711.94/20666/9
Proposal Presented to the Department of State Through the Medium of Private American and Japanese Individuals on April 9, 1941
The Governments of the United States and of Japan accept joint responsibility for the initiation and conclusion of a general agreement disposing the resumption of our traditional friendly relations.
Without reference to specific causes of recent estrangement, it is the sincere desire of both Governments that the incidents which led to the deterioration of amicable sentiment among our peoples should be prevented from recurrence and corrected in their unforeseen and unfortunate consequences.
It is our present hope that, by a joint effort, our nations may establish a just Peace in the Pacific; and by the rapid consummation of an entente cordiale, arrest, if not dispel, the tragic confusion that now threatens to engulf civilization.
For such decisive action, protracted negotiations would seem ill-suited and weakening. We, therefore, suggest that adequate instrumentalities should be developed for the realization of a general agreement which would bind, meanwhile, both governments in honor and in act.
It is our belief that such an understanding should comprise only the pivotal issues of urgency and not the accessory concerns which [Page 399] could be deliberated at a Conference and appropriately confirmed by our respective Governments.
We presume to anticipate that our Governments could achieve harmonious relations if certain situations and attitudes were clarified or improved; to wit:
- 1.
- The concepts of the United States and of Japan respecting international relations and the character of nations.
- 2.
- The attitudes of both governments toward the European War.
- 3.
- The relations of both nations toward the China affair.
- 4.
- Naval, aerial and mercantile marine relations in the Pacific.
- 5.
- Commerce between both nations and their financial cooperation.
- 6.
- Economic activity of both nations in the Southwestern Pacific area.
- 7.
- The policies of both nations affecting political stabilization in the Pacific.
Accordingly, we have come to the following mutual understanding subject, of course, to modifications by the United States Government and subject to the official and final decision of the Government of Japan.
I. The concepts of the United States and of Japan respecting international relations and the character of nations
The Governments of the United States and of Japan might jointly acknowledge each other as equally sovereign states and contiguous Pacific powers.
Both Governments assert the unanimity of their national policies as directed toward the foundation of a lasting peace and the inauguration of a new era of respectful confidence and cooperation among our peoples.
Both Governments might declare that it is their traditional, and present, concept and conviction that nations and races compose, as members of a family, one household; each equally enjoying rights and admitting responsibilities with a mutuality of interests regulated by peaceful processes and directed to the pursuit of their moral and physical welfare, which they are bound to defend for themselves as they are bound not to destroy for others.
Both Governments are firmly determined that their respective traditional concepts on the character of nations and the underlying moral principles of social order and national life will continue to be preserved and never transformed by foreign ideas or ideologies contrary to those moral principles and concepts.
II. The attitudes of both Governments toward the European War.
The Government of Japan maintains that the purpose of its Axis Alliance was, and is, defensive and designed to prevent the extension of military grouping among nations not directly affected by the European War.
[Page 400]The Government of Japan, with no intention of evading its existing treaty obligation, desires to declare that its military obligation under the Axis Alliance comes into force only when one of the parties of the Alliance is aggressively attacked by a power not at present involved in the European War.
The Government of the United States maintains that its attitude toward the European War is, and will continue to be, determined by no aggressive alliance aimed to assist any one nation against another. The United States maintains that it is pledged to the hate of war, and accordingly, its attitude toward the European War is, and will continue to be, determined solely and exclusively by considerations of the protective defense of its own national welfare and security.
III. China affairs.
The President of the United States, if the following terms are approved by His Excellency and guaranteed by the Government of Japan, might request the Chiang-Kai-Chek regime to negotiate peace with Japan.
- a.
- Independence of China
- b.
- Withdrawal of Japanese troops from Chinese territory, in accordance with an agreement to be reached between Japan and China
- c.
- No acquisition of Chinese territory
- d.
- No imposition of indemnities
- e.
- Resumption of the “Open Door”; the interpretation and application of which shall be agreed upon at some future, convenient time between the United States and Japan
- f.
- Coalescence of the Governments of Chiang-Kai-Chek and of Wang-Ching-Wei
- g.
- No large-scale or concentrated immigration of Japanese into Chinese territory
- h.
- Recognition of Manchukuo.
With the acceptance by the Chiang-Kai-Chek regime of the aforementioned Presidential request, the Japanese Government shall commence direct peace negotiations with the newly coalesced Chinese Government, or constituent elements thereof.
The Government of Japan shall submit to the Chinese concrete terms of peace, within the limits of aforesaid general terms and along the line of neighborly friendship, joint defense against communistic activities and economic cooperation.
Should the Chiang-Kai-Chek regime reject the request of President Roosevelt, the United States Government shall discontinue assistance to the Chinese.
[Page 401]IV. Naval, aerial and mercantile marine relations in the Pacific.
- a.
- As both the Americans and the Japanese are desirous of maintaining the peace in the Pacific, they shall not resort to such disposition of their naval forces and aerial forces as to menace each other. Detailed, concrete agreement thereof shall be left for determination at the proposed joint Conference.
- b.
- At the conclusion of the projected Conference, each nation might despatch a courtesy naval squadron to visit the country of the other and signalize the new era of Peace in the Pacific.
- c.
- With the first ray of hope for the settlement of China affairs, the Japanese Government will agree, if desired, to use their good offices to release for contract by Americans certain percentage of their total tonnage of merchant vessels, chiefly for the Pacific service, so soon as they can be released from their present commitments. The amount of such tonnage shall be determined at the Conference.
V. Commerce between both nations and their financial cooperation.
When official approbation to the present understanding has been given by both Governments, the United States and Japan shall assure each other to mutually supply such commodities as are respectively available or required by either of them. Both governments further consent to take necessary steps to the resumption of normal trade relations as formerly established under the Treaty of Navigation and Commerce between the United States and Japan.18 If a new commercial treaty is desired by both governments, it could be elaborated at the proposed conference and concluded in accordance with usual procedure.
For the advancement of economic cooperation between both nations, it is suggested that the United States extend to Japan a gold credit in amounts sufficient to foster trade and industrial development directed to the betterment of Far Eastern economic conditions and to the sustained economic cooperation of the Governments of the United States and of Japan.
VI. Economic activity of both nations in the Southwestern Pacific area.
On the pledged basis of guarantee that Japanese activities in the Southwestern Pacific area shall be carried on by peaceful means, without resorting to arms, American cooperation and support shall be given in the production and procurement of, natural resources (such as oil, rubber, tin, nickel) which Japan needs.
[Page 402]VII. The policies of both nations affecting political stabilization in the Pacific.
- a.
- The Governments of the United States and of Japan will not acquiesce in the future transfer of territories or the relegation of existing States within the Far East and in the Southwestern Pacific area to any European Power.
- b.
- The Governments of the United States and of Japan jointly guarantee the independence of the Philippine Islands and will consider means to come to their assistance in the event of unprovoked aggression by any third Power.
- c.
- The Government of Japan requests the friendly and diplomatic assistance of the Government of the United States for the removal of Hongkong and Singapore as doorways to further political encroachment by the British in the Far East.
- d.
- Japanese Immigration to the United States and to the Southwestern Pacific area shall receive amicable consideration—on a basis of equality with other nationals and freedom from discrimination.
Conference.
- a.
- It is suggested that a Conference between Delegates of the United States and of Japan be held at Honolulu and that this Conference be opened for the United States by President Roosevelt and for Japan by Prince Konoye. The delegates could number less than five each, exclusive of experts, clerks, etc.
- b.
- There shall be no foreign observers at the Conference.
- c.
- This Conference could be held as soon as possible (May 1941) after the present understanding has been reached.
- d.
- The agenda of the Conference would not include a reconsideration of the present understanding but would direct its efforts to the specification of the prearranged agenda and drafting of instruments to effectuate the understanding. The precise agenda could be determined upon by mutual agreement between both governments.
Addendum.
The present understanding shall be kept as a confidential memorandum between the Governments of the United States and of Japan.
The scope, character and timing of the announcement of this understanding will be agreed upon by both Governments.