Papers Relating to the Foreign Relations of the United States, The Paris Peace Conference, 1919, Volume XI

Edward M. House Papers

Colonel E. M. House to President Wilson

Paris, 22 May, 1919.

Dear Governor: I enclose herewith the memorandum you asked each of us for at the last meeting you had with the Commissioners.

Affectionately yours,

[File copy not signed]

[Enclosure]

Memorandum for the President by Colonel E. M. House

Questions Remaining to be Settled After German and Austrian Peace Treaties are Disposed of.

(There may be agreements with regard to some of these questions by the Council of Four that have not been announced.)

A.—Territorial Matters

i.—enemy frontiers

1. With the frontier between Austria and Hungary settled, no questions are likely to be raised with regard to Hungarian frontiers unless they are raised by Hungary; her neighbors should be satisfied.

2. The Commissions concerned recommend a rectification of the Rumanian-Bulgarian frontier in the Dobrudja to the advantage of Bulgaria and the disadvantage of Rumania. Evidently it may be difficult to persuade Rumania, a friendly state, to agree to this suggestion.

3. The Bulgarians will certainly object very vigorously to the cession of practically the whole of Western or Bulgarian Thrace to Greece, as is recommended by the territorial Commission. They will maintain that there is but a small minority of Greeks in the territory concerned, and contest the Greek claim that the Moslems, who are in a majority, prefer Greek to Bulgarian sovereignty. Bulgaria may also for the same reasons contest the cession of Eastern or Turkish Thrace to Greece, though here her ground is not so strong.

4. The consideration of frontiers within the former Turkish Empire has been reserved by the Supreme Council, and therefore has not been dealt with by territorial commissions, except in the case of the Greek claim to Smyrna and territory adjacent thereto. This claim was recognized by the territorial Commission dealing with the Greek claims.

5. The other questions remaining to be settled within Turkey, all of them highly contentious and entangled in agreements among the principal European Powers, include the following:

a. Frontiers of the Constantinople state, if there is to be one; selection of its mandatory and drawing up of its mandate.

b. The extent and character of the Greek control of Smyrna and its neighborhood, i. e., whether any or all of the territory concerned is to come under Greek sovereignty, or whether some of it is to be merely subject to a Greek mandate.

c. The Italian claim to Adalia, and, if this is recognized, the drawing up of the terms of the mandate.

d. The boundaries of the Armenian state; its mandatory and the terms of the mandate.

e. The settlement with regard to the Kurdish and Assyrian areas south and east of the Armenian region.

f. The boundaries of the Mesopotamian area and the terms under which England is to exercise a mandate over that region and its people.

g. The boundaries of the Syrian area and the terms under which France is to exercise a mandate over that region and its people.

h. The boundaries of Palestine and the terms under which the British are to act as mandatory.

i. The action to be taken with regard to the Ottoman debt, a highly contentious question in which the British are especially interested.

ii. other frontiers

1. The American, British, and French experts agree on all the frontiers for Czecho-Slovakia and Rumania, and on all the frontiers for Jugo-Slavia except those with Italy and Albania.

a. In the case of Czecho-Slovak frontiers, there is only one contentious stretch, and that is in Teschen, where any decision is difficult to reach and any reached will be unsatisfactory either to Poland or to Czecho-Slovakia. The difficulty, generally speaking, is that Teschen or most of it is an economic unit and an injury will be done by dividing it, whereas on the other hand, it contains both Poles and Czechs.

b. In the case of Rumanian frontiers, the only question likely to be contentious is in the Dobrudja, referred to above.

c. The contentious questions between Jugo-Slavia and Italy are too familiar to call for comment.

The Jugo-Slavs ask for some of the territory assigned to Albania at London in 1913, and the Albanians ask for some of the territory then and there assigned to Serbia and Montenegro respectively. It is also true that the Greeks claim Albanian territory as then delimited, and that the Albanians in turn claim Greek territory. It may be useful to mention that Albania differs from such new or enlarged states as Czecho-Slovakia and Jugo-Slavia in requiring in the way of changes little if anything more than rectifications of frontier. If nothing is done except in the matter of the Italian claim to Valona and in providing for advice and guidance to Albania, she will at least be no worse off than she has been.

2. The Dutch and Belgians are at present negotiating with regard to frontier and other questions between them, especially in the region of the Scheldt and with regard to Limburg and Maastricht. They may settle their differences, but that, of course, is uncertain.

3. Certain Polish frontiers are highly contentious, notably the frontier with Lithuania, with Russia, in the Lemberg region of Galicia, and in Teschen as above mentioned. The possibility of reaching satisfactory settlements in these regions now or in the near future is very problematical.

4. Except in the case of Poland, nothing has been done in the matter of the frontiers of or within the former Russian Empire. The attached map⁴² gives some idea of the little peoples who have declared their independence and demand recognition, and the settling of their frontiers and of other questions concerning them. Here again the possibility of reaching satisfactory settlements in the near future is not very bright. No doubt boundaries could be assigned, but in some cases at least they would be unsatisfactory, and it might be that the peoples concerned would prefer self-help to help by the conference.

In connection with Finland, the assignment of the Aaland Islands either to Finland or to Sweden is likely to come up.

iii.—territories outside of europe

1. The terms of the mandates for backward peoples in Africa and the Pacific remain for determination. The territories concerned have, it is understood, been allocated to various of the Great Powers as mandatories, but a contentious question seems to remain outstanding between Belgium and Great Britain in the matter of East Africa, and France and the British Empire have still to report with regard to Togo and the Cameroons.

2. General conventions with regard to arms traffic, liquor traffic, revision of the Berlin Act of 1885 and of the Brussels Convention of 1890 still remain to be drawn up.

iv.—miscellaneous

1. The status of Spitzbergen is unsettled. Norway, Sweden and Great Britain are chiefly affected.

2. There are many outstanding questions—spheres, consortiums, etc.—in China, Manchuria, Mongolia, etc.

Endorsement in W. W.’s (?) handwriting:⁴³

I think generally that I and II should be decided here except as they involve Russia. III & IV could wait and be referred to League of Nations except the last question which involves Russia.

B. Naval Matters

1. The disposition of enemy warships and war material.

(Admiral Benson has recommended that all enemy war material, including vessels, should be destroyed. Should division instead of destruction be decided upon then the question becomes a political one to be decided by the political representatives of the various governments.)

2. The final disposition of German cables and the question of international aspect of communication by land, telegrams, cables or wireless telegraph.

(The resolution adopted by the Chiefs of Allied Governments provided that:

“Such of the above-mentioned cables as are now in use, shall continue to be worked in the conditions at present existing; but such working shall not prejudice the right of the Principal Allied and Associated Powers to decide the future status of these cables in such way as they may think fit.

“The Principal Allied and Associated Powers may make such arrangements as they may think fit for bringing into operation any of the said cables which are not at present in use.

“The Principal Allied and Associated Powers shall as soon as possible arrange for the convoking of an International Congress to consider all international aspects of communication by land telegraphs, cables or wireless telegraphy, and to make recommendations to the Powers concerned with a view to providing the entire world with adequate facilities of this nature on a fair and equitable basis.”)

3. The question of the abolition of submarines, as an instrument of warfare.

(It is possible that this latter question will be left for decision by the Naval and Military Commissions to be appointed under the League of Nations. However, attention is invited to it at the present time.)

Endorsement in W. W.’s (?) handwriting:

Not for the Conference I think.

C.—Commissions, etc., To Be Appointed Under Peace Treaty With Germany

Endorsement in W. W.’s handwriting:

None of these for the Conference.

1. Organization of League of Nations (Resolution of the Conference).

The Committee consists of nine members appointed by the United States of America, Great Britain, France, Italy, Japan, Belgium, Brazil, Greece and Spain.

2. Frontier Commissions

(a) Belgium (Article 35, page 25)⁴⁴

A Commission of seven persons, five of whom will be appointed by the Principal Allied and Associated Powers, one by Germany and one by Belgium, will be constituted within fifteen days after the coming into force of the Treaty.

(b) Saar Basin (Article 48, page 29)

A Commission composed of five members, one appointed by France, one by Germany and three by the Council of the League of Nations, will select nationals of other Powers, will be constituted within fifteen days after the coming into force of the Treaty.

(c) Czecho-Slovak State (Article 83, page 49)

A Commission composed of seven members, five to be nominated by the Principal Allied and Associated Powers, one by Poland and one by the Czecho-Slovak State, will be appointed within fifteen days after the coming into force of the Treaty.

(d) Poland (Article 88, page 51)

A Commission consisting of seven members, five to be nominated by the Principal Allied and Associated Powers, one by Germany and one by Poland, shall be constituted within fifteen days after the coming into force of the Treaty.

(e) Danzig (Article 101, page 57)

A Commission of five persons, three nominated by the Principal Allied and Associated Powers, including a High Commissioner as President, one appointed by Germany and one by Poland, shall be constituted within fifteen days of the coming into force of the Treaty.

(f) Schleswig (Article 110, page 61)

A Commission composed of seven members, five of whom are to be especially nominated by the Principal Allied and Associated Powers, one by Denmark and one by Germany, shall be constituted within fifteen days from the date when the final result of the vote is known.

3. Commissions in charge of plebiscites

Soar Basin (Annex, Paragraph 34, page 37)

The plebiscite at the end of fifteen years is under the control of the Council of the League of Nations, acting by a majority. (Paragraph 40, page 38).

East Prussia (Article 95, page 53)

An Inter-national Commission of five members appointed by the Principal Allied and Associated Powers will take charge of area not exceeding fifteen days after the coming into force of the Treaty (area between the southern frontier of East Prussia and a line described)

East Prussia (Stuhm, Rosenberg and Marienwerder) (Article 97, page 54)

An Inter-national Commission of four members appointed by the Principal Allied and Associated Powers; it is contemplated that this Commission will commence operation within fifteen days after the coming into force of the Treaty.

Schleswig (Article 109, page 59)

An Inter-national Commission composed of five members, of whom three will be designated by the Principal Allied and Associated Powers; the Norwegian and Swedish Governments will each be requested to designate a member and in the event of their failing to do so these two members will be chosen by the Principal Allied and Associated Powers; it is contemplated that the Commission shall operate within ten days after the coming into force of the Treaty.

4. Governing Commissions

The Saar Basin (Annex, Paragraph 17, page 33)

The Governing Commission shall consist of five members chosen by the Council of the League of Nations including one citizen of France, one native inhabitant of the Saar Basin not a citizen of France and three members belonging to three countries other than France or Germany, all appointed for one year. The Chairman shall be appointed in like manner. Salaries are fixed by the Council of the League. The Council acts by majority in these matters. (Paragraph 40, page 38)

5. Inter-Allied Commissions of Control (Article 203, page 89) These Commissions are three in number, representing the Five Powers: Military (Article 208), Naval (Article 209) and Aeronautical (Article 210).

All military, naval and air clauses contained in the Treaty for the execution of which a time limit is prescribed should be executed by Germany under the control of Inter-Allied Commissions especially appointed for this purpose by the Principal Allied and Associated Powers.

6. Commissions in charge of re-patriation of prisoners of war (Article 215, page 93)

A Commission shall be composed of representatives of the Allied and Associated Powers and of the German Government. Each Allied or Associated Power shall constitute a Sub-Commission composed exclusively of its representatives and of delegates of the German Government. These Commissions shall be constituted as soon as possible after the coming into force of the Treaty.

7. Commission for the maintenance of graves (Article 225, page 95)

Any Commission appointed by an Allied or Associated Government will be recognized.

8. Tribunal to try William of Hohenzollern (Article 227, page 96)

It will be composed of five (misprinted four) judges one appointed by each of the following Powers: United States of America, Great Britain, France, Italy and Japan. In addition, military tribunals may be constituted as required (Article 228). The Powers will address to Holland a request for the surrender of the Kaiser.

9. Reparation Commission (Article 233, page 98)

One Delegate and an Assistant Delegate will be appointed by the United States of America, Great Britain, France, Italy, Japan, Belgium and Serbia. Other interested Powers may appoint a Delegate without vote.

10. Manager of the Port of Strassburg and Kehl (Article 65, page 42)

Within three weeks after the coming into force of the Treaty a provisional Manager of French nationality may be appointed by the Principal Allied and Associated Powers, to be succeeded by a Manager to be appointed by the Central Rhine Commission.

11. High Commissioner of the Free City of Danzig (Article 103, page 57)

He shall be appointed by the League of Nations.

12. Clearing Offices (Annex, page 137)

Each of the High Contracting Parties will establish a clearing office for the collection of the payments of enemy debts. This shall be done by each of them within three months after it has been given notice to Germany and within six months after the coming into force of the Treaty, and as provided in Article 296 (e), page 137.

13. Mixed Arbitral Tribunal (Article 304, page 156)

Within three months after the coming into force of the Treaty, a Mixed Arbitral Tribunal shall be established between each of the Allied and Associated Governments, on the one hand, and Germany, on the other, consisting of three members one chosen by each of the Governments concerned, the President being chosen by agreement of the two Governments concerned.

14. International Commissions of Ports, Waterways and Railways (hypothetical) (Article 336, page 171)

An Arbitrator or Arbitrators appointed by the United States of America to determine upon tugs and boats to be ceded (Article 339, page 172—see also, page 110)

River Commissions

(a) The Elbe (Article 340, page 173)

Four representatives of German riparian States, two representatives of the Czecho-Slovak State, one representative of Great Britain, France, Belgium, to be appointed immediately on the coming into force of the Treaty.

(b) The Oder (Article 341, page 173)

One representative each for Poland, Prussia, the Czecho-Slovak State, Great Britain, France, Denmark, Sweden.

(c) The Niemen (Article 342, page 173)

The League of Nations shall place the Niemen under the administration of an Inter-national Commission on the request of any riparian State, such commission consisting of a representative of such riparian State and three representatives of other States specified by the League of Nations.

(a), (b) and (c). The Commission on the Elbe and on the Oder shall meet within three months after the coming into force of the Treaty. The Commission on the Niemen shall meet within three months after the coming into force of the Treaty, upon request.

(d) The Danube (Article 346, page 174)

This Commission shall resume its function but shall consist only of representatives of Great Britain, France, Italy and Roumania. The part of the river not under the jurisdiction of the European Commission of the Danube shall be placed under the administration of an Inter-national Commission composed of two representatives of German riparian States and one representative of each other riparian State, and one representative of each non-riparian State represented on the European Commission of the Danube, in the future. This Commission shall meet as soon as possible after the coming into force of the Treaty (Article 352, page 175). A Conference of the Powers nominated by the Allied and Associated Powers shall meet within one year after the coming into force of the Treaty and will lay down a regime of the Danube which shall be accepted by Germany (Article 349, page 175).

(e) The Rhine (Article 355, page 177)

The Central Commission provided for in the Convention of Mannheim shall consist of nineteen members, two for Holland, two for Switzerland, four for German riparian States, four for France which, in addition, shall appoint a President for the Commission, two for Great Britain, two for Italy and two for Belgium. Within six months of the coming into force of the Treaty, the Central Commission shall meet to draw up the project for the Convention of Mannheim which shall be in harmony with the provisions of the General Convention (Article 338)

(f) General Convention (Article 338, page 172)

The Allied and Associated Powers shall draw up the General Convention subject to the approval of the League of Nations. Germany agrees to adhere thereto. It shall relate to Waterways recognized therein as having an international character and particularly to the Elbe, the Oder, the Niemen and the Danube.

(g) Rotterdam (Article 357, page 177)

The United States of America shall appoint an arbitrator to determine within one year after the coming into force of the Treaty the amount and specifications of cessions by Germany to France in the port of Rotterdam.

(h) Hamburg and Stettin (Article 364, page 181)

A Commission of Delimitation and Control consisting of one delegate of Germany, one delegate of the Czecho-Slovak State and one delegate of Great Britain.

(i) Kiel Canal (Article 386, page 188)

Any interested Power can appeal to the jurisdiction instituted for the purpose by the League of Nations and demand the formation of an Inter-national Commission in the event of violation of the Articles relative to the Kiel Canal or of disputes as to their interpretation.

Railway Commissions

(a) Commissions to designate rolling stock (Article 371, page 183) Commissions of experts shall be designated by the Allied and Associated Powers on which Germany shall be represented.

(b) Arbitrator (Article 373, page 184)

An Arbitrator shall be appointed by the League of Nations to determine the divisions of initial cost of railway improvements on German territory made upon the request of one of the Allied and Associated Powers with the consent of the League of Nations.

(c) Arbitrator (Article 374, page [185])

An Arbitrator may be appointed by the United States to determine the conditions of the denunciation of the St. Gothard Convention.⁴⁵

15. Labor Commissions.

(a) Labor Conference (Article 388, page 190)

Members of the League of Nations shall each appoint four delegates to the General Labor Conference, two to represent the Government, one of them employers and the other the working people. The appointment must be prior to a meeting to be held within one year of the coming into force of the Treaty.

(b) Governing Body of the Labor Office (Article 388, page 190)

The members of chief industrial importance shall nominate eight persons and the other Members four. The Council of the League of Nations shall decide which are the Members of chief industrial importance. Delegates representing employers shall elect six and delegates representing workers shall elect six. (Article 393, page 191).

(c) Director of the Labor Office (Article 394, page 192)

A Director of the Labor Office shall be appointed by the Governing Body.

(d) Funds (Article 399, page 193)

Funds for expenses of the Labor Office and meetings of the Conference or Governing Body shall be paid to the Director of the Office by the Secretary-General of the League of Nations out of the general funds of the League.

(e) Panel for Commission of Enquiry (Article 412, page 196)

Within six months, each member of the League will nominate a representative of employers, a representative of workers and a person of independent standing, all of industrial experience.

(f) First Meeting (Article 424, page 199)

The first meeting of the Labor Conference will take place in October 1919.

(g) Tribunal to be appointed pending creation of a permanent Court of International Justice (Article 426, page 200)

A Tribunal of three persons shall be appointed by the Council of the League of Nations to determine questions arising from Labor matters, pending the creation of a Permanent Court of International Justice.

16. General Clause.

The Chairman of any Commission has a second vote when the vote is equal. (Article 437, page 206).

D.—Pre-War Debts—Enemy Property—Contracts

As soon as the treaties are signed, by Germany and Austria, steps should be taken at once to ascertain (a) the status of American property, rights and interests in the enemy countries, and (b) the best procedure to collect debts and accounts in such countries. A report should be made with the least possible delay, and then Congress may consider and determine,

(1) What enemy property in the United States shall be returned to the former owners,

(2) What enemy businesses shall be liquidated in the public interest, and

(3) What disposition shall be made of all proceeds of liquidations.

Congress will have the right to determine whether the said proceeds shall be used to protect the property interests of American citizens, or to pay claims of American citizens against the enemy countries arising before the entry of the United States into the war, or to pay into the reparation fund.

These matters will involve serious questions of policy, such as the treatment of private property in the time of war, the measures of protection which should be accorded to the private foreign interests of our nationals, and our duty to enhance the fund for the reparation of our associates.

The amounts involved will be very large, and differences in point of view very great.

We have not been at war with either Turkey or Bulgaria. We have not seized any property of the nationals of those countries.

Endorsement in W. W.’s (?) handwriting:

To be considered for Austria Hungary Bulgaria & Turkey—otherwise not for the Conference

E.—Treaties With New States and States Acquiring New Territories

The Committee on New States is working out treaties between the five principal Allied and Associated Powers and each of the following States:

• Poland
• Checho-Slovakia
• Yugo-Slavia
• Roumania
• Greece

The Treaty with Poland is provided for in Article 93 of the Treaty with Germany and the Treaty with Checko-Slovakia in Article 86. The other treaties will be provided for in the treaties of peace with Austria and Hungary.

The Clauses for protection of minorities have been agreed upon for the Treaty with Poland and similar clauses will be put into the treaties with the other countries. The clauses covering the economic and financial problems involved in the transfer of territories are not yet agreed upon.

The United States is particularly interested in the protection of minorities in each of these countries, more especially in the protection of the Jews in Poland and Roumania. The United States has little interest in the economic and financial parts of these treaties except for assuring to the nationals of all states equitable commercial treatment.

Endorsement in W. W.’s handwriting (?):

These treaties are between the 5 powers and Poland Roumania &c. They are not for the Conference

F.

No mention is made of Military matters or of matters arising under the Covenant of the League of Nations except under C supra.

Endorsement in W. W.’s (?) handwriting:

Not for the Conference except as to Austria Hungary Bulgaria & Turkey

G.—Shipping Matters

Endorsement in W. W.’s (?) handwriting:

Not for the conference

The situation to this date in relation to enemy ships seized by the United States is about as follows:

We have taken the position that our title is good.

In interpreting one of the provisions proposed for the Treaty of Peace and which afterwards went into the Treaty of Peace, Great Britain questions our international title to the ships. Because of this, and since the Treaty was passed, and under the provisions of the Treaty that as between the Allies distribution of the materials, money, etc., for reparation is to be settled by agreement, Great Britain agrees to waive any question of title in the United States to the seized ships, and in the same way agrees that Brazil, Cuba, China and Siam shall retain the ships seized by them respectively provided payment is made for the same.

France has agreed with the United States that it does not question the United States’ title, but has not to this date agreed with relation to the ships seized by the other states.

We are now negotiating with Italy and Japan.

If the seized ships were all to be pooled and divided on the ton-for-ton basis, the interests of the various countries would be according to the percentages shown below:

U. K.	77.65
France	6.75
Italy	6.70
U. S.	3.00
Greece	3.49
Japan	1.32
Belgium	.77
Brazil	.14
Portugal	.14
Roumania	.04

Great Britain and France have waived any question as to our title, and we hope for similar agreements on the part of Italy, Greece, Japan and Belgium. With such agreements we need fear no further difficulty in maintaining our title. However, that as a matter of courtesy we should present the matter to Greece and Belgium and possibly the other countries, and will do so as soon as we have arrived at an understanding with Japan.

We know of no other questions involved in the seized ships which might give difficulty from the standpoint of the United States. There are some rather complicated claims put forward by Italy, particularly with relation to Adriatic shipping, but in this question we should not be affected so far as ship tonnage is concerned.

E. M. House

42. No map accompanies the file copy of this memorandum.
43. This endorsement and other similar endorsements as they appear throughout the file copy of this memorandum are typewritten; hence it is impossible from this copy to verify the handwriting of the person who may have inserted them upon the original copy.
44. The references are to the preliminary draft of the treaty with Germany handed to the Germans on May 7, 1919 (185.1/112).
45. British and Foreign State Papers, vol. cv, p. 639.