661.119/433: Telegram
The Commission to Negotiate Peace to the Acting Secretary of State
[Received July 16, 3:11 a.m.]
3152. For the President.
The question of the attitude of the Allies toward trade with Bolshevist Russia has been reopened through a formal request by Sweden to be advised as to whether any restrictions will be attempted to be imposed by the Allies upon exports from Sweden to Bolshevist Russia. A particular instance in question involves shipment of munitions of war.
[Page 152]The British and French now propose that the Allies notify neutrals that traffic into and out of ports in the Gulf of Finland can only be conducted under permit from the local [Allied] naval command.
You will perhaps recall that the question of commercial relations with Bolshevist Russia was considered by the Supreme Council, which decided in substance that there would be no legal basis for a continuation of restrictions after the termination of the blockade of Germany. Hankey21 under date of June 17th advised McCormick22 that the Supreme Council had “decided that after the acceptance of the conditions of peace by Germany measures are not still to be taken to prevent commodities from reaching Bolshevist Russia or Hungary”. At the meeting of Supreme Council held today Mr. Balfour urged a modification of this decision to the extent of giving the notification above referred to on the following grounds:
- 1.
- The decision of June 17 was taken in expectation of an early fall of Petrograd, which would automatically have prevented Bolshevist Russia from receiving aid through the Gulf of Finland. This expectation has not been fulfilled.
- 2.
- Military and naval operations are active in and about the Gulf of Finland and the Allies are making naval dispositions to prevent the Bolshevists taking the anti-Bolshevists in the rear through naval operations. The Allies cannot permit neutral shipping to proceed to Bolshevist territory as this would be the means whereby naval dispositions of the Allies would become known.
- 3.
- The decision of the Supreme Council of June 17 related to both Bolshevist Russia and Hungary. The Supreme Council itself modified the decision in respect to Hungary prior to your departure, which it was urged indicated that the decision as a whole should not be regarded as final.
Mr. Clemenceau actively supported Mr. Balfour and urged particularly the moral obligation which the Allies were under by virtue of their promises of aid and assistance to Koltchak. Mr. Tittoni is prepared to concur with the British and French. I secured postponement today at Council of Five of decision for at least forty-eight hours in the hope that by that time I would be able to ascertain your wishes.
While fully appreciating the force of the arguments raised by Mr. Balfour and the practical advantages of taking the course suggested, I am impressed and so expressed myself with the danger of admitting the right of one group of nations to control the high seas unless by virtue of recognized belligerent rights. This distinguishes [Page 153] the case of Hungary from that of Bolshevist Russia, with which latter we are not belligerent. I am also inclined to feel that the British and French over estimate the aid Bolshevists will receive in the absence of the proposed notification. Navigation is exceedingly hazardous by present [reason of the] naval operations in progress and above all by reason of the presence of great numbers of mines. Furthermore, the Bolshevist ports will normally be closed for the winter by the latter part of November.
I recognize, however, that it is desirable that we should go as far as possible with our associates in assisting Koltchak and preventing aid from reaching the Bolshevists and accordingly I shall take no action here until advised of your wishes.
It is also proposed that Koltchak shall declare a formal blockade of about 90 miles of the Black Sea littoral and that if this blockade is effective it be recognized by the Allied and Associated Powers. I shall accept this proposal unless you indicate otherwise. Please answer as soon as possible.