Foreign Relations of the United States Diplomatic Papers, 1932, General, Volume I

500.A15A4 Steering Committee/267

Mr. Norman H. Davis of the American Delegation to the Secretary of State

Geneva, December 8, 1932.

My Dear Mr. Secretary: I enclose herewith the complete text of the Japanese Naval Proposal which was summarized in my 477 December 7th 10 p.m.³⁸

Note: The words “maximum tonnages, uniform to the five naval powers” which have been underscored here and there in the text, may be misleading. These do not mean that each country may possess an equal amount in each of the categories in question (i.e., light cruisers, destroyers and submarines), but merely that the maximum in each category which any power of the group may possess is to be the same for all powers in the group. The actual allocation of tonnage in these categories is to be determined upon considerations of geographic and special circumstances, thus establishing, so far as the global tonnage of the three categories is concerned, a virtual ratio.

The Japanese Delegation has in mind to lay this proposal before the Bureau either at the end of this week (December 10th) or early next week. It has been privately circulated to the five powers only.

Sincerely yours,

Norman H. Davis

[Enclosure]

Proposal of the Japanese Government

The Japanese Government, anxious for the realization of the project of disarmament, whereby the peace of the world is to be consolidated, have been doing their utmost, in co-operation with other Powers concerned, to contribute to the success of the present Disarmament Conference. Paying sincere respect to the initiative taken by the participating Powers, particularly by President Hoover and the British Government, in putting proposals before the Conference, the Japanese Government have given careful consideration to those proposals. Having found, however, that these proposals contain certain points with which the Japanese Government cannot associate themselves, they wish to submit their point of view in so far as the problem of naval disarmament is concerned.

It is the earnest desire of the Japanese Government that, for the purpose of qualitative and quantitative reduction of naval armaments, the following should be observed by the present Conference as its guiding principle: that the Conference, always relying on the basis of the three important resolutions adopted by the General Commission in the early stages of the Conference,—viz. those embodying the principle of reduction of armaments, the criteria for the limitation and reduction of armaments and the principle of qualitative disarmament—should seek to reduce those forces which are aggressive in character and strong in offensive power, and to find a fair and rational solution of the problem in such a way as to meet existing conditions, giving due consideration to the geographical situation and special circumstances of the various countries, so that the sense of security may not be impaired.

For the success of the Conference, the most careful attention should be given to the procedure to be followed in its future discussions. It is believed to be practically impossible for a World Conference such as the present one to seek to conclude a comprehensive agreement at a single stroke by having all the participating powers take part in the discussion of every problem regardless of whether it is of minor importance or of concern to only some of those Powers. Such a method would rather jeopardize the chance of ultimate success. In the future discussions of naval questions, therefore, and with a view to realizing the guiding principle set forth above, to facilitating the progress of the Conference, and to assuring the attainment of its object, the Japanese Government propose, as a practical and effective procedure, that:

1. The general outline of agreements to be concluded shall form the subject matter of prior negotiations between the United States, the British Empire, France, Italy and Japan, as was contemplated by the resolution of the General Commission on July 23.

2. The agreements shall be of two kinds,—general and special. Discussions on matters of a general character will be followed by discussions on matters of a sectional and detailed nature.

3. A distinction shall be made between powerful naval vessels, which possess a high degree of relativity as between Powers, and less powerful vessels which, having a close relation to geographical situation and special circumstances, are primarily necessary for defence and patrol services; in other words, such vessels as capital ships, aircraft carriers and A–class cruisers on the one hand, and such vessels as B–class cruisers, destroyers and submarines on the other, shall be dealt with separately.

In the general agreement, qualitative limitation of all categories of naval vessels and quantitative limitation of capital ships, aircraft carriers and A–class cruisers are to be effected between the five leading naval Powers, so that the offensive power of these vessels will be greatly reduced; and the maximum tonnages, uniform to the aforementioned five Powers, for B–class cruisers, destroyers and submarines respectively shall be fixed.

In the special agreement, quantitative reduction to be applied mainly to B–class cruisers, destroyers and submarines shall be effected within each group of Powers most closely related, taking into account their geographical situation and special circumstances.

The Japanese Government think that the method outlined above should prove to be the most practical way to obtain a fair and equitable agreement.

A. General Agreement

It is the purpose of this agreement to provide for qualitative limitation of naval vessels of all countries, together with a quantitative limitation among the United States, the British Empire, France, Italy and Japan, of vessels having a great offensive power and to fix the maximum tonnages, uniform to the said five Powers, for B–class cruisers, destroyers and submarines respectively.

1. Reduction in the unit size of the various naval vessels and the calibre of the guns shall be agreed upon.

2. The reduction and limitation of the tonnages of capital ships, aircraft carriers and A–class cruisers of the above mentioned five Powers shall be agreed upon.

3. The maximum tonnages, uniform to the five naval Powers, for B–class cruisers, destroyers and submarines respectively shall be agreed upon in the general agreement. The actual tonnages of these vessels to be retained by the five Powers shall, however, be fixed as low as possible within the above mentioned maximum, by means of special agreements, between the Powers in the respective groups to which the said five Powers belong, taking the tonnages actually possessed by each Power as a basis and also bearing in mind the geographical situation and special circumstances of each country concerned.

4. As for the tonnages of the Powers other than the United States, the British Empire, France, Italy and Japan it shall be agreed in the general agreement that they shall be limited and reduced by means of the special agreements, upon the basis of the actual tonnages of the powers and with due regard to their geographical situation and special circumstances.

B. Special Agreement

For the purpose of these agreements, the world shall be divided broadly into the Pacific, Atlantic, European and South American groups, and the limitation and reduction of the tonnages to be actually retained by a country shall be agreed upon between that country and other countries of the same group on the basis of the provisions embodied in the general agreement. (As for the United States, the British Empire, France, Italy and Japan, the special agreements apply to the tonnages of B–class cruisers, destroyers and submarines). A country which is closely related to more than one group shall participate in the negotiation of the agreement of each of those groups.

Throughout the discussions of the Conference in the first six months, the most important point unanimously agreed upon was the principle of qualitative limitation, which was adopted with the basic idea in mind of strengthening defensive power by weakening offensive power.

Having this end in view, the Japanese Government urge, first of all, the total abolition of aircraft carriers, which were admitted by a great majority of the members of the technical Commissions to be most offensive, most efficacious against national defence, and most threatening to civilian populations. The Japanese Government also urge the reduction in the unit size of all categories of naval vessels, especially that of capital ships and A–class cruisers.

In view of the fact that the basic idea referred to above of strengthening defensive power by weakening offensive power necessarily demands a larger sacrifice on the part of larger navies in comparison with that of smaller navies, the former should be prepared to take the lead in larger reductions than the latter. To apply the same percentage of reduction to both large and small navies alike would naturally impair the sense of national security of countries with lesser navy, and this sense of security will diminish as the measure of reduction is increased. It is absolutely necessary, therefore, that in effecting the reduction in the tonnages of vessels possessing a high degree of relativity as between Powers, such as capital ships and A–class cruisers, the above consideration of national security should be taken into account in order that lesser naval Powers may not be disturbed in this regard. B–class cruisers and destroyers, having no great offensive power, are less important in the consideration of relativity. The tonnages required by each Power should therefore be determined primarily by the needs of that Power in view of its geographical situation and with due regard to the function of these types of vessels in coastal defence and protection of lines of communication in war time, and for patrol and similar services in time of peace.

Submarines, as was recognized by a large majority of the members of the Naval Commission, are of defensive and not offensive character. The degree of their relativity as between Powers is extremely slight and they constitute an arm indispensable for the defence of a lesser naval Power. The required tonnage should be determined, therefore, solely by the geographical situation and defensive needs of each country.

In short, the greatest importance should be attached to considerations of the geographical situation and special circumstances of each country in determining the tonnages of B–class cruisers, destroyers and submarines. The Japanese Government therefore propose that the actual tonnages of these vessels to be retained by the various Powers be determined by means of special agreements, and that the uniform maximum tonnages acceptable to all the Powers, for these three types of vessels, be stipulated in the general agreement.

In pursuance of the above considerations, the Japanese Government wish to put forward the following concrete proposal relating to the qualitative limitation to be embodied in the general agreement:—

The maximum unit size and gun calibre of vessels to be constructed in the future shall be reduced and limited as follows:

Type	Tonnage	Gun-calibre
Capital ship	25,000	14   inches (355 mm.)
A–class cruiser	8,000	8   inches (203 mm.)
B–class cruiser	6,000	6.1 inches (155 mm.)
Destroyer (including flotilla leader)	1,500	5.1 inches (130 mm.)
Submarine	1,800	5.1 inches (130 mm.)

Aircraft carriers shall be abolished, prohibiting at the same time the construction of aircraft landing platforms or decks on naval vessels.

A concrete proposal for the quantitative limitation of the tonnages to be retained by the five leading naval Powers has also been prepared. But the Japanese Government deem it appropriate that that proposal should first be examined by the said Powers.

The proposal of the Japanese Government based as it is upon the principles of disarmament which have received the approval of the public opinion of the entire world, offers, in their opinion, a fair, reasonable and practical solution of the problems of naval disarmament. In putting forward this proposal, the Japanese Government wish to make it clear that they are animated by the sincere desire to facilitate the successful conclusion of the Conference. It is submitted not only with the hope that the other naval Powers will encounter no difficulty in accepting it, but with the firm conviction that it will effect an enormous reduction in expenditures on armament that now weigh heavily upon the peoples of the world, and that it will lead the way toward the consolidation of a lasting world peace.

[Subenclosure]

Concrete Proposal

(1) The maximum unit size and gun calibre of vessels to be constructed in the future shall be reduced and limited as follows:

Type	Tonnage	Gun-calibre
Capital ship	25,000	14   inches (355 mm.)
A–class cruiser	8,000	8   inches (203 mm.)
B–class cruiser	6,000	6.1 inches (155 mm.)
Destroyer (including flotilla leader)	1,500	5.1 inches (130 mm.)
Submarine	1,800	5.1 inches (130 mm.)

Aircraft carriers shall be abolished, at the same time prohibiting the construction of aircraft landing platforms or decks on naval vessels.

(2) The strength of the British Empire, the United States, France, Italy and Japan in Capital ships and A–class cruisers shall be reduced to the following figures:

Capital Ships	Tonnage	Number of units
British Empire	275,000	11
United States	275,000	11
Japan	200,000	8

For France and Italy, the maximum tonnage shall be fixed at 150,000 (number of units being optional); and within that limit the actual tonnage to be allowed each Power shall be agreed upon by the Powers concerned.

A–Class cruisers
British Empire	96,000	12
United States	96,000	12
Japan	80,000	10

For France and Italy, the maximum tonnage shall be fixed at 56,000 (number of units, 7); and within that limit the actual tonnage to be allowed each Power shall be agreed upon by the Powers concerned.

(3) The maximum tonnage in B–class cruisers, destroyers and submarines for the United Kingdom, the United States, France, Italy and Japan shall be fixed as follows:

Type	Tonnage
B―class cruisers	150,000
Destroyers	150,000
Submarines	75,000

38. Not printed.