840.00/3–645
The Secretary of State
to the President
1
secret
Washington, January 18,
1945.
Memorandum for the President
Establishment of an Emergency High Commission for
Liberated Europe
I recommend that at your meeting with Marshal Stalin and Prime Minister Churchill you propose the immediate
establishment of an Emergency High Commission for Liberated Europe,
the initial membership to consist of the Governments of the United
States, the United Kingdom, and the Soviet Union, and the
Provisional Government of France. A proposed draft declaration and
protocol are attached for your consideration.
The proposed Emergency High Commission would be set up as a joint,
temporary agency of the four governments through which they would
act together to assist in establishing popular governments and in
facilitating the solution of emergency economic problems in the
former occupied and satellite states of Europe. It would not have responsibilities in regard to the
conduct of the war, or the post-war control of Germany. Questions
regarding Germany would remain solely in the province of the
European Advisory Commission,2 and of such agencies as may be established
for control of Germany.
Announcement from your meeting of agreement on the establishment of
such a commission would reassure public opinion in the United
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States and elsewhere that
these four nations will work together in the solution of pressing
problems while further steps are being taken toward the
establishment of the General International Organization.
There is urgent need for these four nations to achieve unity of
policy, and joint action, with respect to:
- 1.
- Political problems emerging in the former occupied and
satellite states of Europe, such as the return of certain
exiled governments, the setting up of provisional regimes,
the maintenance of order within countries, and the arranging
of early elections where necessary to establish popular and
stable governments;
- 2.
- Immediate economic problems such as the care for destitute
populations and the restoration of functioning economic life
of particular countries.
The proposed Emergency High Commission would constitute the agency
for providing for the necessary regular consultation and cooperative
action in these matters. Also it would greatly help to remove the
difficulties being encountered by United Nations’ agencies in
related fields.
[Attachment 1]
Declaration on Liberated Europe
The President of the United States of America, the Prime Minister
of the United Kingdom, the Premier of the Union of Soviet
Socialist Republics, and the President of the Provisional
Government of the French Republic, having consulted with each
other in the common interests of the peoples of their countries
and those of liberated Europe, jointly declare their mutual
agreement to concert the action of their four governments in
assisting the peoples liberated from the domination of Nazi
Germany and its satellites to solve by democratic means their
pressing political and economic problems.
The retreat of the Nazi war machine and the collapse of its
puppet regimes, under the relentless blows of the victorious
armies and resistance forces of the United Nations, are leaving
behind confusion and disorder, and incalculable distress and
suffering. The agony of the liberated peoples must be relieved.
Swift steps must be taken to help them in the orderly
reconstruction of their daily living.
The establishment of order in Europe and the rebuilding of
national economic life must be achieved by processes which will
enable the liberated peoples to destroy the last vestiges of
Nazism and Fascism and to create democratic institutions of
their own choice. This is a promise of the Atlantic Charter3—the right
of all peoples to choose
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the form of government under which they will live—the
restoration of sovereign rights and self-government to those
peoples who have been forcibly deprived of them.
To foster the conditions in which the liberated peoples may
exercise these rights, the Governments of the United States of
America, the United Kingdom, and the Union of Soviet Socialist
Republics, and the Provisional Government of the French Republic
have agreed to establish, for such joint action as may be
necessary, an Emergency High Commission for Liberated Europe, as
set forth by the protocol of this date.
By this declaration we reaffirm our faith in the principles of
the Atlantic Charter, our pledge in the Declaration by United
Nations, and our determination to build in cooperation with
other peace-loving nations a world order under law, dedicated to
the peace and security and the general well-being of all
mankind.
[Attachment 2]
Emergency High Commission for Liberated
Europe
Pursuant to the Declaration on Liberated Europe, and with a view
to concerting their policies with respect to the objectives set
forth therein, the Governments of the United States of America,
the United Kingdom, and the Soviet Union, and the Provisional
Government of the French Republic hereby establish an Emergency
High Commission for Liberated Europe.
A. Functions and Scope
1. The Emergency High Commission for Liberated Europe shall have
responsibility in such former occupied states of Europe and in
such former enemy states as in the judgment of the four
governments conditions may make necessary:
-
a.
- To assist where circumstances require in the
maintenance of internal order;
-
b.
- To assist as may be required in the taking of
emergency measures for care of the population and for
solution of pressing economic problems;
-
c.
- To assist where circumstances require in setting up
governmental authorities broadly representative of all
democratic elements in the population and pledged to the
earliest possible establishment through free elections
of governments responsive to the will of the
people;
-
d.
- To assist as may be appropriate in making arrangements
for, and in conducting free elections to determine the
type and composition of governments;
-
e.
- To perform such other duties as may be assigned to it
by agreement of the governments represented on the
Emergency High Commission.
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2. The Emergency High Commission shall have no authority,
functions, or responsibilities with regard to the conduct of
military operations in the prosecution of the present war
against Germany, or the occupation and control of Germany.
3. The Emergency High Commission shall consult with other
international agencies as necessary on problems which are of
mutual concern.
B. Membership
1. The membership of the Emergency High Commission shall consist
of the Governments of the United States, the United Kingdom, and
the Soviet Union, and the Provisional Government of the French
Republic, each of which shall appoint one representative. As may
be necessary the Emergency High Commission may enlarge its
membership.
2. Representatives of other United Nations and of provisional
authorities or of governments in Europe shall be invited by the
Emergency High Commission to sit with it when matters of direct
interest to them are under consideration.
C. Location and
Organization
1. The headquarters of the Emergency High Commission shall be in
[Paris].4 It may meet in
other places as occasion requires.
2. It may designate officials of member governments to represent
it in individual countries or areas.
3. The Governments which are members of the Emergency High
Commission shall provide such military or other special advisers
as may be required to assist it in performing its functions.
4. It shall organize its technical staff and otherwise establish
and perfect its organization and procedure. Its chairmanship
shall be held successively by representatives of the member
governments.
D. Termination
The Emergency High Commission for Liberated Europe shall
terminate when the functioning of popular and stable governments
and the operations of appropriate organs or agencies of the
general international organization shall have removed the need
for its activities.5
