Paris Peace Conf. 185.115/11
The other copy I want you, if you will be good enough to do so, to deliver to
Mr. Gordon Auchincloss and ask him to bring it to the attention of Colonel
House.
[Enclosure]
Memorandum by the Third Assistant Secretary of
State (Long) on the
Disposition of the Ex-German Islands of the Pacific Ocean Now in
Possession of Great Britain and Japan14
[
Washington
,] December
14, 1918.
Under British Occupation
The British took possession in 1914 of all the German-owned islands in
the Pacific Ocean south of the Equator. These islands lie in two
localities:
- (A)
- Between the 140th and 160th degrees of latitude, and between
the Equator and five degrees south, and the Island of Nauru just
east of this section and north of the Equator.
- (B)
- The Samoan Group.
Referring to these in order, the United States has little or no interest
in the ownership of those designated as being in Group (A) above. As
regards the Samoan Group, (B), the United States has considerable
interest. Part of the Samoan Group are in the possession of the United
States, including the Island of Tutuila and its harbors. Great Britain
has a great number of islands lying to the west, southwest, south, and
southeast of the Samoan Group, including the Fijis, Palmerstons, Tongas,
and Cooks. North of the Samoan Group, it has only Fanning and Washington
Islands, the former being its cable station. Also north of the Samoan
Group, and between it and the Hawaiian Group, are the Palmyra Islands
and a small island just west of due north of Palmyra (United States
possessions). The only other islands lying between the Samoan and the
Hawaiian Groups are the Guano Islands, of which there are quite a
number, some of them of doubtful existence, some certainly existent, and
some certainly non-existent. (The existence or nonexistence of these
islands is shown by a map delivered to Mr. Harrison for the Secretary.)
These Guano Islands—some of them have been claimed by the United States,
some by Great Britain, some by both, and some today are of doubtful
sovereignty. Generally, they are not valuable. From a naval or strategic
standpoint, they are not very valuable, except insofar as they might be
fortified or used, some of them, for naval bases. In them the United
States has an interest. Their possession will not be very strongly
contested by Great Britain, and because of their very close
juxtaposition to the [Page 513] Samoan
Group and their interposition between the Samoan and Hawaiian Groups,
they become of strategic importance to the United States. It is
recommended that an effort be made to have ownership of these islands
transferred from Great Britain to the United States.
Under Japanese Occupation
The Ex-German Islands lying north of the Equator were taken possession of
and are now held by Japan. These islands consist of three principal
groups: the Marianas, the Carolines, and the Marshalls, and a few
scattered outlying islands in the same vicinity, and all lying between
the 130th and the 170th degrees east latitude, and between the first and
the twenty-first degrees north longitude. Principal among the outlying
islands not connected with any of the groups is the Island of Yap, which
is the southeastern terminus of the cable connecting Yap with Shanghai,
and which was once a German cable now in possession of the Japanese. Yap
is also connected by cable now with Guam. Guam lies between the Marianas
on the north and the Carolines on the south, with Yap to the southeast.
It is practically surrounded by islands now under occupation by the
Japanese. Guam is a cable station of great importance to the United
States. Our Pacific cable runs from Manila to Guam, and from Guam to San
Francisco, touching at Midway and the Hawaiian Group. The cable line
runs from Guam north to Yokohama, emerging, however, at Bonin Island,
which is the extent to which the United States owns the cable northward.
Notwithstanding the fact that the United States owns the cable to that
point, landing is there made upon Japanese soil and operators other than
Japanese are not allowed on that Island. Consequently, Japan is in
control at that point of the American cable. As has been stated, Guam is
also connected with Yap, and, consequently, can communicate through Yap
directly with Shanghai over the German cable. This makes Guam the
principal cable station in the Pacific Ocean. The cables from Manila,
Shanghai, Yokohama, and San Francisco center there. Its utility to the
United States as a cable station is jeopardized by the fact that it is
practically surrounded by islands under foreign jurisdiction and
control. The Ex-German Islands now under Japanese occupation have been
closed to foreign trade. Vessels flying the American flag and belonging
to American interests which formerly did a large copra business in these
islands have been precluded from landing and from continuing their
business (except that permission has been granted for one specified
steamer to call at two specified islands—one in each group—to collect
copra there deposited). So that because of the fact that American
vessels have been denied the privilege of coasting between and stopping
at the islands in these three [Page 514]
groups, we are without information as to what has been done by way of
defense and fortification in those islands. It has been rumored that the
Japanese have fortified to a considerable extent a few of them. This may
and may not be true. If it is true, our cable station is already
jeopardized. If it is not true, it can easily be true, and the utility
of our station is thereby jeopardized.
So that in these islands the United States has a very material interest.
In time of war the cable could be very easily cut by ships operating
from any one of the islands lying north, south, southeast, or southwest
of Guam. If the cable were cut at that point, our communication with the
Philippines would be not only interrupted, but prevented. Besides
serving as a menace to the continuity of our cable communication with
the Philippines, these islands also form a screen separating the
Philippines from the Hawaiian Group and from the United States. Any boat
going to the Philippines, unless it passes through Japanese waters, must
pass either through or close to the islands on the north or south of
Guam (all now under Japanese occupation). It would be impossible to send
any military forces to the Philippines with any safety, if the convoy
were directed through the usual channels. Also, they would be a constant
menace to naval ships moving through the Pacific and between the
Philippines and the United States.
Suggestions
Japan will undoubtedly claim possession of the islands she now occupies,
formerly German. England will undoubtedly do the same as regards those
islands which she now occupies. While the United States has an interest,
and while it would be greatly to the advantage of the United States to
own Samoa and the Carolines and the Marianas, the United States can not
make a direct claim to them or to any of them. Immediately that a claim
is made, we admit the right of both England and Japan to claim.
It is conceivable that if the United States took the position that some
or all of the Pacific Islands should be returned to Germany, the United
States could, after the Peace Conference adjourns, come to some
arrangement with Germany which would transfer the Marianas, the
Carolines, and the Samoan Group to the sovereignty of the United States.
If a war indemnity is demanded and obtained from Germany, the payment of
the indemnity, or a part of it, might be offset by a transfer of these
islands to the sovereignty of the United States. Of course, this could
not be done morally while the Peace Conference sits. The insistence of
the United States upon the return of the islands to Germany would be
unpopular and would not be understood in this country. (Let us hope not
in [Page 515] Japan or in England.) No
other procedure which would insure to the United States the possession
of those islands which are so material to our present possessions and
future safety appears at the present time.
It is, therefore, recommended:
- First, that the United States take the position that the
Carolines, Marshalls, Marianas, Yap, and the Pelew Islands and
the Samoan Group be returned to Germany by the Peace
Conference.
- Second, that after the Peace Conference adjourns the United
States immediately enter into negotiations with Germany to
obtain possession of the Marianas, Carolines, Yap, and the
Samoan Group, and such others as may be desirable or
obtainable.
- Third, that the Guano Islands lying between the Samoan and
Hawaiian Groups be arranged for transfer from Great Britain to
the United States, or that such of them as are claimed by Great
Britain shall be assigned by her to the United States.
Since Germany, under the terms of the armistice, has surrendered
practically her whole navy to the Allied command, she is no longer a
naval power, and for many, many years can not hope to be. England and
Japan are great naval powers. The possession by England and Japan of
many islands throughout the Pacific which can be used for naval bases
and which are situated at strategic points is a constant menace to the
United States and to its dominant position in the Pacific. The argument
that the return of the islands to Germany will place her in a position
to disturb the peace of the Pacific has now no foundation, and fails
utterly.
Note.—In connection with this memorandum please see map showing the
sovereignty of the Pacific Islands in colors, and map showing the
existence and non-existence of the Guano Islands of the Pacific, and two
volumes confidentially printed as follows: “Notes on the Sovereignty of
the Islands of the Pacific” and “Notes on the Guano Islands of the
Pacific,” all of which were delivered to Mr. Harrison for the Secretary
of State.
