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.
Paris, May 23, 1919, 11:30 a.m.
- Present
- America, United States of
- British Empire
- The Bt Hon. D. Lloyd George.
- Secretary-General.
- Sir Maurice Hankey, K. C. B.
- France
- 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
Versailles,
21 May,
1919.
[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.
Paris
, May
23, 1919.
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.
Versailles, 13 May, 1919.