Paris Peace Conf.185.1722/6
Mr. R. H. Lord and Mr. S. E. Morison to the Commissioners Plenipotentiary
Subject: Recommendations for dealing with the situation in Latvia, and in Esthonia and Lithuania.15
Statement:
Lieut.-Col. Warwick Greene, U. S. A., head of the American Mission to Baltic Countries, has confirmed previous reports on the situation in Latvia.
On April 16, the Provisional Government of Latvia was deposed by a military coup d’état at Libau, effected by German Bait troops. Lettish troops were disarmed and interned, government offices seized, and the leading members of the Provisional Government either imprisoned or driven to take refuge with officers of the Associated Governments. A Balt “Committee of Safety” was set up. The whole affair took place with the connivance and support of General von der Goltz, commander of the German Army ostensibly defending Latvia under Art. XII of the November Armistice.
Acquiescence in these acts of violence would expose the Entente to the charge of supporting the German Baits. Immediate action is necessary both to defend the people against further violence, uphold the prestige of the Entente, and prevent the Letts from embracing Bolshevism as the sole alternative to Germanism. As the Associated Powers are unwilling to send troops to Latvia, the following action is recommended:
[Page 148]Recommendation:
(1.) That the Supreme Council transmit through representatives of the Associated Governments now at Libau, to (the “Committee of Safety”, or) whatever de facto authority exists at Libau, and to General von der Goltz, a demand that the imprisoned members of the Provisional Government of Latvia, and all officials and troops formerly acting under its authority, be immediately released; that all arms and other seized property be returned; and that this Provisional Government be restored at once to its previous functions and be respected as the de facto government of Latvia.
That General von der Goltz be ordered to refrain from any interference in the internal administration of Latvia, under pain of having his communications with Germany severed.
Statement (2):
The events in Latvia are the direct result of the Entente’s policy of using German troops to defend a strongly anti-German country against the Bolshevists. The same policy has been followed in Lithuania. Art. XII of the November Armistice, providing for the eventual evacuation of the Baltic region by the Germans, will expire automatically with the signature of the Preliminary Treaty of Peace. Unless an article on this subject is inserted in said treaty, the Germans will be able to claim that they have an indefinite license to remain. Both the Letts and the Lithuanians wish to get rid of their German “protectors” as soon as possible, and claim that they can defend themselves against the Bolshevists if given material aid.
Esthonia is included in the stipulations suggested below, since the Germans may invade that country before the ratification of the Preliminary Treaty. Evacuation must be supervised by Allied representatives in order to prevent a recurrence of the illegal acts of last November and December.
Recommendation (2):
That, in accordance with the suggestion made by Mr. Lansing at a session of the Council of Five on April 19th,16 it be stipulated in the Preliminary Treaty of Peace that the German troops now in the Baltic Provinces and Lithuania evacuate those countries; that this evacuation begin immediately and be completed within a period of . . . . . . weeks; that it be carried out under the supervision of Allied representatives; that until the completion of the evacuation there shall be no interference with the civil administration of these countries, or with such measures for material defense as may be adopted by the Provisional Government of Esthonia, Latvia and Lithuania.
[Page 149]Statement (3):
Collective recognition by the Associated Governments of the Provisional Governments of Latvia, Lithuania and Esthonia should no longer be delayed. If the German troops are to be ordered out, and these countries left to defend themselves, we must necessarily lend all the moral support that we can to their governments.
Esthonia has already elected, by universal suffrage, a constituent assembly that will meet within a few days. Conditions are not sufficiently settled in the other countries to make elections possible.
Some reservation to protect Russia’s rights and interests in these countries must be included in their recognition; but it should be made clear that no disposition will be made of Esthonia, Latvia and Lithuania without the consent of their peoples. The Conference; Politique Russe at Paris has already expressed itself virtually in favor of such a recognition as is here suggested.
Recommendation (3):
That the Supreme Council recognize the Provisional Government of Latvia, as it existed before the coup d’état of April 16th, as an independent de facto government; and that a similar recognition be extended to the Provisional Governments of Esthonia and Lithuania. Any declaration or recognition made to the governments in question should contain the provision that the final status of these three countries is to be settled only in accordance with the wishes of the population as expressed through properly elected constituent assemblies; and that, as soon as a recognized Russian government exists, the Allied and Associated Powers will use their good offices to facilitate an amicable settlement of the relations of these countries with Russia.
Statement (4):
The three countries under consideration are in a desperate economic and financial situation. They have little equipment or munitions for their armies. In order to permit them to organize forces sufficient for their defense, before the German evacuation takes place, they must be given arms and equipment. Questions regarding supplies and credits for these countries could be referred to Baltic Commission of the Peace Conference which, it is hoped, will shortly be appointed.
Recommendation (4):
That, in order to assure the defense of these three countries against the Bolshevists, in view of the impending evacuation by the German troops, the Allied and Associated Governments should undertake to supply Esthonia, Latvia, and Lithuania with the necessary military equipment, food, and credit.
[Page 150]Statement (5):
The Paris delegates of Latvia, Esthonia, and Lithuania have requested the Peace Conference to require Germany in the Preliminary i Treaty to indemnify them for German depredations in violation of international law and of Article XIV of the November Armistice. As we have neither the time nor the facilities to investigate these quesitions immediately, they could best be referred by the Treaty to a mixed commission.
Recommendation (5):
That an article be inserted in the Preliminary Treaty of Peace, ensuring that the question of the reparations due from Germany to Esthonia, Latvia, and Lithuania, be referred to a mixed commission or other appropriate body for decision.
Note: These recommendations are submitted at this moment without waiting for the appointment of the Inter-Allied Baltic Commission recently agreed upon by the Council of Four;17 because:
- (a)
- The situation created by the German coup d’état at Libau demands immediate action;
- (b)
- Articles relating to the German evacuation and the question of reparations ought to be inserted in the Preliminary Treaty of Peace.
- (c)
- The provisional recognition of the three governments in question and the granting of material assistance to them are measures which can no longer be delayed if the Germans are to be compelled to evacuate these territories.
Practically identical recommendations are being made to the British delegation by Sir Esme Howard.
- This memorandum was called to the attention of the Commissioners at their meeting of April 24, 1919, vol. xi, pp. 162, 164.↩
- See FM–6, minute 5, vol. iv, p. 589.↩
- No minutes of the meeting of April 16, at which this resolution was passed, have been found in the files of the Department.↩