Paris Peace Conf. 180.03401/27

CF–27

Notes of a Meeting Held at President Wilson’s House in the Place des Etats-Unis, Paris, on Friday, May 23, at 11:30 a.m.

  • Present
    • America, United States of
      • President Wilson.
    • British Empire
      • The Bt Hon. D. Lloyd George.
      • Secretary-General.
      • Sir Maurice Hankey, K. C. B.
    • France
      • M. Clemenceau.
    • Italy
      • H. E. M. Orlando.
      • Secretary-General.
      • Count Aldrovandi.
  • Also Present
    • America, United States of
      • Admiral Benson.
      • Bear-Admiral H. S. Knapp.
      • Bear-Admiral Long.
      • Capt L. McNamee.
      • Commander A. F. Carter.
      • General Tasker H. Bliss.
      • Major-Gen. M. N. Patrick.
      • General McKinstry.
    • British Empire
      • General Sir H. H. Wilson.
      • Major-Gen. W. Thwaites.
      • Major-General C. J. Sackville-West.
      • Rear-Admiral G. P. W. Hope.
      • Brig.-Gen. P. R. C. Groves.
    • France
      • General Belin.
      • Comdt Lacombe.
      • M. G. Cahen.
      • M. De Montille.
      • Admiral Ronarch.
      • General Duval.
    • Italy
      • General Cavallero.
      • Colonel Toni.
      • Admiral Grassi.
      • Count Vannutelli-Rey.
      • Lt-Col. Piccio.

Joint Secretariat

British Empire Major A. M. Caccia.
France { Capt. A. Portier.
M. Found
Interpreter—Prof. P. J. Mantoux.

1. Clauses the Treaty of Peace with Austria, Referring to Prisoners of War President Wilson pointed out that the draft clauses of the Treaty of Peace with Austria, referring to Prisoners of War (Annex A) had been drawn up on the same lines as the corresponding clauses of the Treaty of Peace with Germany.

The clauses in question referred only to the release of prisoners belonging to Austria proper. For good and sufficient reasons, no reference had been made to those prisoners [Page 874] who were nationals of territories which had belonged to the former Austro-Hungarian Monarchy, such as Czecho-Slovakia, Jugo-Slavia, and Austrian Poland. The Prisoners of War Commission had, however, in their report to the Supreme Council embodied a definite proposal, which read as follows:—

“Austro-Hungarian prisoners of war, and interned civilians who were nationals of territories which belonged to the former Austro-Hungarian Monarchy, and which are to be allotted to Allied and Associated States shall be set at liberty forthwith. All necessary facilities shall be given by the Allied and Associated States to delegates of the Legations and Consulates of new States, in order that they may enter into direct communication with their nationals who are prisoners of war or interned civilians and may facilitate and accelerate their repatriation.”

M. Cahen said he would read the following statement, which expressed the views of the Prisoners of War Commission on this point:—

“The Commission thought that the question thus raised was of the greatest interest, and discussed it at length. The question is indeed nothing less than that of deciding the fate of prisoners and interned civilians who were nationals of the former Austro-Hungarian Empire; should this question form the subject of a special stipulation in the Treaty of Peace concluded with the new Austrian State, or on the other hand, since it is a question of interallied interests, should any general decision be deferred and the Allied and Associated Governments be left to deal with the question in due season and to settle it by special agreements?

In view of the fact that, according to instructions received by the Italian Delegation, the Commission was only appointed to study conditions to be inserted in the Treaty of Peace with the new Austrian State, concerning the repatriation of prisoners of war who were subjects of that State, the Italian Delegation was of opinion that the Commission was not competent to accept the amendment proposed by the Serbian Delegation. That amendment dealt with a question which was not of direct interest to the new Austria and which must be decided by direct arrangement between the Governments concerned.

It therefore thought that the Commission could express no opinion on the said amendment and must confine itself to transmitting it direct to the Governments of the principal Allied and Associated Powers through their delegates on the Commission.

The Italian Delegation, for its part, was willing to transmit the amendment to the Italian Government.

The majority of the Commission considered, on the contrary that as it was instructed to determine the date and method of repatriation of enemy prisoners of war, it was not justified in indifference to the fate of nationals of Allied and Associated countries retained in captivity.

While doubtless holding that the Treaty of Peace regulating relations with the new Austrian State should not include special stipulations with regard to the liberation of Czecho-Slovaks, Jugo-Slavs, Poles and Transylvanians, the Commission considered it inadmissible [Page 875] that Austrian prisoners should be repatriated unless Czecho-Slovaks, Jugo-Slavs, Poles and Transylvanians were certain of benefiting in the same way.

It therefore deemed it essential to call the attention of the Supreme Council to the necessity and urgency of a general decision, common to all the Allied and Associated Powers, in favour of all prisoners captured in the ranks of the Austro-Hungarian armies, and who no longer belong to the Austrian State. The insertion of such a clause in the text would moreover have caused the postponement of its application until the Treaty came into force. While recommending it to the favourable consideration of the Supreme Council, the majority of the Commission thought that the decision was not inseparable from the Treaty of Peace and might even precede it.

This decision, which is claimed as an act of justice and impatiently awaited, will when backed by the authority enjoyed by the resolutions of the Supreme Council, ensure the immediate release of prisoners who were nationals of the former Austro-Hungarian Monarchy and have become nationals of new Allied and Associated States.”

M. Orlando said that the members of the Prisoners of War Commission were unanimously agreed that the question under reference did not directly concern the Treaty of Peace with Austria. In his opinion, the question would have to be considered from two points of view, namely, from the point of view of fact and from the point of view of right.

In regard to the question of fact, Italy had not been in any way behindhand in according special treatment to the prisoners of war and interned civilians in question. Nearly the whole of the Czechs, some 40,000, had already been liberated. Similarly, Poles, Roumanians of Transylvania, and even Jugo-Slavs, had also been liberated. The prisoners of war who were nationals of territories which had belonged to the late Austro-Hungarian Monarchy, still remaining in Italy, had been concentrated in special camps, where they enjoyed special treatment. A very much larger number would already have been liberated; but at the present moment very great difficulties existed in regard to transportation. The policy of the Italian Government was to send home as many of these people as possible. From the point of view of fact, therefore, the Italian Government had already taken steps to give effect to the recommendations of the Commission. Moreover, it would continue the repatriation of these prisoners as quickly as the existing transportation conditions permitted.

In the second place, in regard to the question of right, a difficulty at once arose since the repatriation of prisoners of war was dependent upon the conclusion of peace. Naturally, as soon as Peace was concluded all prisoners of war would be set free. Consequently, the problem resolved itself into one of deciding at what particular moment peace could be considered to have been concluded with the new [Page 876] States of Jugo-Slavia, Czecho-Slovakia, Poland, etc. In regard to the territories included in Austria proper, and in Hungary, a separate Peace would be signed, and from that moment the prisoners of war belonging to these territories would be repatriated. But in regard to the new States which previously had formed part of the Austro-Hungarian Monarchy, peace would in his opinion exist only when these territories had been finally delimited, and at that moment the prisoners would by right be released. That being the case, he could not accept the resolution of the Commission, wherein it was laid down that all Austro-Hungarian Prisoners of War and interned civilians who were nationals of territories which belonged to the former Austro-Hungarian monarchy should be set at liberty forthwith. In the first place he could not accept such a legal international obligation, before Peace had been declared. Furthermore, it would as a matter of fact be impossible for him to comply with such a resolution because until the frontiers were determined it would be impossible to know to what particular country a prisoner of war in reality belonged, that is, it would be impossible to say whether he was a friend or a foe. For instance, in the case of an inhabitant of the Banat, or of Galicia, it would be impossible to say whether he was to be considered a Roumanian or a Hungarian, or something else.

To sum up, in regard to the question of fact, Italy had already set free a large number of the Austro-Hungarian Prisoners of war and interned civilians, who were nationals of territories which belonged to the former Austro-Hungarian Monarchy, within the limits possible under existing transportation facilities. And, in regard to the question of right, he felt unable to accept any formal obligation, as no nation could be compelled to free all prisoners until peace was signed.

Under those circumstances, he thought that no formal decision should be taken on this question. Should his colleagues, however, favour the acceptance of the draft clauses proposed by the Commission, the matter should be discussed solely from a political point of view.

President Wilson expressed the view that the prisoners of war in question should be liberated as soon as possible, whether they were by right entitled to repatriation or not.

M. Orlando replied that that was exactly what Italy had been doing. In other words, he was prepared to accept the principle involved in the recommendation made by the Commission; but he could not accept a formal obligation.

President Wilson thought that if after liberating the prisoners that belonged to Austria proper, any of the Allied powers should continue to detain prisoners which belonged to other parts of the former Austro-Hungarian Monarchy, the impression would be created [Page 877] that States which were friendly were being treated more harshly than enemy States, and the situation in Southern Europe would thereby be still further complicated.

M. Orlando thought that the hypothesis put forward by President Wilson was an impossible one. He assured the Council that as far as Italy was concerned, the moment the nationals of Austria proper were liberated, the nationals of all those other territories which had belonged to the former Austro-Hungarian Monarchy would obviously also be set free. On the other hand, he could not possibly take a formal obligation to release forthwith all prisoners of war at present interned in Italy. That was the only engagement which he could not accept.

President Wilson thought that the Allied and Associated Governments need only be required at the present moment to accept the policy without taking any definite formal obligation.

M. Orlando said that under these circumstances he accepted the proposal. He would do his best to liberate as many of the prisoners of war as possible. The present difficulty lay wholly in want of transport.

(The Supreme Council, approved the articles relating to prisoners of war to be inserted in the conditions of Peace with Austria. (Appendix A.) The Heads of the Governments further agreed that all prisoners of war who were formerly nationals of the Austro-Hungarian monarchy and have now become nationals of an allied or associated country must be liberated immediately, subject to the possibilities of transportation and the final settlement of the frontiers of the new states. In any case they should not be liberated later than the prisoners of war who are nationals of the new Austrian state.)

2. Military. Naval and Aerial Clauses of the Conditions of Peace With Austria and Hungary. (a) Military Clauses President Wilson said that the Military representatives of the Supreme War Council at Versailles had submitted, in accordance with he resolution taken by the Supreme Council of the Allied and Associated Powers on the 15th May, 1919, a report on the strength of the Armies to be allowed for Austria, Hungary, Bulgaria, Czecho-Slovakia, Jugo-Slavia, Roumania, Poland, and Greece. (Appendix B.)

M. Orlando suggested that the Military representatives present should be asked to make a reasoned statement, showing the grounds for their recommendations.

Mr. Lloyd George expressed the view that the reasons for the recommendations made by the military representatives were set forth very clearly in the Report, which had been circulated. He thought the report in question gave a very good summary of the arguments relating to difficulties of the question.

[Page 878]

President Wilson called on General Bliss to make a statement.

General Bliss stated that the original draft of the Military Clauses for insertion in the Conditions of Peace with Austria had been prepared by the Military Representatives, Versailles, during his unavoidable absence. On his return to Versailles, he had found that the draft submitted by the Military Representatives had already received consideration by the Supreme Council, which had decided to return the same to the Military Representatives for modification along certain fixed lines. As a result of a careful study of the labours of his colleagues, he wished to state that he accepted without qualification their conclusions. The figures originally arrived at by the Military Representatives were necessarily based almost entirely on military considerations. He fully realised, however, that in the end the question must be, and would be, settled chiefly on political grounds. In studying the question, the Military Representatives had given full value to all connected questions such as the population of the territories; the character of the territory; the frontiers and the relation between land and maritime frontiers; the character of the local industries (e. g. whether chiefly agricultural or industrial); the general character of the population; the existence of large cities and so forth. Each of the Military Representatives working independently had formed his own estimates. These had naturally differed to a certain extent in details: but the results reached had been practically the same.

He fully realised that the Supreme Council was bound by its decision in regard to the strength of the military forces to be allowed to Germany; and on that account the Military Representatives had received definite instructions to take the German figures as a proportional standard in fixing the forces to be allowed to Austria-Hungary, Czecho-Slovakia, Yugo-Slavia, Roumania, Poland, Bulgaria and Greece. He felt that it might be somewhat hackneyed to re-state the fact that the figures accepted for Germany had not been based on military advice. The Military Committee, presided over by Marshal Foch, had originally been unanimous in recommending to the Supreme Council that a total force of 200,000 men should be allowed to Germany: the whole force to be raised by conscription. The recommendation of the Military Committee had been referred back by the Supreme Council, with instructions that a system of voluntary enlistment should be substituted for the compulsory system proposed. In consequence, the Committee had recommended that the total number of effectives and reservists in the army, to be organised on a basis of a long term compulsory service, should not exceed 140,000. The French Representatives, whilst accepting this figure, expressed a strong recommendation that it should be reduced [Page 879] from 140,000 to 100,000 effectives. When the question again came under the consideration of the Supreme Council, the British Prime Minister had made some very carefully considered remarks which indicated a reluctant dissent from the views of his military advisers. He laid great stress on the apprehension of a renewed attack by Germany which existed in France; he believed that this apprehension was a factor that must be taken into account, and in consequence he proposed that the Council should accept the figure recommended by the French representatives, and that the force should be brought down to 100,000 effectives. He (General Bliss) had never heard an argument which convinced him that the figure 100,000 was correct from a military point of view, and he personally could not bring himself to relinquish his military judgment except as the result of convincing argument.

Finally, when the whole question was referred back to the Military Representatives on the 15th May last with a mandate that the force for Austria should not exceed 15,000 men, the case appealed to him in the following way. An intelligent survey of the situation in Central and Southern Europe would inevitably justify the anticipation that considerable trouble must in the near future arise in those regions, especially as a result of the application of the Peace Conditions. Now, should the Allied and Associated Governments prevent those States from maintaining a sufficient force for the maintenance of order, who would be responsible for doing the work? The total strength of the forces to be maintained by Austria as originally recommended by the Military Representatives for military reasons was much less than the force which even the weakest of the Entente Powers proposed to maintain. In his opinion, the strength of the forces recommended by the Military Representatives was exceedingly small for the purpose of maintaining order in those turbulent regions. He fully acknowledged that eventually the question would have to be settled chiefly from political considerations, but he felt very strongly that by radically reducing the forces of Austria-Hungary, Czecho-Slovakia, Jugo-Slavia, Roumania, Bulgaria, and Greece, as proposed, those States would be converted into mere vassals of the two Continental Powers of the Entente. Should disorders then occur, and the States be unable to cope with the same through want of forces, the inevitable result would be that stronger armies would have to be maintained by France and Italy, following in the occupation from time to time of the territories in question for the purpose of quelling disorders. He did not think that such a situation pointed to the maintenance of the Peace of Europe in the future. The Council no doubt realised the danger of future combinations between Germanic, [Page 880] Slavonic and Asiatic races, which might eventually sweep the civilization of Western Europe out of the way. He personally had never believed in the possibility of the extinction of all traces of Anglo-Latin civilization from Western Europe, but he thought that by eliminating the possibility of the maintenance of order in Central and Southern Europe, the Council were formulating a possible scheme to bring this about. The brilliancy of the military glory which now lightened up certain of these Western nations of Europe might in reality not be an evidence of health but only the hectic flush of disease which would eventually result in the downfall of our strip of Latin and Anglo-Saxon civilization along the Western coast of Europe.

In conclusion, he wished to lay stress on the fact that the acceptance of the figures based on the instructions issued by the Supreme Council would inevitably reduce these States to a condition of vassalage to the Western Powers of the Entente.

Mr. Lloyd George asked General Bliss to state his proposal.

General Bliss replied that his suggestion was that the Council should accept the figures recommended by the Military Representatives.

President Wilson said that it had been assumed that the Supreme Council had instructed the Military Representatives to act on the basis of 15,000 effectives for Austria. He himself had never agreed to that figure and, in fact, he had suggested 20,000. The considerations which General Bliss had urged were, he thought, very serious and large, and required to be very carefully considered. In his opinion, the Supreme Council could not proceed to accept or alter the figure off-hand. He proposed, therefore, that this question should be reserved for discussion from a political point of view.

M. Clemenceau associated himself with what President Wilson had said. He would ask, however, that a copy of General Bliss speech be circulated so that each of the members of the Supreme Council might have his remarks before them.

M. Orlando agreed. He added that General Bliss’s speech had made a considerable impression on him.

Mr. Lloyd George thought that without doubt the Supreme Council would very shortly receive from Germany some protest in regard to the strength of the authorised forces, which had been fixed at 100,000 men. In his opinion, the Germans would never accept that figure. At the present moment, he personally was disposed to agree with General Bliss’s statement that 100,000 men would be an inadequate force for Germany. He had originally accepted that figure as a compromise in view of the fact that Marshal Foch had pressed the matter. The French were the nearest neighbours to Germany, and [Page 881] he thought that their wishes should as far as possible be conceded. He felt certain, however, that the Supreme Council would receive within the next two or three days the German view of the matter. He thought, therefore, that it would be best to consider the problem from the point of view of Germany, Austria, Hungary, and the other States as a whole. He did not think it possible to take Austria and Hungary separately.

President Wilson invited attention to the following statement which occurred in the Report of the Military Representatives, namely:—

“On their Eastern frontier these two nations, Poland and Rou-mania, are in contact with Bolshevist Russia. Not only are they themselves directly menaced by this, but they in fact constitute a barrier which defends Europe against Bolshevism. They must therefore be left in a condition to continue war against the Russian Maximalists with all possible means at their disposal. It is indispensable that Poland and Roumania should be authorised to keep all their forces mobilised under the control of the League of Nations until the Russian question is definitely settled.”

Mr. Lloyd George adhered to his statement that the question of the Strength of the armies to be allowed for Austria, Hungary, Bulgaria, Czecho-Slovakia, Yugo-Slavia, Roumania, Poland and Greece, must be considered as a whole. Should Czecho-Slovakia be allowed to raise a conscript army without limitations, she would have an army of 1/4 millions as compared to the army of 100,000 allowed to Germany. In his opinion, it was quite impossible to restrict Germany without at the same time restricting the other countries; otherwise Germany would be forced into an offensive alliance with the Balkan States aimed at the Western Powers. In this connection, he had been greatly impressed by the remark made by General Bliss in the course of his statement, in regard to the possible formation of a Germano-Slav alliance.

(It was agreed to adjourn the further consideration of the Military Clauses of the Conditions of Peace with Austria.)

(b) Naval Clauses Mr. Lloyd George said that the only question in regard to the Naval Clauses, which called for a decision, related to the following reservation made by Admiral Benson, the American Representative:—

“That the Naval Terms should contain no prohibition against the manufacture within the limits of States formerly a part of the Austro-Hungarian Empire of naval war material on foreign order.”

In his opinion, the matter was a very small one, and he personally was quite indifferent as to the inclusion or exclusion of the condition in question.

[Page 882]

President Wilson said that at the last Meeting he had been under the impression that the point raised was a very serious one. Since then he had consulted his experts, and he agreed that the question was one of only slight importance. On the other hand, he doubted whether it was worth while to include in the Conditions of Peace, clauses which were of no real importance. On this account he proposed that the condition in question should be omitted.

(It was agreed that the Naval Terms should contain no prohibition against the manufacture within the limits of States formerly a part of the Austro-Hungarian Empire of naval war material on foreign order.

Note: This entails the deletion of paragraph 2 of Article 25.

The Naval Clauses, as amended, were adopted.—For text see Appendix C.)

(c) Air Clauses (The Air Clauses were adopted without amendment.—For text see Appendix D.)

(d) Inter-allied Commission of Control (e) General Clauses (The Clauses dealing with Inter-allied Commission of Control, and the general clauses were adopted without amendment.—see Appendix E and F.)

(The meeting then adjourned.)

Villa Majestic, Paris, May 23, 1919.

Appendix “A” to CF–27

Draft of Articles to Insert in the Preliminaries of Peace With Austria

article 1.

The repatriation of Austrian prisoners of war and interned civilians, who are nationals of the new Austrian State, shall take place as soon as possible after the coming into force of the present treaty, and shall be carried out with the greatest rapidity.

article 2.

The repatriation of Austrian prisoners of War and interned civilians shall, in accordance with Article 1, be carried out by a Commission composed of Representatives of the Allied and Associated Powers on the one part and of the Austrian Government on the other part.

For each of the Allied and Associated Powers a Sub-Commission composed exclusively of representatives of the interested powers and of Delegates of the Austrian Government shall regulate the details of carrying into effect the repatriation of prisoners of war.

[Page 883]

article 3.

From the time of their delivery into the hands of the Austrian authorities, the prisoners of war and interned civilians are to be returned without delay to their homes by the said authorities. Those among them who, before the war, were habitually resident in territory occupied by the troops of the Allied and Associated Powers, are likewise to be sent to their homes, subject to the consent and control of the Military Authorities of the Allied and Associated Armies of Occupation.

article 4.

The whole cost of repatriation from the moment of starting shall be borne by the Austrian Government who shall also provide means of transport and working personnel as considered necessary by the Commission referred to in Article 2.

article 5.

Prisoners of war and interned civilians awaiting disposal or undergoing sentence for offences against discipline shall be repatriated irrespective of the completion of their sentence or of the proceedings pending against them.

This stipulation shall not apply to prisoners of war and interned civilians punished for offences committed subsequent to May 1st, 1919.

During the period pending their repatriation all prisoners of war and interned civilians shall remain subject to the existing regulations, more especially as regards work and discipline.

article 6.

Prisoners of war and interned civilians who are awaiting trial or undergoing sentence for offences other than those against discipline may be detained.

article 7.

The Austrian Government undertakes to admit to its territory without distinction all prisoners liable to repatriation.

Prisoners of war or Austrian nationals who do not desire to be repatriated may be excluded from repatriation; but the Allied and Associated Governments reserve to themselves the right either to repatriate them or to take them to a neutral country or to allow them to reside in their own territories.

The Austrian Government undertakes not to institute any exceptional proceedings against these persons or their families nor to take any repressive, or vexatious measures of any kind whatsoever against them on this account.

article 8.

The Allied and Associated Governments reserve the right to make the repatriation of Austrian Prisoners of war or Austrian nationals [Page 884] in their hands conditional upon the immediate notification and liberation by the Austrian Government of any Prisoners of war and other nationals of the Allied and Associated Powers who are still held in Austria against their will.

article 9.

The Austrian Government undertakes (1) to give every facility to Commissions of Enquiry into the cases of those who cannot be traced, to furnish such Commissions with all necessary means of transport; to allow them access to camps, prisons, hospitals and all other places; and place at their disposal all documents whether public or private which would facilitate their enquiries. (2) To impose penalties on any Austrian officials or private persons who have concealed the presence of any nationals of any of the Allied or Associated Powers, or who may have neglected to reveal the presence of any such after it had come to their knowledge.

article 10.

The Austrian Government undertakes to restore without delay from the date of the coming into force of the present treaty, all articles, money, securities and documents which have belonged to nationals of the Allied and Associated Powers, and which have been retained by the Austrian Authorities.

article 11.

The High Contracting Parties waive reciprocally all repayment of sums due for the maintenance of prisoners of war in their respective territories.

Section 11. Graves

article 12.

The Allied and Associated Governments and the Austrian Government will cause to be respected and maintained the graves of the soldiers and sailors buried in their respective territories.

They agree to recognise any Commission appointed by the several Governments for the purpose of identifying, registering caring for or erecting suitable memorials over the said graves, and to facilitate the discharge of its duties.

Furthermore, they agree to afford, so far as the provisions of their laws and the requirements of public health allow, every facility for giving effect to requests that the bodies of their soldiers and sailors may be transferred to their own country.

article 13.

The graves of prisoners of war and interned civilians who are nationals of the different belligerent states and have died in captivity [Page 885] shall be properly maintained in accordance with Article 12 of the present treaty.

The Allied and Associated Powers on the one part and the Austrian Government on the other part reciprocally undertake also to furnish to each other (1) a complete list of those who have died, together with all information useful for identification; (2) all information as to the number and positions of graves of all who have been buried without identification.

[Appendix B to CF–27]

Report on the Strength of the Armies To Be Allowed for Austria, Hungary, Bulgaria, Czecho-Slovakia, Yugo-Slavia, Roumania, Poland and Greece

SWC–411

On May 15th, 1919, the Supreme Council of the Allied and Associated Powers made the following Resolution:—1

It was agreed that the Military Representatives of the Supreme War Council, Versailles, should prepare and submit a report showing what forces should be allowed to Austria, Hungary, Czechoslovakia, Jugo-Slavia (including Montenegro), Roumania, Poland, Bulgaria and Greece, taking the German figures as a proportional standard.

In the case of Poland due allowance shall be made for the existing situation of the Eastern frontier.

The Military Representatives of the Supreme War Council have the honour to submit to the Supreme Council the conclusions and proposals contained in the attached Tables, which are based:—

(1)
In regard to the numbers of the populations and the frontiers of the States above-named, on the reports of the different Commissions charged with the territorial questions relative to the said States;* and
(2)
In regard to the determination of the effectives to be authorised for each of the armies of these States, on the proportion adopted in the case of Germany and decided to be sufficient by the Supreme Council of the Allied and Associated Powers for ensuring the maintenance of order and for control of the frontiers; also on the instructions given by the Supreme Council relative to the strength of the forces to be allowed to Austria.

The Military Representatives nevertheless persist in their opinion that the very reduced number of effectives which they have fixed in [Page 886] accordance with the instructions which have been given them are insufficient to ensure the efficient carrying out of the tasks which these States may be called upon to perform more particularly during the period of uncertainty following upon the publication of the terms of Peace.

In the course of their discussion they have felt compelled to make the following observations to which they think it indispensable to call the attention of the Supreme Council:—

1. Generally with regard to all the States under consideration.

If it is admitted that Germany with an army of 100,000 men and an excellent system of communications could, in case of urgency or at a moment’s notice, transport a large or small part of her forces from one point of her territory to another to ensure the maintenance of order, that would not be the case with the small States. If the figures calculated in accordance with the instructions given by the Supreme Council were adopted, the latter States would only have at their disposal very reduced forces. The whole might not be sufficient in the case of disturbance in a big town or industrial neighbourhood.

Not having the same facilities for communication as Germany it would, besides, be very difficult for them to assemble quickly at any desired point their forces scattered over the whole country.

The most recent experience has shown that the maintenance of order in large towns necessitates forces the number of which might be estimated at two or three per cent of the total population. These forces represent for large towns the effectives of several divisions whether they are required to suppress risings, as was the case in Germany, or simply to prevent possible disturbances, as has been the case in various Allied countries.

Austria especially includes the capital of the old Austro-Hungarian Empire, Vienna, which has more than 2,000,000 inhabitants. If it should become necessary to suppress disturbances of any magnitude there is no doubt that it would be necessary for the Government to have at its disposal a force of not less than 25,000 to 30,000 men.

It seems also essential to take into account the nature of the frontiers and their value from the point of view of defence. It is impossible to consider Germany, the half of whose frontiers are bordered by the sea, by neutral States or neutralised zones, from the same standpoint as States such as Hungary which is surrounded by hostile neighbours with open frontiers.

[Page 887]

2. Poland and Roumania.

On their Eastern frontier these two nations are in contact with Bolshevist Russia. Not only are they themselves directly menaced by this but they in fact constitute the barrier which defends Europe against Bolshevism. They must therefore be left in a condition to continue war against the Russian Maximilists with all possible means at their disposal.

It is indispensable that Poland and Roumania should be authorised to keep all their forces mobilised under the control of the League of Nations until the Russian question is definitely settled.

Consequently, taking the above facts into consideration, the Military Representatives consider it their duty to propose to the Supreme Council the numbers of effectives laid down in the left hand column of Table 2 attached.

Gal. Belin

Military Representative, French Section, Supreme War Council
Ugo Cavallero

Military Representative, Italian Section, Supreme War Council
C. Sackville-West

Major-General, Military Representative, British Section, Supreme War Council
Tasker H. Bliss

Military Representative, American Section, Supreme War Council
[Enclosure]

Table 1

Population and frontiers

States Populations included in the new frontiers Length of frontiers in kilometres Remarks
Land Kms. Sea Kms.
Austria 7,000,000 1,850
Hungary 10,000,000 1,540
Bulgaria 5,000,000 1,400 300
Czecho-Slovakia 13,000,000 2,500
Yugo-Slavia (including Serbia and Montenegro) 11,000,000 2,300 600
Roumania 16,000,000 2,250 350
Poland 22,000,000 2,500 100
Greece 6,000,000 900 2,800
without Islands

(Note:—All the figures given above are necessarily only approximate).

[Page 888]

Table 2

maximum effectives authorised

Total effectives* proposed by the Military Representatives, taking into consideration the above mentioned points States Total effectives calculated on the basis given by the Supreme Council Remarks
40,000 Austria 15,000

These effectives may be grouped as each state desires in Divisions, Brigades, Regiments, or mixed Units with the following 3 reservations.

(1)
That the effectives of formed Units shall compulsorily be included within the maximum and minimum figures given in Table 6 attached;
(2)
That the proportion of Officers shall not exceed 1/20th of the total effectives with the colours;
(3)
That the number of guns, howitzers, and machine-guns shall not exceed the proportio of—

3 guns or howitzers (field or mountain) per 1,000 men of total effectives with the colours;

2 trench mortars per 1,000 men of total effectives with the colours;

15 machine-guns (including light machine-guns and automatic rifles) per 1,000 men of total effectives with the colours.

In no case shall Units be formed greater than a Division as laid down in Tables 3 and 4 attached.

45,000 Hungary 18,000
20,000 Bulgaria 10,000
50,000 Czecho-Slovakia 22,000
40,000 Yugo-Slavia (including Serbia and Montenegro) 20,000
60,000 Roumania 28,000
80,000 Poland 44,000
20,000 Greece 12,000

* Note.—The figures given in Column 1 are calculated on the basis of 4 effectives per thousand of population. In the case of Austria and Hungary this proportion has been slightly increased on account of the large population existing in the capitals of the 2 countries, and also on account of the existing and possible state of unrest.

[Page 889]

Table 3

composition and maximum effectives of an infantry division

Units Maximum effectives of each unit Remarks
Officers Men
Headquarters of an Infantry Division. 25 70

(a)
Each Regiment comprises 3 Battalions of Infantry, each Battalion comprises 3 Companies of Infantry and 1 machine-gun Company.
(b)
Each Battalion comprises 1 Headquarters, 2 Pioneer Companies, 1 Bridging Section, 1 Searchlight Section.
(c)
Each regiment comprises 1 Headquarters, 3 Groups of Field or Mountain Artillery, comprising 8 batteries, each Battery comprising 4 guns or howitzers (field or mountain).
(d)
This detachment comprises:—Telephone and telegraph detachments, 1 listening section, 1 carrier-pigeon Section.

Headquarters of Divisional Infantry. 5 50
Headquarters of Divisional Artillery. 4 30
3 Regiments of Infantry (a) (on the basis of 65 Officers and 2,000 men per Regiment). 195 6,000
1 Squadron 6 160
1 Battalion of Trench Artillery (3 Companies). 14 500
1 Battalion (b) (3 Companies) 14 500
1 Regiment Field Artillery (c) 80 1,200
1 Battalion Cyclists (comprising 3 Companies). 18 450
1 Signal Detachment (d) 11 330
Divisional Medical Crops 28 550
Division Parks and Trains 14 940
Total for an Infantry Division. 414 10,780

Table 4

(composition and maximum effectives for a cavalry division

Units Maximum effectives of each unit Remarks
Officers Men
Headquarters of a Cavalry Division. 15 50

(a)
Each Regiment comprises 4 Squadrons.
(b)
Each group comprises 9 fighting cars, each carrying one gun, one machine-gun and one spare machine-gun, 4 Communication cars, 2 small lorries for stores, 7 lorries, including 1 repair lorry. 4 motor cars.

Regiment of Cavalry (a) 30 720
Group of Field Artillery (3 Batteries). 30 430
Group of Motor Machine-guns and Armoured cars (b) 4 80
Miscellaneous service 30 500
Total for a Cavalry Division of 6 Regiments. 259 5,380

Note—The large Cavalry Units may include a variable number of Regiments and be divided into independent Brigades within the limit of the effectives laid down above.

[Page 890]

Table 5

composition and maximum effectives for a mixed brigade

Units Maximum effectives of each unit Remarks
Officers Men
Headquarters of a Brigade 10 50 (a) Each Regiment comprises 3 battalions of Infantry, each battalion comprises 3 Companies of Infantry and 1 Machine-gun Company.
2 Regiments of Infantry (a) 130 4,000
1 Cyclist Battalion of 3 Companies. 18 450
1 Cavalry Squadron 5 100
1 Group Field or Mountain Artillery of 3 Batteries. 20 400
1 Trench Mortar Company 5 150
Miscellaneous services including Communication detachment. 10 200
Total for Mixed Brigade 198 5,350

Table 6

minimum effectives of units whatever organisation is adopted in the army (divisions, mixed brigades &c.)

Maximum effectives (for reference) Units Minimum effectives Remarks
Officers Men Officers Men
414 10,780 Infantry Division 300 8,000
259 5,380 Cavalry Division 180 3,650
198 5,350 Mixed Brigade 140 4,250
65 2,000 Regiment of Infantry 52 1,600
16 650 Battalion of Infantry 12 500
3 160 Company of Infantry or Machineguns 2 120
18 450 Cyclist Group 12 300
30 720 Regiment of Cavalry 20 450
6 160 Squadron of Cavalry 3 100
80 1,200 Regiment of Field Artillery 60 1,000
4 150 Battery, Field Artillery 2 120
3 150 Company of Trench Mortars 2 100
14 500 Battalion of Pioneers 8 300
[Page 891]

Table 7

maximum authorised armaments and munition supplies

Material Quantity for 1,000 men Amount of munitions per arm (rifles, guns, etc.) Remarks
Rifles or Carbines 1,150 500 rounds Automatic rifles or carbines are counted as light machine-guns.
Machine-guns, heavy or light. 15 10,000 rounds
Trench Mortars, light. } 2 { 1,000 rounds
Trench Mortars, medium. 500 rounds
Guns or howitzers (field or mountain). 3 1,000 rounds

Note—No heavy gun, i. e., of a calibre greater than 105 m.m. is authorised.

Annex C to CF–27

Naval Clauses

article 20.

From the date of the coming into force of the present Treaty all ex-Austro-Hungarian warships, submarines included, are declared to be finally surrendered to the Principal Allied and Associated Powers.

All the monitors, torpedo boats and armed vessels of the Danube Flotilla will be surrendered to the Principal Allied and Associated Powers.

article 21.

The ex-Austro-Hungarian auxiliary cruisers and fleet auxiliaries enumerated below will be disarmed and treated as merchant ships:—

  • Bosnia
  • Gablonz
  • Carolina
  • Africa
  • Tirol
  • Argentina
  • Lussin
  • Teodo
  • Nixe
  • Gigante
  • Dalmat
  • Persia
  • Prince Hohenlohe
  • Gastein
  • Helouan
  • Graf Wurmbrand
  • Pelikan
  • Hercules
  • Pola
  • Naiade
  • Pluto
  • President Wilson (ex Kaiser Franz Joseph)
  • Trieste
  • Baron Bruck
  • Elisabeth
  • Melcavich
  • Baron Call
  • Gaea
  • Cyclop
  • Vesta
  • Nymphe
  • Buffel

article 22.

All warships, including submarines, now under construction in ports which belong or previously belonged to Austria-Hungary, shall be broken up.

[Page 892]

The work of breaking up these vessels will be commenced as soon as possible after the coming into force of the present Treaty.

article 23.

Articles, machinery and material arising from the breaking up of ex-Austro-Hungarian warships of all kinds, whether surface vessels or submarines, may not be used except for purely industrial or commercial purposes.

They may not be sold or disposed of to foreign countries.

article 24.

The construction or acquisition of any submarine, even for commercial purposes, shall be forbidden in the State of Austria.

article 25.

All arms, ammunition and other naval war material, including mines and torpedoes, which belonged to Austria-Hungary at the date of the signature of the armistice of 3rd November, 1918, are declared to be finally surrendered to the Principal Allied and Associated Powers.

article 26.

During the three months following the coming into force of the present Treaty, the Austrian high-power wireless telegraphy station at Vienna shall not be used for the transmission of messages concerning naval, military or political questions of interest to the State of Austria, or any State which has been allied to Austria-Hungary in the war, without the assent of the Principal Allied and Associated Powers. This station may be used for commercial purposes, but only under the supervision of the said Governments, who will decide the wave-length to be used.

During the same period the State of Austria shall not build any more high-power wireless telegraphy stations in her own territory or that of the State of Hungary, Germany, Bulgaria, or Turkey.

  • G. C.
  • W. W.
  • D. Ll. G.
  • V. E. Or.

Appendix D to CF–27

Air Clauses

article 27.

The armed forces of the State of Austria must not include any military or naval air forces. No dirigible shall be kept.

article 28.

Within two months from the coming into force of the present [Page 893] Treaty the personnel of the air forces on the rolls of the Austrian land and sea forces shall be demobilised.

article 29.

Until the complete evacuation of Austrian territory by the Allied and Associated troops the aircraft of the Allied and Associated Powers shall enjoy in the State of Austria freedom of passage through the air, freedom of transit and of landing.

article 30.

During the six months following the coming into force of the present Treaty, the manufacture and importation of aircraft, parts of aircraft, engines for aircraft, and parts of engines for aircraft, shall be forbidden in all territory of the State of Austria.

article 31.

On the coming into force of the present Treaty, all military and naval aeronautical material must be delivered by the State of Austria and at the expense of the State of Austria, to the Principal Allied and Associated Powers.

Delivery must be effected at such places as the said Governments may select, and must be completed within three months.

In particular, this material will include all items under the following heads which are or have been in use or were designed for warlike purposes:—

Complete aeroplanes and seaplanes, as well as those being manufactured, repaired or assembled.

Dirigibles able to take the air, being manufactured, repaired or assembled.

Plant for the manufacture of hydrogen.

Dirigible sheds and shelters of every kind for aircraft.

Pending their delivery, dirigibles will, at the expense of the State of Austria, be maintained inflated with hydrogen; the plant of the manufacture of hydrogen, as well as the sheds for dirigibles, may, at the discretion of the said Powers, be left to the State of Austria until the time when the dirigibles are handed over.

Engines for aircraft,

Nacelles and fuselages,

Armament (guns, machine guns, light machine guns, bomb-dropping apparatus, torpedo-dropping apparatus, synchronisation apparatus, aiming apparatus).

Munitions (cartridges, shells, bombs, loaded or unloaded, stocks of explosives or material for their manufacture).

Instruments for use on aircraft.

Wireless apparatus and photographic or cinematograph apparatus for use on aircraft.

Component parts of any of the items under the preceding heads.

[Page 894]

The material referred to above shall not be removed without special permission from the said Governments.

article 32.

The aircraft of the Allied and Associated Powers shall have full liberty of passage and landing over and in the territory and territorial waters of the State of Austria and shall enjoy the same privileges as aircraft belonging to the State of Austria, particularly in case of distress by land or sea.

article 33.

The aircraft of the Allied and Associated Powers shall, while in transit to any foreign country whatever, enjoy the right of flying over the territory and territorial waters of the State of Austria without landing subject always to any regulations which may be made by the State of Austria, and which shall be applicable equally to the aircraft of the State of Austria and those of the Allied and Associated countries.

article 34.

All aerodromes in the State of Austria open to national public traffic shall be open for the aircraft of the Allied and Associated Powers, and in any such aerodrome such aircraft shall be treated on a footing of equality with Austrian aircraft as regards charges of every description, including charges for landing and accommodation.

article 35.

Subject to the present provisions, the rights of passage, transit and landing, provided for in Articles 32, 33 and 34 are, subject to the observance of such regulations as the State of Austria may consider it necessary to enact, but such regulation shall be applied without distinction to aircraft belonging to the State of Austria and to the aircraft of Allied and Associated countries.

article 36.

Certificates of nationality, airworthiness, or competency and licences, issued or recognised as valid by any of the Allied and Associated Powers, shall be recognised in the State of Austria as valid and as equivalent to the certificates and licences issued by the State of Austria.

article 37.

As regards internal commercial air traffic, the aircraft of the Allied and Associated Powers shall enjoy in the State of Austria most favoured nation treatment.

article 38.

The State of Austria undertakes to enforce the necessary measures to ensure that all Austrian aircraft flying over her territory shall [Page 895] comply with the Rules as to lights and signals, Rules of the Air and Rules for Air Traffic on and in the neighbourhood of aerodromes, which have been laid down in the Convention relative to Aerial Navigation concluded between the Allied and Associated Powers.

article 39.

The obligations imposed by the preceding provisions shall remain in force until the 1st January, 1923, unless before that date the State of Austria shall have been admitted into the League of Nations or shall have been authorised by consent of the Allied and Associated Powers; to adhere to the Convention relative to Aerial Navigation concluded between those Powers.

[Appendix E to CF–27]

Inter-Allied Commissions of Control

article 40.

All the Military, Naval and Air Clauses contained in the present Treaty, for the execution of which a time limit is prescribed, shall be executed by the State of Austria under the control of Inter-Allied Commissions (Military, Naval, Air) specially appointed for this purpose by the principal Allied and Associated Powers.

The above mentioned Commissions will represent the Governments of the Principal Allied and Associated Powers in dealing with the Government of the State of Austria in all matters concerning the execution of the Military, Naval or Air Clauses. They will communicate to the authorities of the State of Austria the decisions which the Principal Allied and Associated Powers have reserved the right to take or which the execution of the Clauses may necessitate.

article 41.

The Inter-Allied Commissions of control may establish their organisations at Vienna and shall be entitled, as often as they think desirable, to proceed to any point whatever in the territory of the State of Austria, or to send a sub-commission or to authorise one or more of their members to go to any such point.

article 42.

The Government of the State of Austria must furnish to the Inter-Allied Commissions of Control all such information and documents as the latter may deem necessary to ensure the execution of their mission; and all means (both in personnel and in materiel) which the above mentioned Commissions might need to ensure the complete execution of the Military, Naval or Air Clauses.

[Page 896]

The Government of the State of Austria must attach a qualified representative to each Inter-Allied Commission of Control with the duty of receiving from the latter any communications which it may have to address to the Government of the State of Austria and to furnish it with, or to procure, all information or documents demanded.

article 43.

The upkeep and cost of the Commissions of Control and the expenses involved by their work shall be borne by the State of Austria.

article 44.

It will be the special duty of the Military Inter-Allied Commission of Control to receive from the Government of the State of Austria the notifications relating to the location of the stocks and depots of munitions, the armament of the fortified works, fortresses and forts, and the location of the works or factories for the production of arms, munitions and war materiel and their operations.

It will take delivery of the arms, munitions, war materiel and plant intended for war construction, will select the points where such delivery is to be effected and will supervise the works of destruction, and rendering things useless, or of transformation of materiel, which are to be carried out in accordance with the present Treaty.

article 45.

It will be the special duty of the Naval Inter-Allied Commission of Control to proceed to the building yards and to supervise the breaking-up of the ships which are under construction there, to take delivery of arms, munitions and naval war materiel, and to supervise the destruction and breaking-up provided for.

The Government of the State of Austria must furnish to the Naval Inter-Allied Commission of Control all such information and documents as the Commission may deem necessary to ensure the complete execution of the naval clauses, in particular the designs of the warships, the composition of their armaments, the details and models of the guns, munitions, torpedoes, mines, explosives, wireless telegraphic apparatus, and in general everything relating to naval war materiel, as well as all legislative or administrative documents or regulations.

article 46.

It will be the special duty of the Aeronautical Inter-Allied Commission of Control to make an inventory of the Aeronautical material which is actually in the possession of the Government of the State of Austria, to inspect aeroplane, balloon and motor manufactories, and factories producing arms, munitions and explosives capable of being used by aircraft, to visit all aerodromes, sheds, landing grounds, parks and depots which are now in Austrian territory and to authorise where necessary a removal of material and to take delivery of such material.

[Page 897]

The Government of the State of Austria must furnish to the Aeronautical Inter-Allied Commission of Control all such information and legislative, administrative or other documents which the Commission may consider necessary to ensure the complete execution of the air clauses and in particular a list of the personnel belonging to all the air services of the State of Austria and of the existing material, as well as of that in process of manufacture or on order, and a list of all establishments working for aviation, of their positions, and of all sheds and landing grounds.

[Appendix F to CF–27]

General Clauses

article 47.

After the expiration of a period of three months from the coming into force of the present Treaty the laws of the State of Austria must have been modified and shall be maintained by the Government of the State of Austria in conformity with the first part of the present Treaty.

Within the same period all the administrative or other measures relating to the execution of this part of the Treaty must have been taken.

article 48.

The following portions of the Armistice of 3rd November, 1918 (Villa Giusti):—

  • Paragraphs 2, 3, 4 of Chapter 1 (Military Clauses).
  • Paragraphs 2, 3, 6 of Chapter 1 of the annexed Protocol, (Military Clauses).

remain in force so far as they are not inconsistent with the above stipulations.

article 49.

The State of Austria undertakes from the coming into force of the present Treaty not to accredit to any foreign country any Military, Naval or Air Mission and not to send, or allow to leave, any such Mission; it undertakes, moreover, to take the necessary measures to prevent nationals of the State of Austria leaving its territory in order to enlist in the Army, the Fleet, or the Air Service of any foreign power, or to be attached to such with a view to helping in its training, or generally to give any assistance to the Military, Naval, or Air instruction in a foreign country.

The Allied and Associated Powers undertake, on their part, that from the coming into force of the present Treaty they will neither enlist in nor attach to their Armies, Fleets or Air Forces any national [Page 898] of the State of Austria with the object of helping in military training or in general employ any national of the State of Austria as a military, naval, or air instructor.

The present provision, however, in no way hinders the right of France to recruit her Foreign Legion in accordance with French Military Laws and Regulations.

article 50.

So long as the present Treaty shall remain in force the State of Austria undertakes to submit to any investigation that the League of Nations by a majority vote may consider necessary.

  1. See CF–15, p. 635.
  2. No report had been drawn up for Bulgaria. The frontiers arising from the reports with regard to Serbia and Greece have been adopted. [Footnote in the original.]
  3. The following is the population of the capitals of the countries: Vienna, 2,031,488; Budapest, 880,371; Sofia, 100,000; Prague, 541,000; Belgrade, 92,000; Bucharest, 350,000; Warsaw, 870,000; Athens, 167,000. [Footnote in the original.]