal Committee of the General Assembly
on November 2 voted 21 to 14 to delete a portion of
a resolution under debate which would specifically
bar Spain from an international convention on
economic statistics.
Radio Plan Approved
The Assembly Achninistrative Committee on
October 30 adopted a resolution calling on the
Assembly to approve in principle the establish-
ment of a U.N. telecommunications system.
The resolution was submitted jointly by the
United States, the Soviet Union, and France.
If the resolution is approved at a later Assem-
bly plenary session, it will permit the United
Nations to seek shortwave broadcasting frequen-
cies at the current telecommunications conference
being held at Mexico City.
At present, the United Nations depends on the
generosity of U.S. and Canadian shortwave sys-
tems for its transmission time.
Greece: Third Interim Report
In a third Interim Report which was approved
unanimously on October 22, the Special Com-
mittee on the Balkans said that facts which have
come to its notice during this period confirm and
strengthen the conclusions of its General and Sup-
plementary reports.^
This is Unscob's third Interim Report, the pre-
vious two having been sent to the General Assem-
bly on December 31, 1947, and January 10, 1948,
at the time of a large-scale guerrilla attack against
Konitsa in Epirus.
Department of State Bulletin
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
Calendar of Meetings ^
Adjourned during October
Itu (International Telecommunication Union) : Meeting of Admin-
istrative Council.
IcAO (International Civil Aviation Organization) :
Fifth Session of Council
Legal Committee
International Bank for Reconstruction and Development: Third
Annual Meeting of the Board of Governors.
International IVIonetarj' Fund: Third Annual Meeting of the Board
of Governors.
Ilo (International Labor Organization) : Technical Tripartite Con-
ference on Safety in Factories.
UNESCO (United Nations Educational, Scientific and Cultural Organi-
zation) :
Conference to Constitute au International Union for the Protection
of Nature.
Social Tensions Conference
Who (World Health Organization) :
Expert Committee on Tuberculosis
Expert Committee on Venereal Disease
Expert Committee on Pharmacopoeias
Pan American Sanitary Organization:
Meeting of Executive Committee
Meeting of Directing Council
International Wool Study Group: Second Meeting
International Council for Exploration of the Sea
Upu (Universal Postal Union): Meeting of the Executive and
Liaison Committee.
Fourth Pan American Consultation on Cartography
Ninth General Conference on Weights and Measures
Fifth Inter-American Congress of Surgery
Second Meeting of South Pacific Commission
International Tin Study Group: Third Meeting
In Session as of November 1, 1948
United Nations: General Assembly: Third Session
Itu (International Telecommunication Union) :
Provisional Frequency Board
Planning Committee for High Frequency Broadcasting Conference .
International Conference on High Frequency Broadcasting . . . .
Bolivian International Fair
Ilo: Industrial Committee on Textiles: Second Session
Who: Second Session of Executive Board
Scheduled for November 1948
Gatt (General Agreement on Tariffs and Trade) : Meeting of Com-
mittee on Special Exchange Arrangements.
Fag (Food and Agriculture Organization) :
Fourth Session of Council
Fourth Session of Annual Conference
Ilo (International Labor Organization) :
Industrial Committee on Petroleum; Second Session
Preparatory Conference on Labor Inspection in the Asian Countries .
Joint Maritime Commission
Governing Body: 107th Session
Imo (International Meteorological Organization) : Meeting of Regional
Commission for Asia.
Empire Parliamentary Association
West Indian Conference: Third Session
Who (World Health Organization): Expert Committee on Internat-
ional Epidemic Control.
Second Inter- American Congress on Brucellosis
UNESCO : General Conference: Third Session
IcAO (International Civil Aviation Organization) : Southeast Asia
Regional Air Navigation Meeting.
United Nations: Economic Commission for Asia and the Far East:
Fourth Session.
Geneva . .
Montreal .
Lisbon . .
Washington
Washington
Geneva . .
Fontainebleau, France .
Paris
Paris .
Paris .
Geneva
Mexico City . . .
Mexico City . . .
London
Copenhagen . . .
Locarno and Bern
Buenos Aires . . .
Paris and Sevres .
La Paz
Sydney
The Hague . . .
Paris
Geneva . .
Mexico City
Mexico City
La Paz . .
Geneva . .
Geneva . .
Washington
Washington
Geneva . . .
Kandy, Ceylon
Geneva ...
Geneva . . .
New Delhi . .
Hamilton, Bermuda .
Guadeloupe . . . .
Geneva
Mendoza, Argentina
Beirut
New Delhi
Glenbrook, Australia
' Prepared in the Division of International Conferences, Department of State.
November 7, 1948
London Nov. 1-
1948
Sept. 1-Oct. 5
Sept. 7-
Sept. 24-Oct. I
Sept. 27-Oct. 1
Sept. 27-Oct. 1
Sept. 27-Oct. 16
Sept. 30-Oct. 7
Oct. 8-
Sept. 30-
Oct. 1,5-19
Oct. 15-21
Oct. 2-3
Oct. 4-16
Oct. 4r-6
Oct. 4-11
Oct. 11-21
Oct. 12-
Oct. 12-21
Oct. 17-21
Oct. 25-
Oct. 25-
1948
Sept. 21-
Jan. 15-
Sept. 13-
Oct. 22-
Oct. 20-
Oct. 26-
Oct. 25-
Nov. 8-13
Nov. 15-
Nov. 9-
Nov. 15-
Nov. 26-
Nov. 29-
Nov. 15-
Nov. 15-
Nov. 15-
Nov. 15-
Nov. 17-
Nov. 17-
Nov. 23-
Nov. 29-
577
THE RECORD OF THE WEEK
Sound International Trade Program:
Its Meaning for American Business
by Paul H. Nitze ^
Deputy to the Assistant Secretary for Economic Affairs
At the end of World War II, we were confronted
with a world economy even more seriously out of
joint than most of us then realized. Six years of
struggle had depleted the resources, both financial
and material, of a large segment of mankind. The
apparatus of many countries for the production
and clistribution of goods was in a shambles. In
others it had been seriously distorted to meet the
specialized needs of war. Critical economic dislo-
cations had given rise in many countries to strict
governmental controls over all important economic
activities. Moreover, important changes in the at-
titudes of individuals and governments towards
the problems of trade and economic organization
in general had taken place. The growing economic
and political strength of organized labor and agri-
culture had brought about a situation in which
wage and price adjustments to changing economic
conditions were difficult to make. There had been
a growth of social consciousness and wider claims
upon governments for the welfare of their people,
the avoidance of unemployment, and the provision
of social security.
The combination of these and other factors had
led to an increase of economic planning and na-
tionalization of industry in the domestic field and
of state trading in the field of international trade.
These influences in the main lead away from the
determination of trade channels on the basis of
market considerations and away from the correc-
tion of trade imbalances by internal deflation and
price-level adjustments, as was characteristic of
the nineteenth century systems of trade. For the
private trader and his government, they have
created new problems of increasing importance
which have to be reckoned with.
^ powerful are these factors in today's trading
world, that they have affected even the United
States, where private competitive enterprise flour-
ishes to a greater extent than anywhere else in the
world. Even we have felt the need to control ex-
ports, support many farm prices, engage in gov-
ernment purchasing of certain foodstuffs and raw
materials, and limit the use of scarce materials.
' Address made before the Twentieth Conference on
Distribution, in Boston, Oct. 25, 1948, and released to the
press on the same date.
578
Segments of the American people exert strong
pressures for limitation of imports, for payment
of subsidies, or for other governmental measures
when the operation of the competitive price
mechanism threatens to become painful.
Since the end of the war, and jiarticularly in the
last year, the world has made steady progress in
overcoming some of the most acute material
shortages and in correcting some of the major
trade imbalances. Tliere is still, however, a long
and difficult road ahead.
EXPANSION OF WORLD TRADE
It is in this setting of the world as it is and of
the actual problems that confront us that we must
consider what constitutes a sound international
trade program.
In the nineteenth century^ common principles of
international trade were tacitly understood and ac-
cepted by all countries. Today, however, with the
emergence of new forces and new problems, spe-
cific international agreement is necessary.
I think that businessmen will agree that at least
four basic conditions are necessary for a sound ex-
pansion of world trade: stability; good markets;
fair rules of trade; and procedures for settling
trade disputes.
Let us see whether and to what extent our inter-
national trade program contributes to these objec-
tives.
Stability
Stable conditions of international trade obvi-
ously cannot be achieved easily or overnight. The
uitceitainties of disturbed economic conditions to-
day are enhanced by overshadowing political un-
certainties. But there are positive steps which
can be taken towards this end.
First, there can be judicious assistance to the
building up of the damaged productive resources
and economic machinery of other friendly coun-
tries. Second, there can be international agree-
ment on the objectives and principles which all
would like to see govern international trade.
Third, there can be international action for the
moderation of exchange fluctuation.
The United States had led in working for the
Department of State Bulletin
restoration of imich-nei'dod stability in interna-
tional trade by being one of the chief architects of
the United ^^ations and its specialized agencies,
particularly the International Monetary Fund and
the proposed International 'I'lade Organization,
and by undertaking the European Recovery Pro-
gram. Through tiiese measures we have sought,
by international agreement, to achieve settlement
of ])oliticul problems, to give a connnon direction
to decisions on trade policy, to moderate exchange
fluctuations, and to assist in the restoration of the
basic economies of the Western European democra-
cies. All of these measures help to bring more
stability into the conditions of intei'national trade.
Good Markets
Good markets are basic to sound trade. To be
good markets, they must be accessible and they
must be able to pay for the goods they receive.
Goods can be disposed of by gift or barter deals,
but neither provides what we would consider a
sound market.
Through the European Recovery Program,
European countries are being helped to restore
their production and hence their capacity as sound
markets for each other, for us, and for the rest
of the world.
Loans have been made to other countries through
the Export-Import Bank for the expansion of
necessary facilities which will assist in their eco-
nomic development. The International Bank for
Reconstmiction and Development has been estab-
lished for the same purpose.
A beginning has been made in reaching agi'ee-
ment upon principles designed to promote the
flow of private capital and technical skills into
areas which can use them to foster their produc-
tivity and development, and hence their emer-
gence as good markets as well as good suppliers.
This has been done at Bogota in the e<:-onomic
agreement of Bogota, and at Habana in the Char-
ter for an International Trade Organization.
The reduction of artificial trade barriers also
helps to make good markets. At Geneva last year,
23 nations negotiated for selective reduction of
their tariffs, not only with the United States but
with each other. The result was the General
Agreement on Tariffs and Trade, in which 23
countries reduced tariff rates on some products
and bound rates against increase on other prod-
ucts for about 45.()()0 individual items covering
over one half of the total foreign trade of the
world.
These are major steps toward the sound de-
velopment of good markets.
I have been asked whether the United States,
with only one vote, will not be outnumbered in the
Ito by the many smaller countries and forced to
accept all kinds of things that it does not like. I
do not think we need to be afraid. Such a thing
has not yet happened in any international agency
November 7, 1948
IHi. RECORD Of THE y^ilYt.
with which we work. Such a fear leaves out of
account the strategic position of leadership that
the United States enjoys in the world. As a mat-
ter of fact, many smaller countries are concerned
that the United States and other large countries
will dominate Ito, regardless of the one vote for
each, simply because, in the nature of the case, the
larger countries cannot help having more influence
in world affairs.
The truth is that there are always those who fear
that their country will be outnumbered by other
countries in any kind of an international organiza-
tion. If reason did not overcome this narrow
fear, there would never be organized international
cooperation between sovereign countries. I am
not such a fatalist. I believe that sovereign na-
tions can work together. I do not think that pes-
simistic resignation pays dividends either in busi-
ness or in national success. American life is built
upon a different foundation — faith in our destiny,
courage in the future.
Fair Rules of Trade
I said at the outset that one of the elements that
a businessman wants to see included in a sound
trade program is fair rules of trade. This is what
the Charter for an International Trade Organiza-
tion, agreed upon by representatives of 53 nations
at Habana in March 1948, seeks to provide.
As "World War II drew to a close, many people
in the United States, the British Empire, and
other countries felt that the absence of fair rules
of trade in the decades after the first World War
had contributed significantly to the economic war-
fare that "dried up"' world trade in the 1930's.
Then, each country traded on the basis of the law
of the jungle, and the devil took the hindmost.
As one European statesman put it:
"We competed with one another in devices to
restrict the volume of world trade and then
fiercely competed with one another for a greater
share of that smaller total."
AVith this in mind, we in the Government began
to work, even while hostilities were still going on,
to lay the basis for the establishment of fair rules
of conduct over the widest possible area of trade.
One of the first acts of the Economic and Social
Council of the United Nations was to appoint a
Preparatory Committee of 18 nations to prepare
an agenda for a World Conference on Trade and
Employment, which was finally held at Habana
from November 1947 to March 1948. Representa-
tives of 53 nations there agreed upon the text of
a Charter for an International Trade Organiza-
tion for submission to their respective legislatures.
It is expected that this Charter will be submitted
to our Congress in the next session.
The Charter establishes a code of rules that
countries voluntarily agree to follow with respect
to their trade with each other. These rules cover a
579
THE RECORD OF THE WEEK
■wide range of international trade relationships:
Tariffs, quotas, subsidies, foreign exchange, cus-
toms formalities, cartels, commodity agreements,
most-favored-nation treatment, and the interna-
tional aspects of foreign investment, employment,
and economic development. Most of them repre-
sent commitments by governments to refrain from
taking specified governmental actions affecting
trade which they would otherwise be at full liberty
to take.
I won't try to describe these rules in detail, but
I do feel that it would be useful to state in gen-
eral terms what they seek to do. They have two
aspects. They state the agreed general principle
and they indicate how, or to what extent, it must
be applied. Let me illustrate.
Certain important rules can, and therefore
would, come into immediate and full operation
when the Charter enters into force. Rules of this
kind are those requiring simplification of. customs
formalities, the curbing of international cartels,
and many more.
The problem is, however, more complicated with
resisect to others. For example, one of the im-
portant rules is that nations undertake to nego-
tiate for the reduction of tariffs. But, clearly, no
nation will undertake in advance to reduce all its
tariffs or even any particular tariff. Therefore,
the Charter provides that negotiations shall be on
a selective, product-by-product basis, which will
afford adequate opportunity to consider the needs
of individual indtistries and that members shall
be free not to grant concessions on particular pro-
ducts. It also provides an "escape" clause under
which if, as a result of a reduction and of unfore-
seen circumstances, imports increase so as to
threaten serious injury to a domestic industry, the
reduction may be withdrawn.
Another important principle is that nations will
not use quotas to restrict their trade or to discrimi-
nate against the trade of a particular country.
But, clearly, under present conditions very few
countries can apply this rule completely, no matter
how much they may desire to do so. They just
don't have enough foreign exchange to pay for all
the imports their people want. Therefore, they
must keep their imports down to the amount thej'
can pay for and concentrate on the ones they really
need, just as an individual of limited means does
in preparing his family budget. So the Charter
permits the use of quotas to accomplish this
necessary budgeting only as long as a real shortage
of foreign exchange lasts.
Thus, in situations where the agreed principle
cannot be fully put into effect, members are not
asked to do the impossible. They are, however,
obliged to comply to the fullest extent, and at the
earliest moment that they can, and they may be
called to account by other members or by the Or-
ganization if they fail to do so. The conditions
580
under which failure to comply fully with the rules
can be justified are very specifically defined.
I give these illustrations because concern has
been voiced in some quarters that exceptions in the
Charter will have the effect of vitiating the rules
which it lays down. Quite the contrary. The
existence of the exceptions is what makes it pos-
sible for many nations to accept the rules and start
putting them into effect, at least partially, pending
the time when they can do so fully.
Procedures for Settling Trade Disputes
The Ito would provide a permanent mechanism
for the orderly settlement of international eco-
nomic disputes. This permanent feature is im-
portant. We learned from the experience of the
World Economic Conference, in 1927, and the Lon-
don Monetary and Economic Conference, in 1933,
that intermittent intei'national conferences, ac-
companied by broad declarations of principle (as
some people now propose), are not an effective
means of resolving world economic problems, of
avoiding depressions, or averting economic war-
fare. A permanent international agency, operat-
ing on the basis of specific commitments, is a far
more effective instrument for these purposes.
An international body to handle trade must have
flexibility if it is to handle satisfactorily changing
world conditions. Therefore, the Charter, like the
United States Constitution, has a procedure of
amendment and provides for a comprehensive re-
view of its provisions within five years.
Each member of the Ito would have one vot«,
and decisions would, in the main, be by majority
vote. The Organization could not force any coun-
try into any act against its desire. But if a mem-
ber violated a commitment accepted under the
Charter, the Organization could authorize other
members to withdraw from the offender the privi-
leges that all members grant to each other under
the Charter. The right to withhold privileges to
offenders, together with the persuasion exercised
in the Ito forum, plus the force of public opinion,
would constitute the sanctions of the Ito.
FUTURE COURSE
I have given particular emphasis to the Ito in
this discussion of a sound international trade pro-
gram, first, because it is new and less well known
than the othei- facets of our international trade
polic}', and second, because of the very special
potentialities which it has today for the business-
men of the United States. As I have indicated, the
private-enterprise system in which we believe is
now called upon to operate in a very different and
less congenial world than that which existed be-
fore World War I or even between the two world
wars. New and powerful forces are at work which
tend to make it more and more difficult for the pri-
vate trader to do his business abroad. These forces |
Department of Slate Bulletin \
are tlie result of economic adversity, or new philos-
()])liios, or both. This Government has the respon-
sibility of working out with other governments
agreement on principles which will give the maxi-
mum opportunity for the private trader to con-
duct his business and exercise his ingenuity and
ability.
AVe do not guarantee that the measures taken
, or proposed will cure the deep-seated ills of the
I world trading systems overnight. And we do not
[ undertake that they will restore international
j trade completeh^ to private enterprise. The
i changes which have taken place in the world are
too deep for that. But we are convinced that these
i measures are positive steps which will help to
cure those ills, help to eliminate the necessity for
continued assistance to other countries by the
United States, and help to create the conditions
under which private enterprise can have its best
chance.
Let us assume for the moment that we go for-
ward without the Ito. What would be likely to
hapj)en?
I have pointed out that governments are in the
international trade picture more than ever before;
that they have at their disposal new, highly effec-
tive, and ingenious techniques for the control of
trade; and that the cii'cumstances in which their
countries find themselves create powerful demands
for the use of these techniques in the narrow and
short-run national interest. The Charter, basical-
ly, imposes limitations upon the use of those tech-
niques, confining it to cases which all have agreed
are legitimate. If the rules of the Ito are not
accepted, countries will be free to use these con-
trol techniques, not only in the cases j^ermitted by
the Charter, but in all other cases as well.
To be specific : If the rules of the Ito are not
accepted, countries will be free to use quotas as
long as the}' like to limit or change the course
of their trade not oidy for reasons of exchange
shortage, but also for pure protection and political
favor. They will be free to give new preferences
in their tariffs. They will have no obligation
whatsoever to negotiate for the reduction of their
tariffs or for the elimination of their present pref-
erences. They will be free to maintain and in-
tensify confused, complicated, arbitrary, secret,
and obstructive customs regvdations. They will
be under no obligation whatever to do anything
at all about the restrictive practices of interna-
tional cartels. They will be free to take any form
of arbitrary action they desire with respect to
the treatment of foreign capital within their
borders. They will be free to conduct state trad-
ing enterprises in wholly uncontrolled competition
with private enterprise.
Where does the private trader stand in such a
world? And where does his government stand
when he comes to it and asks it to protest on his
November 7, 1948
THE RECOKO OF THE WEEK
behalf against the arbitrary action of some other
government that injures his business? We can
say to the other government that we don't like
what it is doing and that its action hurts our
citizens. And this often produces results. But
we have worked to develop the Ito because we
want to be able to say to that other government
that we are protesting what it has done, not only
because it hurts our citizens, but also because it
violates an obligation which it has assumed not
only to us but to other countries as well. And
we want to be able, if necessary, to call that gov-
ernment to account before those other countries
and before the public opinion of the world. This
will immeasurably strengthen our hand in serving
your legitimate interests.
CONCLUSION
Finally, we cannot get away from the fact that
in today's world political and economic considera-
tions are inextricably interrelated. Political un-
certainties make for disturbed economic condi-
tions. It is brought home to every one of you
each morning as you read your daily paper that
one of the basic factors retarding the world's re-
covery has been the strength and aggressiveness of
international Communism. The economic and po-
litical difficulties which have existed since the war
liave been exploited to the full by the Soviet Union
and its agents abroad.
Every one of the measures which I have de-
scribedj the International Bank, the International
Monetary Fund, the General Agreement on
Tariffs and Trade, the International Trade Or-
ganization, has been open to the Soviet Union. It
has been invited to join in these cooperative ef-
forts to restore world production and world trade.
It has consistently refused to do so. It has op-
posed these efforts. It has inveighed against
them in its press, and over the air, and in the
United Nations. The Ito, for example, which
we regard as a means of promoting and stabilizing
trade by the common effort of all friendly na-
tions on equal terms and for the benefit of all, has
been called by the Soviets an organization to "con-
tribute to the domination of the U. S. A. in world
markets", part of "the drive of American im-
perialism toward world domination". We are
charged with "seeking to open world markets
and sources of raw materials to the further pene-
tration of American monopolies", and through
the Marshall Plan and the Ito "to enslave not
only Europe, but the whole world". Foreign
Trade, the monthly magazine of the Soviet Min-
istry of Foreign Trade, said :
"One of the means of establishing world domina-
tion is the foreign trade program of American
imperialism. This program has found its final
expression in the American proposals for the crea-
tion of an International Trade Organization.
581
THE RECORD OF THE WEEK
The objective of these proposals lies in the crea-
tion of a new trade organization of the type which
will make possible the strengthening of the eco-
nomic position of the U. S. A. in the capitalist
world."'
Why this spate of abuse of Ito? Why do the
Eussians use every means at their command to
sabotage the Eui'opean Kecovery Progi'am ? Be-
cause they fear and fight any measure which will
have the effect of strengthening and unifying the
non-Communist world. They fear and fight the
program I have described because to the extent
that it helps to establish stability and sound mar-
kets and fair rules of trade, as it will, so does it
also help to strengthen and unify the non-Com-
munist world to stand against the menace of an
alien ideology and to prove by the acid test of ac-
complishment that the way of the free nations is
the better way.
Position on Provisional Government of Israel
STATEMENT BY THE PRESIDENT
[Released to the press by the White House on October 24]
The Republican candidate for President has
seen fit to release a statement with reference to
Palestine. This statement is in the form of a
letter dated October 22, 1948, ten days before the
election.
I had hoped our foreign affairs could continue
to be handled on a nonpartisan basis without being
injected into the presidential campaign. The Re-
publican candidate's statement, however, makes
it necessary for me to reiterate my own position
with respect to Palestine.
I stand squarely on the provisions covering
Israel in the Democratic Platform.
I approved the provisions on Israel at the time
they were written. I reaffirm that approval now.
So that everyone may be familiar with my posi-
tion, I set out here the Democratic Platform on
Israel :
President Tniman, by granting immediate recognition
to Israel, led the world in extending friendsliip and wel-
come to a people who liave long sought an<l justly deserve
freedom and independence.
We pledge full recognition to the State of Israel. We
aiBrni our pride that the United States, under the lead-
ership of President Truman, played a leading role in the
adoption of the resolution of November 29, 1947, by the
United Nations General Assembly for the creation of a
Jewish state.
We approve the claims of the State of Israel to the
boundaries set forth in the United Nations' resolution
of November 21) and consider tliat modifications thereof
should be made only if fully acceptable to the State of
Israel.
We look forward to tlie admission of the State of Israel
to the United Nations and its full participation in the
international community of nations. We pledge appro-
priate aid to the State of Israel in developing its economy
and resources.
We favor the revision of the arms embargo to accord
to the State of Israel the right of self-defense. We pledge
ourselves to work for the modification of any resolution
of the United Nations to the extent that it may prevent
any such revision.
We continue to support, within the framework of the
United Nations, the internationalization of Jerusalenj and
the protection of the holy places in Palestine.
582
I wish to amplify the three portions of the plat-
form about which there have been considerable
discussion.
On May 14, 1948, this country recognized the
existence of the independent State of Israel. I
was informed by the Honorable Eliahu Epstein
that a Provisional Government had been estab-
lished in Israel. This country recognized the
Provisional Government as the de facto authority
of the new State of Israel. Wlien a permanent
government is elected in Israel it will promptly
be given de jure recognition.
The Democratic Platform states that we ap-
prove the claims of Israel to the boundaries set
forth in the United Nations' resolution of Novem-
ber 29, 1947, and consider that modifications
thereof should be made only if fully acceptable
to the State of Israel.
This has been and is now my position.
Proceedings are now taking place in the United
Nations looking toward an amicable settlement
of the conflicting positions of the parties in Pales-
tine. In the interests of peace this work must go
forward.
A plan has been submitted which provides a
basis for a renewed effort to bring about a peaceful
adjustment of differences. It is hoped that by
using this plan as a basis of negotiation, the con-
flicting claims of the parties can be settled.
With reference to the granting of a loan or
loans to the State of Israel, I have directed the
departments and agencies of the Executive Branch
of our Government to work together in expediting
the consideration of any applications for loans
which may be submitted by the State of Israel.
It is my hope that such financial aid will soon
be granted and that it will contribute substantially
to tlie long-term development and stability of the
Near East.
Department of Slate Bulletin
Brussels Proposals Not Received by United States
Actiiio: Secretary Lovett told his press confer-
ence on October 2Y, that if and when the signa-
tories to the Brussels pact submit North Atlantic
security proposals to the United States, such pro-
posals woukl be considered in the light of the
Vandenberg resolution adopted by the United
States Senate last June.
Mr. Lovett pointed out, however, that such a re-
quest had not been received here, but that if and
when it was received, it would be considered in
accordance with the guiding principles of the
Vandenberg resolution.
That resolution placed the Senate on record as
favoring "progressive development of regional
and other collective arrangements for individual
and collective self-defense in accordance with the
purposes, principles, and provisions of the
Charter'' and '"association of the United States, by
constitutional process, with such regional and
other collective arrangements as are based on con-
tinuous and effective self-help and mutual aid, and
as affect its national security."
It was in accordance with this resolution, Mr.
Lovett recalled, that exploratory talks were ini-
tiated in Washington July 6, between representa-
tives of the Brussels pact countries and the Depart-
ment of State.^
When the conversations were opened, the De-
partment of State described them as "concerning
problems of common interest" in relation to the
Vandenberg resolution. It was pointed out at
that time that no information concerning the sub-
stance of these exploratory talks would be made
public before decisions were reached.
These exploratory talks have been completed,
Secretary Lovett announced, and since they were
informal, no commitments were involved.
The spadework represented by these conversa-
tions, he added, would facilitate further negotia-
tions wlien they are opened. Congressional lead-
ers of both major United States political parties
were kei:»t informed during the conversations, Mr.
Lovett said.
He noted that the Washington conversations
covered a wide variety of subjects, including a
whole era of pacts, and mostly the methods by
which United States security and world peace
could best be obtained. The Acting Secretary
said he did not know who originated the idea of a
North xVtlantic pact, but that the idea of a North
Atlantic community of nations was an old one.
Further comment, Mr. Lovett told the reporters,
would have to await receipt by the United States
of proposals from the Brussels pact countries.
■ BinxETiN of July 18, 1948, p. 70.
November 7, 7948
The following is the telegraphic text of the
communique issued by the five Foreign Min-
isters at the conclusion of their meeting on
October 27:
The Foreign Ministers of the Five Signatory
Powers of the Brussels treaty met in Paris on the
25th and 26th of October, 1948, for the third regu-
lar .session of the Consultative Council.
After examining tlie decisions taken by the five
Defence Ministers at their meeting on 27-28 Septem-
ber 1948, including the setting up of the land, sea
and air command organization of Western Union,
the Council gave its approval to the principles gov-
erning the defence policy of the Five Powers which
are based on the Brussels treaty and on the Charter
of the United Nations.
The Council also made a preliminary study of the
question of North Atlantic security and the con-
versations on this sub.ject which took place in Wash-
ington during the summer.
This examination resulted in complete agreement
in the Council on the principle of a defensive pact
for the North Atlantic and on the next steps to be
taken in tins direction.
The Council approved the suggestions made by the
five Finance Jlinisters on the 7 October 1948. In
order to carry out these suggestions as rapidly as
possible the Council decided to set up a Committee
of Experts to study the financial and economic
questions rai.sed by the organization of the defence
(.)f Western Europe.
The Council next took note of the progress ac-
complished in the social and cultural fields, and
api>roved the reports submitted to it.
As regards the question of European unity, the
Council decided to set up a committee of representa-
tives chosen by the trovernments of the five signa-
tory powers of the treaty of Brussels, consisting
of five French, five United Kingdom, three Belgian,
three Netherlands, and two Luxembourg members.
The object of this committee, which will meet in
Paris, will be to consider and to report to govern-
ments on the steps to be taken toward securing a
greater measure of unity between European
countries.
To this end, the committee will take into con-
sideration all suggestions which have been or may
be put forward by governments or by private organi-
zations. In this connection it will examine the
Franco-Belgian suggestion for the convening of a
European Assembly and the British suggestion re-
lating to the establishment of a European Council
appointed by and responsible to governments for
the purpose of dealing with matters of common con-
cern. This committee will draw up a report for
submission to the Consultative Council at its next
meeting.
Finally, the Foreign Ministers proceeded to a full
exchange of views on various international prob-
lems, certain of which are now being con.sidered in
the United Nations Assembly and the Security
Council.
583
Reparations Program in Western Zones of Germany
THREE POWER STATEMENT '
Since the reparations programs covering the
three Western zones of Germany were published
in October and November 1947,- the European Ke-
covery Program has come into being and is now
vitally affecting the progress of recovery. The
Governments of France, the United Kingdom, and
the United States have therefore had under con-
sideration the desirability of insuring that the
reparations programs are still fully consonant
with the needs of European recovery. It has been
agreed by the three Governments that there is a
need to examine certain portions of the reparations
lists with a view to determining to what extent
some plants on those lists might better serve the
needs of European recovery if left in Germany
than if lemoved and re-erected elsewhere. Pur-
suant to section 115 (f) of the United States
Foreign Assistance Act, a preliminary review of
the lists has already been made by the United
States Government and a list of plants which re-
quire more detailed study has been drawn up.
The further review of these plants will be con-
ducted by the Industrial Advisory Committee of
the Economic Cooperation Administration main-
taining close touch with officials of the other two
Governments concerned, who will cooperate in
every way. It is hoped to complete this review
within a few weeks. Further plants will be made
available to the Inter- Allied Keparations Agency
for allocation as rapidly as possible while this
investigation is in progress.
The review is beuig conducted from the stand-
point of European economic recovery and not with
the object of bringing about any general read-
justment of the reparations programs. It is in-
tended by the Three Powers that subject to what-
ever deletions from the reparations lists may be
agreed as a result of this review the balance of the
reparations programs shall be brought to a speedy
conclusion.
The Struggle for Freedom in Greece
STATEMENT BY HENRY F. GRADY ^
American Ambassador to Greece
Eight years ago today, the entire world was
electrified by an event that has already gone down
as a landmark in history.
On that clay, the Greek people I'ose as one man
and cried "No !" to the powerful invader.
It was the first real check on the aggressive
might that had unleashed the second world war.
Greece has known little peace since that time.
Again today she is engaged in a trying struggle
against what honest men the world over recognize
as the force of evil. Call it militant Pan-Slavism,
call it Eed Totalitarianism, call it Neo-Fascism —
it is the same. It is the force of destruction,
of fanaticism, of chaos.
It is more than ironic that while the Greek
people — with the help of their fi-iends — are seek-
ing with every means to rebuild their country, to
achieve the long-sought peace, to join in the great
' Issiietl by tbe Department of State and the Economic
Cooperation Administration on Oct. 27, 1948, and released
to the press on the same date.
" Not here printed.
' Made in Athens on Oct. 28, 194S, and released to the
press in Washington on the same date.
and inspiring program of recovery which now
animates the rest of free Europe, that at this very
moment the enemy from within and without bends
every effort toward destruction and chaos.
The world may well admire the struggle which
the hard-pressed people of Greece are waging
again toward their freedom, and those who think
the struggle an easy one must be either naive or
ignorant of the facts. We who are here, we who
are on the spot helping the Greeks to retain their
nation and their liberty, heliaing them to remain
in the community of free nations, do not under-
estimate these difficulties, these tremendous ob-
stacles. We are sure that they will be overcome —
and overcome by the Greeks themselves.
On this great day, I would like to make but one
salute — to the Greeks who are waging this great
struggle; chiefly, of course, to those in actual com-
bat against their enemy, but also to all elements
in Greek life which are contributing to this great
national effort.
For again the Greeks are saying "No !" Again
they have made the hard choice. Again they have
chosen freedom.
584
Department of State Bulletin
Twenty-Fifth Anniversary of tlie
Republic of Turkey
Statement hy the President '
On the twenty-fifth anniversary of the found-
ing of the Repu'blic of Turkey, the people of the
United States join nie in extending cordial greet-
ings and best wishes to President Inonii and to the
people of Turkey.
The full significance of this anniversary could
hardly have been foreseen a quarter of a century
ago when tlie Turkish IJepublic was proclaimed.
In America, we were from the beginning filled
with admiration for the resolute struggle of the
Turkish nation to go forward under the indomi-
table leadership of Turkey's first President, Kemal
Atatiirk. We have watched with sympathetic
interest the profound social and cultural reforms
effected in two brief decades. We are happy that
the advancements of science in this air-travel age
have so reduced the distance between our two
countries that we no longer feel remotely sep-
arated. We are still happier that the decision
of the Turkish nation to continue the develop-
ment of democratic institutions and to further
safeguard hmnan rights and liberties is being cai"-
ried out at a time when these ideals — so dear to all
Americans — are being ruthlessly crushed and ob-
literated in many parts of the woi'ld.
The political independence and territorial in-
tegrity of Turkey are of great importance to the
security of the United States and of all freedom-
loving peoples. In conformity with the purposes
and principles of the Charter of the United Na-
tions, I recommended to the American Congress
on Marcli 12, 1947, the extension of assistance to
Turkey and to Greece. This program, as au-
thorized by the American Congress two and one-
lialf months later, has since been extended for a
second year — that is. through June 1949. The ef-
fective way in which Turkish and American
personnel are cooperating on this program is a
further, and most striking, example of the mutual
ties that bind our countries.
I am deeply grateful that during this troubled
postwar period the relations between the United
States and the Republic of Turkey, inspired by a
common ideal for the establishment of security
for all nations through just and lasting peace,
have been strengthened and consolidated.
Double Taxation Convention With
Belgium Signed
(Released to the press October 28]
On October 28, 1948, Robert A. Lovett, Acting
Secretary of State, and Baron Silvercruys, Bel-
gian Ambassador in Washington, signed a con-
vention between the United States and Belgium
November 7, T948
TH£ RECORD OF IHE WEEK
for the avoidance of double taxation and the pre-
vention of fiscal evasion with respect to taxes on
income.
The provisions of the convention are similar in
general to those contained in income-tax conven-
tions now in force between the United States and
tlie United Kingdom, Canada, France, and
Sweden.
The convention provides that instruments of
ratification shall be exchanged and that the con-
vention shall become effective on January 1 of the
year in which the exchange of such instruments
takes place.
Steps Taken To Repatriate
Mexican Workers
[Released to the press October 25]
On October 18 the Mexican Embassy presented
a note to the Department calling attention to cer-
tain irregularities which hud occurred in the vicin-
ity of El Paso in connection with the entry of a
large nuniber of Mexican farm workers and their
employment on farms in Texas and other western
States under conditions other than those prescribed
in the agricultural-workers agreement of Febru-
ary 21, 1948.
In a note dated October 22, the Department ex-
pressed its regret that this incident had occurred
and stated that measures had been taken to correct
the situation. The United States agreed to com-
mence prompt repatriation of the Mexican work-
ers who entered illegally, as required by article 29
of the agreement; to halt further illegal immi-
gration of Mexican farm workers; and to con-
tinue extending to Mexican workers legally in the
ITjiited States the advantages and conditions pro-
vided in the agreement.
The reply of the Mexican Embassy, dated Oc-
tober 23, accepts as satisfactory the American note
and states that the fulfilment of the commitments
set forth therein will bring the incident to a close.
Reaction in the Mexico City press to the Amer-
ican note, which was published in its entirety, was
highly favorable.
It is understood that the Immigration and Nat-
uralization Service has already begun to deport
to Mexico the workers who entered contrary to
the agreement.
Exchange of Notes Between the U. S. and Mexico
October 22, 191^
Sir : I refer further to your attentive note of
October 18, 1948, concerning irregidarities which
have occurred in the vicinity of El Paso in connec-
tion with the entry of certain Mexican farm work-
" Recorded by the Voice of America for delivery on the
occa.sion of the Turki.sh National Holiday, Oct. 29, 1048,
and released to the press on the same date.
585
THE RECORD Of THE WEEK
ers under conditions other than those established
by the exchange of notes of February 21, 1948.
An investigation of the circumstances of this
case confirms that the entry of these Mexican na-
tionals was indeed illegal and that they were not,
as required by Article 29 of the agreement, imme-
diately deported to Mexico. I deeply regret that
these irregularities have occurred.
I am ha'ppy to inform you at this time, however,
that orders have been issued that the Mexican na-
tionals who entered illegally be promptly returned
to Ciudad Juarez. Kepatriation of these workers
has already commenced.
Orders have already been issued to stop all fur-
ther illegal or clandestine immigration along the
border.
Nothing which has happened, of course, will m
any way affect the rights and privileges of the
Mexican nationals who are now legally m the
United States in fulfillment of contracts entered
into under the agreement. They will continue to
enjoy the immunities and prerogatives set forth
in the agreement and individual work contracts
and the existing satisfactory arrangements for
participation of Mexican consuls in discussions of
any misunderstandings which may arise will con-
tin'ue as in the past.
It is my sincere hope that the corrective measures
which have been described above and which will
be carried out to the best of my Government's
ability, will be found satisfactory to your Govern-
ment.
With sincere expressions of profound regret for
the serious instance of non-compliance which has
occurred, I take this opportunity to express my
Government's appreciation for the cooperation
Mexico has given in the past and which I hope will
continue in the future.
I avail myself [etc.] Kobeet A. 'Lo^^TT
Washington, D. C, October m, 1948
Mr. Secretary : I have the honor to acknowledge
receipt of Your Excellency's note of October 22
relative to the irregularities which occurred in the
vicinity of El Paso in connection with the entry
into the United States of Mexican agricultural
workers under conditions other than those ex-
pressed in the exchange of notes of February 21,
1948.
Upon instructions from my Government, I am
pleased to inform Your Excellency that it has
found satisfactory the statements made by the De-
partment of State, as well as the measures adopted
by the American authorities, measures the realiza-
tion of which, already commenced, brings an end
' For test of the decision, see Blixetin of Aug. 3, 1947.
p. 216. For Basic Initial Post-Surrender Directive to Su-
preme Commander for the Allied Powers for the Occupa-
tion and Control of Japan, see Documents and State
Papers of April 1948, p. 32.
586
to this lamentable incident, which has been re-
solved, as was to be expected, in the spirit of jus-
tice, good neighborliness and friendly cooperation
which has always governed relations between
Mexico and the United States.
I avail myself [etc.]
Rafael de La Colixa
Charge iVAifaires ad interim
U.S. Policy in Japan Founded on
FEC Basic Policy Decision
[Released to the press October 28]
With regard to the statement by the Soviet
Ambassador before the Far Eastern Commission
on October 28, which was given to the press, it
should be pointed out that General MacArthur, as
a top United States Commander, holds conferences
in Tokyo with high United States military officers
from time to time and these are purely routine
matters of sole concern to this Government.
With respect to the allegation that the former
Japanese naval base at Yokosuka is being con-
verted into a modern naval base, it may be stated
categorically that this is not true. This base has
beeifused from the beginning of the occupation by
the United States naval forces supporting the Su-
preme Commander for the Allied Powers m car-
rying out the objectives of the occupation— which
it is both necessary and proper for them to do.
Accordingly, the implication that the Far Eastern
Commission decision on the basic post-surrender
policy for Japan is being violated is wholly with-
out foundation.'
American National Red Cross Extends
Relief in Near East
[Released to the press October 24]
The American National Eed Cross has informed
the Department of State that it shares the con-
cern expressed by the Department for the health
and welfare of the victims of hostilities in the
Near East. Accordingly, the Red Cross has ap-
proved an extension of its disaster relief program
to help meet the present emergency in the Near
East. . , , •,
In addition to assistance which it has made avail-
able during recent months, the Red Cross will now
send to the Near East 3,000 blankets, 150,000 yards
of cotton cloth, 5,000 finished garments, 10,000
layette items, and 150,000 cakes of soap. On its
part the National Children's Fund of the Ameri-
can Junior Eed Cross will furnish 30,000 layette
items, educational supplies, and, contingent upon
subsequent determination of need, food for a chil-
dren's feeding program. This additional aid will
increase to approximately $700,000 the material
value of assistance which has been contributed by
the American Red Cross.
The American Red Cross has also announced its
Deparfmenf of Sfafe Bulletin
I
intention to fnrnish the services of three relief
experts to lielp observe the distribution of Ameri-
can Red Cross supplies and to coordinate Ameri-
can Red Cross activities with those of the League
of Red Cross Societies, the International Com-
mittee of the Red Cross, tlie United Nations, and
other orpanizations.
It is prepared also to consider additional re-
quests for relief supplies from its representatives
after they have arrived in the Near East and
have surveyeil tlie need for further assistance from
the American Red Cross.
THE DEPARTMENT
Functions of the Secretary of State in
National Election
[Released to the press October 29]
The Department of State on Monday, Novem-
ber 1, will take the first step in the series of duties
which fall to the Secretary of State in connection
with the election of President and Vice President.
Acting Secretary of State Robert A. Lovett will
send to the Governors of the 48 States a letter
outlining the procedvire laid down in the law for
the receipt and transmission by the Department
of Stat« to the Congress of certificates of the
appointment of the electors of the several states
and of the votes of the electors.
These ministerial duties are assigned to the
Secretary of State, who has been the channel for
communication between the Government of the
United States and the governments of the several
States on these Constitutional matters since the
law of March 1, 1792. The duties of the Secre-
tary of State have remained the same under vari-
ous revisions of the law, which in its present form
is Title 3. Chapter 1, of the United States Code,
enacted as recently as June 25, 1948.
The duties of the Secretary of State in con-
nection with the presidential election are to re-
ceive from the State authorities of those States
two certificates and to transmit them to the Con-
gress. These are :
1. Certificate of the appointment of electors of
President and Vice President from the executive
of each State as well as the list of all other candi-
dates for electors, with the number of votes re-
ceived by all of them. Copies of this certificate
will be transmitted to tlie Speaker of the House of
Representatives and the President j^ro tempore of
the Senate.
2. Certificate of the separate vote of electors of
each State for President and Vice President to be
taken on December 13. with the list of the electors
sent by the electors of each State. A copy of this
certificate is transmitted by the Secretary of State
to the President ]>ro tempore of the Senate, pend-
ing the joint session of the Congress to canvass
the vote on January 6, 1949.
November 7, ?948
The Secretary of State retains the original of
the certificate of the ascertainment of electors and
a copy of the vote of the electors as the official
public record for the National Archives.
PUBLICATIONS
Department of State
For sale hii the Superintendent of Documents, Government
Printiiif/ Offlee. Wiisltinyton 25, D. C. Address requests
direct to the Superintendent of Documents, except in the
ease of free publications, which may he otitained from the
Department of State.
Establishment of Diplomatic Relations With the Union
of Soviet Socialist Republics. European and British Com-
monwealth Series 2 (new series). Reprint. Pub. 528.
22 pp. 104.
A literal print of the documents.
UNESCO and You. International Organization and
Conference .Series IV ; United Nations Educational, Scien-
tific and Cultural Organiz<ation 4. Reprint. Pub. 2904.
41 pp. lo<t.
Questions and answers on the bow, what, and why
of your share in UNESCO, together with a six-point
program for Individual action. Revised as of March
1, 1W8.
The Foreign Service of the United States. Department
and Foreign Service Series 1. Reprint. Pub. 2991.
81 pp. 2a(f.
Educational preparation for Foreign Service Officers
and entrance examinations.
Financial and Economic Relations. Treaties and Other
International Acts Series 1757. Pub. 3221. 52 pp. 15<f.
Agreements and supjilementary exchanges of notes be-
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ington August 14, 1947; entered into force August
14, 1947.
Economic Cooperation With Norway Under Public Law
472 — 80th Congress. Treaties and Other International
Acts Series 1792. Pub. 3254. 53 pp. 15«S.
Agreement between the United States and Norway —
signed at Oslo July 3, 1948 ; entered into force July
3, 1048.
Documents & State Papers, September 1948. Vol. I. No.
0. Pub. 3284. G4 pp. 30(» a copy; $3, 12 issues.
A monthly periodical, supplementary to the Depart-
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activities of the State Department and the Foreign
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Diplomatic List. October 194S, Pub. 3310. 195 pp. 30«!
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Monthly list of foreign diplomatic representatives In
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World Confidence and the Reduction of Armed Forces:
The American Objective. International Organization and
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Remarks by Warren R. Austin, U. S. Delegate to the
Third Session of the General A.ssenibly, Paris, Octo-
ber 12, 1948.
587
The United Nations and Page
Specialized Agencies
U.S. Urges Acceptance of Draft Resolution
on Berlin Crisis. Statement by Philip C.
Jessup 572
U.N. Documeuts: A Selected Bibliography . 574
The U.S. in the U.N 575
General Policy
Position on Provisional Government of Israel.
Statement by the President 582
Brussels Proposals Not Received by U.S. . 583
The Struggle for Freedom in Greece. State-
ment by Henry F. Grady 584
Twenty-Fifth Anniversary of the Republic of
Turkey. Statement by the President . 585
Occupation Matters
Reparations Program in Western Zones of
Germany. Three Power Statement . . 584
U.S. Policy in Japan Founded on FEC Basic
Policy Decision 586
Economic Affairs
Sound International Trade Program: Its
Meaning for American Business. Ad-
dress by Paul H. Nitze 578
Economic Affairs — Continued Page
American National Red Cross Extends Relief
in Near East 586
Calendar of International Meetings . . 577
Treaty Information
Double Taxation Convention With Belgium
Signed 585
Steps Taken To Repatriate Mexican Workers.
Exchange of Notes Between the U.S. and
Mexico 585
International Information and
Cultural Affairs
The Voice of America. Article by Assistant
Secretary George V. Allen 567
The Department
Functions of the Secretary of State in Na-
tional Election 587
Publications
Department of State 587
N
>. s. oo>eiiiiEiiT Hiarma ofpicei ii48
tJAe/ ^ehoT^tT^te'yii/ /(w tnate^
ADOPTION OF ATOMIC ENERGY RESOLUTION •
Statement by Warren R. Austin ......••• 602
DISCUSSION OF GREEK PROBLEM • Statements by
John Foster Dulles 607
UNITED NATIONS ECONOMIC COOPERATION •
Article by Norman Burns ...•..••.•• 598
ORGANIZATION OF AMERICAN STATES %• Article
by George N. Monsma 591
For complete contents see back cover
Vol. XIX, No:
November 14, 1948
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November 14, 1948
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ORGANIZATION OF AMERICAN STATES
by George N. Monsnia
In the midst of the unsettled world conditions it
is heartening to remember that there is an associa-
tion of nations which has stood the test of almost
60 yeai-s of existence and today is stronger and more
virile than ever before. The Organization of
American States is the oldest organization of in-
dependent, sovereign nations in existence, although
it has been known by various names during these
years. The American Republics are a family of
nations, and, as in all families, there may be some
disagreements and misunderstandings from time
to time, but it is all in the family, and underneath
is the firm ground of family unity.
Before going further in a discussion of this sub-
ject, let us refresh our memories on the countries
comprising the Pan American family of nations.
Beginning with the United States and working
south, we have our neighbor, Mexico, which is the
only Latin American country having a common
border with us. Then the Central American coun-
tries — Guatemala, El Salvador, Honduras, Nica-
ragua, Costa Rica, and Panama. To the east, the
Caribbean countries — Cuba, Haiti, and the Do-
minican Republic. Moving south to the South
American Continent, we have along the north and
west coast Venezuela, Colombia, Ecuador, Peru,
and Chile. On the east are Brazil and Argentina,
with Uruguay and Paraguay in between, and Bo-
livia in the center of the continent.
Four languages are used in these 21 republics —
Portuguese in Brazil, French in Haiti, English in
the United States, and Spanish in the other
countries.
As the United States won its independence from
England under the leadership of George Wash-
ington, so the countries of Latin America gained
their independence from European powers under
such great leaders as Simon Bolivar and San
Martin.
United States Policy
It was early recognized in this country that the
interests of the American Republics are inexorably
tied together by geographic propinquity and com-
mon ideals, such as love of freedom and democratic
aspirations. The United States policy with re-
spect to the other American Republics has devel-
oped through the years in accordance with the ebb
and flow of national and international events of
history. The Monroe Doctrine of 1823 has been
a unilateral doctrine which says in effect that the
United States would consider it dangerous to its
security if European powers were to seize further
territory in or impose further jiolitical control over
any portions of this hemisphere. The Monroe Doc-
trine was a unilateral statement of United States
policy rather than an inter- American pronounce-
ment. The era of multilateral cooperative ar-
rangements between the American Republics such
as we have witnessed during the past 60 years
had not yet arrived.
The basic friendship between the nations of the
Americas weathered the frictions of our period of
"manifest destiny", when the United States was
expanded to the Pacific and when Texas and Cali-
fornia were added to the Union. This basic
friendship has survived in spite of the irritations
and frictions of the early part of the present cen-
tury, when the United States intervened from time
to time in the affairs of the other American
Republics.
The 1930's and 40's have been characterized by
November 14, 1948
591
an intensification and broadening of cooperation
with the other American Republics, with a result-
ant feeling of good neighborliness and good will.
Characteristics of the Inter-American System
If there is a key word for the inter-American
system, if there is a word that can summarize the
attributes of the system, that word is coopera-
tion — cooperation in all of our relations, political,
economic, and cultural. The inter- American sys-
tem possesses numerous characteristics, all of
which together form the pattern of cooperation.
One of these characteristics is solidarity. Inter-
American solidarity is revealed in numerous ways,
but perhaps in no sphere is it more strongly evi-
dent than in the field of common defense. In 1940
at the second meeting of Ministers of Foreign Af-
fairs, at Habana, when World War II had com-
menced in Europe, the American Republics agreed
that an attack by a non-American state upon an
American state would be considered an attack
against all the American Republics and that in the
event of such an attack, the American Republics
would consult, to agree upon measures that should
be taken. The month following Pearl Harbor, the
Foreign Ministers met in Rio de Janeiro to outline
cooperative measures, and the period of the war
was one of unprecedented cooperative activity
among the American Republics. The solidarity of
the otlier American Rejiublics in the matter of de-
fense was further implemented last year by the
signing of the treaty of Rio de Janeiro. In addi-
tion to enunciating the principle that an attack on
one of the American states is an attack on all, the
treaty provides that in case of an armed attack
by any state against one of the American states
within the geographic limits specified in the
treaty or within the territory of an American
state, the contracting parties are obligated to ren-
der immediate assistance, the nature of such assist-
ance to be determined by each state. The con-
tracting parties are also obligated to consult, in
order to determine what collective measures will
be required pf all. In the case of armed attacks
outside of the region defined in the treaty or out-
side the territory of the American Republics, and
in the case of aggression or situations that endan-
ger the peace of America anywhere in the world,
' Bulletin of Sept. 14, 1947, p. 505.
592
there is an obligation on the part of the contract-
ing parties to c.onsult for the purpose of deciding
which of the collective measures specified in the
Charter will be taken by all. Decisions on the
specified collective measures under the treaty will
be made by a vote of a two thirds majority and
will be binding on all states with the one excep-
tion that no state will be required to use armed
force without its consent.
The Rio treaty is a striking example pf the soli-
darity of the American Republics. Eleven nations
have already deposited their instruments of rati-
fication, and several others are now in the process
of ratifying the treaty. It is anticipated that the
necessary ratifications to bring the treaty into ef-
fect (two thirds of the signatory states) will be
deposited before long. The Rio treaty has been
characterized by Senator Vandenberg as ". . .
cheerful, encouraging and happy news in a cloudy,
war-weary world which is groping, amid constant
and multiple alarms, toward the hopes by which
men live. It is good for us. It is good for all our
neighbors. It is good for the world" .^
A second characteristic of the inter-American
system is the recognition and respect for the equal
sovereignty of each American nation. In inter-
American assemblies each country has one vote,
the small as well as the large. There is no attempt
of the larger nations to lord it over the smaller
ones. All members of the system are equally
sovereign.
Going hand in hand with the principle of equal
sovereignty is the principle of nonintervention,
which is a third characteristic of the inter- Amer-
ican system. The American Republics agreed at
Montevideo in 1933 that no state has the right to
intervene in the internal or external affairs of
another American Republic. The United States
scrupulously observes this commitment in its rela-
tions with the other American Republics. Inter-
vention has no place in a cooperative system, such
as the inter- American system.
Consultation is a fourth characteristic of the
system. The American Republics subscribe to the
principle that they should consult in regard to all
matters of mutual concern, and they have been
practicing such consultation for nearly 60 years on
an ever-increasing range of subjects. Consulta-
tion has had special significance in the inter- Amer-
ican system since 1936, when the principle of con-
Department of State Bulletin
sultation was given treaty form. Consultation
between sovereign equals is, of course, the very
antithesis of coercion by a powerful nation of
weaker neighbors.
A further characteristic of the system is the
desire of the American Republics to settle by
peaceful means any disputes which might arise
between them. The inter-American machinery
for peaceful settlement of disputes has its roots
in the Gondra treaty of 1923, which has been am-
plified and strengthened by subsequent agree-
ments.
The inter-American system places great em-
phasis on cooperation for the general welfare. It
is an accepted principle that cooperation among
all the states is necessary for the advancement and
Melfare of the peoples of the Americas. It is
important that there should be a satisfactory
standard of living in all the American Republics.
A standard of living compatible with the dignity
of human personality is imperative not only be-
cause of humanitarian considerations and socio-
logical principles but also because a community
or country which is constantly threatened by des-
titution and poverty becomes a fertile ground for
alien ideologies which may become a threat to the
security of the neighboring nations. On the other
hand, a community with a satisfactory standard
of living is the best insurance against the entrance
of totalitarianism; it is the best assurance of a
continuance of a democratic system.
The United States has cooperated whole-heart-
edly in such multilateral endeavors as the Pan
American Sanitary Bureau, which is the inter-
American health organization. It has also been
active in bilateral programs. Through the Insti-
tute of Inter- American Affairs, the United States
and other American Republics cooperate in health
and food-production programs. Through the In-
terdepartmental Committee on Scientific and Cixl-
tural Cooperation the United States cooperates
extensively in the scientific and technical field,
and in the exchange of students and specialists.
Cooperation among the American Republics for
the improvement of economic and social conditions
is a means for undergirding democracy in the
hemisphere.
A further characteristic of the inter-American
system is the support which it gives to the United
Nations as a regional arrangement under the
November 14, 1948
United Nations Charter. The United Nations
Charter provides that regional organizations shall
have a function in the peaceful settlement of dis-
putes and contemplates that regional arrange-
ments may have certain enforcement functions
under authority of the Security Council. The
American Republics are loyal in their support of
the world organization. They acknowledge that
cooperation between their American neighbors
does not preclude the necessity for cooperation on
a world-wide basis. At the same time, the Ameri-
can Republics recognize that world-wide coopera-
tion does not preclude the close and fruitful rela-
tionship which the American Republics have de-
veloped over the course of years. Very far from
being mutually exclusive, cooperation on a world-
wide basis and regional cooperation in the inter-
American system, supplement one another — the
regional cooperation giving support to world-
wide cooperation in the United Nations.
The American Republics have a long history of
cooperation in economic matters; in fact, the
present-day Pan American Union started as a com-
mercial bureau of the American Republics.
There is at present an Inter-American Economic
and Social Council. Economic cooperation has
its roots in economic interdependence. It is safe
to assume that the coffee you had for dinner today
was made from coffee grown in Brazil or one of
the other American Republics. Many other in-
stances of this kind could be mentioned. On the
other hand, many of the products of New Jersey
and other states of the Union find their way to
South America. Inter-American trade is impor-
tant to the American Republics. Many of the
other American Republics are in need of economic
development, for which they need tools and ma-
chinery. To purchase tools and machinery re-
quires foreign exchange. Problems of this kind
ai-e to be discussed at an Inter- American Economic
Conference in Buenos Aires in the spring of next
year.
Organization of the System
The characteristics of the inter-American sys-
tem find their expression in the organizational
set-up of the system. The agency with which
there is the greatest familiarity in the United
States is the Pan American Union. The Pan
American Union is the permanent organ of the
593
inter-American system which, of course, is far
more extensive than the Union itself.
The organization of the inter-American sys-
tem is depicted on the accompanying chart. The
title, "Organization of Ajnerican States", and the
subtitle, "The International Organization of the
21 American Republics established by the Charter
signed at the Ninth International Conference of
American States, Bogota, Colombia, 1948", appear
on this chart. Wliile the name, "Organization of
American States", was selected in Bogota in the
spring of this year, the organization or association
of American states itself dates back to the First
International Conference of American States held
in Washington in 1889-90. At this conference the
International Union of American Republics came
into being. The present Organization of Ameri-
can States is the lineal descendant, or perhaps it
would be more accurate to say, the reorganization
of the International Union of American Republics
of 1889-90.
One of the main purposes of the Bogota confer-
ence was to work on a reorganization of the inter-
American system. The system had experienced a
spontaneous growth from the days of its inception
and the need was quite generally felt for integi-a-
tion and coordination of the various inter- Ameri-
can organizations and agencies that had developed.
The Bogota conference prepared a charter for the
Organization of American States which provides
an integrated system for the various agencies of
the Organization.
The box at the top of the chart relates to the
Inter-American Conference. This is the supreme
organ of the Organization and decides the general
action and policies of the Organization. All mem-
ber states of the Organization are represented at
the Inter-American Conference and each state has
the right to one vote. The conference will meet
every five years in regular session ; however, spe-
cial sessions may be called with the approval of
two thirds of the governments. There have been
nine inter-American conferences of this type in
the past, beginning with the one in Washington
in 1889-90, the most recent one being at Bogota.
The straight line down from the Inter- Ameri-
can Conference leads to the Council of the Organi-
zation, which is the permanent executive body of
the Organization. The Council is composed of
one representative of each of the member states.
The Council meets at the Pan American Union
building in Washington at regular intervals — in
the past usually once a month, but in the future it
will probably meet twice a month. Many of the
countries are represented by a full-time represen-
tative, with the rank of Ambassador; others have
appointed their Ambassador to Washington to
serve as their representative on the Council. The
Council makes recommendations to the govern-
ments, to the Inter- American Conference, and to
the agencies of the system. It serves as a point of
coordination for the functioning of the whole sys-
tem, and promotes and facilitates collaboration
between the Organization of American States and
the United Nations and other international
agencies. ■
The straight line down from the Council of the
Organization, on the chart, leads to the Pan Ameri-
can Union. The picture in this box of the chart is
the Pan American Union building located on the {
corner of I7th Street and Constitution Avenue in '
Washington, D. C. Visitors in Washington find I
it very interesting and worthwhile to stop at the i
Pan American Union building and see the many
exhibits jjortraying the arts and industries of the
other American Republics, as well as the tropical
garden in the center of the building, and the beau-
tiful Hall of the Americas ; also the Council Room
where the Council of the Organization holds its
sessions and where the committees of the Council
meet.
The Pan American Union had its inception in
1890 when the First International Conference of
American States established it as the Commercial
Bureau of the American Republics. In 1910 its
name was changed to the Pan American Union.
The Pan American Union is the central and perma-
nent organ and general secretariat of the Organiza-
tion. As is indicated on the chart, it has five de-
partments — International Law and Organization,
Economic and Social Affaii's, Cultural Affairs, In-
formation, and Administrative Services. Through
these departments it promotes economic, social,
juridical, and cultural relations among the mem-
ber states. It also does preparatory work for in-
ter-American conferences and serves as secretariat
for the Council of the Organization and various
inter-American conferences. The work of the
Union has expanded to such an extent during the
years of its existence that it is using every avail-
594
Department of State Bulletin
ORGANIZATION OF AMERICAN STATES
The International Organization of the 21 American Republics established by the Charter
signed at the Ninth International Conference of American States, Bogotd, Colombia,l948.
TKE
INTER -AMERICAN CONFERENCE
Supremo Organ of the Organizotion
Decides generol action and policy
THE COUNCIL
OF THE ORGANIZATION
Permonent Executive Body ond
Provisionol Organ ot Consultation
INTER -AMERICAN
ECONOMIC
AND
SOCIAL COUNCIL
INTER-AMERICAN
COUNCIL
OF JURISTS
INTER-AMERICAN
JURIDICAL COMMITTEE
llllllllllllllllllllllllllllllllllllllll
lllllllilllilllllllllllllllll
THE
PAN AMERICAN UNION
General Secretariat
ot ttie Organization
DEPARTMENT OF INTERNATIONAL
LAW AND ORGANIZATION
DEPARTMENT OF ECONOMIC
AND SOCIAL AFFAIRS
DEPARTMENT OF
CULTURAL AFFAIRS
DEPARTMENT OF
IN FORMATION
DEPARTMENT OF
ADMINISTRATIVE SERVICES
INTER-AMERICAN
CU LTU R A L
COUNCIL
COM M ITTEE FOR
CULTURAL ACT ION
The Directors of these Departments ore the
Executive Secretaries ot the respective CowKJh.
November 14, 1948
(Courtesy of the Pan American Union)
595
able bit of space in the Pan American Union build-
ing, as well as extra space obtained in other build-
ings in Washington. It is in urgent need of the
additional building which is being constructed at
the present time on Constitution Avenue between
18th and 19th Streets, just across' the street from
its present building.
At the top of the chart and to the left, is a circle
for the Meeting of Consultation of Ministers of
Foreign Affairs. The Meeting of Foreign Minis-
ters considers problems of an urgent nature and
serves as the Organ of Consultation under the Rio
treaty. Any member state may request that a meet-
ing of consultation be called. When such a request
is made, the Council of the Organization decides
whether the meeting sliovdd be held. If an armed
attack occurs within the territory of an American
Republic or within the region specified in the Rio
treaty, the Chairman of the Council of the Organi-
zation must call a meeting of Foreign Ministers
immediately, at the same time calling a meeting of
the Council itself, which is to serve provisionally
as the Organ of Consultation.
Just below the circle on the chart for the Meet-
ing of Ministers of Foreign Affairs is a smaller
circle devoted to the Advisory Defense Committee.
The Advisory Defense Committee is composed of
the highest military authorities of the American
states participating in a Meeting of Foreign Min-
isters when it is acting as the Organ of Consulta-
tion. It is convoked under the same conditions as
the Organ of Consultation in order to advise the
Organ of Consultation on problems of military
cooperation that may arise in connection with the
application of treaties on collective security. The
Committee may also meet under certain other con-
ditions, for technical studies and reports on spe-
cific subjects.
On the right of the chart are also two circles —
the top circle, "Specialized Conferences", refers to
conferences of the American Republics which meet
to consider technical matters or to develop specific
aspects of inter-American cooperation. The eco-
nomic conference to be held in Buenos Aires next
spring is a conference of this type. These confer-
ences are called when the need for them is felt, or
pursuant to provisions in existing inter- American
agreements.
The smaller circle on the right deals with spe-
cialized organizations. These are inter-American
596
organizations which have been established by mu-
tual agreement and have functions with respect to
a given field of common interest to the American
states, such as health, transportation, commerce,
geography, and history. Agreements are to be en-
tered into between the Council and specialized or-
ganizations defining the relations that shall exist
between the respective agencies and the Organiza-
tion of American States.
On the lower part of the chart to either side of
the Pan American Union are boxes containing the
names of three Councils — The Inter-American
Economic and Social Council, the Inter- American
Council of Jurists, and the Inter-American Cul-
tural Council.
The first of these — the Inter-American Eco-
nomic and Social Council — is currently in exist-
ence and has been for several years. Its principal
purpose is the promotion of the economic and so-
cial welfare of the American nations through ef-
fective cooperation for the better utilization of
their natural resources, the development of their
agriculture, commerce, and industry, and the rais-
ing of the standards of living of their people. The
Inter-American Council of Jurists and the Inter-
American Cultural Council are new councils first
provided for in the chai'ter signed at Bogota, al-
though the Inter- American Juridical Committee,
the permanent committee of the Inter-American
Council of Jurists, is a continuation of the Juridi-
cal Committee which has been in existence for sev-
ei'al years in Rio de Janeiro. The Juridical Coun-
cil will serve as an advisory body on juridical
matters, will promote the development and codifi-
cation of international law, and will study the pos-
sibility of attaining uniformity in the legislation
of various American countries. The Cultural
Council will seek to promote free relations and
mutual understanding among the American peo-
ple in order to strengthen their educational,
scientific, and cultural ties and to promote and
coordinate activities in these fields. As in the
case of the Inter-American Economic and Social
Council, all of the American Republics will be
represented on the Juridical and Cultural Coun-
cils. The Council of the Organization has a com-
mittee at work at the present time which is
preparing for the actual establishment of the
Juridical and Cultural Councils.
The foregoing is a summary of the organization
of the inter-American system as contemplated by
Department of State Bulletin
the charter signed at Bogota. The charter is a
treat_v, and hence, will have to be ratified by the
Kepublic's in accordance with their respective con-
stitutional procedures. It will enter into force
among the ratifying states when two thirds of the
signatory states have deposited their ratifications.
However, since the charter is actually a reorgani-
zation of an existing system rather than a com-
pletel}^ new organization, and since all of the
American Republics signed the charter, the Bo-
gota conference felt that there was every reason
for placing the organizational set-up in eti'ect im-
mediately, so that the benefits of the reorganiza-
tion could be attained immediately, without hav-
ing to wait for the necessary 14 ratifications.
The Bogota conference, therefore, passed a reso-
lution which places the organizational set-up of
the charter in effect provisionally and also speci-
fies that the new organs provided for in the char-
ter shall be established on a provisional basis.
The inter- American system is a mighty bulwark
of solidarity in a turbulent world. Here equal
sovereignty is recognized, countries avoid inter-
vention in each other's internal affairs, but con-
sult on matters of mutual interest. Here we have
peaceful settlement of disputes and cooperation
for the general good. Such a system, such an or-
ganization of states, such a free community of
neighboring nations, is a tower of strength to the
United Nations and to the world.
Related Department of State Publications on the American Republics
The following publications may be secured from
the Superintendent of Documents, Government
Printing Office, Washington 25, D.C.
Report of Delegation of United States to Inter-
American Conference on Problems of War and
Peace, Mexico City, Feb. 21-Mar. 8, 19i5. Con-
ference Series 85. Pub. 2497. 1946. 371 pp.
550.
Report on the work of the Conference, with ap-
pendixes, including the Final Act of the Con-
ference and draft resolutions presented to the
Conference.
Cultural Centers in the Other American Repub-
lics. By Dorothy Greene and Sherly Goodman
Esman, Department of State. Inter-American
Series [30]. Pub. 2503. 1946. 20 pp. 50.
An explanation of activities and studies in the
cultural centers established in the American
republics by local groups and U.S. nationals.
Sharing "Know-How" — An Inter-American
Achievement. Foreign Affairs Outline No.
14. Inter-American Series 34. Pub. 2949.
1947. 4 pp. Free.
Development of inter-American bilateral scien-
tific and cultural cooperation during and after
the war, effected principally through the Inter-
departmental Committee on Scientific and Cul-
tural Cooperation and the Institute of Inter-
American Affairs.
Cooperation in the Americas: Report of the In-
terdepartmental Committee on Scientific and
Cultural Cooperation, July 1946-June 1947.
International Information and Cultural Series
1. Pub. 2971. 1948. 146 pp. 400.
November 14, 7948
A discussion of the cooperative scientific and
technical projects, the exchange of persons,
and other cultural interchanges between the
Americas.
Inter-American Conference for the Maintenance
of Continental Peace and Security, Quitan-
dinha, Brazil, Aug. 15-Sept. 2, 1947: Report
of the Delegation of the United States of Amer-
ica. International Organization and Confer-
ence Series II, American Republics 1. Pub.
3016. 1948. 225 pp. 400.
A discussion of all phases of the Inter- American
Conference for the Maintenance of Continental
Peace and Security, with ample documentation.
Sovereignty and Interdependence in the New
World : Comments on the Inter- American Sys-
tem. Inter-American Series 35. Pub. 3054.
1948. 32 pp. Free.
An article by William Sanders describing vari-
ous phases of inter- American cooperation as it
has developed during the past 60 years.
Address by the Secretary of State Before the
Second Plenary Session of the Ninth Interna-
tional Conference of American States, Bogota,
Colombia, Apr. 1, 1948. International Organi-
zation and Conference Series II, American Re-
publics 2. Pub. 3139. 1948. 14 pp. Free.
Presenting the U.S. point of view on inter-
American cooperation and organization.
Significance of the Institute of Inter-American
Affairs in the Conduct of U.S. Foreign Policy.
Inter-American Series 36. Pub. 3239. 1948.
19 pp. 150.
A series of articles by Louis J. Halle, Jr., on
inter- American cooperation under the Institute
with emphasis on the fields of agriculture, educa-
tion, and health.
597
UNITED NATIONS ECONOIVIIC COOPERATION
by Norman Burns
Adviser, Office of International Trade Policy
In the midst of World War II, a commission of
the Federal Council of Churches proposed six pre-
requisites of "a just and durable peace". One of
those proposals relates directly to United Nations
economic cooperation. It reads as follows :
"The peace must make provision for bringing
within the scope of international agreement those
economic and financial acts of national govern-
ments which have widespread international re-
percussions."
The commission exjjlained its proposal in a brief
comment :
"Science", it said, "has made it possible for the
world to sustain a far greater population than was
formerly the case and to attain for that population
a high standard of living. But this involves a
large degree of transportation and interchange be-
tween one nation and another. Thus all people
are subject to grave risk, so long as any single gov-
ernment may, by unilateral action, disrupt the flow
of world trade. This is a form of anarchy that
creates widespread insecurity and breeds disorder.
It prompts nations to seek self-sufficiency for
themselves at the expense of others. We do not
here envisage, as presently practical, a condition
of 'free trade'. But the world does require that
the areas of economic interdependence be dealt
with in the interest of all concerned and that there
be international organization to promote this end."
Need for International Economic Cooperation
This trend of thought motivated the creation of
a postwar structure of international economic co-
operation. Thoughtful people had become con-
vinced of the economic interdependence of the
various countries. They had seen from their own
experience how unilateral action by each coinitry,
without adequate regard to the effect of its action
on other countries, had led to economic warfare
that "dried up" international trade in the 1920's
598
and 1930's. They had seen how the mishandling of
the world's economic problems in the interwar
years had created political instability that ren-
dered more difficult the task of maintaining the
peace. They knew that World War II had dis-
rupted world economic life far more than had the
first woi'ld war. The second world war had
lasted for a longer period of time and had de-
stroyed more life and more property over a wider
area of the globe than any previous war. Many
people realized that if our kind of world was to
survive this holocaust, the various countries would
have to cooperate in political and economic mat-
ters to achieve economic recovery as quickly as
possible.
Postwar Progress
Within the short space of three years, the United
Nations have created an operating mechanism for
international economic cooperation — something
they had not been able to do after the first world
war. At times the obstacles seemed almost insup-
erable. Yet when we consider the situation today
in relation to 1945, the accomplishment seems very
great indeed. Within three years after the first
world Mar, the United States experienced the se-
vere depression of 1921; and famine stalked
through many foreign lands. Today the United
States industrial production is two thirds above
that of prewar years ; agricultural jDroduction, one
third above. Canadian and Latin American pro-
duction is substantially higher than before the
war. By the end of 1947, nearly all the European
countries (except Germany) had reached or ex-
ceeded their prewar industrial output, according
to the latest annual report of the International
Fund. Western Germany's industrial output is
now 70 percent of the prewar level. Exports from
the 16 Western European countries iDarticipating
in the European Recovery Progi'am were 30 per-
cent greater in volume in 1947 than in 1946, and
the 1947 volume was only 10 to 15 percent less than
Department of State Bulletin
in 1938. The bread-grain production of Western
Europe in 1948 was about 12 percent below the
1938 vohime, according to the United States De-
partment of Agriculture.
The fact that emerges from these broad com-
parisons is that after the most devastating of all
wars and in the face of determined Communist
attempts to prolong the disruption of war-torn
countries, the non-Communist world had made
gi'eat strides toward economic recovery. The ma-
jor reason for the success thus far achieved lies in
the determination of the non-Communist world to
follow a course of international economic coopera-
tion. The United States has contributed in full
measure to such cooperation. Without United Na-
tions cooperation and United States assistance,
such recovery would not have been possible.
Instruments of U.N. Economic Cooperation
The United Nations economic structure consists
of the Economic and Social Council and the spe-
cialized agencies. The Economic and Social Coun-
cil serves as a forum for the discussion of all eco-
nomic and social matters pertinent to economic
stability and well-being as a basis for peace. It is
composed of 18 Member Countries elected by the
General Assembly for three-year terms. It has
been meeting twice a year (seven meetings to
date) , and its next meeting will be at Lake Success
in February 1949. The United States Representa-
tive on the Council is Willard L. Thorp, Assistant
Secretarj^ of State for economic affairs.
The authority of the Economic and Social Coun-
cil is confined to consultation, discussion, and rec-
ommendation; it has no coercive power. It may
make recommendations, on the basis of majority
vote, to the General Assembly, Member Govern-
ments, the specialized agencies, and, under certain
conditions, to the Security Council. It may con-
sider any kind of economic or social question
brought before it by Governments Members of the
United Nations, or, in certain cases, by nongovern-
mental organizations which have consultative
status with the Economic and Social Council. It
may deal with regional economic problems. It has
called conferences to deal with the conservation of
natural resources, freedom of the press, and the
establishment of the World Health Organization.
Its resolution of February 1946 proposed the call-
ing of an international trade conference to reduce
world-trade barriers and to expand world trade.
This resolution led to the 23-nation General Agi'ee-
ment on Tariffs and Trade, negotiated at Geneva
last year, and to the Havana Charter for an Inter-
national Trade Organization. The Economic and
Social Council is responsible, also, for coordinat-
ing the activities of specialized economic organi-
zations, such as the International Bank, the Inter-
national Fund, the Food and Agriculture Organi-
zation, the International Labor Organization, and
the proposed International Trade Organization.
The International Bank was created in 1945 to
make long-term loans for the reconstruction and
development of member countries. Its total capi-
tal amounts to 8,286 million dollars ; its resources
in terms of gold, dollars, and United States bonds
amount to one billion dollars. It has granted re-
construction loans amomiting to 525 million dol-
lars to France, the Netherlands, Denmark, Lux-
embourg, and Chile. According to a recent press
statement by John J. McCloy, president of the
Bank, the Bank may make further loans up to
478 million dollars within the next six months.
Securities have been sold in the United States
amounting to 250 million dollars, and Mr. McCloy
said that further issues are contemplated. Bank
securities are legally authorized investments for
institutional investors for all national banks, for
commercial banks in 41 States, for savings banks,
and insurance companies in 22 States, and for trust
funds in 28 States.
The International Monetary Fund, a sister or-
ganization of the Bank, was established to reduce
wide fluctuations in exchange rates between dif-
ferent currencies. It advises member countries
in the establishment of exchange rates; it serves
as a continuous forum for consultation on such
problems; it sends technical missions to member
countries, at their request, to help them put their
fiscal affairs in order; and it buys and sells for-
eign exchange. In the period from July 1, 1947,
to April 30, 1948, it bought 544 million dollars of
foreign currencies. Voting power in the Bank and
the Fund is based primarily upon the country's
participating capital. The United States has
33.65 percent of the Bank votes and 30.62 percent
of the Fund votes. The latest annual reports of
the Bank and the Fund contain excellent surveys
of the present world economic situation.
The Food and Agriculture Organization and the
November 14, 1948
599
International Labor Organization have special-
ized economic functions. The former makes rec-
ommendations on world supplies and requirements
of foodstuffs, the latter on world labor conditions.
Like the Bank and the Fund, each has a member-
ship of ajjproximately 50 countries. The Soviet
Union is not at present a member of any of these
agencies except the Economic and Social Council,
where it usually opposes the economic programs
of the non-Communist world. Finland, Poland,
Czechoslovakia, and Yugoslavia are members of
most of the specialized agencies.
The United Nations economic structure is now
virtually complete except for the establishment of
the proposed International Trade Organization.
During the Habana conference last spring, repre-
sentatives of 54 nations agreed upon a draft Char-
ter for an International Trade Organization.
This Charter will be submitted to the legislatures
of the various countries for ratification. It will
be submitted to the United States Congress prob-
ably early next year.
The Charter does two things: it establishes a
code ,of fair-trade rules that countries voluntarily
agree to follow in their trade with each other ; it
proposes an organization to implement the rules
of fair trade and to serve as a forum for the settle-
ment of trade disputes between members. The
Charter seeks to avoid the kind of economic war-
fare between countries that limited world trade in
the 1920's and 1930's.
The United States has actively sponsored this
project, through five years of international dis-
cussions and conferences, for the reason voiced m
the resolution of the Federal Council of Churches,
namely, that when governments are free to take
unilateral action to disrupt the flow of world trade,
the inevitable result is "anarchy that creates wide-
spread insecurity". Cordell Hull, then Congress-
man from Tennessee, proposed the creation of such
an organization during the first world war. His
resolution in the House of Representatives, April
23, 1917, proposed a "permanent international
trade agreement congress" to consider "all inter-
national trade methods, practices, and policies
which in their effects are reasonably calculated to
create dangerous and destructive commercial con-
troversies or bitter economic wars" and "to formu-
late treaty arrangements with respect thereto, de-
signed to eliminate, prevent, and avoid the inju-
rious results and dangerous possibilities of eco-
nomic warfare . . . ".
The Charter rules cover the whole range of in-
ternational trade relationships: tariffs, quotas,
subsidies, foreign exchange, customs formalities,
cartels, commodity agreements, nondiscrimina-
tion, and the international aspects of foreign in-
vestment, employment, and economic develop-
ment.
The basic principles of the Charter are simple.
Countries voluntarily agree t.o follow certain fair
rules of trade. If countries desire to take certain
actions, they must consult with each other. The
Charter rules represent commitments by govern-
ments to refrain from various governmental ac-
tions which they are now at full liberty to take,
that interfere with private trade. Thus the Char-
ter gives greater scope for the development of
trade on the basis of competitive rather than po-
litical considerations. This favors private enter-
prise.
One basic princii^le of the Charter is that coun-
tries should negotiate for the reciprocal reduction
of world-trade barriers. Substantial progress has
already been accomplished under the 23-nation
General Agreement on Tariffs and Trade nego-
tiated at Geneva last year. Under this agreement,
the 23 countries reduced tariff rates on some items
and bound tariff rates against increase on other
items for products accounting for over one half of
the world's total foreign trade. This was the most
comjDrehensive attempt ever undertaken to reduce
world-trade barriers. The general agreement is
already in effect for all the 23 countries except
Chile; it includes the United States, the British
EmjDire countries, France, Belgium, the Nether-
lands, China, and certain Latin American coun-
tries. Next Ajaril 11 more countries (Sweden,
Deninark, Finland, Italy, Greece, Peru, Uruguay,
Dominican Republic, Haiti, El Salvador, and Nica-
ragua) will negotiate with each other and with the
23 nations of the General Agreement for a fur-
ther reduction of world-trade barriers. The
United States will conduct its negotiations in ac-
cordance with the usual Reciprocal Trade Agree-
ments Act. The Soviet Union, although invited,
did not participate in either the trade agreement
or the Charter negotiations. The Soviet Union
has opposed the Charter. Mr. Arutiunian, speak-
ing for the Soviet Union before the Economic and
Social Council, August 11, 1948, claimed that the
600
Department of State Bulletin
International Trade Organization would "exert
pressure on countries practicing state-controlled
trade" and that it would "contribute to the domi-
nation by the U. S. A. of world markets".
The European Recovery Program is not an in-
tegral part of the United Nations structure, but it
complements United Nations economic coopera-
tion. The basic i-eason for the European Recovery
Program was that Western Europe, as a result of
war-dislocations, was unable to support itself. In
19-47, for example. Western Europe's dollar deficit
on current account upon the Western Hemisphere
amounted to 8 billion dollars, according to the In-
ternational Fund. The choice was either for the
United States to extend aid to help Europe restore
its economy quickly or for Europe to restrict its
imports to its means of payment. The latter
meant restriction of European consumption to a
point that would be perilous to the economic and
political stability of Western Europe. The United
States Congress, following a bipartisan policy,
voted 5 billion dollars for the European Recovery
Program in the 12- to 15-month period beginning
April 1948; one half of this amount has already
been authorized for procurement. Paul Hoffman,
Administrator of the progi-am, says that further
assistance will be needed until the summer of 1952,
at which time Western Europe will be on a self-
sustaining basis. But there is an "if" — if world
trading conditions are such as to permit an expan-
sion of world trade.
It is because of this "if" that the ultimate suc-
cess of the European Recovery Program is closely
associated with the United States trade program.
Europe cannot support itself without a flourishing
world trade, because the European economy is
built upon the procurement of raw materials in
some countries and the sale of manufactured prod-
ucts in other countries. The United States Con-
gress recognized this basic situation in the "Eco-
nomic Cooperation Act of 1948", which created the
European Recovery Program, when it required
under the act (section 115) that the United States
cooperate "with other participating countries in
facilitating and stimulating an increasing inter-
change of goods and services among the partici-
pating countries and with other countries and co-
operating to reduce barriers to trade among them-
selves and with other countries".
The International Bank, in its latest annual
report, also emphasizes that in the long run Euro-
November 14, J 948
pean recovery depends upon a large world trade.
It says in this respect :
"Unless the markets for European products can
be broadened and greater freedom of intra-Euro-
pean trade can be attained, the hope for ultimate
European recovery will be dimmed and the oppor-
tunity afforded by Erp will be lost. Trade bar-
riers in whatever form tend to breed productive
inefficiency. They enable inefficient and uneco-
nomic enterprises to survive and prevent efficient
producers from reaching the markets they need
to improve their efficiency and increase their pro-
duction."
Thus the Habana Charter for an International
Trade Organization and the world trade barrier
reduction program of the United States Govern-
ment — ^both of which are instruments to expand
world trade — complement the European Recovery
Program. The recovery progi-am is intended to
put Europe on its feet as quickly as possible; the
United States trade program and the Charter are
intended to establish trade conditions that will
enable Europe to stay on its feet after American
emergency financial aid comes to an end.
Conclusions
United Nations economic cooperation is now a
living reality. It is already functioning as re-
gards the non-Communist world. The United
States has contributed in full measure toward that
recovery, at great cost to the finances and resources
of this country. We did so because we knew that
with our support, the postwar world might re-
cover; without it, no one knew what the future
might hold forth. The real issue was faith in a
way of life.
The path of United Nations economic coopera-
tion has not been easy. One keystone in the struc-
ture — the International Trade Organization — has
not yet been established. In the United Nations
structure, precisely the same as in national govern-
ments, organizations tend to overlap each other.
In the United Nations structure, precisely as in
national governments, some people and some coun-
tries are more interested in words than in deeds.
In the United Nations negotiations, as in national
governments, there are conflicts and differences of
opinion. It is not always easy to make such or-
ganizations work effectively. The United Na-
tions economic organizations can work only if the
601
Member Governments want them to work. The
United Nations organizations were confronted
with postwar economic problems of appalling
magnitude. Communist strategy has been to pro-
long and aggravate these problems.
The problem of the future concerns the relation
of the democratic and the Communist world. In
this situation there are "pluses" for the democra-
cies. Partly as a by-product of the United Nations
activity, public opinion in each country under-
stands more clearly than ever before the nature
of the world's economic and political problems.
This is a plus in the balance. Another plus is
that the democratic countries, notwitlistanding all
difficulties, have shown that they can work to-
gether; they have actually achieved tremendous
progress toward world recovery. Another plus
is American leadership, which, in the future as in
the past, will count heavily in the balance of world
affairs.
THE UNITED NATIONS AND SPECIALIZED AGENCIES
Adoption of Atomic Energy Resolution
STATEMENT BY WARREN R. AUSTIN >
U.S. Delegate to the General Assembly
We have before us the resolution on atomic en-
ergy ^ adopted by more than a two-thirds vote at
the 165th meeting of the first committee on Octo-
ber 20, 1948.
The resolution approves the general findings
and recommendations of the first i-eport, and the
specific proposals of Part II of the second report
of the Atomic Energy Commission, as constitut-
ing the necessary basis for the control of atomic
energy to insure its use only for peaceful purposes,
and for the elimination from national armaments
of atomic weapons, in accordance with the tenus
of reference of the Atomic Energy Commission.
It requests the six powers who were the sponsors,
on the General Assembly, of the resolution which
resulted in setting up the Atomic Energy Commis-
sion, to consult in order to determine if there ex-
ists a basis for agreement. Meanwhile, it calls
upon the Atomic Energy Commission to resume
its sessions and to proceed with the further study
of such of the subjects remaining in its program
of work as it considers to be practicable and useful.
The United States voted for this resolution in
' Made before the Plenary Session of the General As-
sembly in Paris on Nov. 3, 1948, and released to the press
on the same date.
' See p. 606.
» BULLETIN of Oct. 31, 1948, p. 539.
602
Committee I.^ It will vote for it in this plenary
session. In doing so, it is carrying out the commit-
ment which it made to turn over its atomic weap-
ons, its plants, and all its knowledge in this field,
to an international agency in order that atomic
weapons might be forever prohibited, and that
peaceful uses of atomic energy might be success-
fully developed. To this commitment, it attached
only one condition, namely: that a system of safe-
guards should be set up, such that, when the
United States disposed of its atomic weapons, it
would not be possible for any other nation to make
or use atomic energy for destructive purposes.
We believe that the general principles and spe-
cific proposals of the Atomic Energy Commission,
which have been developed after long discussion,
and with such painstaking care, meet this condi-
tion. Many alternatives have been considered but
none has been found which would contain equal
guaranty of security to all nations.
In this matter, the interest of the United States
is no different from the interest of any other coun-
try. Any weakness in the plan of control which
would allow a possibility of a new threat of atomic
weapons anywhere in the world after the sign-
ing of the treaty, would be disastrous to peace and
security. There is no nation, great or small, which
would be willing to envisage such a possibility.
Department of State Bulletin
We firmly believe that the Soviet Union, when it
has fully coiisitlered all aspects of this situation,
and is read}* to enter into a treaty for control and
prohibition, will demand, as do all other nations, a
phin wliich embodies every possible safeguard.
When that time comes, it seems likely that the
Soviet Union Mill itself insist on the safeguards
embodied in this very plan, which they now so
bitterly oppose.
The resolution before us also calls upon the six
sponsors of the General Assembly resolution of
January 24, 194('>,' who are the permanent members
of the Atomic Energy Commission, to meet to-
gether and consult in order to determine if there
exists a basis for agi-eement on the international
control of atomic energy to insure its use only for
peaceful purposes, and for the elimination from
national armaments of atomic weapons. The
United States shares the view of the majority of
the nations members of the Atomic Energy Com-
mission, as expressed in the Commission's third
report,' that such consultations are necessary. The
impasse in the Atomic Energy Commission is
basically due, not to differences in the technical
details of the plan, but to the refusal of the Soviet
Union to accept, in the words of the third report:
"The nature and extent of participation in the
world community required of all nations in this
field." It is the desire of the United States that
these consultations should be at a high level and
principally concerned with the cause of the Soviet
Union's finding itself at present unwilling or un-
able to take a cooperative part with other nations
in the necessary measures for the maintenance of
peace.
We do not assume that at the very first con-
sultation the great difficulties which separate the
Soviet Union from the countries of the Western
world will be immediately resolved. But we be-
lieve that the time is appropriate for consulta-
tion on these matters. We do very seriously hope
that quiet and mature discussion in an atmosphere
of intelligent deliberation may make for progi'ess
in mutual understanding, and pave the way for
ultimate solutiojis. We believe that the terrible
problem of atomic energy would provide a frame-
work which would keep constantly before the con-
sulting powers the urgent necessity for agreement
on measures which would resolve present difficid-
ties, and which would lift from the hearts of na-
tions the overshadowing fear of atomic warfare.
As an additional step towards attaining this
great objective, the General Assembly in this reso-
lution calls upon the Atomic Energy Commission
to resume its sessions, to survey its program of
work, and to proceed to the further study of such
of the subjects remaining in the progi'am of work
as it considers to be practicable and useful.
After the experience of the past two years in the
Atomic Energy Commission, the United States had
November 74, 7948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
about reached the conclusion that no further con-
crete advance could be made in the Atomic Energy
Connnission itself until some agreement had been
reached on the basic barriers to immediate accept-
ance of a plan of prohibition coupled with effec-
tive control. The attitude of the United States in
this respect was shared by the nine majority mem-
bers of the Atomic Energy Commission when they
voted for the third report. However, in the debate
in Committee I, the Delegates of Syria, of Aus-
tralia, and of India urged that the work of the
Commission be continued in one or another form.
This feeling was expressed by many other dele-
gates, and the United States concurred. We say
now to the General Assembly that we loyally par-
ticipate in the request it is making upon the
Atomic Energy Commission to resume its sessions,
that we will earnestly proceed to the survey of the
program of work of the Commission, and to the
further study of such of the subjects remaining in
the program of work as the Commission, in its dis-
cretion, considers to be practicable and useful.
The United States will do its share to carry out
this mandate of the General Assembly in such a
way as to advance, by every possible means,
toward our common goal of control, and elimina-
tion from national armaments, of this dangerous
weapon.
In making this promise, we are continuing a
policy to which the people of the United States
have been committed since the beginning of the
Atomic Age. On October 27, 1945, the President
of the United States, in his Navy Day address, re-
affirmed the fundamentals of the United States
foreign policy in the new frame of reference of the
atomic bomb. In effect, he told the world that we
hold the bomb and our knowledge of atomic energy
as a "sacred trust", and that in no way did our
possession of such a weapon constitute a threat to
any nation, or make a departure from our basic
foreign policy.
By the end of the first year of the Atomic Age,
the United States had initiated action that :
Led to the creation of the mechanisms for inter-
national consideration of atomic controls;
Devised a detailed plan for the world control of
nuclear energy under an International Atomic De-
velopment Authority representing all of the
United Nations;
Adopted by Act of Congress a strict national
control of all fissionable materials under a civilian
commission ;
Released radioactive materials (isotopes) for
medical, biologic, and scientific research, and
Through its representative to the newly created
' Bulletin of Feb. 10, 1940. p. 198.
' Department of State publication 3179.
603
THE UNITED NATIONS AND SPBCIAUZED AGENCIES
United Nations Atomic Energy Commission had
proposed a plan for the international control of
atomic energy.
A notable part of this record is the public policy
declared in the Atomic Energy Act of lOie.*^
That carefully considered legislation primarily
relates to domestic control. However, in the
evolution of policy declared by that act the mag-
nitude and complexity of the task to be met in
international planning and intergovernmental
collaboration, was discovered. Therefore, both
national and international policies of atomic-
energy control were brought close together in the
technical study and political discussion which re-
sulted in the Act. Consequently, we find that this
law, devoted to domestic administration, provided,
in part, in the very first section :
Purpose of Act. It is the purpose of this act to effec-
tuate the policies set out in Section 1. (a) By providing,
among others, for the following major programs relating
to atomic energy.
(2) A program for the control of scientific and tech-
nical information which will permit the dissemination of
such information to encourage scientific progress, and
for the sharing on a reciprocal basis of information con-
cerning the practical industrial application of atomic
energy as soon as effective and enforceable safeguards
against its use for destructive purposes can be devised,
(5) A program of administration which will be con-
sistent with the foregoing policies and with international
arrangements made by the United States, and which will
enable the Congress to be currently informed so as to take
further legislative action as may hereafter be appropriate.
In Section 8 of the same act we find this p^o-
vision :
Any provision of this Act or any action of the Commission
to the extent that it conflicts with the provisions of any
international arrangement made after the date of enact-
ment of this Act shall be deemed to be of no further
force or effect.
In the performance of its functions under this Act, the
Commission shall give maximum elfect to the policies
contained in any such international arrangement.
The declarations of the Atomic Energy Act of
1946 show clearly the intentions of the American
people with respect to the relationship between
domestic and international control of atomic
energy.
More recently, on June 11, 1948, the Senate of
the United States set forth as one of the objec-
tives which the United States Government is par-
ticularly to pursue, the following :
"Maximum efforts to obtain agreement among
member nations upon universal regulation and
reduction of armaments under adequate and de-
pendable guaranty against violations."
International control of atomic energy was con-
sidered "the immediately crucial aspect of the
entire problem of armaments".
' S. Rept. 1211, 79th Cong, (the McMahon bill).
604
These declarations are important because they
represent the will of the American people ex-
pressed by the Congress elected by them. They
provide a clear and continuing mandate for the
carrying out of American policy as established by
the people.
In this brief sketch of early policy development
the General Assembly may perceive the relation
to world safety of the principles and policies con-
tained in the proposed resolution.
In the first meeting of the Atomic Energy Com-
mission, the United States suggested certain prin-
ciples which might be used by the Commission as
a basis for its studies. . During the almost three
years which have followed, other nations have
made important contributions to these principles.
Notably, there have been contributed the pro-
posal that quotas representing the proportion of
nuclear fuel which would be assigned to each na-
tion for peaceful purposes, should be written into
the treaty, and not left to the arbitrary decisions
of the international agency; and, further, the
principle that upon the signing of the treaty, pro-
duction of nuclear fuel should be kept to a mini-
mum necessitated by actual beneficial uses. These
new principles were accepted by the United States,
the first, because it dispelled the charge that the
international agency would be armed with arbi-
trary powers by which it might interfere with the
economic life of other nations, and the second, be-
cause it enormously increases the security of the
world during that considerable period of time
which may elapse before atomic energy finds its
proper place in the world economy for the produc-
tion of power.
The debate in the first committee was concerned
almost entirely with the removal of the threat of
atomic war. We feel that the debate on this reso-
lution would not be complete unless the Assem-
bly gives consideration to the other vital purpose
laid down by the General Assembly in giving the
Atomic Energy Commission its terms of reference,
namely, the development of atomic energy for
peaceful purposes.
The products of nuclear fission can be employed
in nondangerous quantities over a wide range of
scientific activities, from which we may hope for
considerable benefits to mankind. Indeed, benefits
of this sort are already being attained, in part
through the distribution by the United States of
isotopes produced in its plants and laboratories
and made available to all nations who are willing
to publish the results of their work. But the great
field of advance lies in the possibility that large,
and, thus unfortunately, dangerous quantities of
nuclear fuel may be used to produce electricity for
power, and thus open a new era of well-being to
vast numbers of people to whom other power re-
sources are not available. Scientists tell us that
it may take from 10 to 50 years before power from
Deparfment of Sfate BuUefin
nuclear fission can be produced on a basis to com-
jjete, even in a remote region with power produced
from other fuels. The length of time which will
be required for this great peacetime achievement
of science will depend, to a large degree, upon the
free world-wide exchange of information in this
field.
At the present time, progress is being made
slowly by individual nations, limited in their re-
sources and forced to throw over their work a veil
of secrecy which prevents their receiving the help
of scientists from other countries.
Under the proposals now put forward by the
United Nations Atomic Energy Commission,
which are before you for approval, this situation
would be very rapidly improved.
In the plan of the Commission, it is proposed
that scientific research with nondangerous quan-
tities of atomic materials would be carried on
under license in national and private laboratories.
The atomic materials used or produced would be
owned by the agency. The purpose of the license
would be to insure that dangerous quantities were
not involved, that atomic weapons were not devel-
oped, and that all information on the research
and its results were immediately reported to the
agency so that it could be freely interchanged and
made public. There would be no other restrictions
on scientific research with nondangerous quan-
tities of material.
Thus, research in beneficial uses would not be
confined to agency laboratories. The conduct of
such research by nations and individuals would be
promoted and encouraged by the agency which
would be authorized to make available personnel,
materials, facilities, and funds for these purposes.
By such assistance and by publishing all informa-
tion relating to atomic energy the agency would
facilitate international cooperation among scien-
tists and would give an immediate and enormous
impetus to scientific research.
After the establishment of international control,
important peaceful benefits of atomic energy
would be available to all participating nations.
The most immediate of these beneficial applica-
tions is in the field of biology and medicine. A
possible future application is in the development
of atomic power. There are many scientific, tech-
nical, and engineering problems to be solved before
atomic power can become a practical reality.
There are also questions of economic feasibility
which need to be answered. To solve these prob-
lems and answer these questions, the international
agency would promote i-esearch and development
on atomic power in its own laboratories and in
national and private laboratories.
Whenever experimental work on power under-
taken by a nation reaches a point at which further
development would require the use of atomic mate-
rials in dangerous quantities, the agency itself
unequivocal terms. The General Assembly now
November 14, 1948
THE UNITED NATIONS AND SPBCIAUZBD AGENCIES
would take over such a development in cooperation
and agreement with the nation concerned, and
carry forward the work provided the agency
deemed it to be consistent with the general require-
ments of security. Experimental or pilot plants
would be set up, owned and operated by the agency
in several countries, and the experimental and de-
velopment work done in those plants would be
carried on with the help of scientists and engineers
from many countries. All of the results of such
experimental developments would be freely cir-
culated and published. There would thus be every
prospect for an enormous acceleration of this im-
portant work which holds so much hope for man-
kind.
When and if the time comes that atomic energy
can be used to produce power on an economical
basis, the international agency would, subject to
the requirements of security, make such power
available at the request of any nation ready to
enter into appropriate agreements. Thus all na-
tions, with the minimum of interference in their
economic affaii-s, would enjoy the benefits and the
positive advantages that would arise from the co-
operative development of atomic energy and the
sharing of information, facilities, and personnel.
We know of no way other than the method of
an international agency as now proposed, by which
mankind could hope so soon to derive these full
and important peacetime benefits. Until such a
plan is adopted, the secrecy required to protect not
one nation but all nations against the clandestine
acquisition and ownership of atomic weapons will
remain. This secrecy inevitably acts as a delaying
factor in the advance towards the constructive use
of atomic energy.
We have touched on this matter here because
while this plan and proposal of the Atomic Energy
Commission has as its negative side the necessity of
controlling atomic weapons and prohibiting their
use, it has on its positive side a great constructive
purpose which can be fully attained in no other
way.
Since August 8, 1945, the United States has con-
sistently maintained the view that atomic weapons
must be removed from national armaments. For
over three years, the United States has worked
toward that end. This has been, and still remains,
our consistent purpose. Our offer still stands.
The United Nations Atomic Energy Commission
has labored arduously to set forth in a single plan
those two great objectives of the General Assem-
bly, which were laid down in the terms of reference
to the Commission.
We believe that the General Assembly is now at
the point of taking a critical step towards the im-
plementation of the work of the Commission.
^Miat is needed is that the mandate of the Gen-
eral Assembly should be expressed in clear and
605
THE UNITBD NATIONS AND SPECIALIZBD AGENCIES
unequivocal terms. The General Assembly has an
opportunity to approve this resolution by the
vote of an overwhelming majority of its members.
In doing so, the Assembly would add to the opin-
ion of its Atomic Energy Commission the moral
power of its carefully considered judgment. It
would provide a new lever by which new forces
of cooperation could be activated. It would stim-
ulate the faith of uncounted millions of anxious
Ijeople that the United Nations can and will per-
severe, however complex the differences, to the
pacific solution.
Resolution on Reports of the Atomic Energy Commission ^
The General Assembly,
Having examined the first, second and third
reports of the Atomic Energy Commission which
have been transmitted to it by the Security Council
in accordance with the terms of General Assembly
resolution 1 (I) of 24 January 1946,
1. Approves the General Findings (part II C)
and Eecommendations (part III) of the first re-
port and the Specific Proposals of part II of the
second report of the Commission as constituting
the necessary basis for establishing an effective sys-
tem of international control of atomic energy to
ensure its use only for peaceful purposes and for
the elimination from national armaments of
atomic weapons in accordance with the terms of
reference of the Atomic Energy Commission ;
2. Expresses its deep concern at the impasse
which has been reached in the work of the Atomic
Energy Commission as shown in its third report
and regrets that unanimous agreement has not yet
been reached ;
3. Requests the six sponsors of the General As-
sembly resolution of 24 January 1946, which are
the permanent members of the Atomic Energy
Commission, to meet together and consult in order
to determine if there exists a basis for agreement
on the international control of atomic energy to
ensure its use only for peaceful purposes and for
the elimination from national armaments of
atomic weapons, and to report to the General As-
sembly the results of their consultation not later
than its next regular session :
4. Meanwhile,
The General Assembly,
(JaUs upon the Atomic Energy Commission to
resume its sessions, to survey its programme of
work, and to proceed to the further study of such
of the subjects remaining in the programme of
work as it considers to be practicable and useful.
Current United Nations Documents: A Selected Bibliography'
Trusteeship Council
Report of the Drafting Committee on the Report on the
Administration of New Guinea for the Year 1 July
1946 to 30 June 1947. 17202, July 29, 1948. 19
pp. mimeo.
" Contained in U.N. doc. A/690, Oct. 23, 1948. Adopted by
the First Committee on Oct. 20, 1948.
^ Printed materials may be secured in the United States
from the International Documents Service, Columbia
University Press, 2960 Broadway, New York City. Other
materials (mimeographed or processed documents) may
be consulted at certain designated libraries in the Unitecl
States.
Report on the Adniiinstration of Tanganyika for 1947.
T/204, July 30, 1948. 42 pp. mimeo.
Report on the Administration of South West Africa
for 1946. T/209, August 2, 1948. 10 pp. mimeo.
Non-Self-Governing Territories. Summaries and analysis
of information transmitted to the Secretary-General
during 1947. vii, 509 pp. printed. $4.00.
Atomic Energy Commission
An Internatiunal Biljliography on Atomic Energy.
Scientific Aspects. Volume II. Part III — The
Biological and Medical Effects of High Energy Radia-
tion. Part IV — Isotopes in Biology and Medicine.
(Preliminary Edition). AEC/INF/9, September 17,
1948. mimeo.
606
Department of State Bulletin
Discussion of Greek Problem
STATEMENTS BY JOHN FOSTER DULLES IN COMMITTEE I'
U.S. Delegate to the General Assembly
Continuation of Ballon Commission
We now deal with the substance of the agenda
item: ''Threat to the political independence and
territorial integrity of Greece". Unfortunately,
the threat to Greece is not an isolated fact.
Kather it is part of a larger problem, many phases
of which come before the United Nations.
In Greece, Communists are attempting to over-
throw the Government by violence, and in this
effort they are receiving aid from other countries
that are already Communist controlled. This vio-
lent effort to establish in Greece a Communist gov-
ernment is but part of a general effort to extend
the power of Soviet Communism throughout the
world. The Security Council has been consider-
ing another jDhase of this problem as it dealt with
the coercive measures being taken by the Soviet
Union to extend its power over all Berlin. This
Assembly will deal with another phase when we
take up the agenda item of Korea. Wlierever one
looks, whether it be to Europe, Africa, Asia, or
the Americas, there is apparent the same pattern
of effort — namely the incitement, from without, of
coercion, fear, and violence within to achieve inter-
national political objectives. The manifestations
of this effort differ only as they are adjusted to
meet local situations.
There is nothing surprising about this uniform-
ity, for it reflects what Communists throughout
the world have been consistently taught and what
tliey are being taught today. The Soviet, tliey are
told, will not be safe until the non-Communist
nations have been so reduced in strength and num-
bers that Communist influence is dominant
throughout the world, and that, in such efforts,
the Soviet Communist Party is the "vanguard",
the "shock-brigade" of the world proletariat. It
is furthermore taught that this result cannot be
achieved by peaceful reform but only by metliods
of revolution. Therefore, when througliout the
world, Communists seek to weaken and overthrow
non-Communist governments and use force, coer-
cion, and terrorism, they are only doing what their
foreign leaders have taught them to do.
Of course, under the Charter of the United
Nations, men are entitled to follow the dictates
of their conscience and their reason, and to
November 14, ?948
attempt, by example and persuasion, to bring
others to share their beliefs. That, we believe, is
a human right and fundamental freedom that the
Charter consecrates. But, and this is the essen-
tial, the Charter does not countenance using vio-
lence to achieve international ends. Article 2 (4)
binds all the Members broadly to "refrain in their
international relations from the threat or use of
force". This does not mean that the Charter
attempts to freeze the stattu^ quo. On the con-
trary, throughout its preamble and its articles runs
the theme of a changing world, a world in which
there is "social progress and better standards of
life in larger freedom". (Preamble.) Article 14
gives this General Assembly the authority to "rec-
ommend measures for the peaceful adjustment of
any situation regardless of origin, which it deems
likely to impair the general welfare or friendly
relations among nations". But such adjustment
must be "peaceful".
There is thus a basic contradiction between the
Charter theory of peaceful change, by evolution,
and the Communist doctrine of violent change, by
revolution. And it is because Soviet Communism
teaclies and practices the use of violence that the
United Nations has found it impossible, as yet, to
relieve the peoples of the world from the heavy
burden of armament and the even heavier burden
of fear.
So long as Soviet Conununisra does preach and
practice revolution as a means to destroy the social
order elsewhere and to achieve world-wide politi-
cal ambitions, many are bound to wonder whether
the Communist Governments signed the United
Nations Charter with integrity of purpose. The
United Nations is, however, faced with that prac-
tical situation. Under the circumstances, it must
do what it can to check the threat and use of vio-
lence and thereby to remove the pall of fear which
overhangs the world. Its mean to this end are
inadequate. "Action" is a primary responsibility
of the Security Council, and in the "Security Coun-
cil the Government of Soviet Kussia wields a
power of veto. That, indeed, is why this Balkan
'Made on Oct. 26 and Nov. 5, 1948, respectively, and
rclea.sed to the press on the same date.
607
THE UNITED NATIONS AND SPECMl/ZED AGENCIES
affair is before the Assembly. The Soviet Union,
by its veto last year, made the Security Council
impotent to deal with it.
The Assembly has, however, great possibilities
if they are properly understood and fully used.
The Assembly can expose the facts and by so doing
can build up a moral judgment so widespread and
so weighty that no nation will igiiore it. Marshal
Stalin said of the League of Nations that "despite
its weakness the League might nevertheless serve
as a place where aggressors can be exposed". He
put his finger on a great power — the power of
exposure. It does not work with precision or with
immediacy, but it is, in the long run, a power to
which all are sensitive for histoi-y has proved that
those who flout it pay, some day, a heavy penalty.
So, in a world where some nations believe in
methods of violence, this Assembly must set itself
the hard task of exposing every such manifesta-
tion and gradually developing a world opinion so
condemnatory of such methods, so disposed to
suppress them, that violent methods will gradually
fall into disuse as ineffectual and dangerous to
those who employ them. Then at last we shall
have a world in which, despite differences, men
will, in the words of the Charter, "practice toler-
ance and live together in peace with one another
as good neighbors".
Greece is a case in point. Last year this Assem-
bly established a Special Committee on the
Balkans, composed of eleven Member States and
charged with two main functions : To be available
to assist Greece and its three northern neighbors
to settle their differences amicably if, happily,
their mood should make this possible and, sec-
ondly, to inform the United Nations and, through
it, the world, regarding the conditions along the
northern Greek frontier.
Unfortunately, the Committee was unable to
perform its first function, for Albania, Bulgaria
and Yugoslavia refused to cooperate with the
Committee. However, the unanimous factual
conclusions of that Committee are now before this
Assembly and these facts ought to be studied and
proclaimed so that all will know.
On the basis of 86 first-hand observation reports,
and through the testimony of more than 700 wit-
nesses, the Committee has found unanimously
that '—
The Greek guerrillas fighting against the Greek
Government have received large aid and assistance
from Albania, Bulgaria, and Yugoslavia and have
been furnished war material and other supplies
from those countries. Great quantities of ai-ms,
ammunition, and other military stores have come
across the border to Greek guerrillas, notably dur-
ing times of heavy fighting.
' See Documents and State Papers, September 1948.
608
The territory of Albania, Bulgaria, and Yugo-
slavia has frequently been used as a base of mili-
tary operations, and the guerrillas have frequently
moved at will across the frontiers for tactical rea-
sons. When the guerrillas are pinned against the
frontier, they fall back across it, using it as pro-
tection, and then reappear elsewhere.
Thus in essence an international border be-
comes a weapon of aggression against those who
respect it.
The i-eports of the Conunittee are replete with
concrete instances of the actual use of Yugoslav,
Albanian, and Bulgarian territory. For example :
On March 1, 1948, there was heavy machine gun
fire from Yugoslavia into Greece, for about five
houi-s during daylight. Another machine gun in
Yugoslavia territory fired into Greek territory for
a period of seven hours, while three men in Yugo-
slav uniforms chatted with the crew of the machine
gun.
On July 11th there was artillei"y fire, on July
12th mortar fire, and on July 18th machine gun
fire from Albania against the Greek national army.
On August 7, 1948, mortar fire was heard from
within Bulgarian territory and on the same day
two of the IJnited Nations observere were actually
wounded by artillery fire from Bulgarian terri-
tory. A plane bearing Bulgarian markings ap-
parently machine-gumied Greek troops on August
17th.
These are but a few of many incidents actually
observed by the United Nations Special Committee
itself and are quite apart from the incidents
reported by witnesses heard by the Committee.
The unanimous factual conclusion of the Spe-
cial Committee is that what has happened "con-
stitutes a threat to the political independence and
territorial integrity of Greece and to peace in the
Balkans". It has happened despite the fact that
the last session of the General Assembly by vote
of 40 to 6 had called upon Albania, Bulgaria, and
Yugoslavia "to do nothing which could furnish
aid and assistance" to Greek guerrillas.
Some might say that, since these are the facts,
the General Assembly resolution has failed.
Such a conclusion is, I submit, totally unjustified.
In fact, the General Assembly has not failed. It
has not, to be sure, achieved immediate obedience
to its will. But the General Assembly was never
given authority to command obedience. It de-
pends primarily on the power of public opinion
and to build that up takes time, patience, and per-
sistence. Already, however, the General Assem-
bly has had an influence. It has had an influence
in promoting aid to Greece. It has had an influ-
ence even along the northern frontier. The rep-
resentative of my Government who served on the
Special Committee believes, and I understand
others believe, that if it had not been for the pres-
Deparfment of State Bulletin
ence of the Special Committee in Greece, the mili-
tary aid given by the northern neighbors of Greece,
■vrould have reached far greater proportions than,
in fact, has been the case. There can, I think, be
no doubt (hat the northern neighbors of Greece
have, in fact, been restrained by the presence of
the Committee and its power of exposure at this
"town meeting of the world".
All governments are sensitive to public opinion
and, however eager they may be to promote vio-
lence to achieve their international ends, they are
reluctant to do so if their conduct exposes them to
the condemnation of world opinion and to the
resistance that that opinion inspires. The record
before us is bad as to the conduct of some nations —
it is dismullj' bad — but it is not fatally bad, for
Greece survives. We can reasonably feel that the
Assembly action of last year has been one of the
indispensable factors that have, so far, preserved
for Greece the integrity and sovereignty which it
was hoped this Organization could secure for all
time for all of its Members.
Greece not only survives but, thanks to its own
efforts and those of the United Nations and of
other friendlj' states, Greece is steadily making
progress in the rehabilitation of the country and
in making good the terrific losses which Greece
suffered when she resisted Nazi aggression and
became its victim. Her army has made great sac-
rifices in bringing security to the Greek people
and resisting the terroristic tactics of the guerrilla
forces. Greek railroads are being rebuilt, the
roads and bridges are being reconstructed, crops
1H£ UNITED NATIONS AND SPBCIAUZED AGENCIBS
are increasingly being cultivated, political condi-
tions are stabilizing, and there are being created
these "conditions of stability and well-being
which" the Charter recognizes (article 65) ''are
necessary for peaceful and friendly relations
among nations based on respect for the principle
of equal rights and self-determination of peoples".
I submit that the action of the United Nations
in regard to Greece constitutes not a failure, but a
success. The Members of the United Nations who
have cooperated in this effort can properly be
proud. It is, in my Govermnent's opinion, abun-
dantly clear that this effort to save Greece, which
already has good results, should be carried on to
the complete success that is now in sight. There-
fore, my Government, in conjunction with the
Governments of China, France, and the United
Kingdom, is submitting and supporting a resolu-
tion which, in essence, continues the present Com-
mission with the dual function of observation and
good offices; which calls upon Greece's northern
neighbors to cease and desist from aiding the effort
violently to overthrow the Greek Government ; and
which assures a continuing exposure which will
make it certain that, if there is continued violation
of the Charter, world opinion will gi'ow steadily
more condemnatory, more resolute, and more
potent to restrain aggression.
I hope, however, that events will not take that
course, but that this general debate may demon-
strate the possibility of a peaceful solution con-
sistent with the political independence and terri-
torial integrity of Greece.
Concern for Peace in the Balkans
Mr. Chairman, I wish first to comment on the
attempt of the Soviet Delegation to divert atten-
tion by charging that the United States is develop-
ing Greece as a base for aggression in pursuance
of its goal of "world mastery". That charge was
repeated in chorus by the other Communist-con-
trolled Delegations. Of course, Mr. Chairman, the
United States Delegation denies that charge as
vicious falsehood. But I realize that all govern-
ments always deny aggressive intentions. So, I
invite a more searching test, that of deeds.
Within the last 30 years the United States has
twice been one of the principal victors in world
war. Thereby we became possessed of vast power
beyond our border. Yet, in the course of those 30
years, our national domain has actually contracted,
not expanded. That simple fact speaks, I think,
with significant eloquence.
After AVorld War I we quickly withdrew from
Europe a military force that was tremendous. We
virtually disarmed ourselves. Under the treaties
of Versailles and of Berlin, we took no territory
and no reparation. We were satisfied to have
helped to save the free institutions of Europe.
November 14, 1948
Three years ago the United States had on the
continent of Eui'ope a military force that was one
of the most potent the world has ever known, not
just in numbers, but in its superb quality and its
unmatched mechanized equipment. Our land
forces in Europe consisted of over 3 million com-
bat troops, with more than 14,000 tanks. We had
here more than 17,000 aircraft manned by about
half a million men. Our Navy was operating in
the European theatre more than 5,000 vessels.
What of that i-emains in Europe today? The
merest fragment, perhaps 3 percent. There are
less than 500 men in Greece and not one of these
a combat soldier. We disposed of or destroyed
more than 5 million long tons of military stores in
AVestern Europe and we destroyed here more than
4,000 complete United States aircraft. When we
withdrew, we withdrew cleanly. We organized no
disloyal groups, no fifth columns, to do our will.
Our deeds, Mr. Chairman, are not the deeds of a
nation that is set on world mastery.
It is quite true that the United States has now
checked its program of disarmament. That is not
our preference. It is due to the fact that the defeat
609
THE UNITED NATIONS AND SPECMt/ZED AGENCIES
of Germany and Japan did not, as we had hoped,
end the fears of the free peoples. Indeed a new
fear now grips them and it is a fear that, unhap-
pily, cannot now be allayed by international organ-
ization alone. That is in part because tlie Security
Council's power to decide is crippled by veto and
its power to act is crippled by lack of military con-
tingents. It is in part because the threat is
deviously contrived.
So long as that is the situation, the United States
intends to be strong. We make no apology for
that, because our strength is not for ourself alone.
It is our purpose so to unite and strengthen the
forces of freedom that they will not have to fear.
In so acting we are, or course, motivated by self-
interest. I do not pretend otherwise. But the
self-interest we are serving merges with the self-
interest of all those who I'enounce methods of vio-
lence, coercion, and terrorism and who, in the
words of the resolution which last Wednesday the
Assembly adopted unanimously, conform their
policies to the Atlantic Charter declaration that
all the men in all the land should live out their lives
in freedom from f ear.^
Our growing national strength no doubt dis-
pleases some; but it does not, I believe, frighten
any. I ask each delegate to search his own mind
and come to his own conclusion as to who and what
his nation fears. I shall be satisfied with a silent
verdict, for I know that some fear even to express
their fear.
The Governments of Albania, Bulgaria, and
Yugoslavia do not like it that the Government of
Greece is getting from abroad military aid that it
requested. But these northern neighbors of
Greece can, if they want, bring that to an end.
Let them comply with the solemn recommenda-
tions of the United Nations Assembly. Let them
end their incitement and shielding of Greek guer-
rillas and Communist rebels and the giving to them
of aid and comfort. Let them resume neighborly
relations with the Greek Government. The Greek
people, who have already endured eight years of
cruel violence, surely want nothing more than to
return to ways of peace and to dedicate their whole
effort to the imperative tasks of reconstruction.
Any Greek Government that maintained a military
establishment for purposes other than indepen-
dence, territorial integrity, and internal security,
would quickly forfeit for Greece the support and
sympathy she now enjoys.
I turn now to consider the Four Power draft res-
olution and in the first instance its acceptance of
the special committee findings that the northern
neighbors of Greece have allowed their territory to
be used by Greek guerrillas and rebels and have
otherwise aided and assisted them. A great effort
has been made here to discredit these findings.
" See p. 614.
610
In fact, the special committee was unanimous in its
factual conclusions and that, in my opinion, ought
to be sufficient. Neither the Assembly nor the first
committee with its large membership and crowded
calendar can undertake, as a court of first instance,
to weigh all the available evidence.
The special committee spent a year in actual ob-
servation. It saw for itself and it talked with
hundreds of people to get their impressions. No
doubt many of the people with whom they talked
were unreliable. The special committee itself says
so. But surely the special committee is better
qualified than we are to decide what weight should
be given to what it saw and heard. To call the
report of the special committee "garbage", as has
been done here, is to insult a competent, hard work-
ing, and conscientious organ of the United Nations,
the members of which have endured much personal
risk and hardship in order to carry out the desire
of the General Assembly that, at this session, it
should have knowledge of the facts through an
agency of its own choosing.
There can be no doubt that — as unanimously
found by the special committee — "the Greek guer-
rillas have received aid and assistance from Al-
bania, Bulgaria, and Yugoslavia ; that they have
been furnished with war material and other sup-
plies from those countries; that they have been al-
lowed to use the territories of Albania, Bulgaria,
and Yugoslavia for tactical operations; . . . ."
The difficult question that confronts us here is not
to decide what the facts are, but to decide what to
do about them.
The debate shows that all of us feel disappointed
that there is not open to this Assembly some quick
and direct method of putting an end to the existing
situation. The Four Power proposal would, in
effect, continue the special committee, with some
clarification of its powers. That is what the spe-
cial committee itself recommends, and it is hard
to see any other course that is open to us.
Of course, if the northern neighbors of Greece
were, in fact, willing to cooperate with this Assem-
bly and with its special committee, that would
make it jDOssible to give the committee a different
and more constructive task. There is, however, no
present basis for planning on that assumption.
The northern neighbors of Greece have heard
moving pleas from Greece and others. So far,
their responses indicate that the Assembly is face
to face with the same hard attitude of noncoopera-
tion as has confronted it up to now.
Nevertheless, in the hope that this attitude may
change, and the Assembly, in this situation, can
serve the charter purpose of "harmonizing the
actions of nations", the Four Powers, which spon-
sor the draft resolution before you, propose to add,
at paragraph 10 (C), an authorization to the spe-
cial committee on its discretion to appoint one or
more persons to use their gooti offices to promote
cooperation with Greece that is sought of Albania,
Department of State Bulletin
Bulgaria, and Yugoslavia. In that vray the As-
sembly will have established means for reconcilia-
tion if developments sliould seem to make that pos-
sible. That, 1 believe, will respond to desires that
have been expressed here in the course of the gen-
eral debate, including also ideas that, we under-
stand, have been expressed by members of the spe-
cial committee, particularlj- the representatives of
Pakistan and Brazil.
The primary dependence of the Assembly will,
however, have to be upon its power to expose what
happens and in that way to influence public opinion
and national action throughout the world. Of
course, tliat process does not give immediate de-
cisive results. Nevertheless, as I pointed out in
my opening statement, the power to expose, the
power to educate public opinion, is, in fact, the
most fundamental of all powers. We can see it
here at work.
There is little doubt that the situation along the
northern frontier of Greece, bad as it is, would be
far worse but for the fact that a United Nations
committee was there to observe and report. Also,
the facts that have been observed and publicly re-
ported have influenced public opinion at least in
the member state for which I speak. In conse-
quence more is being done by the United States to
help Greece than would otherwise be the case.
The representatives of the Soviet Union, Yugo-
slavia, Albania, Bulgaria, Poland, Czechoslovakia,
Byelorussia, and the Ukraine have here devoted
many hours to attempts to discredit the factual
findings of the special committee. Why have they
done so? Because they are afraid to let those
findings go unchallenged. Their conduct here is
unmistakable proof, if indeed proof were needed,
that nations whose conduct threatens the peace do
fear the consequences of exposure.
Therefore, Mr. Chairman, I hope that this As-
sembly will continue to exercise its power of expo-
THE UNITED NATIONS AND SPECIALIZED AGENCIES
sure and that this year's resolution will be clearer,
in this resi)ect, than was that of last year.
In conclusion, Mr. Chairman, the United States
Delegation believes that the Four Power proposal,
with the addition I have indicated and with per-
haps some changes to reflect constructive criticism,
such as that of the Australian Delegation, consti-
tutes the wisest course we can recommend to the
General Assembly. It is in the main based upon
the reports of the Special Committee for tlie Bal-
kans, which was set up by the General Assembly
last year for the very purpose of providing this
session with findings and recommendations which
would result from study of the situation on the
spot.
The reports before us are the fruits of a difficult
and testing experience. Violent efforts have been
made to divert attention from them and torrents
of abuse, ridicule and sarcasm have been poured
upon them. But, as the general debate draws to
a close, we can see that these findings and recom-
mendations survive as the only solid foundation
for future action. Nothing that has transpired
here would justify this committee in setting aside
the expert views on which the General Assembly
expected us to act and substituting for them some
inexpert improvisations of our own. Therefore,
Mr. Chairman, the United States Delegation
stands on the Four Power resolution which, in
turn, stands on the findings and recommendation
of our special committee. We think that that res-
olution can be improved in some respects by incor-
porating constructive ideas that have emerged in
the course of the general debate. I have never
known a general debate that did not add to the
sum total of our wisdom, and I am glad to pay
that tribute to the debate we now conclude. I3ut
in the main, we shall, I hope, stick to the lines of
action that our special committee has recom-
mended.
U.S. Position on Palestine Resolution
STATEMENT BY PHILIP C. JESSUP'
Deputy U.S. Representative in the Security Council
Mr. President, I wish to speak very briefly about
the position of my Government on the resolution
before us. In the first place, we should like to
suggest certain amendments which we believe
would improve and clarify the resolution. It is
not our purpose to com])licate the situation at this
time but we hope that the proposers of the resolu-
:ion will be able to accept the following suggested
•hanjres.
First, we suggest that the first word of the
fourth paragraph, the word "endorses" be deleted
and there be substituted the words "takes note of".
The purpose of this change is to remove any incon-
sistency between the fourth and fifth paragraphs.
The request of the Acting Mediator was stated in
' Made on Nov. 4, 1948, and released to the iiress on the
same date.
November 14, 1948
611
THE UNITBD NATIONS AND SPECIALIZED AGENCIES
somewhat precise terms and, of course, could not
reflect the discussions in the Council on the question
of withdrawal, particularly the views expressed
by the distinguished representative of France.
That discussion has been reflected in the fifth para-
graph. Although it is our view that the fifth and
sixth paragraphs are the operative sections and
the first four are preambulatory in character, nev-
ertheless we believe it would be helpful to remove
any misunderstanding which might arise on that
point.
Secondly, we suggest there be added after the
words "interested governments" in the fifth para-
graph the following-— "without prejudice to their
rights, claims or position with regard to a peaceful
adjustment of the future situation of Palestine or
to the position which members of the Security
Council may wish to take in the General Assembly
on such peaceful adjustment". The purpose of this
suggestion is to separate the issue of the truce from
that of the final settlement. We believe there
should be a clear understanding that the mainte-
nance of a truce has from the beginning been
without prejudice to the final political result and
that we are not intending here in this resolution
to prejuclice in any way the political position of
the parties or of the members of the Security
Council.
Third, we believe that it might be helpful to
substitute the following for the final paragraph :
"Appoints a committee of the Council, consisting
of the five permanent members together with Bel-
gium and Colombia to advise the Acting Mecliator
with regard to his responsibilities under this reso-
lution, and in the event that either party or both
should fail to comply with the preceding para-
graph of this resolution, to study as a matter of
urgency and to report to the Council on further
measures it would be appropriate to take under
Chapter VII of the Charter."
We make this last suggestion in order to afford
the acting mediator an opportunity to consult a
responsible body in connection with the very heavy
responsibilities which are placed upon him by this
resolution. Further, it would allow the commit-
tee to consider the situation in the light of chapter
VII as a whole and would not restrict its work
within the framework of article 41.
The one simple, clear element which has been
constant throughout the tortuous history of the
Palestine question before the United Nations has
been the expressed determination on the part of
the United Nations that, however men might cliffer
about the final political result, such a result must
be reached by peaceful means and not by war.
Today we are talking about a truce ; we are not
talking about the nature of a political settlement.
When we talk about a truce, the parties are not
merely Israeli and Arabs. There is another — and
greater — party of interest, the entire international
612
community — the rest of the world. The interest
of the international community in a peaceful set-
tlement is paramount. Both great powers and
small must confess to this overriding interest.
It is fundamental to the Charter and is the prin-
cipal reason for the very existence of the Security
Council.
The General Assembly expressed itself on this
aspect of the Palestine problem in its resolution of
November 29, 1947, and, more particularly, in its
resolution of May 14, 1948. The Security Council
itself has devoted great effort to a truce, efforts
which are reflected in resolutions of March 5,
April 1. April 17, April 23, May 22, May 29, July
7, July 15, August 19, and October 19 of the present
year. To these efforts have been added the loyal
and devoted effort of the subsidiary bodies of both
the Assembly and the Council which were given
various responsibilities in Palestine. Many Gov-
ernments Members of the United Nations sup-
ported these United Nations actions by strong
counsel to the parties through diplomatic channels.
The result has not been a perfect truce, that no
one can claim ; but the result has not been all-out
war. No one of the parties has found that the
truce has always satisfied their own particular de-
sires; at one time or another, in the variety of local
situations arising in various parts of the country,
all parties have felt the truce as a restraint upon
the temptation to exploit a local or temporary ad-
vantage. But no one can doubt that both Jewish
and Arab peoples have greatly benefited from the
cease-fire, imperfectly observed as it has been. As
those who are immediately and emotionally in-
volved are unwilling to confess such benefits, the
rest of the world community has no doubt of it.
The stake of tlie United Nations in this partic-
ular truce is established not only as a matter of
principle but through the specific contribution
made by the United Nations itself to the mainte-
nance of a cease-fire. Servants of the United Na-
tions, by the hundreds, have exposed themselves
to hardship and danger in order to bring peace
to Palestine. A number have lost their lives.
Many Jews and many Arabs are alive today be-
cause of the disinterested and devoted effort of
these men who have had no other puri:)ose than
to save the peoples of Palestine from war. In
addition, the peace-making efforts of the United
Nations have required a most substantial mate-
rial and financial outlay.
We believe it essential to continue the truce until
arrangements can be made to replace the truce by
a more permanent peaceful settlement. Indeed
without a truce, a peaceful settlement becomes im-
possible. We believe the present resolution is con-
sistent with, and a necessary reinforcement of, the
previous resolutions of the Security Council and
of the General Assembly concerning the truce.
The United States supported each of these earlier
Department of State Bulletin
efforts to maintain a cease-fire in Palestine; we
shall, therefore, support the resolution now before
us wliich we hope will be adopted with the changes
we have suggested.
In conclusion, I wish to repeat that we are dis-
THE UNITED NATIONS AND SPECfAllZEO AGENCIES
cussing a truce, not a political settlement. Our
action here in the Council is a necessary prereq-
uisite to General Assembly consideration, but does
not prejudice the result of such consideration in
any way.
TEXT OF DRAFT RESOLUTION'
The Security Council,
Having decided ou tlie fifteenth July that, subject to
further decision by the Security Council or the General
Assembly, the truce shall remain in force in accordance
with the resolution of that date and with that of twenty-
ninth May 1948 until a peaceful adjustment of the future
situation of Palestine is reached ;
Having decided on the nineteenth August that no party
is permitted to violate the truce on the ground that it is
undertaking reprisals or retaliations against the other
party, and that no party is entitled to gain military or
political advantage through violation of the truce ; and
Having decided on the twenty-ninth May that, if the
truce was subsequently repudiated or violated by either
party or by both, the situation in Palestine could be recon-
sidered with a view to action under chapter VII of the
charter ;
Endorses the request communicated to the Government
of Egj-pt and the Provisional Government of Israel by the
acting mediator on the twenty-sixth October (S/IO.'JS)
following upon the resolution adopted by the Security
Council on nineteenth October 1948; and
Calls upon the interested governments :
(1) To withdraw those of their forces which have ad-
vanced beyond the positions held on fourteenth October,
the acting mediator being authorized to establish pro-
visional lines beyond which no movement of troops shall
take place ;
(2) To establish, through negotiations conducted di-
rectly between the parties or failing that, through the
intermediaries in the service of the United Nations, perma-
nent truce lines and such neutral or demilitarized zones as
may appear advantageous. In order to ensure henceforth
the full observance of the truce in that area. Failing an
agreement, the permanent lines and neutral zones shall
be established by decision of the acting mediator ; and
Appoints a committee of the Council, consisting of the
tive permanent members together with Belgium and Co-
lombia, to examine urgently and report to the Council on
the measures which it would be appropriate to take under
article 41 of the charter if either party or both should fail
to observe the conditions prescribed in the two subpara-
graphs of paragraph 5 of this resolution within whatever
time limits the acting mediator may think it desirable to
fix.
Resolution on the Palestinian Question
The Security Council
Having in mind the report of the Acting Me-
diator concerning the assassinations on 17 Sep-
tember of the United Nations Mediator Count
Folke Bernadotte and United Nations Observer
Colonel Andre Serot (document S/1018), the re-
port of the Acting Mediator concerning difficulties
encountered in the supervision of the truce (docu-
ment S/1022) ; and the report of the Truce Com-
mission for Palestine concerning the situation in
Jerusalem (document S/1023) ;
Notes with concern that the Provisional Gov-
ernment of Israel has to date submitted no report
to the Security Council or to the Acting Mediator
regarding the progress of the investigation into
the assassinations;
Requests that Government to submit to the Se-
curity Council at an early date an account of the
progress made in the investigation and to indicate
therein the measures taken with regard to negli-
gence on the part of officials or other factors affect-
ing the crime;
Reminds the governments and authorities con-
cerned that all the obligations and responsibilities
November 14, 1948
of the parties set forth in its resolutions of 15 July
and 19 August 1948 are to be discharged fully and
in good faith ;
Reminds the Mediator of the desirability of an
equitable distribution of the United Nations ob-
servers for the purpose of observing the truce on
the territories of both parties ;
Determines, pursuant to its resolutions of 15 July
and 19 August 1948, that the Governments and
authorities have the duty :
(a) to allow duly accredited United Nations
Observers and other Truce Supervision personnel
bearing proper credentials, on official notification,
ready access to all places where their duties require
them to go including airfields, ports, truce lines
and strategic points and areas ;
' The foregoing comments of Dr. Jessup were addressed
to a draft resolution reported by the .Security Council
subcommittee on the Palestine question, which was made
up of Representatives of China, France, the United King-
dom, Belgium, and the Ukrainian Soviet Socialist Re-
public. Only the latter country dissented from the opinion
of the subcommittee in presenting the draft resolution.
' U.N. doc. S/104.5, Oct. 19, 1945, adopted at the 3G7th
meeting of the Security Council on that date.
613
THB UNITED NATIONS AND SPECIALIZED AGENCIES
(b) to facilitate the freedom of movement of
Truce Supervision personnel and transport by
simplifying procedures on United Nations air-
craft now in effect, and by assurance of safe-con-
duct for all United Nations aircraft and other
means of transport ;
(c) to co-operate fully with the Truce Super-
vision personnel in their conduct of investigations
into incidents involving alleged breaches of the
truce, including the making available of witnesses,
testimony and other evidence on request;
(d) to implement fully by appropriate and
prompt instructions to the Commanders in the
field all agreements entered into through the good
offices of the Mediator or his representatives ;
(e) to take all i-easonable measures to ensure
the safety and safe-conduct of the Truce Supervi-
sion personnel and the representatives of the
Mediator, their aircraft and vehicles, while in ter-
ritory under their control ;
(f) to make every effort to apprehend and
promptly punish any and all persons within their
jurisdictions guilty of any assault upon or other
aggressive act against the Truce Supervision per-
sonnel or the representatives of the Mediator.
Appeal to the Great Powers To Renew Their Efforts To Compose
Their Differences and Establish a Lasting Peace ^
1. Whereas it is the essential purpose of the
United Nations to maintain international peace
and security and to that end it must co-ordinate its
efforts to bring about by peaceful means the settle-
ment of international disputes or situations which
might lead to a breach of the peace,
2. Whereas the United Nations should be a
centre for harmonizing the actions of nations in
the attainment of this common end,
3. Whereas the United Nations cannot fully
attain its aims so long as the recent war remains
in process of liquidation and so long as all the
peace treaties have not been concluded and put
into force,
4. Whereas the Great Allied Powers, which
bore the heaviest burden in the war and whose
common sacrifice and effort were the prime cause
of victory, have reaffirmed, on many solemn oc-
casions, their determination to maintain and
strengthen in the peace that unity of purpose and
of action which has made possible the victory of
the United Nations,
5. Whereas the aforementioned Allied Powers,
which undertook at the second Moscow Conference
responsibility for drafting and concluding the
peace treaties, have not been able, after three years
of effort, to obtain the full realization of their high
mission by building a just and lasting peace,
6. Whereas the disagreement between the said
Powers in a matter of vital importance to all the
United Nations is at the present time the cause of
the deepest anxiety among all the peoples of the
world, and
7. Whereas the United Nations, in the per-
formance of its most sacred mission, is bound to
afford its assistance and co-operation in the settle-
' Contained in U.N. doc. A/694, Oct. 26, 1948.
614
ment of a situation the continuation of which in-
volves grave dangers for international peace,
The General Assembly
1. Recalls the declarations made at Yalta on
11 February 1945 by Churchill, Roosevelt and
Stalin, in which the signatories
"reaffirm our faith in the principles of the
Atlantic Charter, our pledge in the Declaration
by the United Nations, and our determination to
build in co-operation with other peace-loving na-
tions a world order under law, dedicated to peace,
security, freedom and the general well-being of
all mankind",
and proclaim that
"only with continuing and growing co-operation
and understanding among our three countries, and
among all the peace-loving nations, can the high-
est aspiration of humanity be realized — a secure
and lasting peace which will, in the words of the
Atlantic Cnarter 'afford assurance that all the men
in all the lands may live out their lives in freedom
from fear and want' " ;
2. Endorses these declarations and expresses its
convictions that the Great Allied Powers will, in
their policies, conform to the sjjirit of the said
declarations ;
3. Recominends the Powers signatories to the
Moscow Agreements of 24 December 1945, and the
Powers which subsequently acceded thereto, to
redouble their efforts, in a spirit of solidarity and
mutual understanding, to secure in the briefest
possible time the final settlement of the war and
the conclusion of all the peace settlements ;
4. Recomviends the aforementioned Powers to
associate with them, in the performance of such
a noble task, the States which subscribed and ad-
hered to the Washington Declaration of 1 January
1942.
Depattmenf of Stafe Bulletin
The United States in the United Nations
Balkan Committee
The Political and Security Committee adopted
by 48-6 vote on November 10 a resolution con-
demning the aid given to Greek guerrillas by
Yugoslavia. Albania, and Bulgaria and providing
for continuation of the Greek border watch by the
Special Committee on the Balkans. The six op-
posing ballots were cast by the Soviet bloc.
The resolution, submitted jointly by the United
States. Britain, France and China, also calls upon
Greece's nortliern neighbors to cease their support
of the Greek guerrillas and cooperate with Greece
for peaceful settlement of the Balkan dispute in
accordance with previous Assembly recommenda-
tions.
In corollaiy action, the committee also adopted
unanimously an Australian resolution calling for
an immediate meeting in Paris, under Assembly
auspices, of representatives of the four Balkan
states to explore possibilities of agi'eement on
methods to resolve their dilferences.
Both resolutions will be sent to the Assembly for
final action.
Later, the committee began, at Soviet request, a
paragraph-by-paragraph consideration of a Soviet
resolution, and immediately rejected a paragraph
in the resolution calling for dissolution of Unscob.
It also turned down the preamble attacking "for-
eign interference" in Greece.
Two paragraphs of the Soviet resolution, call-
ing upon Greece and her northern neighbors to
establish diplomatic relations and renew frontier
conventions, were approved unanimously.
The adopted resolution on continuation of
Unscob provides that the U.N. body shall "have
its principal headquarters in Greece, and with the
cooperation of the govermnent or governments
concerned, shall perform its functions in such
places as it may deem appropriate for the fulfil-
ment of its mission."
Palestine
Final administrative details of the proposed
$29,000,000, nine-month program for relief of Pal-
estine refugees are now being completed in a sub-
committee of the General Assembly's Social
Committee.
The subcommittee decided on November 10, by a
vote of seven to three, to propose to the Assembly
that the Secretary-General appoint a director of
the relief program and that the Assembly Presi-
dent pick a seven-member committee to advise the
Secretary-General on the program. The group
had previously agreed that the plan for aid to
Middle East refugees — sponsored by the United
States, the United Kingdom, Belgium, and the
Netherlands — would be carried out through a spe-
November 14, 1948
[November 8-13]
cial fund to be made up of contributions from
Member Nations, the fund to be under the direct
supervision of the Secretary-General.
Anticipating a delay in final establishment of
the program, the Assembly's Budgetary Commit-
tee last week approved an advance of $5,000,000
from the working capital to cover the cost of im-
mediate aid. This sum is to be repaid from future
contributions.
Meanwhile, the first shipment of relief supplies
sponsored by the International Children's Emer-
gency Fund has arrived at Haifa from the United
States, aboard the S. S. Skagumy Victory. In this
shipment, the Unicef included 4,540 kilograms of
dried milk, 1,225 kilograms of cod-liver oil, 1,816
kilograms of margarine, and 200 of rice.
Tlie supijlies are to be sent to Haifa, Tel Aviv,
and Nazareth, where they will be distributed to
mothers and children among both Arab and Jew-
ish refugees. Supervising the distribution is Dr.
Jean Mabileau, Deputy Director of Unicef for the
Middle East. Dr.. Mabileau declared, upon the
arrival of the supplies at Haifa, that: "A major
battle has just been won in Palestine. The win-
ners ai'e some 25,000 babies, nursing mothers, and
pregnant women among the Jewish and Arab ref-
ugees living in the Jewish part of Palestine. And
in this battle, there are for once no losers."
Tliis Unicef relief program is in addition to the
more extensive aid project first proposed to the
Assembly by Mrs. Franklin D. Roosevelt, U.S.
Delegate, and now being worked out in the Social
Committee. This larger program is intended to
cover the almost 400,000 refugees not eligible for
Unicef relief. Still other efforts are being made
in the United States by private organizations, such
as the American Red Cross ancl National Chil-
dren's Fund, to assist 500,000 homeless Palestini-
ans whose plight was brought to world attention
by Ralph Bunche, acting U.N. mediator for Pales-
tine.
On November 10 several more suggestions for
effecting peace in Palestine were added to the No-
vember 9 proposals of Ralph Bunche, acting U.N.
mediator for Palestine. Dr. Bunche asked for an
armistice, for separations of the contending forces
by broad demilitarized zones and for ultimate
withdrawal of and reduction of Jewish and Arab
ai"med forces. He wanted the paities to negotiate
only through the good offices of the mediator.
Dr. Bunche submitted a tentative plan for pro-
visional truce lines later at the first meeting of a
seven-nation subcommittee of the Council.
The committee, appointed by the Council No-
vember 4, comprises the five major powers plus
Belgium and Colombia. At the start of the No-
vember 10 meeting, Dr. Roberto Urdaneta Ar-
belaez of Colombia was elected as chairman. The
615
THE UNITED NATIONS AND SPBCIALIZID AGENCIES
task of the committee is to advise Dr. Bunche on
Charter regulations respecting breaches of the
peace and acts of aggression. This committee will
meet again on November 12.
Economic Committee
Willard Thorp, U.S. Delegate to the Assembly
and Assistant Secretary for economic affairs,
again on November 10 emphasized in the Economic
Committee that United States trade policies are
directed toward full cooperation in world recovery.
The statement was in answer to charges made
by Soviet bloc representatives in the committee,
alleging discrimination by the United States in
granting export licenses and in general trade poli-
cies.
In reply to the charge that the volume of
American exports was proof of expansionist char-
acter, Mr. Thorp asked: "Is it exiDansionist to re-
build countries with which we normally compete?"
and added : "We are helping to raise the level of
agriculture in countries which are taking Ameri-
can agriculture products. The people who suffer
because of exports from us are not the receiving
countries. Those who suffer are the American
taxpayers."
On the allegation that one of the foundations of
the recovery program is the United States right
to control export trade of participating countries,
Mr. Thorp said : "We have heard of the lame ef-
fort on the part of the Polish Delegate to find in
bilateral agreements justification for this conclu-
sion. The French Delegate has already refuted
this."
In recalling the recent Danube conference,
which was dominated by the Soviet Union and its
satellites, he noted: "The so-called convention,
while allowing freedom of navigation on equal
terms, makes use of port facilities subject to
agreement with certain transport companies with
no adequate safeguards against discrimination.
In Hungary and Rumania joint shipping com-
panies — half Soviet-owned — have a substantial
monopoly on all port facilities. Without explicit
guaranties of nondiscrimination of the use of
these facilities, the principle of freedom of navi-
gation is meaningless."
Berlin Currency Problem
Secretary-General Tyrgve Lie is making a
study of the currency problem in Berlin. In this
connection he has consulted Mr. Evatt, and will
consult Mr. Bramuglia on his return from London.
The Berlin currency problem is part of the Ber-
lin issue, which was brought before the Security
Council by the United States, France, and Great
Britain. They charged that the Soviet blockade
of the western sectors of the city constituted a
threat to peace.
A resolution was drawn up by the six neutral
members of the Council, calling for the immediate
lifting of restrictions on traffic between Berlin and
the four occupation zones in Germany and provid-
ing procedure for unification of Berlin currency by
November 20.
Tliis resolution, accepted by the three Western
Powers, was vetoed on October 25 by the Soviet
Union and the case is still on the Councirs agenda.
On November 13 Mr. Evatt and Mr. Lie sub-
mitted a communication to the Four Powers con-
cerned asking for immediate conversations to re-
sume negotiations on the present crisis and on the
remaining peace settlement for Germany, Austria,
and Japan.
CORRECTION
Functions of Control of Foreign Assets in United
States Transferred
In the Bulletin of October 10, 1948, page 472,
appeared an item announcing the transfer of func-
tions relating to the control of foreign assets in the
United States from the Treasury Department to
the Department of Justice. The caption, "Control
of Foreign Assets in U.S. Ended", should be
changed to read "Functions of Control of Foreign
Assets in U.S. Transferred".
616
Department of State Bulletin
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
Members of Tin Study Group To Consider
Advisability of Agreement
[Ueleased to tile press Novemln'r 1]
The Department of State received on Novem-
ber 1 the followin<j statement, released at The
Hague on October 29, 1948 :
"The International Tin Study Group held its
third session at The Hague fi'om the 25th to the
29th of October.
"The group had before it the report of the
Working Party which had met in June. The pur-
port of this report was that it would be appro-
priate and practicable to conclude an international
tin agreement on the lines set out in the report.
"The group modified these proposals in certain
respects and has forwarded to the member govern-
ments a recommendation that after certain pre-
paratory steps have been taken the member gov-
ernments should be asked to inform the Secretary
whether thej^ would be disposed to enter into an
agreement on the broad lines proposed and are
willing to attend a conference to put the agi'ee-
ment into final form and to conclude it. If a
sufficient number of affirmative replies is received,
the Secretary General of the United Nations will
be asked to convene an intergovermnental tin con-
ference next spring".
Chairman of the United States Delectation to
the Tin Study Group was Donald D. Kennedy,
Chief, International Resources Division, Depart-
ment of State.
Ward M. Canaday Becomes U.S. Commissioner
of Caribbean Commission
Ward M. Canaday took his oath of office as
United States Commissioner and Chairman of the
United States Section of the Caribbean Commis-
sion on November 5. The oath was administered
by Stanley Woodward, Chief of Protocol, at the
Department of State in the presence of a large
group of associates and friends. Mr. Canaday was
appointed by the President on October 30, 19i8.
Mr. Canaday will attend the Third Session of
the West Indian Conference, held biennially under
the auspices of the Caribbean Commission, which
will convene in Guadeloupe, F.W.I., on December
1, 1948, and the Seventh Meeting of the Caribbean
Commission, which will be held concurrently
with the West Indian Conference.
Mr. Canaday succeeds Charles W. Taussig of
New York, who died on May 9, 1948. Mr. Taussig
had been appointed by President Roosevelt in
November 14, 1948
March 1942 as United States Co-Chairman of the
Anglo-American Caribbean Commission, which
in December 1945 became the Caribbean Commis-
sion.
The Caribbean Commission, of which France,
the Netherlands, the United Kingdom, and the
United States are members, is a consultative and
advisory body established to encourage and
strengthen social and economic cooperation be-
tween the four metropolitan countries and their
territories in that area.
U.S. Delegation to ILO Textiles Committee
The Department of State announced on October
28 the composition of the United States Delega-
tion to the second session of the Textiles Commit-
tee of the International Labor Organization, which
session opened October 26, at Geneva, as follows :
Government Representatives
Arnold L. Zempel, Associate Director, Office of Interna-
tional Labor Affairs, Deiiartment of Labor
Kene Lutz, CTaief, Textile Section, Textile and Leather
Branch, Department of Commerce
Adviser
Hersey E. Riley, Chief, Branch of Construction Statistics,
Bureau of Labor Statistics, Department of Labor
Employers' Representatives
Herbert H. Schell, President, Sidney Blumenthal and Co.,
Inc., New York, N. Y.
Edwin Wilkinson, Assistant to the President, National As-
sociation of Wool Manufacturers, New York, N. Y.
Workers' Representatives
Anthony Valente, International President, United Textile
Workers of America, Washington, D. O.
Francis M. Schaufenbil, Vice President, United Textile
Workers of America, Lawrence, Mass.
The agenda for the meeting includes: (1) a
general report dealing with action taken in the
various countries to give elfect to the resolutions
of the first session of the Committee, held at Brus-
sels in November 1946; (2) report on recent de-
velopments and events in the textile industry;
(3) discussion of employment problems, with
special reference to recruitment and training; and
(4) problems of industrial relations.
The Textile Committee is one of eight industrial
committee of the Ilo established for the pur-
pose of examining social and economic aspects of
international labor standards in the respective in-
dustries and adopting resolutions for their im-
provements.
617
THE RECORD OF THE WEEK
Procedure for Transmitting Electors' Certificates
LETTER FROM THE ACTING SECRETARY OF STATE TO THE 48 GOVERNORS
[Released to the press November 3]
Acting Secretary Lovett on November 1, 1948,
sent to the Governors of the 48 States a letter out-
lining the procedure laid down in the law for the
receipt and transmission by the Department of
State to the Congress of certificates of the appoint-
ment of the electors of the several States and of
the votes of the electors.
Following is the text of the letter :
November i, 191^
The Honorable
The Governor of
Sir: The laws of the United States relating to
presidential elections requii'e the performance of
certain duties by State executives, electors of
President and Vice President, and the Secretary
of State of the United States. I send for your con-
venient reference copies of a publication of the
Department of State entitled Presidential Elec-
tions^ containing the relevant provisions of the
Constitution and of the United States Code (Pub-
lic Law 77l-80th Congress). The number of
copies transmitted is sufficient to enable you, if
you so desire, to furnish one to each elector of your
State and to each official having duties in that
connection.
Title 3, Chapter 1. Section 6, United States Code,
provides that the executives of each State shall,
as soon as practicable after the conclusion of the
appointment of electors in such State, communi-
cate bj' registered mail, under the seal of the State,
to the Secretary of State of the United States, a
certificate of ascertainment of the electors ap-
pointed. This certificate shall set forth not only
the names of the electors appointed and the votes
received by each, but .shall also list the names of
all other candidates for elector of President and
Vice President and the number of votes received
by each of them. The Secretary of State of the
United States is required to transmit copies of each
such certificate to the two Houses of Congress. I
shall therefore be grateful if you will be good
618
enough to furnish me with an original and two
exact copies of such certificate.
The law provides that the electors shall meet
and give their votes on the first Monday after the
second Wednesday in December next following
their appointment, i.e. on December 13, 1948, and
that the counting of the electoral votes in Congress
shall proceed on January 6, 1949 (Title 3, Chapter
1, Sections 7 and 15, United States Code).
Title 3, Chapter 1, Section 11, United States
Code, imposes on the electors of each State the
duty of forwarding by registered mail to the Sec-
retary of State of the United States two certificates
of the electors containing the two distinct lists of
the votes of electors for President and for Vice
President respectively, in the form prescribed by
Section 9 thereof.
If no such certificate of vote and list has been
received from the electors of any State by the
President of the Senate or by the Secretary of
State by the fourth Wednesday in December, after
the meeting of the electors shall have been held,
i.e. by December 22, 1948, it is provided that the
President of the Senate, or, if he is absent from
the seat of government, the Seci'etary of State, re-
quest the secretary of state of the State to transmit
by registered mail the certificate and list lodged
with him by the electors of that State to the Presi-
dent of the Senate (Title 3, Chapter 1, Section
12). Under the same conditions, a like demand
shall be made upon the judge of the District in
which the electors shall have assembled for the
certificate and list lodged with him by the electors
of that State (Title 3, Chapter 1, Section 13).
It will be observed that for the performance of
the duties imposed upon the Secretary of State
of the United States by the provisions of law
under consideration it will be necessary that State
executives and electors cooperate promptly and
this cooperation I earnestly request.
Very truly yours,
Robert A. Lo^titt
Department of State Bulletin
Mexican Architects Visit U.S.
Two professors of arcliiU>cture, Alonso Mariscal
and Eugenio Peschard Delgado, of the National
University of Mexico City, have arrived in Wash-
ington to begin a two months' study of American
methods of teaching architecture. Their visit here
is being made under tlie travel-grant program of
the Deitartment of State.
Messrs. Mariscal and Peschard will visit the
schools of architecture of Harvard and Columbia
Universities, tiie Massachusetts Institute of Tech-
nology, the Illinois Institute of Technology, and
the Chicago Art Institute.
THE FOREIGN SERVICE
Assignment of First Social-
Welfare Attaches
[Released to the press November 4]
In June 1948, a public-health attache program
was inaugurated bj' the Department in cooperation
with the Public Health Service of the Federal
Security Agency. The purpose of that program
is to carry public health and medical tlevelop-
ments of the United States to other countries and
to bring their current research and activities in
these fields to this country.
Miss Evelj'n Hersey, graduate of the Pennsyl-
vania School of Social Work, formerly Assistant
to the United States Commissioner of Immigra-
tion and Naturalization and, before that, service
director for the American Committee for Christian
Refugees, has left for her post as social-welfare
attache at New Delhi, India.
Irving J. Fasteau, graduate of the New York
School of Social Work, formerly supervisor of so-
cial service of the State Board of Child Welfare,
New Jersey, and immediately prior to that, Chief
of the UxRRA Mission to Finland, took up his post
as social-welfare attache in the American Embassy
in Paris in May 1948.
The idea of having a few specialists in the field
of social welfare attached to foreign posts at se-
lected points throughout the world originated sev-
eral j-ears ago. The idea grew from a recognized
need of the Department of State and other gov-
ernmental agencies for more technical informa-
tion about social-welfare developments in foreign
countries and a better knowledge of their rela-
tionship to the political and economic conditions
irt those countries. The Federal Security Agency,
with its wide range of Federal social-welfare func-
tions, has been the agencj' most instrumental in
assisting in developing the social-welfare attache
program. Other Federal departments that have
had varying degrees of interest in the program are
the Bureau of Prisons of the Department of Jus-
November 74, J948
THE FOREIGN SERVICE
tice, the Department of Labor, the Office of the
Administrator of the Housing and Home Finance
Agency, and the Bureau of Human Nutrition and
Home Economics of the Department of Agricul-
ture. Nongovernmental agencies, which will find
useful the kind of information which can be pro-
vided by these social-welfare specialists, include
the American Association of Social Workers, the
American Association of Schools of Social Work,
the National Social Welfare Assembly the Amer-
ican Council of Voluntary Agencies for Foreign
Service, Inc., and the American Red Cross.
Although the functions of a social-welfare at-
tache vary according to conditions prevalent at
the particular post, the duties include the following
types of activity :
(1) Providing information for the Department
and other governmental and voluntary agencies
regarding social-welfare developments and con-
ditions in foreign countries. Fields of interest
include: social insurance, financial assistance to
low-income groups, child welfare, care of the phys-
ically and mentally handicapped and tlie aged,
vocational rehabilitation, and treatment of the
delinquent and criminal and the social aspects of
housing.
(2) Informing the Department and other gov-
ernmental and private agencies about both official
and unofficial attitudes in the country to which an
attache is assigned concerning the programs of
international organizations in the social field, par-
ticularly the Economic and Social Council of the
United Nations and its specialized agencies.
(3) Appraising the effect, as well as some of the
welfare aspects of American overseas aid pro-
grams, both governmental and voluntary; facili-
tating and aiding in the coordination of the work
of United States public and private welfare agen-
cies engaged in overseas programs affecting that
country.
(4) Serving as a consultant in the Embassy on
social-welfare problems of United States citizens
and alien dependents of citizens brought to the
attention of foreign jjosts.
At the present time the program is limited to two
attache posts. As the program develops, it is
hoped that, through a positive demonstration of
the efficacy of the services which social-welfare at-
taches may provide, the number may be increased.
The attaches are Foreign Service Reserve officers
and are administratively responsible to the Am-
bassadors of the posts to which tliey are assigned
and to the Director General of the P'oreign Service.
The social- welfare attaches, as is true for the labor
attaches, receive technical guidance from the Divi-
sion of International Labor and Social Affairs lo-
cated in the Office of International Trade Policy
under the Assistant Secretary of State for eco-
nomic affairs.
619
^cm^e/n^
The U.N. and Specialized Agencies Page
United Nations Economic Cooperation. Arti-
cle by Norman Burns 598
Adoption of Atomic Energy Resolution. State-
ment by Warren R. Austin 602
Resolution on Reports of the Atomic Energy
Commission
U N. Documents: A Selected Bibliography . 606
Discussion of Greek Problem. Statements
by John Foster Dulles in Committee I:
Continuation of Balkan Commission ... 607
Concern for Peace in the Balkans .... 609
U.S. Position on Palestine Resolution:
Statement by Philip C. Jessup 611
Text of Draft Resolution 613
Resolution on the Palestinian Question . . 613
Appeal to the Great Powers To Renew Their
Efforts To Compose Their Differences and
Establish a Lasting Peace 614
The U.S. in the U.N 615
Economic Affairs
United Nations Economic Cooperation.
Article by Norman Burns 598
Economic Affairs — Continued
Members of Tin Study Group To Consider
Advisability of Agreement •
Ward M. Canaday Becomes U.S. Commis-
sioner of Carribean Commission ....
U.S. Delegation to Ilo Textiles Committee .
Treaty Information
Organization of American States. Article by
George M. Monsma
General Policy
Organization of American States. Article by
George M. Monsma
The Department
Publications on the American Republics . .
Procedure for Transmitting Electors' Certifi-
cates. Letter From the Acting Secretary
of State to the 48 Governors
Mexican Architects Visit U.S
The Foreign Service
Assignment of First Social- Welfare Attaches .
Page
617
617
617
591
591
597
618
619
619
George N. Monsma, author of the article on the Organization
of American States, is Assistant Chief of the Division of Special
Inter-American Affairs, Office of American Republic Affairs,
Department of State.
U. S. GOVEBKMENT PRINTING 0FFICEM94B
^/i€/ z!/)eha/^tmeni/ /(w tnate^
GENERAL ASSEMBLY CONSIDERS STEPS FOR
REDUCTION OF ARMAMENTS • Statement by
Frederick H. Osborn 630
ANNOUNCEMENT OF INTENTION TO ENTER
TARIFF NEGOTIATIONS 642
NATURAL RESOURCES IN A WORLD OF CON-
FLICT • Article by Paul H. Nitze 623
For complete contents see back cover
Vol. XIX, No. 490
November 21, 1948
■*tes
k«»»» o*
^6 2 1946
«>we z/^efut/yi^e^ ^ C/laie YJ LI 1 1 w L 1 ± JL
Vol. XIX, No. 490 • Publication 3346
November 21, 1948
For sale by the Superintendent of Documents
U.S. Ooveroment Printing OtDce
Washington 25. DC.
Prici:
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Single copy, 16 cents
Published with the approval of the
Director of the Bureau of the Budget
I^ote: Contents of this publication are not
copyrighted and items contained herein may
be reprinted. Citation of the Department
or State Bulletin as the source will be
appreciated.
The Department of State BULLETIN,
a weekly publication compiled and
edited in the Division of Publications,
Office of Public Affairs, proindes the
public and interested agencies of
the Government uiith information on
developments in the field of foreign
relations and on the icork of the De-
partment of State and the Foreign
Service. The BULLETIN includes
press releases on foreign policy issued
by the White House and the Depart-
ment, 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 inter-
national affairs and the functions of
the Department. Information is in-
cluded concerning treaties and in-
ternational agreements to which the
United States is or may become a
party and treaties of general inter-
national interest.
Publications of the Department, as
well as legislative fnaterial in the field
of international relations, are listed
currently.
NATURAL RESOURCES IN A WORLD OF CONFLICT
fey Paul H. JSilze
Deputy to the Assistant Secretary for Economic Affairs
There is today widespi'ead concern as to the
adequacy of natural resources to support the
world's increasing population. Malthus has come
back into fashion, and Malthusian gloom per-
vades many of our discussions of trends in other
parts of the world and of the effectiveness of the
international policies we adopt. It will perhaps
give a little perspective to this problem if I recall
a talk I had with Sir Montagu Norman in 1932,
when he was Governor of the Bank of England.
He felt then that the basic problem in the world
was overproduction, that technical advances in
production had been so rapid that -the world as
a whole was experiencing a crisis arising out of al-
most universal overproduction. Moreover, he
thought that such a condition would be chronic
for the foreseeable future.
It seemed to me then, and it seems to me now,
that Sir Montagu's analysis was only a partial
analysis of an extremely complex pattern of inter-
related factors and that he overemphasized the
abundance of resources and ignored the possibil-
ity of a well-functioning economy and a great war,
causing a scarcity of resources. It seems to me
that there is an opposite danger of a partial analy-
sis based on an assumption that this scarcity of
natural resources will be extreme. Oversimpli-
fication is a constant hazard in this infinitely com-
plicated field.
One point is crystal clear, however, and that is
that we should not shy away from the facts. We
should examine such facts as are available to us to
the best of our ability. Then, having ascertained
the facts, or at least as many as we can, we should
develop a positive program of action that holds out
realistic prospects of accomplishment and attempt
to carry it out. Although we must not hesitate to
November 2?, 1948
develop a program and carry it out, we must all the
time maintain a certain degree of humility as to
our ability to foresee how the various interrelated
factors will in fact work themselves out. Unpre-
dicted and unpredictable events abound, especially
when human beings are involved, and this problem
of the relation of man to his resource environment
is just as much a human problem as it is a natural-
resource problem.
Considering first the nonrenewable resources,
one of the hard facts of life is that the minerals
necessary for a highly developed civilization can
be drawn from the earth in only limited quanti-
ties. Some are located at such depths, at such
places, and in such combinations as to make them
extremely difficult or even impossible to obtain.
Furthermore, the minerals that we do know about
and can get at without too much difficulty are dis-
tributed around the world in a haphazard fashion,
from the point of view of human use.
It would be comforting if, once we got minerals
out of the ground, we could keep on using them in-
definitely. But there is much permanent loss,
ranging from total loss, in the case of fuels, to only
slight loss — for example, in the case of lead used
in storage batteries. At present rates of consump-
tion, there is an appreciable drain on the known
mineral resources of the world.
The facts about renewable natural resources are
moie complex, but it seems to be generally agreed
that unless thoroughgoing conservation measures
are widely employed, erosion, soil exhaustion, de-
forestation, lower water tables, silting up of
streams, and related developments will soon bring
results which would be even more serious than the
permanent loss of certain of our mineral resources.
623
Against these broad natural-resource facts we
have the facts of population. The world's popula-
tion increased from 400 millions in the sixteenth
century to some 800 millions in the nineteenth, and
is now estimated at approximately 2,200 millions.
Population growth generally changes only slowly
and as a result of complex factors. A substantial
change in world population trends in the next
few decades is not probable. Even a decline in
the annual increments is unlikely for a consider-
able time to come. By the end of this century, the
world's population may be close to 3 billion people.
The situation is quite different in various parts
of the world. First, there are the countries of in-
cipient population stability, namely the countries
of Western Europe and North America. Second,
there are the countries of transitional growth, in-
cluding the Soviet Union, Eastern Europe gener-
ally, much of Latin America, and Japan. Third,
there are the countries with a high growth poten-
tial, especially China and India.
Certain interesting comparisons can be made
among these three types of countries. The first
and second types each have one fifth of the popu-
lation of the world ; the third type has three fifths.
In type 1, the median age is about 35 years and the
life expectancy at birth is about 60 years ; in type 2,
the median age is about 25 years and the life ex-
pectancy is about 50 ; in type 3, the median age is
about 20 years and the life expectancy is between
30 and 40 yeai'S. These are striking differences.
Birth rates are falling rapidly in types 1 and 2,
but not in type 3. Death rates are low and fairly
constant in type 1, falling rapidly in type 2, and
continuing high in type 3. The likely develop-
ments of the coming years, namely declining birth
rates and low or declining death rates in the more
advanced countries, but mainly declining death
rates in the less developed areas, which already
have well over half the world's population, will
mean a somewhat smaller percentage of the world's
population for the type 1, or, generally speaking,
the western countries, and a somewhat larger per-
centage for types 2 and 3, especially 3. This is a
political-economic fact, or probable fact, that must
always be borne in mind.
It is clear that the United States will gradually
come to have a smaller percentage of the people
of the world. This may make our own problem
of adaptation to limited resources easier than for
the w.orld as a whole, especially in view of the high
productivity of our people.
There is another important aspect of the popu-
lation and resources problem, which is sometimes
overlooked. During the last 100 years or so, pro-
duction and consumption, as well as population,
have increased greatly. At the same time democ-
racy and popular education have advanced rap-
idly. The result has been a tremendous rise in
aspirations for the good things of life, in the mate-
rial as well as the spiritual realm, on the part of
the great mass of people over the world. People
are not satisfied with their present lot. They want
more things to eat, wear, and enjoy now. "Pie in
the sky by and by" seems to have less appeal than
it perhaps once did. Moreover, people in many
countries have sufficient political power to make
their wants felt. Governments are under obliga-
tion to do something to improve the lot of the com-
mon man. Whether the resource base exists for
providing the rapidly increasing popidations with
the high levels of physical consumption they de-
sire is a real question. If not, political stability
will depend to a considerable extent on people ad-
justing their consumption sights to something
within the range of practical possibilities.
Another factor bringing pressure on natural re-
sources is of course the need for military estab-
lishments. War is expensive in terms ,of natural
resources as well as human, and the exhaustible
mineral resources are especially hard hit in this
day of industrialized warfare. The present mo-
ment is not a happy one for predicting an imme-
diate decline in the military drain on resources.
It is too bad that there is not an annual or quin-
quennial volume that lists all the natural resources
of the world and tells where they are and how
much thei'e is of them. Such a volume would
probably not be generally accepted as authorita-
tive and for a very good reason. Natural resource
is in part a relative term. It has meaning only in
the context of the potential use to which we think
the resource can be put. The nitrogen in the air,
the gold in the sea, or the minerals of the core of
the earth are not counted as part of our natural
resources. In a very real sense, resources do not
exist unless we are resourceful enough to find ways
and means of using them. Differences of opinion
as to what resources exist and the technical and
economic possibilities of converting them to man's
i
624
Departmenf of State Bulletin
use are such as to make authoritative cataloging
cliflicult.
The relativity of the concept of "natural re-
sources" must always be kept in mind. For ex-
iun]ile, titanium, which was formerly important
largely because it was an obnoxious impurity in
steel manufacture, has in recent years become an
important substitute for lead in the manufacture
of paint, and now that an economical process has
been found for refining it into a pure metal, tita-
nium ore deposits, once a drug on the market, may
come to have strategic significance.
During the war the Office of Imports of the For-
eign Economic Administration was largely con-
cerned with tlie procurement of strategic matei'ials
abroad and the preclusive buying of materials to
deny them to the enemy. Some consideration was
also given, however, to the foreseeable raw-mate-
rials problems which would arise tluring the peace.
In that connection, our various commodity experts
were asked to estimate the remaining world re-
sources of the various metals and minerals which
they were engaged in procuring. The most com-
petent were generally the most reluctant to set a
figure down in black and white because of the al-
most interminable qualifying footnotes that would
have had to be added to explain exactly what the
figure meant and what it did not mean.
Quite apart from this problem of the relativity
of natural resources are two other stumbling blocks
to adequate knowledge about the quantity of nat-
ural resources. One is that it takes a considerable
amount of high-quality hvunan resources and some
other facilities to collect resource information.
The other, a sad one, is that certain governments
shoot people who divulge even to their own citi-
zens much about resources in their countries.
In spite of these difficulties, one can say some-
thing about the resource position of the world and
the United States. It is convenient to continue
the distinction between renewable and nonrenew-
able resources.
Of the renewable, nothing compares with soils
in importance. The broad fact here is that top-
soil builds up slowly, and through neglect and
careless agricultural practices the world is losing
a great amount of valuable topsoil. We in the
United States, it is believed, take better care of
our land than do people in many countries,
although we are still behind a number of coun-
tries in soil-conservation practice. Despite this,
the war and postwar years have seen tremendous
accomplishments by United States agriculture,
based on improved practices, better seeds, and new
techniques that have made these accomplishments
possible. Without them the United States would
have been in no position to help other countries of
the world avoid mass starvation and the resulting
economic and political chaos.
The most immediate concern of the United
States is the minerals field. In general this coun-
trj' is well endowed with mineral resources. It is
this endowment which has, among other things,
made it possible for the 7 percent of the world's
population in the United States to produce 40
percent of the world's goods. Without this en-
dowment we could not have shipped abroad some
140 million tons of military and other equipment
during the war.
Today there are many shortages of mineral sup-
plies in the United States. The Bureau of Mines
has estimated our commercial mineral reserves in
relation to the 1935-39 annual rate of use. The
United States has no commercial reserves of flake
graphite, quartz crystals, industrial diamonds, tin,
and nickel. Our commercial reserves have been es-
timated at one year for chromite, 2 years for man-
ganese, 3 for asbestos and mercury, 4 for platinum
and tungsten, 7 for vanadium, 9 for bauxite, 12 for
lead, 19 for zinc, and 34 for copper. Since that
time prices have advanced substantially, probably
throwing additional ore into the commercial class.
On the other hand, further depletion has taken
place, and the 1935-39 rate of use has been found
to be at least 30 percent under current annual re-
quirements, even with all the technological im-
provements in consumption that enable us to
stretch our supplies.
The pressures arising from a growing shortage
of high-grade mineral reserves are bound to have
far-reaching effects on our domestic economy, and
to some extent abroad. The case of the imminent
exhaustion of the high-grade Mesabi iron ores is
a good example. Already northern New York
iron mines, once abandoned, are being reopened;
experimental work is going forward rapidly in the
beneficiation of lower grade iron ores; production
from deposits in North Africa is increasing; proj-
ects are under way or under consideration in
Brazil, in Venezuela, and in Liberia. The recov-
November 27, 1948
625
ery of iron and steel scrap has taken on a new
importance, and negotiations have just been com-
pleted with the United Kingdom which should
result in steel scrap moving from Germany to the
United States. Improvements in the steel-making
processes are being stimulated. The problem will
be met, but only by the application of a vast
amount of technical and other energies.
Similarly, in other segments of the metals field,
serious problems are arising that require new tech-
nical developments, the substitution of a more
plentiful metal for a less plentiful, more economi-
cal forms of utilization, and above all a far greater
emphasis upon the recovery of scrap. In the long
run we must reduce the wastage of nonrenewable
resources to an absolute minimum. Such a re-
duction does not necessarily mean a halt in the
increase in our standard of living; but it does
mean a much more intelligent use of the resources
which we have. As an illustration of what can
be done, we remember our amazement and distress
at discovering, just after the war, that Germany
had been able to triple its war production between
1942 and 1945 with no substantial increase in its
raw materials, but just by more efficient use of
those materials. This effort was largely made by
redesign of equipment and new techniques of
production.
Our fuels are used up when they are burnt,
and no recovery as scrap is possible. Fortunately,
our coal reserves are very great, and by and large
those of other countries are also of long life. Our
oil reserves are not in such a happy position, al-
though much has been done to improve extraction
techniques. For the immediate future the rapid
development of Middle Eastern reserves should
ease the tight world petroleum situation. In the
long run the problem would not be so great in the
energy field if water, solar, atomic, or wind sources
could be harnessed in adequate volume. It is clear
that an increase in the energy base of the world
economy is fundamental to sustained large-scale
advance.
Up to this point only passing reference has been
made to the ways of mitigating or actually im-
proving what looks to some like the sad long-run
plight of the human race. Now let us see what are
or might become mitigating factors and how prac-
ticable they would appear to be.
Of the ways in which the seriousness of this
world situation might conceivably be mitigated,
«26
some are not within our power to do very much
about at the present time. One is a rapid decline
in population or even a rapid decline in the rate of
increase of population. Another is large-scale
movements of population. Another is a general
reduction of people's desires for the things of this
world which involve, directly or indirectly, drains
on scarce natural resources. A fourth is a signifi-
cant reduction of the amount of resources going
to military establishments.
There are certain other ways of mitigating the
impact of resource shortages that it is within our
power to do something about. Improved tech-
niques for resource development and conserva-
tion, even on the basis of current knowledge if
widely applied, hold substantial prospects for mit-
igating the problem. The results of such appli-
cation may not be estimated now statistically, but
concern for natural resources would be much less
panicky if existing knowledge were being fully
put to practical use.
To accomplish this result, four basic things seem
to be required. The first is knowledge ; the second
is wide dissemination of that knowledge ; the third
is the appropriate organizational techniques for
efficiently implementing that knowledge; and the
fourth is sufficient capital, or to put it another way,
enough excess of productive effort over current
consumption to enable us to execute the actual
projects involved.
On all four counts, the United States is in a
favorable situation, compared with the rest of the
world. We are fortunate in one further respect,
the freedom from internal barriers within the
United States to a free movement of knowledge, of
people, of goods, and .of the capital necessary for
resource development and conservation.
Optimum conservation and utilization of re-
sources cannot, however, be adequately achieved by
domestic measures alone, either in the United
States or in any other nation. On the interna-
tional front also there are important fields for
action, involving international trade, interna-
tional capital movements, and international
diffusion of scientific and technical knowledge.
Consider trade first. Many of the particular re-
source shortages of the United States are today
being met by imports from abroad. As resources
are further developed in other countries, we hope
that increased imports will be possible. The
United States is today, however, exporting a far
Department of State Bulletin
larger total volume of goods than it imports. This
is true not only in a dollar sense but also in the
sense of the resources that go into the goods pur-
chased with these dollars.
At the time of the congi'essional consideration of
the European Recovery Progi-am, the capacity of
the natural-resource position of the United States
to withstand the drain involved was considered.
After consideration, it was felt that we coidd stand
the drain, and the program was approved. The
point is, however, that there are practical limits to
the extent to which we can export our resources
without receiving comparable imports.
Reflecting our concern on this point, both the
Executive Branch of the Government and the Con-
gress felt it wise to attach to the rendering of eco-
nomic assistance to Europe the condition that the
recipient countries cooperate with us in making
available reasonable quantities of materials ex-
\ pected to be in long-term short supply in the
United States. Again, our stockpiling program is
part of our attempt to insure adequate supplies of
strategic resources in case international trade
should be disrupted by war. In any commodity
agreements we may negotiate, it is obvious that our
special interest will be that available supplies
should be adequate for our needs.
In the long run it is our belief that not onlj' we
but all other countries stand to benefit from a rela-
tively free and equitable exchange of goods in in-
ternational trade. The uneven distribution of re-
sources of each country is to some extent overcome
by such trade. This is a major purpose of the
projected International Trade Organization.
The importance of international trade in this
I whole problem area is also a result of the greater
' international specialization of labor that it makes
possible. Development is thus concentrated on
the most economic resources, with higher living
levels brought about by the resulting greater pro-
ductivity in all areas. Greater jjroductivity may
1 not lessen the total drain on resources, but it cer-
tainly lessens the impact of growing populations
on particular resources. International trade has
never been developed sufficiently to permit us to
judge how large a contribution it could make to
well-being. It is tempting to believe that the dif-
ference in the levels of living between Western
Europe and the United States derives to a very
large extent from the existence of barriers to trade
among the Western European states, in contrast to
the comparative lack of such barriers between the
States of the United States. This belief, of course,
lies behind our strong encouragement of Euro-
pean economic cooperation.
In spite of the importance of international trade,
it is going to be difficult in the coming years to
maintain a large and increasing volimie of inter-
national trade. It will be an uphill struggle, even
with a functioning International Trade Organiza-
tion. Many countries believe that their economic
salvation lies in less, rather than more, trade, be-
cause they think more trade increases their vul-
nerability to instabilities elsewhere, specifically
depressions or wars, and because they think they
can develop themselves internally more rapidly
by insulating themselves to a considerable extent.
In attempting both to insulate themselves from in-
ternational economic instability and to develop as
rajjidly as possible, many countries severely limit
their imports of certain products, compete avidly
for such other imports as steel, machinery, and
equipment needed for industrialization and al-
ready in short supply ; and soon face internal in-
flation which kills their exports, industrial bottle-
necks arising in their extraordinarily complex
economic development, and a desperate need for
large-scale external financial assistance.
Most of these countries are due for disappoint-
ment. True, the Soviet Union — with a tremen-
dous variety of natural resources and an iron
discipline — has achieved a certain degree of au-
tarchy ; but this is no sign that many other coun-
tries — most of them much smaller — can do the
same. By and large, most other countries simply
lack the necessary resources. Also, to their great
credit, they have a much greater concern for the
freedom and aspirations of the individual. It is
to be hoped that these countries will see the eco-
nomic light before they add to their misery by
going down the rugged path toward an autarchy
that is certain to be austere.
The second international approach to the prob-
lem of resource development and conservation is
through larger movements of international capital.
In many countries adequate domestic capital just
is not available to carry out progi-ams which are
clearly indicated as being desirable.
With adequate safeguards, the international
movement of capital benefits both the recipient and
the investor, because it helps to develop new re-
sources and makes possible better utilization of
November 21, 1948
627
existing resources. International capital flow
tends to be accompanied by managerial and tech-
nical skills and the latest technological knowledge
and machinery, and for this reason may contribute
to a wide sector of the economy to which it moves.
Our policy is to encourage tlie maximum free
movement of international investment capital.
We ourselves know the benefits of foreign capital,
for mucli of our early American economic de-
velopment was made possible only by foreign in-
vestors. Today, most of the demands for inter-
national capital are centered on the United States,
and we have made vast sums available to other
countries, either as regular loans, governmental
and private, as direct investments by private cor-
porations, or as gifts.
In general, the field of development of natural
resources seems to us more appropriate for pri-
vate investors than for the United States Govern-
ment, and we have encouraged borrowers to go to
private sources of capital wherever possible. Un-
fortunately, many borrowers are less eager for pri-
vate capital than for governmental capital, al-
though the latter is strictly limited in amount and
in approved uses. As a result of the many bar-
riers to the entry of private capital into other coun-
tries, many countries of the world today have had
and are continuing to have a much smaller flow of
investment capital than they might otherwise re-
ceive. The consequence of this situation, of course,
is that their resources contribute less than they are
able, both because they are relatively undeveloped
and because they are being wastefully developed.
To repeat, we are convinced that both lender and
borrower gain from a wise investment of capital,
and it is our policy to encourage the flow of private
investment capital both in the interest of our own
lenders and in the interest of the economic de-
velopment and wise resource utilization of the bor-
rowing countries.
It is impossible to mention the potential gain
from moving capital across national boundaries so
that it can maximize the productivity of labor and
land in other countries, without touching at least
briefly on the possibilities of moving people so
that they can work with existing resources. It is
fairly clear that some redistribution of people
could raise the productivity of workers and hence
the total world product, both in the primary in-
dustries and in others. Within the United States,
for example, the mobility of our labor force is
one of the great sources of our economic strength. .
There are, however, numerous difficulties in the
way of migration in many parts of the world,
although some measures have been carried out to
bring workers fi'om surplus areas to labor-short-
age areas such as Canada, Australia, and Argen-
tina.
The tliird and potentially most important inter-
national method of progressing toward these goals
is the development, dissemination, and application
of increasingly efficient technology. It is fair to
say that the development of such techniques is far
ahead of their application. This lag in applica-
tion does not mean that we should slow up on de-
velopment, but it underlines the imperative neces-
sity of much more energetic measures to dissemi-
nate technical information on resource utilization
and conservation. Much of this already takes
place through private channels — through the
press, the technical journals, the radio, the educa-
tioiial system, even the movies— and the more that
can be done in this way the better. Certainly, we
should help to destroy all governmental barriers
not only to the free flow of news but also, so far as
security considerations permit, of technical infor-
mation. Capital rarely moves abroad these days
without a substantial store of techiiical informa-
tion and techniques moving with it, so our encour-
agement of capital flow is indirectly an encourage-
ment to the diffusion of technical knowledge. A
very interesting development of the last few years
in this field has been the formation of development
corporations, such as those in Latin America ini-
tiated by the Rockefeller interests, and the group
working in Liberia under the aegis of former Sec-
retary of State Edward Stettinius.
The times call for more than private communi-
cations and private capital, however, and there is
widespread interest in and approval of govern-
mental participation in the international sharing
of one of our greatest resources — our knowledge of
liow best to utilize resources. United States Gov-
ernment funds in this field are administered
through the Interdepartmental Committee on Sci-
entific and Cultural Cooperation. A variety of
technical missions and many interchanges of spe-
cialized personnel take place with the support of
the Committee, one of whose guiding principles is
the need to balance the development of physical
resources with the development of human
resources.
I
628
Deparfment of Sfate Bulletin
Tlie Export-Tniport Bank provides engineers
and technical advice in connection with the loans
it extends. In addition, the Institute of Inter-
American AfTairs has worked out with many of
our neighbors to the south a jointly supported and
jointly operated device called the '"Servicio", to
assist in disseminating technical information and
training, particularly in the health, agricultural,
and educational fields. The Economic Coopera-
tion Act provides specifically for the provision of
technical and engineering assistance to participat-
ing countries in Europe. We are now experiment-
ing with the assignment to our United States Em-
bassies abroad of scientific attaches for the purpose
of facilitating the exchange of scientific informa-
tion and technology. Our Government — unlike
those governments which censor not only the inter-
national transmission of information but even the
expression at home of heterodox scientific opin-
ion — our Government stands squarely behind the
greatest possible development of completely objec-
tive science and technology, and its fullest possible
sharing with other nations, except where security
considerations prevent.
Many of the international organizations in
which the United States participates have been
or will be active in different phases of the dis-
semination of teclinical knowledge; for example,
the Food and Agriculture Organization, the World
Health Organization, the United Nations Educa-
tional, Scientific and Cultural Organization, and
the Organization of American States. The
United Nations, and particularly the Economic
and Social Council, are also active in this field
and coordinate the work of the specialized agen-
cies. It was the Economic and Social Council that
took the initiative in calling the United Nations
Scientific Conference on the Conservation and
Utilization of Resources, scheduled for May 16-
June 3, 1949. This nuiltilateral approach is sup-
plemented and reinforced by the active bilateral
technical assistance programs mentioned above.
Over and above the specific foreign-policy ques-
tions raised by specific resource problems is the
fact that one of the fundamental purposes of our
foreign policy is that the United States play an
appropriate role in establishing political and eco-
nomic peace in the world. In implementation of
that policy, we have given our full support to the
United Nations and to the specialized interna-
tional agencies, including the Monetary Fund, the
International Bank, and the projected Interna-
tional Trade Organization.
We have supplemented these efforts by con-
crete and material assistance to almost all countries
of the world, including the Eastern European
countries, in recovering from the economic dislo-
cations of the war. We have been the leading fac-
tor in halting the advance of that totalitarian ag-
gression that feeds on economic distress and politi-
cal chaos. Currently, our major effort is the task
of completing economic recovery in Europe.
Finally, it is imiDortant to emphasize that the
question of whether the world's resources will be
adequate in the future to provide for essential hu-
man needs is to a large extent a matter of inter-
national relations. If there is no real settlement of
the political and ideological tensions with which
we are now afflicted, a large part of the resources
which may be available will be wasted in main-
taining huge security establishments or in the su-
preme waste of war itself. The full development
of potential resources can occur only if interna-
tional conditions are such as to facilitate the inter-
change of technical knowledge, the flow of goods,
and the transfer of capital.
November 21, 1948
629
THE UNITED NATIONS AND SPECIALIZED AGENCIES
General Assembly Considers Steps for Reduction off Armaments
STATEMENT BY FREDERICK H. OSBORN IN COMMITTEE M
U.S. Delegate to the General Assembly
The resolution on disarmament before the Com-
mittee refers to the fact that "the reduction of
conventional armaments and armed forces can
only be attained in an atmosphere of real and
lasting improvement in international relations".
In my remarks today, Mr. Chairman, I should
like to discuss what must be done to attain, first,
this "atmosphere of real and lasting improve-
ment in international i-elations" which we all de-
sire, and, second, the facts about armaments in the
world today.
Mr. Chairman, there has been too little analysis
of why there is an atmosphere of fear and dis-
trust in the world today. Soviet Representa-
tives here, like their rulers in the Kremlin, seem
to us to ignore the real causes for the present ten-
sion. They pass over lightly the history of the
past three years. They seem to have forgotten
the shift in their policies which has taken place
since we were so recently comrades-in-arms, fight-
ing side by side in a common cause.
During the war the American people sympa-
thized with the Russian people, as we always have
sympathized with a nation attacked by an aggres-
sor. We gave the Soviet Union every help we
could, without asking any questions.
The people of Russia fought heroically to de-
fend their country. They were told that the war
was a war of defense. They were not told that
the war was about Communism. But after the
war Stalin's interpretation of Communism was
again made a major factor in international rela-
tions. It was only after the war that Soviet
leaders reconstructed the dialectic of the early
days of the revolution and with equal emphasis
in 1947 and 1948 stressed the inevitability of a
struggle between the Soviet brand of Communism
and the so-called capitalist states. Examples of
their present attitude are so numerous that they
might be quoted for hours on end. Let me take
only a single and very recent example. The New
York Times of November 5th carries an article
which states the following: In the current issue
' Made on Nov. 11, 1948, and released to the press on the
same date. Mr. Osborn is the Deputy U.S. Representative
to the Atomic Energy Commission and is on the Commis-
sion for Conventional Armaments.
630
of Bolshevik, organ of the Central Committee of
the Communist Party of the Soviet Union, there
is an extensive article which urges that the foreign
Communist Parties transform themselves into
revolutionary parties dedicated to preparing the
way for armed revolt. According to the author,
Mr. Burdzhalov, this is a return to the original
Leninist doctrine. He quoted Prime Minister
Stalin as saying that the parliamentary struggle
was only a school for organizing the extra-parlia-
mentary revolutionary means of struggle. Mr.
Burdzhalov added that "direction of the revolu-
tionary activities of the masses is the basic activity
of the Communists". I will not go on with the
rest of the article. But it is clear that such pro-
nouncements, in which we may include Mr. Molo-
tov's prediction of a year ago that "all roads lead
to Communism", do not create an atmosphere of
confidence.
Mr. Vyshinslcy himself has not allayed our anx-
iety. He has quoted Lenin on "capitalist encircle-
ment" and impressed upon us that Communism is j
the gravedigger of our so-called capitalism. These j
facts make clear that the Soviet Union is once J
again publicly professing the aim of world revo-
lution.
Behind the tightly sealed borders of the Soviet!
state almost 10 percent of the world's people are!
kept ignorant of what goes on in the outside world.
The people of the rest of the world are disturbed ]
at the thought of what may be going on behind!
this veil of secrecy. They are forced to believe,]
from available information, that the Soviet Un-
ion has far more men imder arms than any otherj
nation.
With this strange background of arms and se-
crecy, the Soviet Union since the war has done!
things which have been bad for international rela- j
tions.
The Soviet Union has forcibly annexed terri-
tory. The Soviet Union has destroyed the hopefull
progress of representative government in the coun-f
tries of eastern and central Europe. The Soviet!
Union has obstructed the negotiations of peace
treaties with Germany and Japan. The Soviet
Union has refused to accept the plan of the United
Nations for the control of atomic energy and the
prohibition of atomic weapons which 46 other na-
Department of Stale Bulletin
tions find acceptable in principle. Soviet Repre-
sentatives have cast 28 vetoes in the Security Coun-
cil, many of which specifically blocked the peaceful
settlement of disputes. Their summary rejection
of the neutrals' plan to settle the Berlin question
is fresh in our memories. There is every evidence
that the Soviet Union is actively trying to prevent
the reconstruction and improvement of living con-
ditions in western Europe.
These actions force us to believe that the Soviet
Union is pursuing the aim of world revolution and
of destroying the economic and political systems
which other peoples have chosen for themselves.
Thus the Soviet Union has created a spirit of in-
quietude in the rest of the world. The inquietude
is made worse when the Soviet Union repeats over
and over things that the rest of the world knows
are not true.
It is pure nonsense to say that the United States
desires to attack the Soviet Union. Any person
who reads history knows that the people are mas-
ters of the government they have established in
the United States; and that the people want peace.
They would not permit a war of aggression. We
constantlj' hear from the Soviet Union that the
American "people" do not control their govern-
ment. "What nonsense ! Certainly after the events
of the past week Mr. Vyshinsky should know be-
yond the shadow of a doubt that the American
people choose their leaders in free, unfettered elec-
tions and that no policy can be pursued which is
not supported and sanctioned by the American
people.
The Russian people themselves have no such op-
portunities to choose their own leaders. When
they do, a milestone in human progress will have
been attained.
In carrying out the mandate of the people, the
United States has taken very specific steps to im-
prove world confidence and to better the chances
for peace.
The United States has offered to give up the
atomic bomb, to turn over all its atomic plants to
an international agency, and to accept the prohibi-
tion of atomic weapons under the conditions of
strict control approved by the overwhelming ma-
jorit}' of this General Assembly.
The United States, believing that lasting peace
demands healthy economic conditions, has put
into effect and is cooperating with the countries of
western Europe in a program of economic recon-
struction and rehabilitation. This cooperative en-
terprise has been closed to no nation and its terms
have been dictated by no nation.
The United States has exerted its efforts to
strengthen the United Nations. We are fully par-
ticipating in all of its agencies. By contrast, the
Soviet Union has refused to participate in most
of the specialized agencies of the United Nations.
I am not trying to fix the blame or credit for
November 21, 1948
THE UNITED NATIONS AND SPECIALIZED AGENCIES
these things. I am only trying to place before
you the facts as they appear to us in the United
States and also apparently to most of the people of
western Europe.
On the basis of these facts, it seems clear that we
will not attain "an atmosphere of real and last-
ing improvement in international relations" as a
prerequisite to disarmament, as required by this
resolution, until the Soviet Union, not only by its
words but in its actions, ceases to threaten the
world with Communist aggression.
I now come to the facts about armaments. A
realistic discussion of disarmament must be based
on consideration of the status of the present pro-
duction of armaments by the different nations as
well as on their arms and armies. Let us consider
first the state of arms production.
Much detail has been published in all the West-
ern nations which shows the amounts of money
now being spent on producing various types of
arms for gi-ound forces and air forces and naval
forces. These sums of money are published in
budgets voted by congresses or parliaments. And
in the Western countries, budgets are scrutinized
meticulously and frequently criticized and con-
tested by elected representatives of the people.
The Western states, after enormous expendi-
tures during the war, have reduced their appro-
priations for the production of arms and for mil-
itary forces to a relatively normal peacetime figure.
I am most familiar with United States statistics.
At the peak of the war years, American military
expenditures were more than 80 billion dollars a
year. Today, three years later, and taking into
account those military expenditures forced upon
us by present conditions of world insecurity, the
United States is spending approximately 13 bil-
lion dollars for defense purposes, or less than one
sixth of the amount during a war year. Alto-
gether, at the present time, the United States is
spending approximately 6 percent of its total na-
tional income on defense.
Tlie reduction in the number of men in our
Army, Navy, and Air Force was even gi'eater:
from more "than 12 million on June 30, 1945, to
well less than a million and a half on December
31, 1947.
Immediately after the destruction of the Japa-
nese and German armies, the overwhelming
weight of American production, which had been
concentrated on our common enemies, was turned
at once to the peacetime uses of the American
people. In addition, the industrial production of
the American worker has provided goods and food-
stuffs to help countries which had been occupied
during the war, in order to restore their peacetime
economies. These deliveries of goods and food-
stuffs abroad were made through the contributions
of the United States to the United Nations Relief
and Rehabilitation Administration, and more re-
cently through the Marshall Plan.
631
THB UNITED NATIONS AND SPECIALIZED AGENCIES
Such a peaceful use of our productive capacities
was a clear expression of the basic desire of the
people of the United States. This desire remains
unclianged. The American people want to pro-
duce for peace and not for war. But they are not
ready to jeopardize tlieir security. When during
the past three years they realized that other na-
tions remained heavily armed, indeed, appeared to
be rearming, they took the steps necessary for
their own protection. They began diverting some
part of their production to defense. They did so
with reluctance. They did so by necessity, not by
choice. They realize only too well that any such
decision means a corresponding reduction in the
materials available for the economic and social
improvement which is the road to world stability
and to world security.
At the present thne, 04 percent of the total na-
tional income of the United States is directed to
peaceful purposes. This is the productive power
whicli, when turned to other uses, has made the
United States so powerful in two world wars. But
it takes time to turn it from peaceful use into pro-
duction for war. Its present use is clear evidence
of our peaceful intent.
Now let us look for a moment at Soviet produc-
tion of military supplies and at the Soviet armies.
Tlie Soviet Union does not follow the example of
the countries of the Western world in publishing
details regarding the strength of its armed serv-
ices, or of monies spent on armaments. The Soviet
Union does not have a congress or parliament con-
taining an opposition free to analyze, dispute, and
seek confirmation of government figures. We must
therefore use the best published estimates avail-
able.
._ On the basis of such estimates, it appears that
in the Soviet Union approximately 16 percent of
the national income is now turned to munitions
and the support of vast armies ; which is more than
double the proportion spent in the United States,
or, indeed, in other Western European countries.
This is a strange situation. The Kussian people do
not want war. The Soviet leaders do not need to
convince us of that. The Russian worker, like
the American worker, wants peace, security for
his family, and the opportunity to improve his sit-
uation in life. We recognize that the Soviet Union
has made progress in reconstruction and rehabili-
tation since the end of the war. In spite of tlie
iron-clad restrictions placed on the travel of for-
eigners in the Soviet Union, our representatives
there have seen an improvement in living condi-
tions for Soviet citizens. But we know also that
these conditions are not imjiroving more rapidly
because so much of the production of Soviet fac-
tories is going into war materials. This repre-
sents a huge drain away from peacetime improve-
ments.
In order that tlie Soviet worker may accept this
situation, he is kept in the fear and dread of war
632
by the government itself. He depends for his
information upon his government-controlled and
strictly censored press, radio, stage, and cinema.
He hears only the news his rulers wish him to hear.
It is distorted for their own purposes.
When Mr. Vyshinsky makes one of his violent
sj^eeches in a session of this General Assembly,
every word he utters is printed in Pravda, Izvestia,
and the newspapers throughout the vast Soviet
Union. His speech of October 13 took up a large
part of three successive issues of the leading Mos-
cow papers. We have no objection to that — the
verbatim texts of Mr. Vyshinsky's speeches appear
in the American press. But the Soviet citizen
seldom, if ever, gets the chance to read the text of
a speech by a representative of a Western power.
Instead he can read only brief, tendentious, dis-
torted reports of such speeches which effectively
prevent him from getting an accurate picture of
our debates here. As an example of such distorted
and inaccurate reporting, the Moscow papers of
October 13 stated that in Ambassador Austin's
speech of October 12 he had made "a whole series
of slanderous statements founded on the forged
documents of the Hitlerites and used early this
year by the United States State Department".
I need only comment in passing that not one single
sentence of that speech came from a German docu-
ment. Stalin's congratulatory telegram to Rib-
bentrop, which Mr. Vyshinsky implied was a
forged document, was published at the time in
the Soviet press and in Communist newspapere
tliroughout the world, including the issue of De-
cember 28, 1939, of the Daily Worker.
I am sometimes gravely apprehensive, Mr.
Chairman, that the Russian man-in-the-street may
not be the only Soviet citizen holding a warped
and twisted view of the world outside the borders
of tlie Union of Soviet Socialist Republics. My
misgivings arise from statements made in this
committee by Mr. Vyshinsky and by recent public
statements emanating from Moscow. I am led to
wonder whether the rulers of the Soviet Union,
tlie members of tlie Politburo themselves, may not
come to believe the frightening and false propa-
ganda picture of a world wanting to attack their
country. I hope such is not the case, and I am
reluctant to believe it so. I trust that the mem-
bers of the Politburo, if not the Russian people,
will have access to and will read carefully the ver-
batim records of this session of the General As-
sembly. If they are not then convinced of the
good faith of non-Communist nations represented
about this table and of the fact that these nations
are not planning and will not undertake aggressive
war against the Soviet Union, then I say these
gentlemen are blind and impervious to the truth.
The Soviet citizen yearns for a better life. He
would hope that he might live in less crowded con-
ditions, that he might buy better clothes for his
family, more books for his children, and even some
Department of State Bulletin
of (lie motlorn eloctricul appliances — toasters,
irons, and refrigerators, which are beginning to
appear on the shelves of Moscow department
stores. The Soviet citizen would hope that the
millions of political prisoners working in mines
and factories might be replaced by free workers
freely hired. He would hope that he might have
freedom of choice in his work and place of em-
ployment.
But the Soviet Government through all its or-
gans of publicity is telling the Soviet worker that
he cannot have these things because the Western
nations are threatening him with another war.
AVe may well ask, why does the Soviet Govern-
ment tell its people things that no other people,
no other nation, believes to be true? Why is it
that the Soviet Government demands such a ter-
rible sacrifice from the Russian people? Is it
because the rest of the world is even more heavily
armed and therefore is dangerous to the Russian
people ? Again, let us look at the facts as they are
available.
It is our understanding from published figures
which the Soviet l^nion has not denied, that the
Soviet Union has under arms at the present time
forces totaling around four million men, and its
associated states another two million. Taking into
account the proportion between service troops and
combat troops and the size of Soviet divisions, this
number woidd mean considerably more than 250
divisions of combat troops for the Soviet Union
and the states under its control.
The Soviet states apparently have available com-
bat troops at least five times more numerous than
those of all Western European states put together.
And bear in mind that it is combat troops which
are the weapons of conquest and occupation. It
is only the foot soldiers who can conquer, occupy,
and subjugate the territory of neighbors. The
rulers of the Soviet Union know this. They
learned it from the Germans.
A reduction of one third would not change the
disproportion in Soviet armies. So it would not
relieve the anxieties of other nations. If the re-
duction in Soviet armies were to be carried out in
secret behind the Soviet borders it would not re-
move from other nations the element of suspicion
which is such a bar to peace.
Permit me again, Mr. Chairman, to undei-line
one of the most fundamental points in this ]irob-
lem. How can we know which of the nations
should reduce or have reduced their arms by one
third or by one half or by three fourths without
basic knowledge on which to make our decision,
and without real knowledge of what goes on behind
tlie Iron Curtain ? How can we decide the relative
strength of one nation vis-a-vis another, in terms
of numbers of men and types of arms? We must
have basic information.
The Soviet Union seems to look upon this ele-
mentary pi-iiiciple as an evil plot of non-Commu-
November 2 J, 1948
JH£ UNITBD NATIONS AND SPECIALIZED AGENCIES
nist states to spy out the Soviet land. The United
States is built on the principle of national sov-
ereignty and no nation asks another to do what it
is not willing to do itself. Information in our
coinitries is already available ; in the Soviet Union
it is not. The Soviet Representatives dare to deny
the existence of the Iron Curtain. But Soviet citi-
zens and diplomats in the United States have al-
ways been free to travel in our countries wherever
and however they like; while the Soviet Union,
except for three or four specified cities, is now
hermetically sealed to the representatives of other
governments as it is to their citizens. Even foreign
diplomats are categorically prohibited from trav-
eling beyond .50 kilometers from Moscow. They
aie not now allowed to set foot in eight districts
within the 50 kilometer radius. They are thus lit-
erally imprisoned within the city limits of Moscow.
The fact that these restrictions were imposed dur-
ing this session of tlie General Assembly unfortu-
nately does not testify to the present desire of the
Soviet Government for cooperation and mutual
understanding.
I repeat, none of us asks the Soviet Union to
do more than our own governments are willing
to do. But we fail to see how progress toward dis-
armament can be made until we all accept the basic,
elementary principles of a mutual exchange and
verification of information.
Let me return to consider that "improvement in
international relations" which I mentioned at the
beginning. How can we bring this about?
By accepting the principles of the Charter of
the United Nations the Soviet Union pledged itself
to cooperation for peace in the world community.
Can it be that the Soviet Union, having signed
the Charter, at the same time believes that war is
inevitable unless some of the members of the
United Nations change their systems of govern-
ment ?
Here then are the realities of the situation. The
Soviet Union is heavily armed; it is at present
kept in a position to carry on an aggressive war
for the continuance of its conquest of the territory
of other nations. The Soviet Union is spending a
larger proportion of its manpower and its re-
sources in preparation for war than are the West-
ern nations. It is the Soviet Union alone that is
carrying on a shrill government-directed propa-
ganda to prepare its people for war. The Soviet
Union alone is working behind a veil of secrecy.
How then can the rest of the world disarm ?
In this situation we meet to consider what steps
might be taken by the General Assembly in the
hope of bringing about a reduction of arms, and
a sense of security among the peoples of the world.
The Soviet proposal for a reduction of one third
in the armaments of the five major powers without
any verification would not bring about this result.
(Continued on page 641)
633
Progress Report on Conditions of Refugees in Near East
[Released to the press November 4]
Ralph Bundle, United Nations acting mediator
for Palestine, on October 18, 1948, submitted to the
United Nations a progress report ^ on the condi-
tions of refugees in the Near East. In his report
he made reference to the statements of the late
mediator, Count Bernadotte, who wrote on Sep-
tember 18:
The choice is between saving the lives of many
thousands of people now or permitting them to
die. The situation of the majority of these hap-
less refugees is already tragic, and to prevent them
from being overwhelmed by further disaster and to
make possible their ultimate rehabilitation, it is
my earnest hope that the international community
will give all necessary support to make the meas-
ures I have outlined fully effective. I believe that
for the international community to accept its share
of responsibility for the refugees of Palestine is
one of the minimum conditions for the success of
its efforts to bring peace to that land.
The acting mediator stated that the situation of
the Palestine refugees is now critical, and the
urgency of the need for assistance has been accen-
tuated. He further stated that, unless adequate
and effective aid comes quickly, the position of the
refugees will become desperate within a few weeks.
In his report he recalled that the figures cited in
September on this situation tentatively placed the
number of Arab refugees at 360,000, and the num-
ber of Jewish refugees at 7,000. He stated that the
figure for Jewish refugees remains the same, but
the figure for Arab refugees must be revised up-
wards to 472,000. The acting mediator called to
the attention of the United Nations the critical
shortage of food, the immediate need for clothing,
and the fact that some 95,000 are without shelter
of any sort.
The report of the acting mediator is borne out by
numerous reports from American missions in the
Near East. The refugees have been dependent up-
on the limited funds which they brought with them
from their homes, and upon the resources of the
governments in the states where they took refuge.
Both of these sources are now almost completely
exhausted. The situation is most critical in Pales-
tine and Transjordan. It is estimated that 84,000
refugees in central Palestine are still without shel-
ter, and roads are lined with people encamj^ed
' U.N. doc. A/6S9, Oct. 18, 1948, and A/689, Add. 1, Oct.
19, 1948.
634
under trees or in the open. Hospital facilities are
totally inadequate to meet the need ; in one area of
Palestine 1^0 suspected cases of typhoid were sent
back from a nearby clinic to sleep under the trees
because of the lack of hospital beds and medicines.
In southwestern Syria, refugees average 20 to a
fair-sized room. The infant mortality rate is high
in this area, and no physician is regularly avail-
able. In many areas, preventive inoculations
against diseases have not been undertaken because
the limited supplies of vaccines must be reserved
to fight actual outbreaks of disease.
The situation is particularly critical because the
refugees include an unusually high proportion of
"vulnerable" groups : it is estimated that 12 percent
consist of infants ; 18 percent are from 3 to 5 years
of age; 36 percent are from 6 to 18 years of age;
over 10 percent are pregnant women and nursing
mothers; and 8 percent consist of aged, sick, and
infirm people. The vulnerable total is, therefore,
approximately 85 percent of the refugee popula-
tion.
With a view to alleviating the increasingly criti-
cal conditions of Palestinian refugees of all com-
munities, the United States Delegation to the
General Assembly, in conjunction with the delega-
tions of the United Kingdom, Belgium, and the
Netherlands, introduced a resolution on October
29, 1948, calling for a United Nations program for
the relief of Palestinian refugees. The acting me-
diator has estimated that a program to meet the
minimum needs of these refugees until the next
harvest is reaped will cost about $30,000,000. The
proposed resolution urges all Members of the
United Nations to make voluntary contributions to
meet this need, and calls upon the specialized agen-
cies and voluntary organizations for supplies and
personnel to assist in relieving the desperate plight
of these refugees. The Department of State is
deeply hopeful that the General Assembly will act
speedily on this resolution.
American voluntary agencies have contributed
supplies and funds for the relief of these refugees
during the past few months and it is hoped that
their efforts will continue to meet with success.
The American Red Cross has already contributed
large quantities of medical supplies and other items
and has recently made a further contribution of
blankets and clothing. The American Appeal for
Holy Land Refugees, with headquarters at the
Near East Foundation, 54 East 64th Street, New
York, is continuing to mobilize American volun-
tary efforts.
Department of State Bulletin
Reports of the United Nations Special Committee on the Balkans'
The General Assembly,
1. Having consiperkd the Reports by the Special
Comniittee established by Resolution 109 (II) :
•2. Having noted the conclusions of the Special
Comniittee and in particular its unanimous conclu-
sion that, despite the aforesaid Resolution of the
General Assembly, "tlie Greek guerrillas have con-
tinued to receive aid and assistance on a large scale
from Albania, Bulgaria and Yugoslavia, with the
knowledge of the G<n'ernments of those countries"
and that the (Jreek guerrillas in the frontier zones
liave, as found by the Special Committee :
(1) '"Been largely dependent on external sup-
ply. Great quantities of arms, ammunition and
other military stores have come across the border,
notably during times of heavy fighting. Strongly-
held positions of the guerrillas have protected their
vital supply lines from Bulgaria, Yugoslavia and,
in particular, from Albania. In recent months,
there has been less evidence of receipt of supplies
from Yugoslavia by the guerrillas".
(2) ''Frequently moved at will in territoi-y
across the frontier for tactical reasons, and have
thus been able to concentrate their forces without
interference by the Greek Army, and to return to
Greece when they wished".
(3) "Frequently retired safely into the territory
of Albania, Bulgaria and Yugoslavia when the
Greek Army exerted great pressure".
3. Having noted further the conclusions of the
Special Committee that a continuation of this
situation ''constitutes a threat to the political in-
dependence and territorial integrity of Greece and
to peace in the Balkans" and ''that the conduct of
Albania, Bulgaria and Yugoslavia has been incon-
sistent with the purposes and principles of the
Charter of the United Nations";
4. Having noted the recommendations submit-
ted by the Special Committee;
5. Considers that the continued aid given by Al-
bania, Bulgaria and Yugoslavia to the Greek guer-
rillas endangers peace in the Balkans, and is in-
consistent with the purposes and principles of the
Charter of the United Xations.
6. Calls upon Albania, Bulgaria and Yugoslavia
to cease forthwith rendering any assistance or sup-
port in any form to the guerrillas fighting against
the Greek Government; including the use of their
territories as a base for the preparation or launch-
ing of armed action :
7. Again calls upon Albania, Bulgaria and
Yugoslavia to co-operate with Greece in the settle-
ment of their disputes by peaceful means in accord-
ance with recommendations contained in Resolu-
tion 109(11) ;
8. Calls upon Albania, Bulgaria and Yugoslavia
to co-operate with the Special Committee in en-
abling it to carry out its functions and upon Greece
to continue to co-operate toward the same end;
9. Recommends to all Members of the United
Nations and to all other states that their Govern-
ments refrain from any action designed to assist
directly or through any other government any
armed group fighting against the Greek Govern-
ment ;
10. Approves the activities of the Special Com-
mittee to date, continues it in being with the func-
tions conferred upon it by Resolution 109(11) and
instructs it :
(a) To continue to observe and report on the
response of Albania, Bulgaria and Yugoslavia to
the General Assembly injunction not to furnish
aid to the Greek guerrillas in accordance with Gen-
eral Assembly Resolution 109(11) and the present
Resolution;
(b) To continue to utilize observation groups
witli personnel and equipment adequate for the
fulfilment of its task;
(c) To continue to be available to assist the
Governments of Albania, Bulgaria, Greece and
Yugoslavia in the implementation of Resolution
109(11) and of the present Resolution;
11. Authorizes the Special Committee to con-
sult, in its discretion, with the Interim Committee
(if it is continued) with respect to the j^erform-
ance of its functions in the light of developments;
12. Requests the Secretary-General to provide
the Special Comniittee with adequate staff and
facilities to enable it to perform its functions.
The United States in the United Nations
[November 13-19]
Control of Armaments
The General Assembly declared on November
19 that all nations should possess "exact and au-
thenticated" data on tiie arms and armed forces
of otlier nations and that ''real and lasting im-
provement in international relations" is required
before measures for international disarmament
can be safely instituted.
The world body so declared by adopting the
Belgian resolution on disarmament accepted by
November 21, 7948
the great majority in the Assembly Political Com-
mittee on November 13. The vote in the General
Assembly was 43 to 6 with the Soviet and other
Eastern European countries opposing.
John Foster Dulles, U.S. Delegate, termed the
Belgian resolution a ".sound foundation for the
control of armaments."
• U. N. doe A/C. 1/352, Oct. 26, 1948, draft resolution
by China, France, the U.K., and the U.S.
635
THE UNITBD NATIONS AND SPEC/AUZED AGENCIES
The resolution specifies that a condition for reg-
ulation and reduction of ai-nis and armed forces
is effective atomic controls under which atomic
weapons will be banned. It calls on the Security
Council's Conventional Armaments Commission
to develop disarmament plans to be effected when
the desired improvement in international relations
is brought about and atomic controls are instituted.
It calls for cooperation of all members of that
Commission, which comprises the Security Council
membership.
Under the majority proposal, the Commission's
first task would be the formulation of procedures
for checking and publishing data on national arm-
aments.
Mr. Vishinsky, the Soviet Delegate, re-echoed
his statement of November 13 that the Soviet
Union would submit armaments data only to an
international control agency. The Soviet resolu-
tion, which was rejected by a vote of 38 to 6 on
November 13 by Committee I, however, made no
provision for verification. In past discussions the
Soviet Union has opposed verification by an inter-
national organ of data submitted by individual
governments.
The Soviet proposal also called for prohibition
of atomic weapons under an international control
agency within the framework of the Security
Council. However, this aspect was dealt with
previously when the Assembly decisively endorsed
the Atomic Commission plan for an international
agency with broad powers to supervise all atomic
materials and facilities to insure atomic energy for
peaceful uses only.
Implementation of this atomic plan has been
blocked by Soviet contention that it would usurp
national prerogatives and generally open the way
for interference by the rest of the world, and the
United States in particular, with the Soviet
economy.
Speaking for the Belgian resolution on disarm-
ament, Mr. Dulles emphasized that the first re-
quirement "is the ability to' obtain complete and
accurate, verified and comprehensive" information
on world armaments.
"That ability would itself create confidence and
avoid the present risk that nations will create arm-
aments in order to meet the imagined armaments
of others," Mr. Dulles observed, adding: "Igno-
rance, fear and suspicion can breed an armaments
race that will itself be provocative of war".
Referring to Soviet objections, Mr. Dulles
stated :
"Some nations in the name of sovereignty refuse
to accept international controls. They contend
national promises and national reports ought to
be an acceptable substitution for international con-
trol and international verification. The fact is
national promises and iniverified official reports
will not serve to allay suspicion. Histoi'y has too
636
often proved their unreliability . . . Suspi-
cion and fear will persist unless there are effective
international controls. Any nation that refuses
to do what is in fact necessary to allay fear and
suspicion is itself a contributor to conditions that
breed war."
Palestine Refugee-Aid Plan
A $29,500,000 relief program for the half-mil-
lion Palestine war refugees was approved unani-
mously on November 19 by the General Assembly.
The program, which is based on a proposal made
by the United States, Britain, Belgium, and the
Netherlands, also provides for an immediate ad-
vance of $5,000,000 from working capital to start
supplies flowing to the Near East refugee camps.
The $29,500,000, plus an additional $2,500,000
for administrative and operational expenses,
would be raised through voluntary contributions
from Member and non-Member states, and the
$5,000,000 advance is to be repaid from this total
amount.
The program is to' extend for nine months, end-
ing on August 1, 1949, when the next harvest is
expected to bring improved conditions.
The Assembly also authorized the Secretary-
General to appoint a director for Palestine refugee
relief. He is to be assisted by a seven-member
advisory committee.
Berlin Currency Problems
As the President of the Security Council, Juan
A. Bramuglia, pressed for a solution to the Berlin
controversy by seeking to find agreement for the
currency problem, U.S. Secretary of State Mar-
shall on November 18 summoned to Paris financial
and monetary experts from Washington and
Berlin.
They will assist the U.S. Delegation in prepar-
ing answers to a questionnaire which President
Bramuglia submitted to the Western powers and
to the U.S.S.R. in his latest move to solve the im-
passe over Berlin. The questionnaire asks pri-
marily for technical information on how to obtain
Big Four control of the Soviet mark in Berlin.
Both Mr. Bramuglia and the Secretary-General
have experts examining the currency question. The
United States, hopeful that the studies will be
coordinated in such manner as to avoid duplica-
tion, has expressed willingness to cooperate with
either Mr. Bramuglia or Sir. Lie but has empha-
sized that its prime interest is in the Security
Council's efforts.
As indicated in the August 30 directive agreed
on at Moscow between envoys of the three Western
powers and Soviet leaders, the United States
always has been ready to seek a solution of the
Berlin currency problem. Likewise, the United
States assumes that the introduction of the Soviet
Deparfmenf of Sfafe Bulletin
zone mark as the currency for all of Berlin under
Four Power control is technically feasible.
Assembly Approves Permanent Headquarters
Report
In a plenary meeting, the General Assembly oil
November 18 unanimously approved Secretary-
General Lie's report on establishing pennanent
lieadquarters in New York City and noted with
satisfaction the United States agreement to lend
tlie international organization $65,000,000 for
building.
Interim Committee
The United States on November 17 called for
continuation of the Interim Committee for an-
other experimental year and urged all members,
including the Soviet bloc, to cooperate in the body's
work.
The Interim Committee, set up to expedite and
maintain continuity of Assembh' work between
regular Assembly sessions, has concerned itself
mostly during the past year with studj' of the veto
problem and advising the Korean Commission.
Great Britain. India, the Dominican Republic,
and Ecuador were among others supporting con-
tinuation of tlie Interim Committee and calling for
participation by all members. Poland, however,
reiterated its opposition.
Discussion of the Interim Committee's future
was the first item on the agenda of the new ad. hoc
committee which was created to relieve the Politi-
cal Committee of some of its work. On November
20 the Committee voted 44 to 6 to extend the In-
terim Committee for another year.
Palestine Armistice Proposal
The Security Council on November 16 called on
Israel and the Arab States to draw up an armistice
covering all parts of Palestine. It adopted para-
graph by paragraph a Canadian-sponsored resolu-
tion directing the warring parties to negotiate
directly or througlv United Nations acting medi-
ator, Ralph Bunche, regarding the establishment
of demarcation lines and withdrawal or reduction
of armed forces to insure maintenance of the arm-
istice pending permanent settlement in Palestine.
Eight of the Security Council's member nations
voted for the armistice order, with Syria opposing
the operative part and the U.S.S.R. and the
Ukraine abstaining. Tlie Council rejected a Sy-
rian amendment aimed at extending to Galilee,
in northern Palestine, a previous order for with-
drawal of Israeli forces in the Negev desert area.
Only Syria, China, and Belgium supported this
plan.
The armistice directive was appi'oved after a
Soviet resolution which would have called for
immediate establishment of formal peace in Pales-
tine was rejected.
Philip Jessup, United States Deputy Represent-
November 21, 1948
813314 — IS 3
THE UNITBD NATIONS AND SPECIALIZED AGENCIES
ative, termed the Soviet measure not yet practica-
ble; however, he supported the armistice resolu-
tion, terming it the first ti-ansitional step from a
truce to permanent peace.
Committee I Rejects Invitation to North Korea
Delegates
An attempt by the Soviet and Eastern European
countries in Committee I (Political and Security)
to have representatives of the so-called North
Korean Peoples Government invited to partici-
pate in forthcoming discussion of the Korean
question was rejected on November 15 by a vote
of 38-0, with six abstentions.
The Committee supported the contention of the
U.S. Delegate, John Foster Dulles, that the U.N.
Temporary Commission on Korea, as a kind of
"credentials Committee", should be heard first.
Mr. Dulles also reminded committee members that
the U.N. Commission had been denied entrance to
the northern, or Soviet zone of Korea, where the
"Peoples Government" was established through
"elections" which the Commission was not per-
mitted to observe.
A nine-member delegation from the Republic
of Korea whose capital is at Seoul in South Koi'ea
has made a formal request to participate in Com-
mittee and Assembly discussions of the Korean
question.
Balkan States Discuss Greek Dispute
Representatives of Albania, Bulgaria, Yugo-
slavia, and Greece in Paris held their first joint
discussions with U.N. mediators on November 15
in an effort to settle the Balkan dispute through
direct negotiation.
After having met separately with the U.N. offi-
cials on November 12, representatives of Greece
and her three northern neighbors met collectively
with the mediators for the first time. Officials
serving as mediators were Herbert Evatt, Presi-
dent of the General Assembly, Secretary-General
Ti-ygve Lie, and Selim Sarper of Turkey, Rappor-
teur of Committee I.
Trusteeship
The Assembly acted on November 18 on several
resolutions relating to trusteeship of dependent
areas. Two that were approved call on adminis-
tering powers to accelerate progressive develop-
ment toward self-government or independence of
the trust territories under them. Another urges
nations to increase the expenditure for education
of the inhabitants of territories for which they
are responsible and to provide free primary school-
ing for all. A fourth recommends that the Trus-
teeship Council investigate every aspect of the
question of administrative unions between trust
territories and adjacent political entities and sug-
gest any safeguards it deems necessary to preserve
the "distinct political status" of trust territories.
637
INTERNATIONAL ORGANIZATIONS AND CONFERENCES
U.S. Delegations to International Meetings
ILO: Petroleum
The Department of State announced on Novem-
ber 9 that the following are representing the
United States at the Second Session of the Peti o-
leum Committee of the International Labor
Organization (Ilo) which opened on November 9
at Geneva for a period of approximately ten days.
Government Kepresentatives
Delegates
Arnold I-. Zempel. Associate Director, Office of Inter-
I tional Labor AfCairs, Department of Labor
David E Lonfianecker, Assistant Chief, Petroleum Di-
vision, Department of State
Alternate Delegate and Adviser
Robert E Friedman, Associate Director, Oil and Gas Di-
vision, Department of the Interior
Adviser
Hersev E. Riley, Chief, Branch of Construction Statistics,
Bureau of Labor Statistics, Department of Labor
Employees' Representatives
Delegates
John C Quiltv, Manager of Industrial Relations, Shell
Oil Company, Inc., New York City Pnmmnv
C Francis Beatty, Director, Socony-Vacuum Oil Company,
Inc., New York City
Advisers
Channing Rice Dooley, Training Within Industry Founda-
ValentTie'n" Ludwii' General Manager, Employee Re-
lations Department, Gulf Oil corporation, Pittsburgh,
Jamfs'^W Rees, Assistant Vice President, Pure Oil Com-
R B''RoaperDi°reclor of Safety, Humble Oil and Re-
fining Company, Houston, Tex.
WoBKERS' Representatives
Delegates
Charles A. Evans, Business Representative of Local Union
No. 12, International Union of Operating Engineers,
Los Aneeles, Calif. . ^ .
Alexis E. Laster, International Representative, Inter-
national Union of Operating Engineers, El Monte,
Calif.
The agenda for the meeting includes: (1) a
general report dealing with the action taken in
the various countries to give effect to the resolu-
tions of the first session of the Committee, held at
Los Angeles in February 1947, and recent events
638
and developments in the industry; (2) discussion
of recruitment and training for the petroleum in-
dustry; (3) report on safety and health; and (4)
the problem of industrial relations in the industry
as effecting trade-union organization and recog-
nition, developments in collective bargaining, and
actual methods for handling disputes. .
The Petroleum Committee is one of eight in-
dustrial committees of the Ilo established for the
purpose of examining social and economic aspects
of international labor standards in the respective
industries and adopting resolutions for their im-
provement.
British Parliamentary Association
[Released to the press November 12]
United States congressional representatives to
the British Parliamentary Association meeting
which convened at Hamilton, Bermuda, on Novem-
ber 15 left Washington on November 13.
The chairman of the United States Delegation
is Senator Alexander Wiley of Wisconsin. Also
included are Senators Bourke B. Hickenlooper of
Iowa and Elbert D. Thomas of Utah, all members
of the Senate Foreign Relations Committee, and
Senator J. William Fulbright of Arkansas. The
chairman of the House Dele,gation is Representa-
tive Henry O. Talle of Iowa, the remainder includ-
ing Estes Kefauver of Tennessee, Senator-elect
from that state, and Robert J. Corbett of Pennsyl-
vania. In Bermuda they were met by heads ot
the Bermuda Government and United States con-
sular officials on duty there.
Tliis is the third such parliamentary conference
attended by representatives from all the British
Commonwealth Parliaments and delegates from
the United States Congress which has been held in
the Western Hemisphere. The first meeting took
place during the war in Ottawa, Canada, and
another conference was held again two years ago
in Hamilton, Bermuda.
Heading up the list of British Delegates are
John Wilmot, M.P., former Minister of SiipplJ
from the United Kingdom, Senator J. T. Haig,
K C, leader of the Progressive Conservative Party
in the Canadian Senate, and "Vernon H. Treatt,
KC, leader of the Opposition m New South
Wales, Australia. Delegates are also m attend-
ance from New Zealand, the Union of South
Africa, and Bermuda.
Department of State Bulletin
Air Navigation in Southeast Asia
The Deitartinciit of State announced on Novem-
ber 10 tlie United States Delegation to the first In-
ternational Civil Aviation Organization (Icao)
Regional Air Navigation Meeting for the South-
east Asia Region, convening at New Delhi, India,
November "J;?, 1948, for an approximate duration
of tliree weeks.
C Jut ir)ii tilt
Clifford v. Burton. Chief of the Technical Mission, Civil
Aeronautics Administration, Department of Com-
merce
Vice Chairman
Oscar Bakke, Flight Operations Specialist, Civil Aeronau-
tics Board
Alternates
James F. Angier, Chief of the Foreign Section, Civil Aero-
nautics -Administration
Norman U. Ilawn, Meteorological Attach^, American
Eniba.-isy, London
Victor J. Kayne, Airways Operations Specialist (Icao),
Civil Aeronautics Administration
R. F. Nicholson, Representative, Flight Operations
(la\o). Civil Aeronautics Administration
Lt. Comdr. Clement Vaughn, Jr., Search and Rescue
Agency, United States Coast Guard
Edwin L. White, Chief, Aviation Division, Federal Com-
munications Commission
Advisers
William B. Becker, Operations Division, Air Transport
Association
Gene L. Brewer, Airways Radio Specialist (Icao), Civil
.\eronautics .Administration
Capt. Etheridge Grant, USN, Head, Civil Aviation Branch,
Department of the Navy
Maj. Grove C. Johnson, Civil Liaison Branch, Hq., Mili-
tary Air Transport Service, Department of the Air
Force
Winton E. Modin, representing Aeronautical Radio, Inc.,
and Pan American Airways, Calcutta, India
George L. Rand, airways operations specialist, representa-
tive for International Telecommunications — Icao
retnonal organizations. Civil Aeronautics Adminis-
tration
Capt. .\rthnr Yorra, Chief, International and Interde-
partmental .\dvisory Group, Hq., Air Weather Service,
M.\TS, Department of the Air Force
Sccrctartj of Delegation
Steplien V. C. Morris, Division of International Confer-
ences, Department of State
About 20 governments are attending this meet-
ing which is examining problems of air navigation
and operations in the Southeast Asian region.
The delegates are preparing a plan of aids to navi-
gation and are recommending navigation practices
to raise the standards of civil aviation in the region
to those advocated by the Icao Council. The
meeting is following the usual pattern of regional
meetings of the Icao and the principal committees
formed include aerodromes, air routes and ground
aids, air-traflic control, flight operations, commu-
nications, meteorology, and search and rescue.
The practices and procedures recommended by the
meeting in these fields are being forwarded to the
>»CnV(n£$ AND DEVELOPMENTS
Council of Icao at Montreal for consideration and
approval.
A Fact Finding Group convened at New
Delhi approximately a week prior to the regional
meeting in order to examine and document opera-
tional data for the convenience and use of the main
meeting.
The Southeast Asia meeting is the ninth in
the original series of ten regional meetings
scheduled by Icao to survey aviation facilities
throughout the world. Upon the completion of
the series Icao expects to have an index of
facilities needed by international civil aviation on
all the important air routes of the world.
The preceding regional meeting, the North
Pacific Air Navigation Meeting, was held at Seat-
tle in July. The remaining regional meeting
projected by the Icao is the African-Indian
Ocean Meeting.
Fourth Session of FAO
The President appointed on November 13
Charles F. Brannan, Secretai-y of Agriculture, as
United States Member and Chairman of the
United States Delegation to the Fourth Session of
the Conference of the Food and Agriculture
Organization of the United Nations. This meet-
ing opened in Washington, D.C., on November 15,
1948. Named by the President to serve as Alter-
nate United States Members were : Albert J. Love-
land, Under Secretary of Agriculture; Fred J.
Rossiter, Associated Director, Office of Foreign
Agricultural Relations, Department of Agricul-
ture; and Edward G. Cale, Associate Chief, Inter-
national Resources Division, Department of State.
The President appointed also the following live
congressional advisers to the Delegation: George
D. Aiken, United States Senate- Elmer Thomas,
United States Senate; S. Otis I3]and, House of
Representatives; Harold D. Cooley, House of Rep-
resentatives; and Clifford R. Hope, House of Rep-
resentatives.
Other members of the United States Delegation
as annoiuiced on November 13 by the Acting Secre-
tary of State are as follows :
AdtHsers
Edward W. Allen, United States Commissioner, Interna-
tional Fisheries Commission and International Pacilic
Salmon Fisheries Commission
Andrew W. Anderson, Chief, Branch of Commercial Fish-
eries, Fish and Wildlife Service, Department of the
Interior
Stanley Andrews, Food Agriculture and Forestry Repre-
sentative, Omgus
Miss Persia Campbell, Vice Chairman, National Associa-
tion of Consumers
Wilbert M. Chapman, Special Assistant to the Under Sec-
retary, Department of State
Philip V. Cardon, Administrator, Agricultural Research
Administration, Department of Agriculture
Charles R. Carry, Director, Fishery Products Division,
National Canners Association
November 21, 1948
639
ACTIVITIES AND DBVBLOPMENTS
John H. Davis, Executive Secretary, National Council of
Farmer Cooperatives
Mrs. Ursula Duflfus, Economic, Financial and Communica-
tions Branch, Division of United Nations Economic
and Social Affairs, Department of State
Foster P. Elliott, Associate Chief, Bureau of Agricultural
Economies, Department of Agriculture
Carl N. Gibboney, Deputy Director, Commodities Division,
Office of International Trade, Department of Com-
merce
Tom H. Gill, Society of American Foresters
Albert S. Goss, Master, The National Grange
George Mason Ingram, Acting Chief, International Admin-
istration Staff, Office of United Nations Affairs,
Department of State
Charles B. Jackson, General Manager, National Fisheries
Institute
William A. Jump, Director, Office of Budget and Finance,
Department of Agriculture
William A. Minor, Jr., Assistant to the Secretary, Depart-
ment of Agriculture
Wesley R. Nelson, Assistant Commissioner, Bureau of
Reclamation, Department of the Interior
W. Raymond Ogg, Director, Department of International
Affairs, American Farm Bureau Federation
James G. Patton, President, National Farmers Union
Miss Hazel K. Stiebeling, Chief, Bureau of Human Nutri-
tion and Home Economics, Department of Agriculture
Ralph S. Trigg. Administrator, Production and Marketing
Administration, Department of Agriculture
Lyle F. Watts, Chief, Forest Service, Department of
Agriculture
Oris V. Wells, Chief, Bureau of Agricultural Economics,
Department of Agriculture
Miss Faith M. Williams. Director, Office of Foreign Labor
Conditions, Bureau of Labor Statistics, Department
of Labor
Milburn L. Wilson, Director, Extension Service, Depart-
ment of Agriculture
Technical Secretary
James O. Howard, Head, Division of Foreign Agricultural
Information, Office of Foreign Agricultural Relations,
Department of Agriculture
Executive Secretary
Henry F. Nichol, Division of International Conferences,
Department of State
Since the first three sessions of the Conference
were devoted primarily to problems of organiza-
tion, the Fourth Session should mark an important
step in the direction of devoting tliese annual meet-
ings to discussion on world food problems and to
specific proposals to deal with these problems.
It is expected that 57 member countries and a
number of international organizations will be rep-
resented at the Fourth Session. Also a number of
national organizations have been invited to at-
tend open sessions of the Conference.
The meeting is concerned mainly with: (1) the
world situation relating to tlie production, market-
ing, and consumption of food and agricultural
products, including fish and timber; (2) the tech-
nical activities of the Organization during the past
year and its program of work for 1949; and
(3) major constitutional, administrative, and
financial issues requiring decision by the Confer-
ence, including financial problems and the perma-
nent site of Fao headquarters.
640
In regard to the headquarters site, the United
States Government has recommended Washington
as the permanent headquarters for the Organiza-
tion and has made proposals concerning several
available sites. President H. C. Byrd of the Uni-
versity of Maryland, after consultation with Gov-
ernor William P. Lane, Jr., of Maryland, has
offered a site and assistance in financing a build-
ing on the campus. Copenhagen and Rome have
also made ofi'ers.
UNESCO: General Conference:
President Truman designated on November 10
five United States Representatives and five alter-
nates to the Third Session of the General Confer-
ence of the United Nations Educational, Scientific
and Cultural Organization (Unesco), which con-
vened at Beirut, Lebanon, on November 17.
United States Representatives
George V. Allen, Assistant Secretary of State for public
affairs, and Chairman of the Delegation
Milton S. Eisenhower, President, Kansas State College,
Manhattan, Kans., and Vice Chairman of the Delega-
tion
Luther H. Evans, Librarian of Congress
Waldo G. Leiand, Director Emeritus, American Council of
Learned Societies
Anne O'Hare McCormick, New York Times
Alternates
Kathleen Lardie, Division of Instruction of the Detroit
Public Schools, Detroit, Mich.
W. Albert Noyes, Jr., National Research Council, Wash-
ington, D. C.
Frederick D. G. Ribble, Dean, School of Law, University of
Virginia, Charlottesville, Va.
Joseph Rosier, President Emeritus, Fairmont State Teach-
ers College, Fairmont, W. Va.
George F. Zook, President, American Council on Educa-
tion, Washington, D. C.
Special Adviser to the Chairman
Charles A. Thomson, Director, Unissco Relations Staff,
Department of State
Advisers
Herbert J. Abraham, Assistant Director, Unesco Rela-
tions Staff, Department of State
Esther C. Brunauer, Assistant Director, Unesco Relations
Staff, Department of State
Ben M. Cherrington, Director, Social Science Foundation,
University of Denver, Denver, Colo.
Jolm Duffy Connors, Director, Workers Education Bureau
of America, New York, N. Y.
Samuel De Palma, Division of United Nations Economic
and Social Affairs, Department of State
Frederick Sherwood Dunn, Yale University, New Haven,
Conn.
Frank Grasso, Secretary-Treasurer, United Paperworkers
of America, Washington. D.C.
Michael Richard Hanna, Cornell University, Ithaca, N.Y.
George Keinieth Holland, Counselor on Unesco Affairs,
American Embassy, Paris
Charles M. Hulten, Deputy Assistant Secretary for Admin-
istration, Department of State
Kemlric N. Marshall, Director, Division of International
Educational Relations, United States Office of Educa-
tion
Richard P. McKeon, University of Chicago. Chicago, IlL
Otis E. Mulliken, Division of United Nations Economic
and Social Affairs, Department of State
Departmenf of Stafe Bulletin
Steplit'ii B. L. Penrose, President, American University,
Heirut, Lebanon
George U. Stoddard, President, University of Illinois,
Urbana, 111.
Louise Wright, Director, Chicago Council on Foreign Rela-
tions, Chicago, 111.
Excc-utive Secretary of the Delegation.
Henry J. Sabatini. Division of International Conferences,
Deiiartment of State
In accordance -with the Unesco constitution, the
Executive Board of Unesco, at its meeting at Paris
last February, prepared the draft agenda for the
Third Session of the General Conference. Among
the items on the agenda are: (1) report of the Di-
rector-General on the activities of the Organiza-
tion in 11)48; (2) consideration of reports submit-
ted by member states iit 1948; (3) discussion of
certain items in the program for 1948 and of new
activities proposed for 1949; (4) the Organiza-
tion's budget; (5) matters which have been raised
by member states, the United Nations, or other
specialized agencies; (6) organizational questions
including the National Commissions of Unesco;
(7) election of seven members to the Executive
Board; (8) appointment of the Director-General;
(9) consideration of recommendations of the Exec-
utive Board concerning the admission of new mem-
bers to the Organization; and (10) consideration
of recommendations of the Executive Board con-
cerning the admission of observers of international
nongovernmental organizations to the Third Ses-
sion of the General Conference.
The First Session of the Unesco Conference was
held at Paris in 1946. and the Second at Mexico
City in 1947. Forty-four member countries are
expected to send representatives to the Third
Session.
UNESCO's Executive Board, on which George D.
Stoddard is United States Representative, will
meet at Istanbul prior to the opening of the Beirut
conference.
The Unesco program in the United States is
largely the responsibility of the United States
National Commission for Unesco, established by
law to advise the Department of State on matters
relating to Unesco. Milton S. Eisenhower is
chairman of the National Commission, which is
composed of representatives of 60 national organ-
izations and some 40 members selected as indi-
viduals active in Unesco's fields of education,
science, and culture.
Second Inter-American Congress on Brucellosis
Dr. James H. Steele, Chief of the Veterinary
Public Health Section. States Relations Division
of the United States Public Health Service, was
appointed on November 12 Chairman of the
United States Delegation to the Second Inter-
American Congi-ess on Brucellosis, held at Men-
doza and Buenos Aires November 17-26, 1948.
Dr. C. K. Mingle of the Tuberculosis Eradication
Division of the Bureau of Animal Industry,
November 21, J 948
>»CnVIT(£S AND DEVELOPMENTS
Department of Agriculture, was named delegate.
The Brucellosis Congress, called by the Pan
American Sanitary Bureau, is discussing the epi-
demiology of the disease and proposes measures
for its t'ontrol. Brucellosis, as it affects humans,
is popularly known as "undidant fever" and
''Malta fever". It is transmitted to human beings
throu,gh animals. According to the Department
of Agriculture, the disease among animals results
in monetary losses of approximately 90 million
dollars a year in this country. It has been even
more widespread in some of the Latin American
countries.
The Congress meets first at Mendoza from
November 17-20 for discu.ssions on the control of
the disease; it reconvenes at Buenos Aires from
November 22-26 for sessions on the clinical aspects
and research developments. The First Inter-
American Congress on Brucellosis was held in
October 1946 at Mexico City.
Reduction of Armaments — Continued from page 633
It would perpetuate the present Soviet superiority
in aggressive forces. It would not reduce the
threat of Soviet aggression; it might indeed in-
crease that threat. It would not raise the veil of
secrecy behind which the rulers of the Soviet Union
operate and which constitutes such an injustice to
the Russian people and such a cause of suspicion
among nations.
In this situation the General Assembly should
seek by every possible means a release from the
tensions arising from the factors we have here de-
scribed. In the field of armaments the General
Assembly should develop as rapidly as possible
under the forms and through the agencies set up in
the United Nations for that purpose a plan for the
reduction and control of conventional arms and
armaments. Such a plan should provide a full
system of inspection, verification, and publication
and other safeguards to guarantee against viola-
tion. Having set up such a plan, we may hope
that the moral force of world opinion, together
with the evident advantages of operating within
the law in cooperation with other nations, may
bring the Soviet Union to change its attitude. This
is the proposal embodied in the resolution now be-
fore this committee. The United States will vote
for this resolution and will work loyally toward
carrying otit its purposes.
Real progress toward peace can only be made
by slow, careful steps. I have not despaired and I
hope none of us in this committee has despaired.
The resolution before us takes us one step toward
the control of armaments and toward those other
objectives we all seek. I hoi>e that the unanimity
which came as a breath of fresh air when we ac-
cepted the Mexican resolution, will again come to
us here.
641
THE RECORD OF THE WEEK
Announcement of Intention To Enter Tariff Negotiations
The Interdepartmental Trade Agreements Com-
mittee issued on November 5 formal notice of the
United States intention to participate in negotia-
tions with 11 foreign countries for reciprocal re-
duction of tariff and other trade barriers, looking
toward accession of those countries to the General
Agreement on Tariffs and Trade concluded at
Geneva on October 30, 1947, by the United States
and 22 other countries. The forthcoming nego-
tiations are scheduled to begin at Geneva on April
11, 1949. Plans for the negotiations were devel-
oped, and the date was set, at the second session
of the contracting parties to the General Agree-
ment, held at Geneva in August and September
of this year. Announcement of these plans was
made on September 22, 1948.'
The 11 countries which have expressed their de-
sire to accede to the General Agreement and to
participate in the forthcoming negotiations are:
Denmark, the Dominican Republic, El Salvador,
Finland, Greece, Haiti, Italy, Nicaragua, Peru,
Sweden, and Uruguay. The countries which par-
ticipated in the 1947 negotiations were : Australia,
Belgium, Brazil, Burma, Canada, Ceylon, Chile,
China, Cuba, Czechoslovakia, France. India, Leb-
anon, Luxembourg, the Netherlands, New Zealand,
Norway, Pakistan, Southern Rhodesia, Syria, the
Union of South Africa, the United Kingdom, and
the United States. All of these countries except
Chile had put the General Agreement into pro-
visional effect by July 31, 1948.
The countries participating in the 1947 negotia-
tions and the additional countries expected to par-
ticipate in the 1949 negotiations together account
for some two thirds by value of total United States
exports and almost three fourths of United States
imports, on the basis of 1947 figures.
The Trade Agreements Committee also made
public on November 5, as required by Executive
Order No. 10,004 of October 5, 1948, a list for each
country with which the United States proposes to
negotiate, of all products imported into the United
States on which possible tariff concessions may
be considered in the negotiations. The practice of
publishing such lists has been followed since 1937.
The procedure to be followed by the United
States Government in preparing for and carrying
out the negotiations is in line with that which has
been followed in previous trade-agreement nego-
tiations, with such modifications as are made neces-
sary by the Trade Agreements Extension Act of
" Bdxletin of Oct. 3, 1948, p. 445.
642
1948. Under section 4 of the Trade Agreements
Act of 1934, as amended, interested persons are
afforded an opportunity to present their views con-
cerning the proposed negotiations. Executive
Order 10,004 designated the Committee for Reci-
procity Information as the agency to receive such
views. The representative of the Department of
Commerce on the Trade Agreements Committee
is the chairman of the Committee for Reciprocity
Information.
The Committee for Reciprocity Information an-
nounced November 5 tliat public hearings will be
held beginning December 7. Applications to be
heard at the public hearings will be received until
November 29, and the application must indicate
the product or products, or other aspect of the ne-
gotiations, regarding which testimony is to be
presented. The closing date for receiving written
briefs and statements will be December 7.
In accordance with the Trade Agreements Ex-
tension Act of 1948 the lists of products on which
possible L^nited States tariff concessions may be
considered have been transmitted by the President
to the Tariff Commission which is required to in-
vestigate, hold hearings, and report to him within
120 days, in regard to each such item, ( 1 ) the extent
to which United States tariffs or other import re-
strictions may be reduced without causing or
threatening serious injury to the domestic indus-
try producing like or similar articles; and (2)
what, if any, additional import restrictions would
be required to prevent such injury.
Since the statute specifically imposes on the Tar-
iff Commission the obligation of holding its own
hearings, parties who wish to be assured that their
information will be considered by the Tariff Com-
mission, must present it directly to the Commission
either at the hearings or in writing before the close
of the hearings.
In order to minimize duplication, arrangements
have been made so that infoi'mation submitted to
the Tariff Commission in written statements and
at public hearings, in accordance with its rules of
practice and procedure, other than that which has
been accepted by the Commission as confidential,
will be made available to the Committee for
Reciprocity Information. Thus, persons wish-
ing to testify only with respect to articles on the
public lists may, but need not, appear before the
Committee for Reciprocity Information. How-
ever, those persons wishing to present information
concerning possible import concessions different
Department of Stafe Bulletin
from that presented to the Tariff Commission or
wishing to present views with respect to export
concessions to be obtained by the United States
should ]iresent their information to the Committee
for Keci))r(K'ity Information.
The hearings to be held by the Tariff Commis-
sion and those to be held by the Connnittee for
Reciprocity Information will run concurrently,
but the hearings relative to particular commodities
will be scheduled so as to avoid conflict in cases of
persons wishing to appear at both hearings.
No United States tariff concession will be made
on any import product not appeari 
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